HomeMy WebLinkAboutCOUNCIL - COMPLETE AGENDA - 10/10/2023Fort Collins City Council
Work Session Agenda
6:00 p.m., Tuesday, October 10, 2023
Colorado Room, 222 Laporte Avenue, Fort Collins, CO 80521
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City of Fort Collins Page 1 of 2
City Council
Work Session Agenda
October 10, 2023 at 6:00 PM
Jeni Arndt, Mayor
Emily Francis, District 6, Mayor Pro Tem
Susan Gutowsky, District 1
Julie Pignataro, District 2
Tricia Canonico, District 3
Shirley Peel, District 4
Kelly Ohlson, District 5
Colorado River Community Room
222 Laporte Avenue, Fort Collins
Cablecast on FCTV
Channel 14 on Connexion
Channel 14 and 881 on Comcast
Carrie Daggett Kelly DiMartino Anissa Hollingshead
City Attorney City Manager City Clerk
CITY COUNCIL WORK SESSION
6:00 PM
A) CALL MEETING TO ORDER
B) ITEMS FOR DISCUSSION
1. Platte River Power Authority Resource Planning Update.
The purpose of this item is to update Council on Platte River Power Authority’s ongoing resource
planning, including pending decisions to add new natural gas dispatchable generation. Staff will
also be available to answer questions regarding how electricity resource planning is anticipated
to impact Fort Collins' Our Climate Future goals.
2. Council Priorities for Landscape Standard Improvements Including Xeriscape, Soil
Amendments, and Trees.
The purpose of this item is to seek council feedback on the staff work attributed to three council
priorities related to landscaping:
1. Council Priority 14. Effective soil amendment policies and compliance (water usage)
2. Council Priority 19. Xeriscape – Increase rebates and education, less green lawns with new
development.
3. Council Priority 28. Improving Tree Policies
This discussion is in preparation for the first reading of ordinances related to this work scheduled
for November 21, 2023, and January 2024.
3. East Mulberry Plan and Potential Annexation Strategy.
The purpose of this work session is to seek Council feedback on the draft of the East Mulberry Plan
and potential annexation considerations related to the plan. Staff will share a potential approach to
annexation for Council to consider based on a concept referred to as “Thresholds.”
C) ANNOUNCEMENTS
Page 1
City of Fort Collins Page 2 of 2
D) ADJOURNMENT
Upon request, the City of Fort Collins will provide language access services for individuals who have limited
English proficiency, or auxiliary aids and services for individuals with disabilities, to access City services,
programs and activities. Contact 970.221.6515 (V/TDD: Dial 711 for Relay Colorado) for assistance.
Please provide advance notice. Requests for interpretation at a meeting should be made by noon the day
before.
A solicitud, la Ciudad de Fort Collins proporcionará servicios de acceso a idiomas para personas que no
dominan el idioma inglés, o ayudas y servicios auxiliares para personas con discapacidad, para que
puedan acceder a los servicios, programas y actividades de la Ciudad. Para asistencia, llame al
970.221.6515 (V/TDD: Marque 711 para Relay Colorado). Por favor proporcione aviso previo. Las
solicitudes de interpretación en una reunión deben realizarse antes del mediodía del día anterior.
Page 2
City Council Work Session Agenda Item Summary – City of Fort Collins Page 1 of 3
October 10, 2023
WORK SESSION AGENDA
ITEM SUMMARY
City Council
STAFF
Kendall Minor, Utilities Executive Director
John Phelan, Energy Services Manager
SUBJECT FOR DISCUSSION
Platte River Power Authority Resource Planning Update.
EXECUTIVE SUMMARY
The purpose of this item is to update Council on Platte River Power Authority’s ongoing resource
planning, including pending decisions to add new natural gas dispatchable generation. Staff will also be
available to answer questions regarding how electricity resource planning is anticipated to impact Fort
Collins’ Our Climate Future goals.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. What feedback do Councilmembers have regarding Platte River Power Authority resource planning?
2. What additional information do Councilmembers need regarding impacts of electricity resource
planning on Fort Collins’ Our Climate Future goals?
BACKGROUND / DISCUSSION
Platte River Power Authority Resource Planning
In 2018, Platte River Power Authority (Platte River) Board of Directors approved the Resource
Diversification Policy (RDP), which directed Platte River to proactively work toward the goal of achieving a
100% noncarbon energy mix by 2030, provided the organization’s foundational pillars of reliability,
environmental responsibility and financial sustainability can be maintained. This is one of the most
progressive and aggressive carbon reduction goals in the United States for an electric utility. To achieve
this goal—and comply with legislation and regulations regarding greenhouse gas emissions (HB19-
1261)—Platte River will retire all its coal fired baseload dispatchable generation including Rawhide Unit 1
by the end of 2029. Since the approval of this policy, Platte River has added 225 megawatts (MW )
Roundhouse wind, 52 MW of solar at the Rawhide site and contracted for 150 MW of Black Hollow solar,
which will be operational by 2025. Roughly half of Platte River’s owner communities’ annual loads will be
met with the addition of these new renewable generation resources.
It is important to note, with the intermittency of wind and solar and the loss of baseload dispatchable
resources the challenge is to create a reliable, efficient, low-carbon, and financially sustainable resource
replacement strategy to maintain reliability. This includes an identified need for new dispatchable
Page 3
Item 1.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 2 of 3
resources, i.e., facilities that supply on demand adjustable power outputs to the electrical grid. These new
resources will also support Platte River‘s need to meet the reserve margin requirements of the regional
energy Market it is preparing to join in 2026.
Currently, Platte River is developing a 2024 Integrated Resource Plan (IRP) that will ensure an adequate
supply of reliable, financially sustainable, and environmentally responsible electricity to cover its member
communities’ load and meet the reserve margin requirements of the energy Market. This IRP is a
continuation of the 2020 IRP and portfolio updates from 2022. The Western Area Power Administration
(WAPA), one of four power marketing administrations within the U.S. Department of Energy (DOE),
requires an IRP every five years.
The IRP process contains three major inputs:
Assumptions including load forecast, distributed energy resource potential, power price forecast,
resource cost forecast, extreme weather models and future renewable generation expectation;
Development of portfolios that emphasize a renewable resource mix, lowest reasonable cost and
maximum CO2 reduction while meeting required reserve margins;
Reliability testing of the proposed portfolios under normal and extreme weather events and extended
periods of low or no renewable generation, similar to the winter Storm Uri in February 2021.
To account for the loss of 431 MW of coal-fired generation with the closure of coal generation facilities,
Platte River is modeling different generation portfolios that will accelerate renewable integration with
support from highly flexible, dispatchable capacity that is anticipated to include a combination of energy
storage, a virtual power plant and aeroderivative technology, capable of dual fuel operation, using natural
gas initially and transitioning to green hydrogen in the future.
Based on the rigorous analysis of future portfolios, evaluation of different scenarios, and consultations with
outside advisors, Platte River has recommended to its board of directors a resolution of support for
dispatchable capacity that enables the acceleration of renewable integration while maintaining reliability
and financial sustainability as they continue working toward the Resource Diversification Policy.
Our Climate Future Goals
Adopted by Council in April 2021, Our Climate Future (OCF) is an integrated update of the Climate Action
Plan, Energy Policy, and Road to Zero Waste that articulates the community’s vision for a sustainable
future. OCF reinforces Fort Collins’ deep commitment to mitigating and adapting to climate change and
meeting energy and waste goals with a people-first systems approach. This means community members’
voices and priorities are at the center of solutions, summed up in 13 visionary outcomes known as Big
Moves. OCF is now a framework for accomplishing community and Council environmental priorities using
a data-informed, systems-based approach.
The OCF primary carbon and electricity goals are to achieve:
• Carbon emissions
- 50% below 2005 by 2026
- 80% below 2005 by 2030
- Carbon neutral by 2050
• 100% renewable electricity by 2030
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Item 1.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 3 of 3
Renewable electricity is a critical factor for achieving community carbon goals by directly reducing
emissions from electricity use and enabling additional carbon emissions reductions from electrification of
buildings and vehicles.
There are three frameworks which help to describe the structure between Fort Collins and Platte River
goals and guiding principles. Together, they represent the interrelated objectives, metrics and reporting as
well as the evolving relationships between the organizations and customers.
1. Fort Collins Our Climate Future Goals – City as consumer
2. Platte River Resource Diversification Policy – City as member owner of generation agency
3. Electric system and Market – City as part of Platte River planning and operations
Related to Platte River’s resource planning update, staff highlights the following points:
Fort Collins is committed to achieving the community goals from Our Climate Future (OCF) of 80%
community-wide carbon reduction and 100% renewable electricity by 2030.
Fort Collins recognizes that additional dispatchable resources will be needed to ensure reliability after
the closure of all coal-fired power plants at the end of 2029.
Fort Collins is committed to facilitating more local generation and resources that reduce the carbon
emissions and overall need for purchased electricity.
PRPA’s proposed portfolio is still consistent with Fort Collins achieving its 2030 Our Climate Future
goals.
In addition to this new modern gas power plant, PRPA has a confirmed project to add 150 MW of solar
by early 2025. Beyond 2025, planning continues to add another 150 MW of solar in early 2026, 200
MW of wind in 2027 and ongoing deployments of battery storage and virtual power plant capacity. This
overall expansion of PRPA’s renewable energy portfolio will assist Fort Collins in achieving our OCF
goals.
This development of PRPA’s energy portfolio is in line with Fort Collins Utilities’ rate increase
projections and overall philosophy of smooth, predictable rate increases.
NEXT STEPS
Platte River recommended a resolution of support during their September 28, 2023, board meeting for
additional dispatchable capacity. Utilities Executive Director Kendall Minor and Mayor Jeni Arndt serve on
the board of Platte River. Platte River is expected to bring a formal resolution of support to their board at
their October 26, 2023, meeting.
ATTACHMENTS
1. Presentation - Fort Collins Our Climate Future Goals Introduction
2. Presentation - Platte River Power Authority Resource Planning Update
Page 5
Item 1.
Presented by:
Platte River Power Authority
Resource Planning Update
and
Our Climate Future Goals
Fort Collins City Council
October 10, 2023
Kendall Minor, Utilities Executive Director
John Phelan, Energy Services Manager
Page 6
Item 1.
2Topic Alignment
Strategic Objective 4.1: Intensify efforts to meet 2030 climate, energy
and 100% renewable electricity goals that are centered in equity and
improve community resilience
Page 7
Item 1.
3
Our Climate Future –Climate and Renewable Goals
•Carbon emissions
-50% below 2005 by 2026
-80% below 2005 by 2030
-Carbon neutral by 2050
•100% renewable electricity by 2030
Page 8
Item 1.
4Three Connected Frameworks
Our Climate Future Goals
•City as electricity consumer
•Annualized renewable
accounting
•Local solar
•Virtual power plant
•Changing relationship
with Platte River
•New financial risks &
opportunities
•Generation mix
accounting
•State Clean
Energy Plan
reporting
Electric system and
Market
•City as part of Platte River
planning and operations
Platte River Resource
Diversification Policy
•City as part owner of a
generation authority
•Hourly operations
and accounting
•New financial risks
& opportunities
Page 9
Item 1.
5
Page 10
Item 1.
Resource planning update
Oct. 10, 2023
Page 11
Item 1.
Agenda
•Introduction | Kendall Minor
•About Platte River Power Authority | Jason Frisbie
•2024 Integrated Resource Plan | Raj Singam Setti
Page 12
Item 1.
Regional identity and philosophy
Page 13
Item 1.
About Platte River
Jason Frisbie, general manager and CEO
Page 14
Item 1.
About Platte River Power Authority
Platte River Power Authority is a not-for-profit, community-owned public power utility
that generates and delivers safe, reliable, environmentally responsible and financially
sustainable energy and services to Estes Park, Fort Collins, Longmont and Loveland,
Colorado, for delivery to their utility customers.
At a glance
Headquarters
Fort Collins, Colorado
General manager/CEO
Jason Frisbie
2023 projected deliveries of
energy to owner communities
3,301,376 MWh (~33% renewable)
Employees
297
Peak demand
707 MW on July 28, 2021
2023 projected deliveries of energy
5,174,234 MWh
Began operations
1973
Transmission system
Equipment in 27 substations, 263 miles of
wholly owned and operated high-voltage lines
and 522 miles of high-voltage lines jointly
owned with other utilities.Page 15
Item 1.
Resource Diversification Policy
Purpose
To provide guidance for resource planning, portfolio
diversification and carbon reduction.
Goal
To support owner community clean energy goals, we will
proactively work towards a 100% noncarbon resource mix by
2030 while maintaining our foundational pillars of providing
reliable, environmentally responsible and financially
sustainable energy and services.
Passed by Platte River’s Board of Directors in 2018
\
•Transmission and distribution infrastructure
investment must be increased
•Transmission and distribution delivery systems
must be more fully integrated
•Improved distributed generation resource
performance
•Technology and capabilities of grid management
systems must advance and improve
•Advanced capabilities and use of active end user
management systems
•Generation, transmission and distribution rate
structures must facilitate systems integration
•Battery storage performance must mature and
the costs must decline
•Utilization of storage solutions to include thermal,
heat, water and end user available storage
•An organized regional market must exist with
Platte River as an active participant
Accomplished
In progress
Awaiting technology
Page 16
Item 1.
Foundational pillars
Platte River is committed to decarbonizing our resource portfolio without
compromising our three pillars:
•Reliability
•Environmental responsibility
•Financial sustainability
Page 17
Item 1.
Progress since 2018
The 2024 IRP builds on the 2020
IRP and resource planning and
modeling that occurred in 2021
and 2022
•225 MW of Roundhouse wind
•Announcement to decommission coal resources
•Developed a distributed energy resources strategy
•Filed 2020 IRP
•22 MW Rawhide Prairie Solar with 2 MWh battery
•150 MW Black Hollow Solar power purchase
agreement
•Additional solar and energy storage RFPs
•Filed Clean Energy Plan with the state of Colorado,
which requires all electric utilities to achieve 80%
carbon reduction by 2030
•Entry into Southwest Power Pool Western Energy
Imbalance Service market
Page 18
Item 1.
33.3% noncarbon resources
2023 budget system total2018 system total
61.8%15.0%
11.8%
8.2%
1.6%1.6%
Coal Wind Hydropower Solar Other purchases Natural gas
56.8%
22.7%
8.4%
7.4%
2.5%2.2%
Includes renewable energy credit
allocations to carbon resources
Due to drought conditions, not all
hydropower may be considered
noncarbon
24.8% noncarbon resources
Page 19
Item 1.
Progress on adding renewable generation
0
500
1000
1500
2000
2500
2018 2019 2020 2021 2022 2023 2024
Th
o
u
s
a
n
d
s
o
f
M
W
h
Annual renewable energy generation
Hydro Wind Solar
317
1,407 Over 1 million
MWh of
renewables added
since 2018
Page 20
Item 1.
Currently planned renewable supplies
Page 21
Item 1.
33.3% noncarbon resources
2023 budget system total 2030 projected system total
88.4% noncarbon resources
Renewable resources Dispatchable resources (includes purchases)
Includes renewable energy credit
allocations to carbon resources
Due to drought conditions, not all
hydropower may be considered
noncarbon
33.3%
66.7%
88.4%
11.6%
Page 22
Item 1.
Our shared energy transition and future
88.4% noncarbon energy
•More wind
•More solar
•Hydro
•4-hr battery storage
11.6 % dispatchable capacity
•Virtual power plant
•Long-duration storage
•Dispatchable thermal capacity
2030 projected system total
Page 23
Item 1.
2024 Integrated Resource Plan
Raj Singam Setti, chief transition and integration officer
Page 24
Item 1.
What is an IRP
•An IRP is a planning process which integrates customer demand and distributed energy
resources (DERs) with utility resources to provide reliable, economical and environmentally
desirable electricity to customers
•Typically developed for the next 10-20 years and updated every few years
•IRP assists with preparing for industry changes including:
•Technological progress
•Consumer preferences
•Regulatory mandates
•Required by Western Area Power Administration (WAPA) every five years
•WAPA requires a short-term action plan and an annual follow up on plan execution
•Last IRP was submitted in 2020
Page 25
Item 1.
IRP modeling process
•Load forecast
•DER potential
•Power price forecast
•Resource cost forecast
•Extreme weather models
•Renewable profiles
Input assumptions Portfolio development Reliability testing
•Resource mix
•Renewable
•New technology
•Least cost
•Carbon reduction
•Reserve margins
•Portfolio testing with
•Dark calms (low
supply)
•Extreme weather
(high demand)
•Different
wind/solar profiles
Plexos modelPage 26
Item 1.
Summary
Study Advisor Status
Extreme weather event and dark calm analysis ACES Completed
Planning reserve margin requirements and effective load carrying capability Astrape consulting Completed
Building electrification forecast Apex Analytics Completed
DER potential study Dunsky Draft report
Price volatility, congestion, and curtailment ACES Completed
Emerging technologies review. Assess state of the art and future cost/availability of
dispatchable technologies, hydrogen, ammonia, energy storage and carbon capture B&V consulting Expected by Q3
Dispatchable technology selection. Techno-economic assessment of available
options and recommendation of the best fit B&V consulting Expected by Q3
Page 27
Item 1.
Extreme weather events and dark
calms
Page 28
Item 1.
Extreme weather events summary
Heat waves:
Cold waves:
•4-8 heat and cold waves lasting
about a week experienced every
year
•Noticeable increase in frequency,
duration and intensity of heat
waves
•Noticeable decrease in
frequency, duration and intensity
of cold waves
Heat Wave Summary –West Region
48 Hours 72 Hours 96 hours 120 hours 144 hours 168 hours
Events per year 0.47 0.02 0.09 0.04 0.021 0.043
Cold Wave Summary –West Region
Number of
Hours 48 72 96 120 144 168 192 216 240 264 288 312 336
Events per
year 4.9 1.7 0.9 0.4 0.17 0.08 0 0 0 0 0 0 0
Cold Wave Summary –Colorado Region
Number of
Hours 48 72 96 120 144 168 192 216 240 264
Events per
year 2.36 0.9 0.3 0.17 0.02 0.04 0 0 0 0
Page 29
Item 1.
Dark calm events
summary
•Meeting reliability requirements for a 3-day
event (72 hours)
•Ensuring uninterrupted power supply for
the full duration
•Managing renewable output
•Addressing losses of Up to 15% in
renewable output
Page 30
Item 1.
Reliability during dark calms (DC) and extreme
weather events (EWE)
•This is DC experienced during winter storm Uri in 2021. We scaled
up the load and generation to 2031.
•The only way to supply noncarbon energy during DC is to rely:
•Long duration energy storage (LDES), that once charged
will last many days
•Traditional generation burning noncarbon fuel like hydrogen
•Currently available 4-hour Li Ion battery will not be sufficient. Even
if we build 3000 MW (cost $4.5 billion), that will not be sufficient.
•Based on our analysis, we will need about 13,000 MW of 4-hour
storage –which is not practical
•Can the market help? Maybe, but we cannot plan on it.
•Usually severe weather patterns cover large areas. Most
likely, all the neighboring utilities will be having similar
shortages as we saw during Uri
•Even if we can find power, it will be very expensive. Our
quick analysis showed it will cost almost 40% of our annual
power supply cost. This was observed for many small
utilities after Uri.
•During winter severe weather, there are challenges of getting fuel
as well, which means on-site storage will be required
A 3 GW battery will last a day. 10 GW battery will cover this DC but we
would need 13 GW to cover an expected DC lasting up to 5 days.
Page 31
Item 1.
Planning reserve margin (PRM) and
effective load carrying capability
(ELCC) study
Page 32
Item 1.
Planning reserve margin (PRM) requirement
•Each utility must carry a spare
capacity. Market can help in
emergencies but does not
guarantee
•Historically, PRM was 15% but with
the addition of intermittent
renewables it is going up
•Independent assessment from
external advisors suggested we will
need 20-25%
•WECC study recommends 22-25%
for our area
•Texas increased the requirement
from 13% to 18%
Renewable generation, DERs and 4-hour battery storage can provide PRM but, their
ELCC drops significantly as you add more resources, due to intermittency and
energy limitations. Long duration energy storage (when developed) or traditional
thermal generation are better suited to provide PRM. A 100 MW wind or solar can
only 5-10 MW of PRM, while 100 MW of LDES or thermal generation can provide 90
MW of firm capacity.
PRM
Page 33
Item 1.
Modeling basis
•Assessed regional PRM for one outage in 10 years or
annual Loss of Load Expectation (LOLE) of .1
•Ran 63,000 simulations (42 years of historical weather X
five load forecast errors X 300 outage patterns)
WACM
CSU
PSCO
BHCPRPA
AZ
SPS
(SPP)
PACE
PNM
350/350
350/350350/350
210/210
350/350
1000/0
0/420
400/300
100/100
844/0
200/200
400 /400
650/0
300/300
Assumed market
region
Conventional resources ~8,900 MW
Storage and renewable resources
Battery storage 867
Distributed solar 1,820
DR 670
PSH 301
Solar 3,880
Wind 6,280
2030 resource mix
Modeling year 2030. Assumed a regional
market to realize diversity benefits.
Page 34
Item 1.
Results are somewhat in line
with proposed PRM
requirements for our region.
https://www.wecc.org/Reliability/2022%20Western%20Assessment%20of%20Resource%20Adequacy.pdf
2030 PRM curve
Study recommends a PRM of 19.9% which includes a diversity benefit of 2.2%
Page 35
Item 1.
Building electrification
Page 36
Item 1.
Key findings
•Space heating has the
biggest impact,
especially after 2030
•Partial electrification of
heat with gas back up
improves load factor
•Full electrification
causes significant
impact on winter peak
Sector End use Percent of 2040 fossil fuel
GHG emissions Included in PRPA forecast
Residential Space heating 51.8%Yes
Residential Water heating 12.5%Yes
Residential Cooking 1.7%Yes
Residential Lawn and garden 0.9%No
Residential Clothes Dryer 0.5%No
Commercial Space Heating 23.6%Yes
Commercial Cooking 4.7%Yes
Commercial Water Heating 2.9%Yes
Commercial Fork Lifts 0.8%No
Commercial Lawn and Garden 0.6%No
Components of electrification load
Page 37
Item 1.
-
200
400
600
800
1,000
1,200
2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040 2041 2042 2043 2044 2045 2046
MW
Low Mid Hi
High case assumes
all-electric new
homes required in
2030
Building electrification winter peak projection
•Platte River may
become winter
peaking sometime
after 2040
•Winter peaking
starts roughly 5-7
years after all
electric new
building code goes
into effect
High
Page 38
Item 1.
DER potential study
Page 39
Item 1.
DER potential study scope
•Technologies: transportation electrification, distributed generation + storage and
demand response
•Scenarios: three market potential scenarios that consider market/technology factors and
program/utility levers (incentives, rates, policy, etc.)
•Sectors: residential single family, residential multi-family, small commercial, large
commercial
•Outputs: technology adoption (number of units), annual energy impacts (MWh), hourly
demand impacts (MW), program metrics (budgets)
Page 40
Item 1.
Transportation electrification unmitigated energy and demand
summer medium growth
Page 41
Item 1.
Behind the meter solar potential
Medium + medium Net Energy Metering blended
Page 42
Item 1.
Behind the meter storage potential
Medium + medium Net Energy Metering blended
Page 43
Item 1.
Market price volatility
Page 44
Item 1.
Locational marginal
price (LMP) forecast
030 Base case assumptions (20 locations)
500 MW wind at Rail Tie site in WY
1800 MW of Wind connecting to Gateway South in Western WY
3000 MW of Wind connecting to Colorado Power Pathway
500 MW of wind near Casper WY
500 MW of solar near Craig CO
2000 MW of Utility Scale Solar in the Denver-Pueblo Area
1000 MW of distributed solar in Denver-Pueblo Area
200 MW of peaking generation at Cheyenne Energy Station
1300 MW of peaking generation in Denver area
500 MW of batteries in Denver area
Retirement of all coal Units in CO
Page 45
Item 1.
LMP forecast -2030
-5
5
15
25
35
45
55
65
75
85
95
105 Average of Rawhide (BC)
Average of Rawhide (S3)
Page 46
Item 1.
New dispatchable capacity
Page 47
Item 1.
Virtual power plant –
integration
Information needed from the
owner communities
•Data is fuel for VPP
•Meter Data -AMI
•Distributed generation and DER
availability/capability/derates
•Demand response status by
program
•EV/devices aggregated status
Building electrification
Electric vehicles
Demand response
Distributed generation
Virtual power plant
Page 48
Item 1.
Long duration storage
Page 49
Item 1.
Dispatchable thermal capacity
Recommend the most suitable dispatchable technology to provide 170-240 MW
by 2028 to complement renewable generation after coal retirement
Followed a multi-track process
Internal team
•Resource planning
•Portfolio strategy
•Operation
•Engineering
•Transmission
•Environmental
•Permitting
Vendor engagement
•GE
•Mitsubishi
•Mitsubishi Aero
•Siemens
•Wartsila
•Pro Energy
Site visits
•Cheyenne
•Drake
•Pueblo
•Meetings with utilities
B&V process
•Screening
•Operational
characteristics
•LCOE
•Operational flexibility
•Reliability
•Fuel versatility
•Emissions
•Constructability
•Market performance
Decision matrix
•More weights to the
attributes related to three
pillars
•Multiple sub-categories
•Qualitative and
quantitative attributes
evaluated
Page 50
Item 1.
Dispatchable
thermal capacity
Qualification Weighting
Reliability 0.30
Emissions 0.25
Costs 0.20
Operational Flexibility 0.10
Fuel Versatility 0.05
Constructability 0.05
Market Performance 0.05
Total weighted score 1.0
Decision matrix
Page 51
Item 1.
Key takeaways
2030 projected 11.6% dispatchable capacity
•Long duration storage
•Emerging technologies are promising
•In discussions with two potential suppliers
•Virtual power plan integration
•DER team established across owner communities
working to accelerate the integration of DERs
•Dispatchable thermal capacity
•Enables deeper level of renewable penetration
•Supports the integrity of the grid
•Ensures reliability through dark calms
•Hydrogen capable
88.4%
11.6%
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Item 1.
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Item 1.
Questions
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Item 1.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 1 of 12
October 10, 2023
WORK SESSION AGENDA
ITEM SUMMARY
City Council
STAFF
Kathryn Marko, Environmental Regulatory Affairs Manager
Katie Collins, Water Conservation Specialist
Kendra Boot, City Forester
Eric Potyondy, Legal
SUBJECT FOR DISCUSSION
Council Priorities for Landscape Standard Improvements Including Xeriscape, Soil Amendments,
and Trees.
EXECUTIVE SUMMARY
The purpose of this item is to seek council feedback on the staff work attributed to three council priorities
related to landscaping:
1. Council Priority 14. Effective soil amendment policies and compliance (water usage)
2. Council Priority 19. Xeriscape – Increase rebates and education, less green lawns with new
development.
3. Council Priority 28. Improving Tree Policies
This discussion is in preparation for the first reading of ordinances related to this work scheduled for
November 21, 2023, and January 2024.
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. What feedback or questions does Council have on applying landscape and irrigation standards to single -
unit dwelling front yards?
2. On daytime watering restrictions, what feedback or questions does Council have regarding:
a. Application to all water districts within City limits?
b. Staff continuing conversations with raw water users and providers?
3. What feedback or questions does Council have on the proposed path forward?
BACKGROUND / DISCUSSION
In addition to visual appeal, landscapes serve several environmental and human health benefits that include
improved air quality, passive stormwater management, heatsinking and cooling, wildlife habitat and outdoor
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Item 2.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 2 of 12
recreation opportunities. When landscapes are made more resilient and paired with community education and
outreach, the community and community’s landscapes are better prepared for challenges such as increasing
water costs, a warming climate, and water restrictions resulting from declared water shortages.
The scope of this project intends to promote healthy, resilient landscaping practices in Municipal and Land Use
Codes and program enhancements. The codes are proposed to apply to new development and significant
redevelopment, such as scrape and rebuild, within City limits. Some of these updates will impact existing
properties through programs and processes, such as the Xeriscape Incentive Program (XIP), or Parkway
Amendments.
An overview of recommendations is listed under each of the three Council Priorities.
Council Priority 14. Effective Soil Amendment Policies and Compliance (Water Usage):
Soil preparation is the first and critical step for growing healthy resilient vegetation. The benefits of soil
loosening include better water infiltration and strong root growth. Soil quality includes the physical and
chemical conditions of the soil and is considered when evaluating existing soil conditions, plant species needs,
and appropriate soil amendment. The following are key updates recommended for Municipal Code Chapter
12:
Define standards for soil compaction and soil quality.
Remove barriers for implementing soil standards in a way that is most beneficial and sustainable, allowing
consideration of existing soil and/or plant type for optimum establishment and growth.
Clearly define thresholds for applicability to include essentially everything except single-unit dwelling
landscape renovations.
o Residential seeking Certificate of Occupancy and > 1,000 square feet (sf) where plant materials will be
installed.
o Non-residential requiring development review and > 1,000 square feet (sf) where plant materials will
be installed.
Soil loosening and amendments are fundamental to healthy and resilient landscapes. If not done properly to
begin with, it is a significant effort to fix after the fact. To complement and enforce soil codes, staff proposes
to implement a comprehensive field inspection program for all sites.
Council Priority 19. Xeriscape – Increase Rebates and Education, Less Green Lawns with New
Development
Continue to promote water efficiency in existing landscapes with incentive and rebate programs and
greater Citywide outreach and education.
Update Land Use Code 3.2.1
o As it pertains to Landscape Standards:
For the purpose of reducing heat-island effect, require 50% living plant coverage on the surface of
all landscaped areas
For the purposes of reducing heat-island effect, waste stream and pollution, restrict the use of
artificial turf with limited exceptions, as approved by the Planning Director
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 3 of 12
For the purpose of building landscapes that are resilient from the start, implement a limitation of
high-water use turf grass such as Kentucky bluegrass
For non-single-unit dwelling properties: high-water use grass may cover up to 30% of the total landscaped
area but no greater than 10,000 square feet (sf)
For single-unit dwelling properties: high-water use grass may cover up to 30% of the total landscaped
area of a front yard but no greater than 1,000 sf.
o As it pertains to Irrigation Standards:
For the purpose of protecting trees during times of water shortage, require dedicated irrigation to all
new and existing trees for properties in development review
Irrigation equipment and efficient design standards for single-unit dwelling front yards
Update Municipal Code 12-123 to limit overhead irrigation of landscaping and turf between 10 a.m.
and 6 p.m., May through September of every year.
Council Priority 28. Improving Tree Policies
Trees are an important part of the community infrastructure and provide many essential social, environmental,
and economic benefits to everyone who live, work, and play in Fort Collins. It is important to note that tree-
related policies have been strong in Fort Collins for several decades and have created the urban tree canopy
that exists today. The Land Use Code 3.2.1 policies have helped development preserve the character of Fort
Collins and have also helped increase canopy as the community grows, including adding an average of 1,500
to 2,000 new street trees annually. With the continued demands of development, redevelopment, and
additional pressures on the canopy, the proposed policy updates create a stronger focus around tree
preservation and protection. The goal is to save more trees, to adequately replace canopy loss due to
development, and create a more resilient urban forest related to, but not limited to, the pressures of the built
environment, water shortages, a changing climate, and the introduction of future invasive pests. The following
tree policy areas of focus are:
Improved mitigation standards incentivizing tree preservation.
o All trees 2-inches and greater will be mitigated for, sans current exception species.
o Trees 13-inches and greater will be valued and mitigated at the full tree appraised value.
Creation of separate street tree escrow to increase tree survivability.
o 25% of the cost of all street trees to be planted within the LOD shall be posted before issuance
of the Development Construction Permit.
Strengthened penalties for tree damage violations or premature healthy tree removal to preserve trees
longer.
o Up to the full appraised value of the tree.
Improved tree diversity requirements creating a more resilient canopy.
Improved tree protection during construction.
DISCUSSION
Landscape and Irrigation Standards for Single-Unit Dwelling Front Yards
Landscape or irrigation standards do not currently apply to single-unit dwelling residential properties.
Extending landscape and irrigation standards to single-unit front yards is one way the City can increase
landscape resiliency in this type of development and reduce water use. Landscapes built smart from the start
require less resources down the road to retrofit. A new front yard in Fort Collins consists of anywhere from 0-
70% turfgrass with average size of total front yard landscape area in the range of 1,000-2,000 square feet.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 4 of 12
Applying landscape standards to single-unit dwelling residential properties will require a new design review
process, permitting process, and one or more inspections per site. Additional programs and processes to
support review and inspection of landscape and irrigation standards on single-unit front yards require
additional staffing equivalent to one full-time employee.
Initial estimates suggest a residential water savings of 79 million gallons per year assuming a 30% turf
maximum in front yards. This is equivalent to the annual average water use of 985 homes and nearly half of
the water savings reported by Water Conservation’s 16 plus programs in 2022. As evidenced by participants’
water use data collected through the Xeriscape Incentive Program, education and outreach that supports
implementation and maintenance of these standards on single-unit and all other properties in the community
is a critical component of realized water savings for water-wise landscapes. It is recommended that one full-
time education position (see table 2 below – “Landscape Education Programming”) support proposed
landscape standards, as well as existing landscape standards throughout the community (Citywide).
Detailed in the “Cost Impacts” section is the cost comparison of installing a water-wise landscape versus
typical grass landscape on a single-unit front yard. The cost impact illustrates little financial incentive to install
water-wise landscaping but it can be assumed that the cost of installing a majority-turf landscape only to
retrofit years later is far more wasteful and expensive.
Daytime Watering Restriction
Due to elevated evaporation and plant water loss by transpiration (“evapotranspiration”), watering during
warmer daylight hours in the summer months is an inefficient use of water. Limiting the volume of water
applied to landscapes by above-surface irrigation methods would reduce the volume of water lost to
evapotranspiration. Uses such as agriculture, research, or nursery operations would not be subject to these
restrictions. Exceptions for drip irrigation and activities such as sprinkler maintenance and seed/sod
establishment for up to six weeks are proposed.
Depending on the level of enforcement, Citywide enforcement of a daytime watering restriction is estimated
to require up to one half-time employee.
Daytime Watering Restriction in City Limits
Staff are recommending daytime watering limitations for all treated water within City limits, regardless of water
provider. East Larimer County and Fort Collins Loveland water districts are aware of this proposal and are
indifferent, with an understanding that staff are responsible for any enforcement measures.
Daytime Watering Restriction for Raw Water Users in City Limits
Expanding the daytime watering restriction to raw water users in City limits would extend the use of all water
resources – treated or raw – for maximum benefit. Conversations are ongoing with several raw water users and
providers (e.g., ditch and reservoir companies) to determine the impact, and support or opposition for the
restriction on irrigation with raw water. The daily operational impacts seem to be minimal for most users, who
state they do not currently irrigate during the day. However, to date, we have heard from two raw water users
who stated that their system requires daytime watering for proper functionality. In addition, we have heard
some concerns regarding whether this is an overreach by the City.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 5 of 12
Cost Impacts
Impacts to Development
New standards will have a varying level of cost impact at time of development and beyond.
There is currently very little incentive to preserve trees during development. With the proposed tree mitigation
standard, the new mitigation value could triple the cost. However, if a development decides to design around
and preserve more existing trees, this will incentivize tree preservation, reduce the overall mitigation cost
responsibility, and potentially reduce the cost impact. If the trees are still removed, then the new mitigation
standards would adequately replace canopy back into the community via payment in lieu, and the Forestry
Division would organize the tree replacements on public right-of-way. Regarding penalties around tree
damage (above and below the ground) as well as premature healthy tree removal post development, violators
could be responsible for up to the full appraised value of the trees damaged or removed.
The design and installation cost of landscapes is highly variable and dependent on materials selected. For all
property types, landscapes with a lower water requirement will ultimately result in lower water bills if the
landscape is managed appropriately. The cost difference to install and irrigate the typical grass landscape
versus 30% maximum grass landscape has more of an impact on single-unit properties than on commercial
properties. Initial installation costs and costs to irrigate over 20 years are both detailed in Table 1.
In some water districts, a significant incentive for commercial developments is reflected in water requirement
development fees. New commercial projects in the water districts that base raw water or water supply
requirement (WSR) costs on the landscape’s water requirement1 will pay lower water development fees when
the landscape has a lower water requirement. This same water conservation incentive does not exist for single-
unit homes, but could be developed in Fort Collins Utilities. If we assume the example below reduced the front
yard water use by 50%, the reduction in the front yard WSR would be $940, much less than the commercial
example due to a smaller landscaped area. We would need to consider whether an allotment would then be
applied to the property, like commercial properties, to ensure an ongoing reduction in water use. Utilities staff
cannot ensure that the other water districts would also develop something similar.
1
1 Fort Collins Utilities Water District and East Larimer County Water District use landscape types to determine Water Supply
Requirement/Raw Water Requirement costs.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 6 of 12
Resource and Staffing Needs
The full list of improvements will create an increased workload that cannot be absorbed into existing
operations. However, the three priority areas are at different stages of preparation and implementation.
During the 2023/2024 Budgeting for Outcomes process, three full-time landscape inspectors were requested,
and two were funded to support inspections for new development. One inspector was hired in 2023 to support
Forestry and the second, which was funded for 2024, will be hired next year to support Environmental
Planning. Additional staffing is not being requested at this time; however ongoing needs will continue to be
evaluated.
Soil standards code requirements have been in place since 2003, but the program does not include a
standardized field inspection program. The current program is largely administrative and given the current
workload, is not able to incorporate field inspections with existing resources. The added work to perform field
inspections for all applicable sites is estimated to be one full-time employee (FTE). This additional FTE is
similar to xeriscape and irrigation inspectors and is included in the evaluation, shown in Table 2.
Xeriscape and irrigation have new requirements that need additional resources. Two FTEs are estimated for
plan review and field inspections. The workload to enforce the watering window restrictions is estimated to be
0.5 FTE. With significant changes to the code and requirements, it is vital to dedicate efforts to education and
outreach and one FTE is estimated to implement a holistic program. Landscape Education Programming is a
proposal to support landscape efforts Citywide. The employee in this position will coordinate with forestry,
soil, xeriscape and other landscape expertise through the City organization and community to provide
dedicated and comprehensive water-wise and climate resilient landscape education for those with an interest
in existing and/or new landscapes. This position will provide education and resources to the public across all
water service areas in Fort Collins to advance sound landscape principles.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 7 of 12
Table 2 reflects the full-time in-house employee request based on the core updates recommended by staff,
including xeriscape, irrigation and soil inspections. However, various funding and staffing sources were
explored and are detailed in the subsection titled “Scalability and Other Alternatives.” Pending final policy
direction from Council at this work session, the proposed staffing request will be adjusted accordingly.
Funding is requested from the General Fund to implement these codes Citywide. Should any of these
codes be recommended by Council to only apply to Fort Collins Utilities’ water service area, those
expenses associated with water service area may only be funded by the Water Fund.
Scalability and Other Alternatives
Plan reviewers and inspectors could be contracted instead of hired as staff. In looking at three FTEs for
xeriscape, irrigation, and soils, hiring a third-party to complete landscape and irrigation design review
and inspection tasks would eliminate an estimated ongoing cost of $279,594 and one-time costs of
$42,500, but would come at a greater cost of approximately $375,000 annually.
The expense of funding three FTEs for xeriscape, irrigation, and soils could be recovered in permit fees.
Requiring 100% of the ongoing expenses to be paid by development applicants with a permit fee would
increase permits on average $600 each - $200 of which can be attributed to soil inspections - with a
lesser amount likely being applied to residential vs. commercial development. Alternatively, a portion
of the total amount could be paid for by permit fees and the remainder could be covered by the General
Fund.
The work and associated FTEs related to site inspections, enforcement, and education for xeriscape,
irrigation, and soils could be scaled pending final direction from Council. Level of inspection and
enforcement is most likely to be impacted by a reduction in recommended staffing.
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Item 2.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 8 of 12
Eliminating the 0.5 FTE for enforcement of daytime watering restrictions could be achieved by only
applying the daytime watering restriction to Fort Collins Utilities water service area. The level of
enforcement would be reduced to monitoring by water meter data use patterns and incidents reported
to the City’s Save Water hotline and would likely result in little to no follow up, following a compliance
notification.
An expansion of the Xeriscape Incentive Program to serve customers in other water districts could
incentivize new construction to install water-wise landscapes voluntarily. To rebate 100 single-unit new
development projects throughout City limits (about 25% of Citywide average annual permits) would
require an additional budget of $100,000 for rebates and $100,460 for 1 FTE. The cost burden to the
General Fund would be greater compared to single-unit landscape regulations. Conversely, the cost
burden to the owner/developer would be less.
Public Engagement
Public input and engagement are critical components for a successful outcome. A variety of engagement
tools have been used including utilization of the OurCity platform, surveys, social media posts, focus
groups, virtual meetings, workshops, in-person meetings, presentations, and direct communication with
community members. Here are a few highlights from the engagement efforts:
929 responses and 5,878 comments on public survey
37 comments on boosted social media posts
166 hits on OurCity webpage
14 virtual opportunities for input (September 2022 – April 2023)
o 56 attendees
o 22 internal
o 34 external
298 emails sent to 167 contacts
6 Boards and Commission meetings completed, 2 more scheduled
Over the past two years of engagement, we have seen varying levels of representation from groups
including:
Developers
Landscape professionals
Landscape architects and designers
Realtors
Property managers
Nurseries and wholesalers
Sod growers
Special interest groups
o Planning and Zoning Commission
o Water Commission
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Item 2.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 9 of 12
o Natural Resource Advisory Board
o Parks and Recreation Board
o Downtown Development Authority staff
Internal City of Fort Collins staff
General themes from engagement are listed below and broken up into areas of support and areas of
concern.
Areas of Support:
General support for improvement of landscape standards
Applicability Citywide
Importance of simple, predictable processes for implementation
Tree protection
Education and Outreach is needed and should cover wide ranging topics such as:
o Pesticide impact to pollinators
o Fertilizer and nutrient impact to waterways
o Source water quality, including raw water or groundwater
o Landscape contractor training
Areas of Concern:
Cumulative development costs including impact to housing affordability
Regulations on single-unit dwelling landscapes
Funding sources for additional staff and processes
Desire for streetscape standard changes to also limit turf
Consideration of unique public sites such as parks, downtown core
Artificial turf – what is the alternative?
Watering window too narrow
City overreach if applying daytime watering limitations to raw water use
Timeline
Implementation Schedule
Forestry is prepared to begin implementation of new tree standards in early 2024.
Enforcement of xeriscape, irrigation and soil code updates are proposed to begin in 2025 to allow time
to hire and onboard new staff in 2024, as well as fully develop new review and inspection processes and
programs, including software updates and education and outreach materials.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 10 of 12
Project Milestones
The proposed timing of adoption of ordinances for xeriscape, irrigation and soils has been adjusted to
coincide with the associated appropriation request. Staff have been advised that any appropriation of
funding for the hiring of new staff in 2024 would occur in 2024. At the first regular Council meeting in 2024,
staff intends to bring the proposed code along with an appropriation ordinance to Council that is right-sized
to Council-provided direction of the proposed code changes.
Table 3. Detailed Timeline
COMPLETED
Summer 2021
2021 – 2023 Council Priorities Adopted
May 2022
Clarion Associates: Targeted Best Practices Report (attached)
Summer 2022
Initial Internal/External Engagement including Water Commission and Natural
Resources Advisory Board
1/10/2023
Council Work Sessions: Soil, Xeriscape
1/24/2023
Council Work Session: Trees
May 2023
Clarion Associates: Land Use Code Audit (attached)
April 2023
Identification of code changes
Apr. – Sept. 2023
Internal/External Engagement
July 2023
Begin code drafting
8/11/23
Planning and Zoning Commission Work Session
8/16/23
Natural Resources Advisory Board
8/17/23
Water Commission
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Item 2.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 11 of 12
Table 3. Detailed Timeline
8/23/23
Parks and Recreation Board
8/30/23
Downtown Development Authority Staff
Aug. – Sept. 2023
Additional feedback received
Sept. 2023
Legal Review of Codes
Sept. 2023 Initial raw water discussions
UPCOMING
10/10/23
Council Work Session
11/9/23
Planning and Zoning Commission Work Session
11/16/23
Planning and Zoning Commission Hearing
11/16/23
Water Commission
11/21/23
Council First Reading of Ordinance for trees
12/5/23
Council Second Reading of Ordinance for trees
1/1/24
Tree standards go into effect
Jan. 2024
Council First Reading of Ordinances for xeriscape and soil
Council First Reading of appropriation of funding for staffing
1/1/2025 Soil program and additional landscape/irrigation standards go into effect
Future Phases and Exploration
As part of continual improvement, any implemented improvements will be monitored to understand how
well they are working, what adjustments are needed, and what additional focus areas are needed. In
addition to this ongoing evaluation, there are some projects that are currently planned, and topics for future
exploration. All of these will cumulatively inform the next phases of landscape improvements and future
efforts.
The Assessment of Compliance with Local Environmental Policy will evaluate how the City can
improve the current distributed approach to enforcing our environmental policies. This project will
provide recommendations on how to better align related efforts such as permitting, inspection and
enforcement and where additional resources, including FTEs, would provide the most benefit. Results
of the assessment are anticipated in the first quarter of 2024. The increased workload associated with
the proposed landscape improvements cannot be absorbed into existing programs. The hiring of any
new FTE in 2024 will be informed by the recommendations of the assessment.
The Urban Forest Strategic Plan will refine tree canopy goals and prioritize strategies to preserve,
maintain, and expand our tree canopy. This project will consider a voluntary heritage tree program to
encourage long-term commitment of tree preservation. It will also evaluate tree preservation and
protection for single-unit dwellings. Both of these topics are currently a part of the strategic plan
engagement process.
The Water Efficiency Plan update continues the City’s commitment to ensuring efficient use of our
natural resources. This project will redefine existing goals, build on existing programs, and identify
effective strategies for future water conservation and efficiency.
During this current landscape improvement effort for the three council priorities, topics were identified
for consideration of future phases of this work.
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City Council Work Session Agenda Item Summary – City of Fort Collins Page 12 of 12
o Evaluate streetscape standards to reduce irrigated turf in parkways. While this is an area that has
significant room for improvement, there are numerous uniq ue considerations and challenges for
these areas that made it difficult to include within the timeline for this project.
o There are unique public areas - such as parks, and the downtown core - that might benefit from
more detail specific to each unique situation, layout, and use.
o Expanding the daytime watering restriction to raw water users in City limits would extend the use
of all water resources – treated or raw – for maximum benefit. Staff will continue to pursue
conversations with users and providers pending Council direction.
o An evaluation by Fort Collins Utilities to scale residential single-unit property water supply
requirements to match the estimated demand of that property.
NEXT STEPS
1. Provide recommendations/motions to Council, following Planning & Zoning Commission Hearing and
Water Commission meeting in November.
2. November 21, 2023, City Council Regular Meeting: First reading of code ordinances for trees.
3. January 2024, City Council Regular Meeting: First reading of code ordinances for xeriscape, irrigation,
and soils. First reading of appropriation ordinances for funding the code changes.
ATTACHMENTS
1. Clarion Associates: Additional Targeted Best Practices Report May 2022
2. Clarion Associates: Additional Land Use Code Audit May 2023
3. Xeriscape and Soil Work Session Summary, January 10, 2023
4. Urban Forest Strategy and Policy Work Session Summary, January 24, 2023
5. Soil Amendments and Artificial Turf Memo, June 27, 2023
6. Presentation
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Item 2.
Fort Collins Nature in the City
Additional Best Practices Report May 2022
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Item 2.
Fort Collins Nature in the City
Additional Best Practices Report May 2022
TABLE OF CONTENTS
Background ................................................................................................................................................... 1
Soil Amendments .......................................................................................................................................... 3
Best Practices ............................................................................................................................................ 3
Other Valuable Practices ........................................................................................................................... 6
Xeriscaping .................................................................................................................................................. 10
Best Practices .......................................................................................................................................... 10
Other Valuable Practices ......................................................................................................................... 21
Tree Protection and Tree Canopy Enhancement ........................................................................................ 27
Best Practices .......................................................................................................................................... 27
Other Valuable Practices ......................................................................................................................... 35
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Item 2.
Fort Collins Nature in the City 1
Additional Best Practices Report May 2022
Fort Collins: Nature in the City
Additional Targeted Best Practices Report
May 2022
Background
Since 2020, Clarion Associates has been assisting the City of Fort Collins to implement its Nature
in the City (NIC) initiative. To date, that support has included:
• Preparation of a Land Development Code Audit to identify barriers to implementing
different components of the initiative;
• Finalizing definitions of several key terms that are often used loosely, but which need to
be defined objectively in order to be used in regulatory documents like the Land
Development Code; and
• Preparation of draft text amendments to the Land Development Code to implement the
following aspects of the NIC initiative:
o Requirements for inclusion of common open space;
o Limits on impervious surfaces in new development; and
o Requirements that certain types of development earn at least a minimum
number of points is a new Nature in the City Score system, which provides
numerous flexible options related to site and building design.
Before the proposed regulatory changes were included in the Land Development Code,
however, the City asked that Clarion Associates prepare additional research on Best Practices to
promote the NIC goals in four discrete areas:
1. Soil amendments to ensure that new vegetation survives, thrives, and provides
maximum environmental and experiential benefits;
2. Xeriscape practices to reduce outdoor water consumption without compromising the
public experience of being in nature or the environmental benefits that healthy
vegetation provides;
3. Tree protection during site work and construction phases and during the creation of
landscaping and planting plans for the proposed development and redevelopment; and
4. Tree canopy enhancement in order increase public perception of nature, increase
shading, and reduce the impacts of urban heat islands over time.
To identify these best practices, Clarion Associates agreed with the City staff to:
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Item 2.
Fort Collins Nature in the City 2
Additional Best Practices Report May 2022
• Focus on regulations or incentives suitable for inclusion in a Land Development Code or
related regulations – rather than advisory policy statements or plans that do not have
regulatory effect;
• Identify up to 20 communities across the United States for detailed web-based research
on these four topics;
• Focus the research on soil amendment and xeriscape on communities in the Rocky
Mountain west, because of the unique dry climate and soil conditions in this region;
• Make initial contact with each community to confirm the accuracy of published
regulations and incentives, as well as the continued enforcement and effectiveness of
those regulations.
• Refine the list of research communities to eliminate those where initial contacts suggest
that further research would not be fruitful, and if possible, replace them with other
communities where regulation and incentives appear to be more effective.
After this additional research program was initiated in late 2021, initial contacts revealed that
several communities have integrated or overlapping regulations for tree protection and tree
canopy protection. In order to reflect these Best Practices accurately, we combined these two
topics into a single inquiry and agreed to research a larger number of target communities in
that combined category.
After contacting, eliminating, and substituting communities as described above, our initial
research and interviews focused our Best Practices research on the following communities:
• Soil Amendments: Denver, CO; Thornton, CO; Castle Rock, CO; Brighton, CO; and
Greeley, CO.
• Xeriscape: Aurora, CO; Castle Rock, CO; Las Vegas, NV; San Antonio, TX; and Tucson, AZ.
• Tree Protection and Canopy Enhancement: Boulder, CO; Bloomington, IN; Fort Wayne,
IN; Lake Forest Park, WA; Madison, WI; Portland, OR; Reno, NV; San Antonio, TX; and
Seattle, WA.
This document includes Clarion Associates’ recommended Best Practices in each of these areas,
subject to internal discussion with the City as to which of the recommended practices would
best “fit” with the City’s goals and administrative systems. “Best Practices” is, of course, a
subjective term, and professionals often differ about what is “best” and why. For this report,
we focused on the following factors to identify those regulations that we think are worthy of
additional consideration by Fort Collins:
• The clarity and understandability of the regulations to both staff and citizens;
• The administrability of the regulation—i.e., whether the regulation can be efficiently
implemented, monitored, and enforced with reasonable levels of effort by City staff;
and
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Fort Collins Nature in the City 3
Additional Best Practices Report May 2022
• The host community’s comments on the effectiveness of the regulation in achieving its
purpose.
Within each topic area, we single out a few communities with regulations that we think best
meet these criteria. We also identify additional cities whose regulations or incentives include a
provision, incentive, or approach that is worthy of additional consideration. We have termed
the first group “Best Practices” and the second group “Additional Valuable Practices.” In several
cases, even those communities that meet these criteria stated that their regulations,
procedures, and enforcement mechanisms were imperfect and provided suggestions for
improvements that would make them mor effective.
Soil Amendments
This section summarizes information from communities that require soil amendments to be
added to new landscaping to ensure the proper growth and survival of vegetation. Soil
amendments also help conserve water, because newly installed landscaping typically needs to
be irrigated more than established landscaping. By increasing the probability that newly
planted material survives, the use of soil amendments can help reduce long-term water
demand.
Best Practices
Thornton, CO
Thornton’s development code (Chapter 18 of its City Code) establishes basic soil amendment
requirements. All landscape areas, except for side yards not visible from public areas and rear
yards of singe-family dwellings, are required to be amended with at least four cubic yards of
organic amendment per 1,000 square feet of ground, and the amendments must be tilled at
least six inches into the soil. Sec. 19-538(a)(4).
The code references Section 800, Landscape Improvements, of the Thornton Standards and
Specifications document, which imposes additional obligations on developers. Prior to the
addition of soil amendments, applicants are required to remove all construction debris from
the soil, including large rocks, concrete, asphalt, and soil clods; all building materials such as
boards, insulation, shingles, rebar, wire, and grading stakes. Applicants must then rip the soil to
a minimum depth of 12 inches if it has been compacted by heavy machinery or by working it
while wet, in rows no greater than 18 inches apart. Ripping operations must be timed to
commence when soil moisture is adequate enough to allow penetration but is not wet or
muddy.
The soil amendments are required to be incorporated throughout the landscape areas, not just
around areas where trees and shrubs are planted. At least four cubic yards must be distributed
across the soil surface in a uniform 1⅓ inch depth and incorporated into the top eight inches of
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soil with a rototiller capable of tilling to eight inches in depth.1 Additional soil amendments are
required for City-maintained landscapes and metropolitan district parks (six cubic yards per
1,000 square feet, distributed to two-inch depth) and for landscaped medians (27 cubic yards,
distributed to a 36 inch depth).
Compliance with the regulations is assessed at three inspections performed during the
landscape installation process:
• The first inspection takes place prior to soil amendment and tilling and looks for the
presence of weeds, especially noxious weeds.
• The second inspection involves a review of the soil amendment before it is tilled into the
soil.
• Finally, after tilling and fine grading, the third inspection reviews the prepared soil to
ensure it was tilled to the required eight inches, and for overall quality and absence of
construction debris.
In addition, the developer/applicant may be required to provide City staff soil amendment load
tickets and affidavits that confirm soil amendments have been installed for a set of dwellings
before the construction of the next phase of dwellings is authorized.
Primary Contacts
Grant Penland, Planning Director, gpenland@ci.thornton.co.us; Warren Campbell, Current
Planning Manager, wcampbell@ci.thornton.co.us.
Denver Water
Soil Amendment Program
The requirements of Denver Water’s Soil Amendment Program are clearly identified on its
website.
• The reasons for amending soil are explained in plain language understandable by the
public and contractors.
• Areas larger than 300 square feet must incorporate soil amendments before
landscaping is installed.
• The standards encourage (but do not require) that organic compost meeting at least
Class II standards be installed, lists Class II compost suppliers, and includes a table listing
the chemical requirements for Class I and Class II compost (shown below):
1 While the City’s development code requires tilling down to six inches, the Standards and Specification document,
which is incorporated into the code by reference, states that tilling is required down to eight inches.
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• Four cubic yards of compost per 1,000 square feet of permeable areas (including tree
lawns and permeable portions of rights-of-way adjacent to the property, which are
often owned by the City rather than individual property owners) roto-tilled to a depth of
four to six inches, except in the following situations:
o Two cubic yards of compost per 1,000 square feet of permeable area are
required for native grass areas (subject to Denver Water confirmation of seed
mix); and
o Twelve cubic yards per 1,000 square feet are required for amended topsoil.
• The contractor must supply an invoice or load ticket showing that a specific soil
amendment product was being delivered to the subject property address, as well as a
map showing the square footages of areas required to be amended, and if native
grasses are to be installed, a sample of the seed mix. Denver Water can then confirm
that the amount of soil amendment was adequate for the area required to be amended
and can provide phone or e-mail confirmation that the requirement had been met.
• Water service to the property can be withheld until Denver Water has confirmed that
adequate amendment product had been delivered to the property.
• Site inspections are not required, but contractors are warned that spot inspections
might occur.
• Although the requirements are publicized as a cost-saving measure for property owners,
who would experience higher rates of plant survival, its primary interest is the
associated water savings through more effective water absorption and reduced runoff.
As a regional water utility, Denver Water has regulatory authority to enforce the requirements
against property owners only when water service is being installed, and even then its capability
to do so is limited. The various jurisdictions served by Denver Water have a broad range of
landscaping requirements, and many of the governments’ land use and other regulations
incorporate only limited water conservation controls and few if any soil amendment
requirements. Denver Water works with local governments to encourage landscape regulations
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similar to those included in the agency’s soil amendment program, and staff is hopeful more
consistent regulations will be adopted by local governments over the next several years.
To the (limited) extent that they are enforced, Denver Water’s actions to enforce the soil
amendment requirements are taken against the landscape contractors who install the
landscaping materials. This is similar to the approach used by many cities to enforce sign
regulations (i.e., require licensing of sign contractors and make them responsible for
compliance with the regulation with the knowledge that violating the regulation could result in
suspension or revocation of their license to install signs).
Although the soil amendment program indicates that spot site inspections may take place,
Denver Water staff reported that inspections generally have not occurred for the past six years.
Previously, when spot inspections did take place, inspectors found that around 95 percent of
contractors complied with the requirements. Compliance with the requirement to provided
receipts is generally high, although new development projects are more likely to comply than
redevelopment projects, and compliance is higher from large developers than from smaller
contractors who redevelop individual single-family properties. Overall, the resources devoted
to administration of the soil amendment program occupy about 0.5 FTE of staff time.
In an effort to encourage compliance, Denver Water does not charge fees for participation in its
soil amendment program.
Primary Contact
Austin Kcmarik, Water Conservation Specialist, Austin.Krcmarik@denverwater.org
Other Valuable Practices
Castle Rock, CO
The Town of Castle Rock landscaping and irrigation standards are contained in its Landscape
and Irrigation Criteria Manual, which is adopted by reference into the Municipal Code. Sec. 1.13
of the Manual defines Soil Amendment as “Organic material added to the soil to improve
texture, moisture holding capacity, nutrient capacity, water and air infiltration.” Sections 4.4.1
through 4.4.3 of the Manual includes specific provisions for how to amend soil that are
mandatory for all new developments and changes to landscaping. The provisions require that:
• A soil analysis to be conducted by professional soil scientist to evaluate texture,
exchange capacity, conductivity, organic matter, and acidity along with nitrogen,
potassium, phosphorus, zinc, iron, copper, manganese, and lime content in the soil.
• Stripping and stockpiling of indigenous topsoil during construction for successful plant
material establishment
• At least four cubic meters of amended soil added per 1,000 square feet planting areas
for turf, trees, shrubs, perennials, and annuals.
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• Soil amendments material to be compost, which is defined as a “fully finished,
stabilized, and mature product, derived from organic materials such as leaves, grass
clippings, wood chips, and other yard wastes. Finished compost is dark and crumbly,
does not resemble the original contents, and has an earthy smell. Acceptable compost
will not contain any human or animal waste.” Staff emphasized that the inclusion of any
amount of “hot compost” (compost that has not fully broken down) is prohibited, and
that on occasion they have required contractors to remove inappropriate soil
amendment from the surface and install replacement amendments that meet Town
standards.
• As an exception to the requirement of compost as defined above, soil amendments for
native seed areas to be consistent with detail #17 in the Castle Rock Temporary Erosion
and Sediment Control Manual. The Town may require written documentation of the
types and amounts of soil amendments installed.
• Where soil amendments are required, soil that is roto-tilled to a minimum depth of six
inches, and rocks, debris, and clods greater than ¾-inch diameter must be removed
(except that dry land seed areas may include clods up to two inch diameter).
Castle Rock pairs these requirements with a robust inspection regime. Single-family detached
and attached, duplex, triplex, and fourplex residential properties) are inspected once, after the
soil amendment has been added, the soil tilled, and the site graded. Multifamily and
nonresidential properties are inspected twice. The first inspection takes place after the soil
amendment has been added to ensure that an adequate amount has been used. The second
inspection takes place after tilling and grading.
Staff believes compliance with the requirement for adding soil amendment is high, particularly
for nonresidential buildings, since the compost is relatively inexpensive and providing the
required amount (or even a little more) is less expensive than pausing construction while fixing
the work and awaiting reinspection. The high compliance rate is also attributed to Castle Rock’s
consistent inspection process and withholding certificates of occupancy until inspections have
been completed.
The Town’s water conservation programs are managed by a four-person team, including the
water efficiency supervisor, a technician who handles the rebate programs and inspections, an
inspector, and an office assistant who manages administration, scheduling, and customer
contact. Currently, the site inspections are conducted by an inspector who is a seasonal
employee who works four days per week (0.8 FTE), generally from May through October or
November. Three other members manage the administration of the programs, including
potential updates to the regulations to address any necessary changes. This staff has been
managing about 1,000 residential inspections and 50-60 permits per year.
Residential projects pay a $45 inspection fee. For each required reinspection, the fee doubles,
which discourages landscape contractors from scheduling inspections before they are ready.
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For commercial projects, compliance with the soil amendment regulations is confirmed through
the irrigation permit inspection process. The permit inspection fee is $610, with a reinspection
fee of $110 if necessary.
Primary Contact
Rick Schultz, Water Efficiency Supervisor, 720-733-6027
Greeley, CO
Section 24-804, Plant Specifications, of the Greeley Development Code includes non-regulatory
Xeric Guidelines and offers a reduction in raw water requirements for applicants whose
landscaping plans include these elements.
• Guideline (d)4 states: “Incorporate soil amendments and use of organic mulches that
reduce water loss and limit erosion. All plant areas should receive soil amendments of at
least 3 cubic yards per 1,000 square feet.”
• Guideline 5(e) provides that: “Prior to the installation of turf-grass and/or other plant
materials in areas that have been compacted or disturbed by construction activity, such
areas shall follow soil amendment procedures pursuant to Title 20 and the Water and
Sewer lawn installation specifications.”
Section 14, Vegetation and Irrigation, of the City’s Construction Standards for water detention
areas provides detailed standards that could be applied to mandatory soil amendment
ordinances.
• Compost is defined as: 100% humus rich organic matter. The compost shall be a well
decomposed, stable, weed free organic matter derived from agricultural, food, or
industrial residuals; biosolids (treated sewage sludge); yard trimmings, or source-
separated or mixed solid waste.
o Product must be certified as fully composted at a permitted solid waste
processing facility.
o Product must be registered with the Colorado Department of Agriculture and
approved for use on Colorado Certified Organic Farms by the Division of Plant
Industry of the State of Colorado.
o Product shall contain no solid particle greater than one-half inch in length or
diameter and be free from un-composted or non-stabilized wood bulking agents.
o Product shall contain no substances toxic to plants and shall be reasonably free
(<1% by dry weight) of man-made foreign matter.
o The compost shall possess no objectionable odors and shall not resemble the
raw material from which it was derived.
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• In addition, the applicant shall provide the City a signed statement that the compost has
been texted and meets the following standards:
o Organic Matter Content: 30 - 70% (dry basis)
o Soluble Salt Concentration (EC paste test): 5 dS (mmhols/cm) or less (as
received)
o PH range: 5.5 to 8.0 (as received)
o Final carbon to nitrogen ratio: 20:1 or less.
o Nutrient Content (dry weight basis): N 1% or above, P 1% or above, K 0.5% or
above.
o Bulk Density: 800 - 1,000 pounds/cubic yard
o Moisture Content: 35% - 55%
Primary Contact
Sean Chambers, Director of Water & Sewer, sean.chambers@greeleygov.com; Paul Trombino,
Public Works/Construction Standards, Paul.Trombino@Greeleygov.com.
Brighton, CO
Article 8, Landscape and Site Design, of Brighton’s Land Use and Development Code establishes
requirements for water-conserving landscaping:
• All landscape plans are required to incorporate soil amendments and use organic
mulches that reduce water loss and limit erosion.
• Plant areas are encouraged to receive soil amendments of at least three cubic yards per
1,000 square feet.
City staff reported that though these soil amendment provisions are included in the city’s
development regulations and apply to all development projects, they are typically not enforced.
There are no provisions in the code requiring an applicant to demonstrate that soil
amendments have been acquired or installed. Most site inspections take place after the soil has
been prepared and sod and other landscaping materials installed, and evaluations for
compliance are limited to whether the landscaping is consistent with the regulatory
requirements, not the specifics of soil amendment installation.
Primary Contact
Louis Morris, Project Coordinator, 303-655-2243, lamorris@brightonco.gov.
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Other Communities
In addition to the programs listed above, we reviewed development codes, landscaping and
engineering criteria, and related manuals and regulations for Westminster and Greenwood
Village but did not identify regulatory approaches or standards of sufficient detail or difference
from those described above to justify inclusion in this report. While a number of Front Range
communities’ land development codes, engineering standards, or park and recreation manuals
refer to requirements for including soil amendments in the design and construction of
detention areas, we view these as public works standards rather than regulations intended to
apply to general landscaping.
Xeriscaping
Best Practices
This section identifies three communities that incorporate low-water-use landscaping
requirements in their land use regulations and that offer robust turf rebate programs to reduce
the number of water-intensive grasses and plants used in residential yards and commercial
spaces the City will want to consider. Five other valuable practices are included for further
consideration.
Castle Rock, CO
Background
The Town of Castle Rock has taken aggressive steps to promote and require water
conservation. Its landscaping regulations limit the types of turf that can be incorporated in new
development, and also operates two key programs that offer financial rebates to existing
residential and commercial property owners who implement specific low-water-use
landscaping techniques.
Landscaping Regulations
Castle Rock’s landscaping regulations limit the amount of high-water-use landscaping material
that may be installed. High-water-use grasses such as Kentucky bluegrass and similar turf are
prohibited, and other types of turf are also restricted. Single-family and two-family lots that are
7,000 square feet or less in area are allowed to have turf over no more than 30 percent of the
lot. Lots larger than 7,000 square feet in area up to 17,000 square feet may have turf over no
more than 20 percent of the lot. Lots larger than 17,000 square feet in area may have turf over
no more than 20 percent of the lot, up to a maximum of 5,000 square feet of turf.
Staff reports that they are developing updated regulations for new development that would
prohibit turf in front yards and limit the turf area in the back yard to a maximum of 500 square
feet. These proposed changes are part of the Town’s continuing efforts to reduce its water
consumption from an average gallons per capita per day (GPCD) of 118 today to 100.
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Coloradoscape Renovation Program
Castle Rock’s Coloradoscape Renovation water-wise landscaping program is an effort to
encourage property owners to convert water-intensive landscaping into water-wise landscapes.
It provides incentives to current landowners to redesign their landscaping to be more water-
efficient in ways that are similar to the Town’s regulations for new development. The program
uses a variety of tools to encourage participation, including rebates, educational classes, and
the opportunity to water landscaping on days that would otherwise not be permitted. The
details of this program include:
• A rebate of $1.20 per square foot of turf removed on any existing development (not
new construction) that use Castle Rock water services. The City’s water service area
extends beyond City limits in some cases, so some unincorporated properties are also
able to participate.
• For residential customers, a minimum of 400 square feet (or the entire area of the yard,
if smaller) must be removed to qualify for a rebate. The City sets a maximum rebate
payment of $1,800, which translates to an eligible turf area of 1,500 square feet.
• Nonresidential customers are also limited to a maximum rebate amount of $1,800 for
removal of 1,500 square feet of turf.
• The replacement landscaping may be zero-water use or require a small amount of
water, consistent with the multiple landscaping options available through the
Coloradoscape program.
• To qualify for the rebate, nonresidential properties are required to have at least 50
percent of the landscaped area be made up of healthy, irrigated turf. Areas with dead or
unhealthy turf are deducted from the eligible square footage. The purpose of this
provision is to ensure the program is effective in reducing water usage, and not for
beautifying unirrigated landscaping.
• In addition to the rebate incentives, applicants are required to participate in a Water-
Wiser workshop to learn how to maintain a low-water yard effectively. Those who
complete the workshop are exempt from complying with the City’s regulations that
restrict watering to once every three days.
• Following the final inspection, compliance with the xeriscape standards is maintained by
adjustments to the property’s water irrigation budget. Like many communities, Castle
Rock Water uses a tiered structure, Tier 1 is the lowest fee schedule, Tier 3 the highest,
and Castle Rock Water imposes a surcharge for water use in excess of the Tier 3 cap.
Tier 1 rates are charged for indoor uses, and Tier 2 rates are charged for irrigation. The
water budget for Tier 2 is established by reference to the monthly water needs of the
irrigated plant material on the site. Typically, when a turf lawn is replaced with
xeriscape, the water needed for landscaping declines substantially, and the Tier 2 water
budget is reduced accordingly. If water is used for irrigation in excess of the water
budget, the higher Tier 3 rates or surcharge fees are imposed.
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In 2021, the City noted that participation was modest. There were 48 residential properties that
participated in Coloradoscape; 38 additional properties received an initial inspection but did not
qualify for the program or did not complete the sod replacement process. Four nonresidential
properties participated in Coloradoscape, with four additional properties not qualifying for or
completing the process.
City staff also noted that the Coloradoscape program is labor-intensive because it requires two
site visits by City staff in order to complete the rebate process. One visit occurs before turf
removal to demonstrate compliance with the terms of qualification. The second visit occurs
after turf removal and new landscaping installation in order to ensure the final result meets City
standards. Staff noted that accommodating property owner schedules and providing enough
Water-Wiser workshop sessions has been a challenge. In addition, some applicants who are not
eligible for the program (generally because they do not have existing high-water-use
landscaping) apply anyway, increasing administrative burden required to inspect the property
and confirm that the non-eligibility. The program also has a modest budget and available funds
can be quickly exhausted.
The residential application can be found here; the nonresidential application be found here.
Smart Irrigation Controller System
Castle Rock’s second incentive program is a rebate program for updating irrigation system
controllers to Smart Evapotranspiration (ET) irrigation controllers. Smart controllers automate
watering by adjusting the watering schedule based on the current moisture content of the soil
and local weather. This results in reduced run off and creates money-saving water efficiency
benefits to landowners.
Residential and nonresidential development are eligible to receive a rebate for installing Smart
ET irrigation controllers through the voluntary Smart Irrigation Controller Rebate program.
Participation in a Water-Wiser workshop is required to be eligible for these rebates.
Residential property owners can receive a rebate to cover 50 percent of the price of a Smart
controller, up to $200, while nonresidential property owners qualify for rebates to cover 50
percent of the cost of up to five controllers.
Primary Contact
Rick Schultz, Town of Castle Rock Water Efficiency Supervisor, 720-733-6027
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Aurora, CO
Aurora has decided that lush, green lawns of Kentucky bluegrass require levels of that the City
cannot continue to serve over the long run. Aurora has adopted regulations and financial
incentive programs that act as “carrots and sticks” to encourage implementation of xeriscape
principles and the use of other water-conservation techniques on landscaping throughout the
community.
Landscaping Regulations
Aurora’s Unified Development Ordinance (UDO) includes extensive water-conservation
measures, a fact that is emphasized by the title of a key chapter of the UDO, “Landscape, Water
Conservation, Storm Water Management.”
Section 4.7.3, General Landscaping Standards, integrates water-conservation measures
throughout all required site landscaping. All shrubs, perennials, groundcovers, and ornamental
grasses, and 75 percent of all annuals and trees, are required to be selected from the city’s
Water-wise Plant List, a xeriscaping fact sheet maintained by the Colorado State University
Cooperative Extension, or other Water-wise or xeriscape plant material references. The list of
eligible materials is currently being updated. Except for playfields and golf courses, cool-season
grass sod and seed is limited to 33 percent of a site’s landscaped area, and all cool-season
grasses must generally be contiguous. Separate irrigation hydrazone areas are required for
water-conserving areas versus non-water-conserving areas.
Section 4.7.4 prohibits private covenants that purport to invalidate the xeriscaping provisions in
the UDO.
Section 4.7.5 incorporates additional specific landscaping requirements relating to water
conservation. Single-family detached and duplex dwellings on lots 4,500 square feet or larger
may install no turf at all, or may install between 400 and the lesser of 40 percent or 1,000
square feet of turf, provided that the turf areas are continuous. Homeowners can choose to
follow Water-wise options that allow additional landscaping flexibility. Rock or inorganic
mulches may be used in the front yard if a Water-wise option is chosen, and permeable pavers
such as brick and natural stone can be used on up to 40 percent of the landscape area if a xeric
or no-turf option is used. In all cases, rear yards on single-family and duplex lots with no public
view may include no more than 45 percent turf. If the rear yards are visible to the public (for
example, in a through lot), the front-yard standards apply.
An image from the UDO of a suggested front-yard landscaping configuration is included below.
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Compliance with the landscaping regulations is verified during zoning inspections. Irrigation
systems are also inspected and are required to comply with regulations in the Aurora
Engineering Standards Manual.
Staff is proposing amendments to the UDO to further limit the use of high-water grasses. This
summer, the City Council is anticipated to consider a proposal to prohibit the use of cool-
season turf in the front yards of all new houses, as well as in tree lawns or curbside landscaped
areas.
Water-Wise Landscaping Program
To incentivize residents to retrofit their properties to avoid water-intensive landscaping, Aurora
Water created the Water-Wise Landscaping Rebate Program, which includes detailed manuals
on compliance for both residential and commercial properties. The program pays residents to
eliminate water-intensive varieties of turf such as Kentucky bluegrass and fescue and promotes
the exclusive use of xeric landscaping for all plants included in the landscape design.
Aurora offers a rebate up to $3,000 for residential lawns from which at least 500 square feet of
water-intensive grass is removed. The proposal for removal must include at least 60 percent of
the water-intensive grass located in a front or side yard and visible to the public. The rebate is
calculated using pre-tax material (not labor) costs, verified by inspection of receipts for
materials purchased, as well as the amount by which the water bill is reduced after one growing
season. Unlike other communities that determine rebate amounts based on the square footage
of converted landscaping, Aurora’s program reimburses property owners for documented
money spent on the plants and materials purchased to be installed in their place.
Sixty-five percent of the rebate is paid after final installation, and the remaining 35 percent is
paid following one growing season if the property owner demonstrates that actual water use is
less than 110 percent of the recommended xeric water use amount.
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As part of the program, applicants are required to enroll in the “Know Your Flow” program
which educates about the appropriate levels of indoor and outdoor water use.
The landowner establishes eligibility for the rebate by providing photographs of the existing
healthy turf, which also must be visible to the public, and by submitting a proposed alternative
landscape design. Previously, the City also reviewed the landowner’s existing water use to
ensure the project would result in a reduction of water use, but it stopped doing so because the
water use could reflect underwatering of areas of landscape other than the turf.
The program provides free design services for property owners and offers optional virtual and
in-person Water-wise landscaping classes on how to tend to low-water landscaping and how to
save water and money. Staff noted that Aurora would be moving to a new program in which
applicants take a design class and work with instructors to develop a design for their own site,
with the goal of making the design process a little more efficient.
A separate rebate program is offered for large and commercial properties. The commercial
rebate covers all documented material (not labor) costs for the approved project, based on a
schedule of item-by-item rebate amounts, up to a maximum of $15,000. Half of the rebate is
paid upon final installation and approval of the system, and the remaining half in two equal
installments after each of the next two growing seasons documenting water use less than 110
percent of the xeric recommended water use amounts. All approved participants are required
to participate in the Large Property Variance Program, which provides monthly emails that
evaluate the site’s actual water usage based on recommended water consumption. This
information is designed to help participants monitor their water efficiency and may identify any
scheduling adjustments required to ensure receipt of the remaining rebate payments.
Previously, under both the residential and commercial programs, two inspections were
required. The first inspection took place after plants and irrigation had been installed to confirm
everything had been installed according to plans. The second and final inspection was
performed after issues identified in the initial inspection are addressed and the mulch is
installed. However, the City recently eliminated the second inspection, as being generally not
necessary or helpful to ensure compliance with the program.
The City reports that the program has been successful with commercial properties. By contrast,
it has underperformed in residential neighborhoods, with fewer than 25 rebates issued to
single-family residences in the last year, a low level of participation even on a per-capita basis.
Staff suggested that the low participation rate is a function of the complexity of the program,
the high cost of re-landscaping even with the Water-Wise rebate, and the fact that the rebate
covers only material costs (and not labor costs).
Xeric Landscaping Credit Program
To incentivize the implementation of xeric landscaping, Aurora also created a Xeric Landscaping
Credit program. The program is designed to encourage the use of xeric landscaping that does
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not require irrigation in so-called “z-zones.” Implementation of zero-water landscaping includes
the installation of an irrigation meter that is used only while the native xeric plants are
acclimating to their new environment. After the plants have matured and no longer require
watering, the irrigation meter is removed from the z-zone. Other portions of the landscaping
may continue to be irrigated and permanent irrigation meters remain in place for those areas.
This allows savings in initial landscaping installation costs for developers and encourages them
to install native, low-water landscapes in common areas watered by irrigation meters. This
program is only available to new irrigation-only connections. Existing residential and
commercial meters that measure indoor and outdoor use are not eligible. Irrigation meters can
be installed in both new residential and commercial properties, and the cost of the connection
charges varies based on the type of landscape on the property:
• Irrigation systems for non-water conserving landscapes can be connected a rate of
$3.05/sq. ft. (or $30,500 for 10,000 square feet of landscaped area).
• Irrigation systems for water-conserving landscapes can be connected at a rate of
$1.63/sq. ft. (or, $16,300 for 10,000 square feet of landscaped area).
• In a z-zone, the irrigation system can be connected for no cost, subject to a $20,000
deposit that is refunded after the three-year establishment period has run and the
irrigation system is removed.
The following conditions must be met to establish a z-zone and qualify for the irrigation refund:
• The developer must express interest early on in the building process.
• The developer must submit a hydrozone map as part of the landscaping plan that
delineates no-water, low-water, and high-water areas. If there are multiple irrigation
meters, each must be clearly indicated on this map.
• The hydrozone map is paired with a water budget that applies during the xeric plants’
three year establishment period. The budget allows for a maximum amount of water
that should be used to establish the xeric landscaping. It also employs a reduced
assessment for the gallons of water used. However, if the number of gallons used
surpasses the maximum allowed amount of water, the assessment rate will be higher.
• After three years, Aurora Water will use the irrigation meter readings to determine
whether the xeric landscaping was watered according to the water budget.
• If successful in complying with the water budget and establishing xeric landscaping, the
irrigation meter is removed and the $20,000 deposit refunded.
If landscape development is occurring in phases, the responsible parties must contact Water
Conservation and submit a phasing map.
Staff stated that the program was paired with significant increases in the City’s tap fee for
outdoor-only use and that it has been highly successful, with a significant reduction in high-
water-use grasses on new development and an increase in native grasses.
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Administrative Support
Overall, water conservation staff–part of the City’s Water Department, which is funded
separate from the City’s general fund–consists of nine full-time employees and up to 15
seasonal employees. One person is responsible for managing the City’s rebate programs.
Several staff perform inspections, in addition to other duties.
Primary Contact
Tim York, Water Conservation Supervisor, City of Aurora, tyork@auroragov.org 303-326-8819
Albuquerque, NM
Landscaping Regulations
The City’s water conservation measures relating to landscaping are not located in its Integrated
Development Ordinance, but in City Code Sec. 6-1-1, Water Conservation Landscaping and
Water Waste. These regulations limit the amount of landscaping that can use high-water-use
turf. Non-city owned properties other than golf courses and single-family residences may cover
only 20 percent of the landscaped area with high-water-use turf and other restricted plants,
with a minimum of 300 square feet and a maximum of 3,000 square feet allowed. In addition,
the ordinance voids homeowners’ association restrictions or covenants that restrict the use of
xeriscape.
According to staff, while existing single-family dwellings are excluded from the landscaping
regulations, new single-family home developments must comply, so a developer who is
preparing a 60-lot single-family subdivision is subject to the high-water-use turf restrictions.
Staff also reports that existing single-family dwellings have made great strides in reducing
overall water usage, measured by both external irrigation use and internal water use, so
updating the turf regulations to include existing single-family development has not been a
priority.
Rebate Administration
The Albuquerque Bernalillo County Water Utility Authority (“Water Authority”) has a variety of
incentive programs. These programs are operated by a staff including six full-time employees
and four seasonal employees. Staff includes an administrator who processes applications,
answers customer calls, and answers questions; a xeriscape inspector whose full-time job is to
inspect sites applying for xeriscape rebates (about three to four inspections per day), and
conservation specialists who focus on overall water conservation measures with homeowners’
associations and multifamily developments. The Water Authority also uses a contractor who
provides leak audits, inspections, and water management tools to their large users.
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Xeriscape Rebate Program
The Water Authority has a Xeriscape Rebate program that provides a rebate on a water utility
bill if the customer replaces traditional landscaping with low-water use xeriscaping. The
program has existed for almost 20 years and has resulted in the conversion of 4,700 single-
family residential and 600 commercial properties to low-water landscaping. In total, 10 million
square feet of turf have been replaced with xeric landscaping. Currently, about 400,000 square
feet of landscaping is converted to xeriscaping each year, and staff hopes a recent increase in
payments from $1 to $2 per square foot of high-water-use turf removed and replaced will
increase participation to 1,000,000 square feet per year.
There is no minimum removal requirement, as the goal to replace as much aging, water-
intensive landscaping with xeric landscaping as possible. While applicants sometimes do not
understand that they are required to have healthy living turf to qualify for the rebate, staff try
to interpret the requirement leniently to encourage removal of turf and implementation of
higher-quality xeric landscaping. In addition, large turf removal projects may be done in phases.
Eligibility for the rebate is confirmed through two inspections:
• The first inspection can occur before an application is filed and involves a site visit from
a Water Authority staff member who measures the area, provides landscaping tips, and
estimates a potential rebate amount. Alternatively, the first inspection can occur after
the application is submitted, with staff visiting the site to ensure that the current
landscaping proposed to be removed consists of healthy, spray-irrigated turf.
• The second inspection occurs after the xeric landscaping is installed. During this
inspection, staff verifies that the plants included in the landscaping plan are installed on
the property. The required number of plants is determined by reference to a point
system that assigns a certain number of points to each plant, and the final landscaping
must meet a certain number of points. (For example, to convert 1,000 sf of turf, the
applicant must install 500 points of plants, and a low-water-use tree might be worth 50
points). The inspector also confirms that at least 50 percent of the area for which a grass
removal rebate is awarded is covered with xeric plants, and that only drip irrigation (if
any) is installed.
Water Authority staff noted that the approved xeric plant list is flexible and that it is easy to
satisfy the plant requirements because the plant list includes 270 plants that are native to New
Mexico. In addition, Water Authority staff contact participants one year following the final
inspection to offer a consultation by an irrigation specialist. Participants who later are
suspected of overwatering may be contacted, but no other enforcement actions are taken
following final approval.
This program is notable for its relatively high reimbursement rate compared to other systems
and its successful track record. Staff said they expect that the recent increase in reimbursement
rates will incentivize more participation in the program.
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Tree-Bate Program
The Water Authority also offers a Tree-Bate Program that offers customers 25 percent off the
cost of professional tree care services or for the purchase of a new low- or medium-water use
tree from the Water Authority Xeriscape Plant/Tree List Guide. The maximum rebate for
residential customers is $100 per year while nonresidential customers are eligible for up to
$500 per year in rebates.
Rainwater Harvesting Rebate
Under this program, the Water Authority provides rebates to property owners that acquire
barrels and cisterns to capture rainwater for use in irrigation or other purposes. The rebate
amount increases with the capacity of the barrel or cistern:
• $25 for 50–149 gallons in rain barrel or cistern capacity
• $50 for 150–299 gallons
• $75 for 300–499 gallons
• $100 for 500–999 gallons
• $125 for 1000–1499 gallons
• $150 for more than 1500 gallons
Efficient Irrigation Rebate Programs
The Water Authority offers five Efficient Irrigation Rebates for the installation of water-saving
irrigation controllers, sensors, pressure regulators, and sprinkler bodies and nozzles. These
rebate programs were just instituted in 2020, and represent a change from the Water
Authority’s prior focus on incentivizing indoor efficiency. About 150 households take advantage
of the program each year.
• The WaterSense Smart Irrigation Controller Rebate offers 25 percent of the cost of
irrigation controllers (up to $100 for residential and $500 for nonresidential customers)
• The Smart Flow Sensors Rebate offers 25 percent of the cost of smart flow sensors (up
to $100 for residential and $500 for nonresidential customers). These sensors
communicate the flow rate of water to the WaterSense irrigation controller to help with
leak detection.
• The Smart Pressure Regulators Rebate offers 25 percent of the cost of smart pressure
regulators (up to $100 for residential and $500 for nonresidential customers). Smart
Pressure Regulators (from a specific list of qualified products) are important for
optimizing delivery of water via sprinkler or drip irrigation to landscaping. This allows for
consistent water distribution throughout the irrigated area.
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• The WaterSense Pressure Spray Sprinkler Bodies Rebate offers a $4.00 rebate per
sprinkler body with no annual limit. These WaterSense sprinkler bodies reduce water
waste by optimizing the rate of water expenditure to efficiently cover the landscape.
• The Smart High Efficiency Rotating Sprinkler Nozzle Rebate offers a $2.00 rebate per
nozzle with no annual limit. These smart nozzles apply the water stream at a lower rate
which allows the water and nutrients to better penetrate the soil.
Water Smart CPR Program
The Water Authority also offers a Water Smart Customized Performance Rebate (CPR) Program
to commercial customers. This program incentives landowners to update and improve existing
irrigation systems with smart irrigation systems that can save as much as 100,000 gallons of
water per year. This rebate program is performance-based to incentivize greater water savings.
A customer qualifies for $10 in rebates for every 748 gallons of water saved per year. The
maximum rebate is $50,000 or 50 percent of project costs, whichever is lower, and may include
costs such as materials, hardware, and software.
Landowners who apply for the program and whose applications are approved are assigned a
“CPR concierge” to guide them through the process of acquiring and installation the irrigation
system. The smart irrigation system must be installed within six months after the application is
approved, and the applicant must submit receipts for the cost of implementing the upgrades.
Within 30 days of completion, the property owner must schedule the post-installation
inspection where project cost estimates are revised based on inspection findings. The final
rebate amount is determined after 12 billing cycles (one year) after project completion, and the
rebate is then applied to the water bill. The property owner must commit to sustaining the
project for five years or until the property title is transferred, whichever occurs first. About 150
landowners participate in the program annually.
Customer Outreach
To target areas where significant water savings may be possible, the Water Authority does
targeted outreach to the top five percent of water users within each ZIP code. This outreach
includes offers for a free consultation to determine ways to save water, such as changes to the
landscaping, changes to the irrigation schedule (over-watering is a common problem), and
simple changes to the irrigation system such as replacing spray bodies. Of the approximately
5,000 landowners contacted each year, about 100 reach out to the Water Authority for water-
saving advice, while others reduce water usage on their own. About 100,000 email addresses
are subscribed to the Water Authority’s newsletter, called “505 Outside,” and the Water
Authority does other advertising such as outdoor billboards and television ads.
Primary Contact
Carlos A. Bustos, Water Conservation Program Manager, cbustos@abcwua.org
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Other Valuable Practices
Tucson, AZ
Due to its location in the Sonoran Desert, the City of Tucson has implemented a host of water
conservation measures, including several relating to landscaping. The City’s Unified
Development Code (UDC) includes restrictions on the types of plants that may be used in
landscaping (Section 7.6.4, Landscape Standards), and those regulations have been effective in
replacing existing water-intensive vegetation with more drought-tolerant varieties.
In general, all plants must be chosen from the Arizona Department of Water Resources’ low
water use/drought tolerant plant list, which includes only those plants that can survive in the
Sonoran Desert without using significant water resources. Areas that have been graded and
seeded must use Native Seed List approved species listed in the City’s technical standards. The
landscaped area must also be designed to take advantage of storm-water runoff and/or include
a water-conserving irrigation system.
Other plants may be installed only in defined “oasis areas” that will return maximum benefit in
terms of cooling, aesthetic pleasure, and exposure to people, or for special uses such as public
parks and botanical gardens. In multifamily residential developments, only five percent of the
site, 100 square feet per dwelling unit, or eight percent of the open space (whichever is greater)
may be a designated oasis area. For all other uses, no more than 2.5 percent of the site may be
an oasis area. Oasis areas are encouraged to be located near main buildings, active use areas,
pedestrian areas, and outdoor seating and gathering areas.
Although the City’s restrictions limiting the use of turf to oasis areas and other water-
conservation landscaping requirements do not apply to single-family dwellings, staff reports
that the conservation ethos in Tucson is strong and that turf is rarely found in the front yards of
single-family homes.
City staff noted that this program requires fairly intensive administration due to the need for
regular inspection and enforcement. When applicants have trouble complying with the detailed
specifications of the code, staff work to ensure that the landscaping meets the intent and
purpose of the ordinance. Tucson Water has spearheaded public outreach to educate property
owners on the requirements. Staffing continues to be a challenge both for public outreach and
enforcement of the regulations. There is only one staff member who reviews landscape plans
for compliance with regulations (although the City plans to hire more) and only three
inspectors. The final constructed landscaping and trees are not always installed or maintained
consistent with the approved plans, and the City is not aggressive about enforcing compliance.
A Green Storm Water Infrastructure fee of $0.13/100 cubic feet (748 gallons) of water, first
assessed in 2020, raises about $3 million per year to help divert and harvest storm drainage
from public streets and parking lots to vegetated water harvesting areas. The City has also
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recently instituted a requirement that captured rainwater supply 50 percent of landscaping
irrigation needs.
Staff reports that the overall program has been successful and that Tucson ranks high in water
conservation among Arizona municipalities.
Primary Contact
Anne Warner, Lead Planner, Planning and Development Services, Landscape/NPPO Section,
anne.warner@tucsonaz.gov
Scottsdale, AZ
Land Use Regulations
Section 49-245 of the Scottsdale Code of Ordinances sets forth limitations on water intensive
landscaping and turf areas for new schools, churches, resorts, hotels, motels, and cemeteries,
and Section 49-246 does the same for new multi-family residential, commercial/industrial, and
nonresidential uses.
• Section 49-245 requires that all new facilities limit water intensive landscaping and turf
areas, with the majority of landscaping required to be from the Arizona Department of
Water Resources’ Low Water Use Plant List. Churches and schools are required to limit
water-intensive landscaping to 15 percent of the total lot area, while resorts (including
hotels and motels) are limited to between five and 10 percent of the total lot area.
• Sec. 49-246 requires that all new commercial and industrial sites limit the use water
intensive landscaping and turf areas to 10 percent of the lot area for sites 9,000 square
feet or less. For larger sites, the first 9,000 square feet are limited to 10 percent water-
intensive plants and the remainder of the site is limited to five percent water-intensive
plants. For these uses, all plants installed must comply with the Low-Water Use Plant
List.
Notwithstanding the lack of regulations prohibiting turf use on single-family residential
property, staff generally does not see excessive turf installed on new single-family residential
development. In addition, the northern part of the City (which is where much recent
development has occurred) includes land designated as Natural Area Open Space which cannot
be developed or irrigated. Most turf is found in South Scottsdale, which has long been
developed and where the incentive programs are the approach used to encourage a transition
to more water-conserving landscaping.
Rebate Programs
The City also offers a variety of rebate programs that are codified in Section 49-243 of the City’s
ordinances. A single-family residential property can receive $1 per square foot of turf removed,
with a maximum rebate of $5,000 and a minimum turf removal requirement of 500 square feet.
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The turf must be replaced with City approved low-water-use plants and other compatible
landscaping material, and the City’s Water Conservation Staff are required to verify eligibility
before turf is removed. Rebates are not paid until the replacement landscaping is installed. The
current rules require that the first 1,000 square feet of replacement landscaping is the
homeowner’s choice, but the second 1,000 square feet has to be a xeriscape landscape with 25
percent mature plant coverage. Existing plants, including high-water plants but excluding turf,
can be used to meet the plant coverage standard. While the program terms and conditions
state that the landscaping may be inspected in the future for continued compliance, in practice
those have not occurred.
New rules scheduled to be implemented July 1, 2022, will change some of the rebate program
rules. The 500 square foot minimum will be eliminated and the rebate amount will increase to
$2 per square foot, although the maximum rebate will remain $5,000. The revised rules may
include a requirement that sprinkler heads be decommissioned for the second 1,000 square
feet of landscaping as well.
Three staff members have been performing inspections, and the City has recently hired two
additional inspectors. At times, the pre-inspection is performed using photography provided by
the applicant, but other times an inspector visits the site. There is at least one in-person
inspection for each rebate.
Staff reports that about one-third of those who enter the program are awarded a rebate. Some
enter the process but never complete it or do not comply with the program terms (e.g., they
want to install more artificial turf than the program allows). About 150 are awarded rebates
each year, although staff is hopeful the increase in rebate and the removal of the minimum turf
requirement will increase participation.
Multi-family residential and commercial properties can receive rebates for a minimum of 2,000
square feet of turf removal. Properties with up to 10,000 square feet are eligible for up to
$10,000 in rebates (limit one per year and two per lifetime), and properties with more than
20,000 square feet of turf are eligible for up to $20,000 in rebates and one per lifetime. Staff
reported that fewer than 10 landowners participated in the program in 2021. However, with an
increase in water bills scheduled to take place in November, staff expects increased interest in
the program. While only six homeowners’ associations reached out to participate in water-
saving programs in fiscal 2021, in the first six months of the current fiscal year 40 homeowners’
associations have contacted the City.
Incentives are also offered for removal of pool and spas. While not often used, staff reports
that it is often cost-effective for homeowners with aging pools who would have to pay as much
or more to repair or remodel the old pool. The City offers $200 plus $1 per square foot of pool
removed.
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Rebates for installation of a WaterSense irrigation controller are also offered. For single-family
residential properties, the maximum is $250 per controller or the cost of the controller, if less;
multi-family and commercial properties, as well as nonresidential common areas, are eligible
for rebates for up to 50 irrigation controllers, at a maximum rebate of $400 per controller.
Primary Contact
Elisa Klein, Water Conservation Program Supervisor eklein@scottsdaleaz.gov
San Antonio, TX
The City of San Antonio uses a combination of techniques to preserve water in landscaping. In
2021, the City’s Gallons per Capita per Day (GPCD) water consumption rate was 111 gallons,
which was lower than average due in part to a wet summer. San Antonio’s goal is to reduce the
GPCD to less than 100 gallons.
Landscaping Regulations
The City requires all plants in the city to be chosen from a list of drought-resistant plants in
Appendix E of the City’s Unified Development Code. The recommended plant list is specifically
tailored to xeriscape planting methods, and all are water-friendly. City staff noted that this
plant list is limited and could include additional drought-tolerant species. However, applicants
are permitted to propose the use of other shrubs or plants, provided they are native or near-
native and the applicant can demonstrate they can survive in the area with limited or no
irrigation. The City enforces compliance with the regulations through site visits performed by a
team of five inspectors.
Drought Ordinance
Water conservation is also emphasized through the City’s drought ordinance, enacted in 2014,
which is tied to existing conditions in the Edwards Aquifer that provides much of the water for
the city. Once aquifer levels fall below 665 feet (measured as elevation above mean sea level),
the City begins preparation for drought restrictions. These restrictions are “staged” in four
levels based on the level of the aquifer and are enforced by the City. During all stages, irrigation
of commercial and residential properties is staggered based on the property’s address.
• In Stage I, which is implemented when the aquifer has dropped to 660 feet, irrigation
with a soaker hose, hose-end sprinkler, or in-ground irrigation system is only permitted
between 7:00 p.m. and 11:00 a.m. on weekdays specified by address.
• In Stage II, which is triggered when the aquifer has dropped to 650 feet, the irrigation
methods allowed in Stage I may only take place from 7:00 a.m. to 11:00 a.m. and 7:00
p.m. to 11:00 p.m. Irrigation with a drip irrigation system or five-gallon bucket is allowed
during Stage II at any hour of the day, as is irrigation with a handheld hose.
• In Stage III, which is triggered once the aquifer has dropped to 640 feet, irrigation is only
allowed every other week on the designated days beginning on the second Monday
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after Stage III has been declared, between 7:00 a.m. and 11:00 a.m. and between 7:00
p.m. and 11:00 p.m. Irrigation with a drip irrigation system or five-gallon bucket is
allowed on every Monday, Wednesday and Friday, and irrigation with a handheld hose
is allowed at any time on any day.
• In Stage IV, which is triggered at the City Manager’s discretion following a 30-day
monitoring period once Stage III has been declared, the Stage III irrigation requirements
remain in effect, but a surcharge is assessed on nonresidential San Antonio Water
Service accounts whose consumption exceeds 5,236 gallons per month and residential
accounts whose consumption exceeds 12,717 gallons in a billing cycle.
Rebate Programs
The City also offers a variety of rebate programs through its wholly owned public utility, the San
Antonio Water System (SAWS). For residential clients, SAWS offers landscaping coupons that
provide $100 coupons for landowners planning to remove grass. A landowner can receive one
$100 coupon for each 200 square feet of grass and sprinklers proposed to be removed, and can
redeem coupons at participating plant vendors. Once the plants are installed, the landowner is
required to send a photograph back to SAWS and, if approved, the landowner can participate in
additional SAWS rebate programs.
Water conservation staff reported that the coupon program was implemented in 2014 and
replaced an earlier program that involved pre-rebate and post-rebate inspections and more
extensive requirements to update landscaping. SAWS has found that the rebate program is
more popular, and in particular was used much more by lower-income households who were
less likely to engage in more holistic landscape makeovers. While staff noted that the biggest
water savings come from instituting xeriscaping on higher-income households, which generally
have larger landscapes and are willing to spend more on water, they believe it is important to
reach the entire community. However, staff also noted that a separate “Outdoor Living”
program will be implemented on June 1, 2022, which will be an inspection-based program that
encourages households to revise their landscaping to contain no more than 1/3 turf, 1/3
planting area, and 1/3 pervious living area such as pavers.
An irrigation rebate program allows residential homeowners to earn up to $5,000 for removing
their irrigation system or making it more efficient. The largest rewards are offered for removal
of active irrigation systems, and smaller rewards are offered for removal of non-functional
irrigation system, removal of an irrigation zone, conversion from spray to drip irrigation, and
other conservation-friendly efforts. SAWS also offers a separate irrigation consultation program
at no cost to homeowners that provides recommendations for revising an irrigation schedule.
These efforts, according to staff, are generally effective in reducing water usage.2 Staff has
2 Staff reported that it can be tricky to evaluate the effectiveness of individual programs due the variability of
weather and other extrinsic factors that may affect water usage. For some projects they try to do a randomized
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found that many households over-irrigate their landscapes, and that by providing a consultation
that involves modifications to the irrigation schedule, along with less wasteful irrigation
equipment, these households use significantly less water.
For commercial water users, SAWS has implemented a custom rebate program that offers
payments for the implementation of a variety of water-conservation techniques. The amount of
the rebate depends on the amount of water saved, and eligible options can include installation
of smart irrigation systems, upgrades to irrigation systems to include water-saving technology,
replacement of irrigated landscaping with xeriscape landscape, and other actions. SAWS also
offers a commercial irrigation rebate program similar to the program offered to residential
homeowners. Savings are based on the acre-feet of water use that the modifications are
projected to eliminated, based on estimates that staff has developed over time. However, it is a
complex program, and staff is investigating whether more straightforward, menu-based options
would increase participation.
Rewards Program
SAWS also encourages water-conserving landscaping through a points-based WaterSavers
Rewards program. Participants can earn points by attending events relating to water-efficient
landscaping. These events are sponsored by third-party organizations (some of which are under
contract with SAWS) and approved by SAWS. With the points earned, participants receive
coupons at local retailers that can be used towards water-conserving materials such as plants,
mulch, compost, and rain barrels. Staff reports the program attracts between 100,000 and
200,000 attendees at events each year and has attracted a committed following.
Customer Outreach
The centerpiece of SAWS’ public outreach efforts is the Garden Style San Antonio website,
which provides water-conservation advice, as well as evapotranspiration-based accurate
watering advice and information about any current watering restrictions due to drought. More
then 20,000 people subscribe to the Garden Style newsletter, which provides watering advice
and information about other programs offered by SAWS.
Primary Contact
Herminio Griego, Assistant City Arborist, herminio.griego@sanantonio.gov
Karen Guz, Senior Director, Conservation, San Antonio Water System, karen.guz@saws.org
control trial by matching the participants in a rebate program with non-participants with similar household income
and pre-intervention water usage, but that it is complicated and difficult to implement.
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Tree Protection and Tree Canopy Enhancement
Best Practices
Lake Forest Park, WA
Background
The City of Lake Forest Park, Washington is a small suburb of Seattle with a population
approaching 14,000 across approximately four square miles. The City has had one part-time
arborist since 2018, which was the first year the City hired an in-house employee dedicated to
forestry. The City previously relied on a resident that was an arborist and expensive consulting
services follow the retirement of the resident arborist to implement its tree protection and
canopy enhancement program.
Tree Protection
Chapter 16.14 of the Lake Forest Park Municipal Code is focused on tree canopy preservation
and enhancement.
• The City uses a two-tiered permit structure that prioritizes protection of “significant”
trees, trees in environmentally critical areas or buffers, and native tree species. A Minor
Tree Permit, which can be obtained without City Arborist review, generally requires
replacement of any trees removed from a development site (at a one tree to one tree
ratio as long as canopy coverage is equal to or greater than before). If 1:1 replacement
will not result in equal or greater tree canopy coverage, a Major Tree Permit based on
arborist review will be required.
• Any application for a Major Tree Permit requires approval of a tree replacement plan
that maintains canopy coverage or meets the canopy coverage goal for the property
(depending on the project type).
• The City offers a Proactive Forest Management Permits for property owners as a
method of expediting projects in exchange for increased collaboration with the City on
tree maintenance and management and following an arborist plan to maintain canopy
coverage. A similar Utility Forest Management Permit offers utility providers an
opportunity to work with the City on a plan to balance the needs of utility providers and
community goals for canopy coverage.
• Tree removal is generally not permitted in areas that the City has identified as
Environmentally Critical Areas and Buffers—regulated by Chapter 16.16—which includes
floodplain, stream buffers, wetlands, steep slopes, landslide hazard areas, erosion
hazard areas, and seismic hazard areas. However, trees that present a risk (based on
defined standards), are causing damage to buildings and infrastructure, or are invasive
species, may be removed.
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• The City Arborist notes that standards for protection of trees during construction are
vital but not something addressed in the Code. Current uncodified practice is to require
that the critical root zone be protect to a distance equal to one foot of radial distance
from the tree trunk for every one inch in tree Diameter at Breast Height (DBH). The City
often negotiates for an even wider protection area.
• Historically, the City has required chain link fencing on pier blocks to protect the critical
root zone, but the City Arborist has found that pier blocks tend to be shifted around, so
the City is starting to require that fencing be attached to posts driven into the ground.
Lake Forest Park highlighted the following successes and challenges with enforcement of tree
protection regulations:
• The City is generally unable to do proactive code enforcement due to limited staff.
Because it is a small city, Lake Forest Park relies on a small number of highly active
residents that will report tree removal when they see it. Sometimes reports are made
related to removal of trees for which valid Tree Permits have been issued, but false
alarms are better than not knowing about the illegal removals for which permits have
not been issued.
• The City has a Tree Account for payment of fees and fines for tree removal, which is an
effective way to ensure a direct link between funds and tree programs. The process for
determining a fine is generally as follows:
o The City addresses violations of the Code by hiring an appraiser to determine the
value of the removed tree(s) and notifying the property owner (and sometimes
tree removal company) of the value to be paid. Local tree removal companies
have become well aware of the costs of removing a tree without a Tree Permit,
which has reduced the number of violations.
o The City Arborist highlighted the ability of a resident to provide the City with
information on the circumstances of the tree removal and to outline financial
hardship before paying the fine.
o Sometimes the City Attorney and an attorney for the Code violators meet to
agree on the final fee amount.
o In practice, the City Arborist noted that although the process of appraisal, fine,
appeal, and reaching agreement on the fine amount is generally effective, it is
also time consuming. To reduce this time commitment, the City has been
assessing a fine for unpermitted tree removals that is essentially double the cost
of the Tree Permit fee that should have been paid before removal, but only in
circumstances where the City Arborists agrees that the removed tree was one
for which removal would have been approved following the Code process.
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Urban Canopy Management
Lake Forest Park has more tree canopy than most surrounding communities and generally
prioritizes protecting and expanding tree canopy more than neighboring communities. Existing
regulations have been successful in the following ways:
• The City has a clear understanding of parcel-by-parcel tree canopy coverage (see Canopy
Coverage Maps) and clear goals for canopy coverage by zoning district and lot size (see
Community Forest Management Plan). This information is used in determining tree
replacement requirements.
• The Code has clear definitions, which make it easier for staff to implement the Code and
for community members to understand what is expected. Valuable terms that are
defined by Code include:
o “Canopy coverage” means the area covered by the canopy of trees on the lot.
When a tree trunk straddles a property line, 50 percent of the canopy shall be
counted towards each property’s canopy coverage. The canopy coverage of the
immature trees and newly planted trees is determined using the projected
canopy areas in the Lake Forest Park general tree list.
o “Landmark tree” means a significant tree that is at least 24 inches in diameter
(DBH).
o “Significant tree” means a tree six inches or greater in diameter (DBH) or a
required replacement tree of any size. Dead trees shall not be considered
significant trees.
o “Exceptional tree” means a viable tree, which because of its unique combination
of size and species, age, location, and health is worthy of long-term retention, as
determined by the city’s qualified arborist. To be considered exceptional, a tree
must meet the following criteria:
The tree must be included in and have a diameter at breast height (DBH)
that is equal to or greater than the threshold diameters listed in an
adopted table;
The tree shall exhibit healthful vigor for its age and species;
The tree shall not be considered a significant risk in regard to existing
utilities and structures as evaluated per the tree risk assessment defined
in LFPMC 16.14.080(A)(1);
The tree shall have no visual structural defects that cannot be mitigated
by one or more measures outlined in the International Society of
Arboriculture Best Management Practices; and
If retained under current tree growth conditions, the tree can be
expected to remain viable with reasonable and prudent management and
care.
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o “Viable (tree)” means a significant tree that a qualified arborist has determined
to be in good health with a low risk of failure, is relatively windfirm if isolated or
exposed, is a species that is suitable for its location, and is therefore worthy of
long-term retention
• Although residents often expect that the City is responsible for maintenance of trees in
the public right-of-way, the Code makes it clear that the property owner is responsible
for those in the tree lawn along property frontages, even if they are located in the public
right-of-way.
• The City maintains a detailed Tree List that include information on the expected canopy
area of each species, typical characteristics, drought tolerance, and preferred soil type.
Lake Forest Park has also identified the following improvements that they would like to see in
the future:
• The City Arborist would like to see the Code have stronger standards for retaining trees
before allowing replacement. Currently, standards allow a tree to be replaced by a tree
that will mature into a tree with equal or greater canopy, but replacement trees take
years to mature and provide the same benefits as the original, removed tree.
• The City Arborist is concerned about recent changes to the Code that allow accessory
dwelling units (ADUs) more broadly and future efforts that could rezone areas to allow
for higher density housing, both of which could potentially result in the loss of tree
canopy. Historically, the City has not seen much development or redevelopment or its
generally large residential lots, so the Code may need to be updated to prevent canopy
loss due to more intensive development.
• The City Arborist would like to increase education of new and existing property owners
to prevent accidental and unpermitted tree removal.
Primary Contact
Ashley Adams, City Arborist, aadams@ci.lake-forest-park.wa.us, (206) 957-2804
Portland, OR
Tree Permits
Trees on private property and in City of Portland rights-of-way are regulated by Title 11 of City
Code, Trees, which is focused on implementation of the City’s Urban Forest Management Plan
(2004) and Urban Forest Action Plan (2007) and tracking progress on those initiatives. Title 11
establishes the Urban Forestry Program, including appointed supervisory boards and
regulations and procedures for tree permits, tree preservation, tree planting, and enforcement
of these regulations.
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Chapter 11.30, Tree Permit Procedures outlines a highly nuanced approach to tree protection
with permits and standards varying based on ownership and location (private property or public
property/street) and the type of activities proposed. Trees that are designated as “Heritage
Trees” per Section 11.20.060 (“trees that because of their age, size, type, historical association
or horticultural value, are of special importance to the City”) earn the strongest level of
protection and regulation, and require approval by the Urban Forestry Commission (UFC) to
remove the designation (and subsequent removal of the tree). In other cases, the code requires
City Forester approval for any tree removal or maintenance.
Chapter 11.40, Tree Permit Requirements (No Associated Development), details the permit
requirements and review criteria when tree removal or maintenance is not associated with
development activity. This chapter generally applies to all street trees, City trees three inches or
greater in diameter, and private trees 12 or more inches in diameter (among other, more
specific situations). Permit standards and review criteria are organized into two categories: City
and Street Trees (Section 10.40.040) and Private Trees (Section 10.40.050).
City and Street Trees require a Type A tree permit, which requires City Forester review with no
public notice period or opportunity for the public to appeal, for the following:
• Tree planting;
• Pruning branches (greater than ½ inch) and roots (greater than ¼ inch);
• Removal of dead, dying, or dangerous trees (with one replacement tree required per
removed tree); or
• Removal of up to four healthy trees (per year) that are less than three inches in
diameter (with one replacement tree required per removed tree).
City and Street Trees require a Type B permit, which may result in a public notice period and
opportunity for public appeal of a pending City Forester decision, for removal of trees that are
greater than three inches in diameter if either of the following conditions apply:
• Tree for tree replacement of removed trees is required for trees less than 20 inches in
diameter (only if less than four healthy trees are removed per year). If any tree is 20
inches or larger in diameter or more than four health trees larger than 12 inches in
diameter are removed, trees replacement must be “inch for inch,” which means that
trees of an equivalent total diameter are required to be planted.
• Similarly, if any tree is 20 inches or larger in diameter or more than four healthy trees
larger than 12 inches in diameter are removed, public notice and opportunity for public
appeal of the City Forester approval is required.
Private Trees require a Type A permit for pruning native trees in specified overlay districts,
removal of a tree that is dead, dying, dangerous, a nuisance species, located within 10 feet of a
building, or no more than four healthy trees smaller than 20 inches in diameter are removed.
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Any tree removal under a Type A permit requires tree for tree replacement. Removal of up to
four trees that are 20 inches in diameter or larger or removal of more than four trees larger
than 12 inches in diameter require a Type B permit, inch for inch replacement, and public
notice and opportunity for public appeal.
Chapter 11.50, Trees in Development Situations, details the permit requirements and review
criteria when tree removal or maintenance proposed as part of a development activity. A Tree
Plan is generally required for all development projects, unless:
• There are no private trees 12 inches or larger in diameter;
• There are no city trees six inches or larger in diameter;
• There are no street trees three inches or larger in diameter;
• The site or activity is exempt from on-site tree density standards; and
• The site or activity is exempt from street tree planning standards.
Sites larger than one acre (or where all work is occurring in the public right-of-way) may
establish a Development Impact Area that provides some flexibility for tree preservation and
planting. It also includes a requirement that one street tree be planted or retained for each full
increment of 25 linear feet of street frontage with the option of paying a fee-in-lieu if the
required number of trees cannot be provided.
Section 11.50.040, Tree Preservation Standards, details the standards for retention of trees and
mitigation of trees not preserved, both on-site and in the public right-of-way. Mitigation is
based on payment into the Tree Planting and Preservation Fund with the cost depending on the
size of tree(s) to be removed.
Chapter 11.45, Programmatic Tree Permits, outlines a program to avoid going through
individual Tree Permit applications for regular or continuing work by utilities and other public
agencies. Although the City Code does not generally apply to State and Federal lands or
highways), this permit establishes a method for the City to engage with these agencies to
ensure that City regulations are understood and followed while allowing less oversight of day-
to-day operations that could result in maintenance or removal of certain trees less than six
inches in diameter. Programmatic Tree Permits may be approved by the City Forester for up to
five years.
Tree Protection
Section 11.60.030, Tree Protection Specifications, offers both prescriptive and performance-
based option for protection of both privately- and publicly owned trees. Importantly, the
prescriptive path does not require any knowledge of trees or plants and is therefore frequently
used by homeowners and small developers. It has been adjusted over time and seems to work
well, based on the following standards:
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• The root protection zone is one foot for each one inch in tree diameter;
• To provide flexibility for existing encroachments, provided the encroachment does not
affect more than 25 percent of the root protection zone and does not penetrate the
inner half of the zone radius;
• Six-foot chain link protection fencing on eight foot metal posts are required at the edge
of the root protection zone; and
• The same standards apply to protection of street trees unless the City Forester requires
more or less protection.
The performance path is most often used for larger projects and by larger developers because it
allows a professional arborist to create a plan for tree preservation that reflects any unique
circumstances of the project or site. The performance plan is reviewed for adequacy by City
staff.
Urban Canopy Management
To support the goals of the Urban Forest Action Plan to increase tree canopy coverage to 35-40
percent in residential areas, 15 percent in commercial/industrial areas, 30 percent in parks and
open spaces, and 35 percent in rights-of-way, Section 11.50.050 includes on-site tree density
standards that specify a minimum required tree area based on the size of the site and the type
and size of proposed and existing development. All new development and exterior alteration to
existing development above a certain valuation are generally required to comply with these
requirements, with a few exceptions. Applicant are provided with two options as follows:
• Option A requires the following minimum tree area:
o One- and two family residential: 40 percent of site or development impact area;
o Multi dwelling residential: 20 percent of site or development impact area;
o Commercial and mixed-use: 15 percent of site or development impact area;
o Industrial: 10 percent of site or development impact area;
o Institutional: 25 percent of site or development impact area; and
o Other: 25 percent of site or development impact area.
• Option B requires that the entire site area, minus existing and proposed building
coverage be designated as part of the tree canopy area.
This section also requires that the required tree area by planted with some combination of
canopy trees that meets specific standards for number of trees required per size of tree area
and the minimum required planting area per tree. The Code provides tree density credits
towards any required tree density for trees planted to meet required stormwater or
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landscaping requirements, existing healthy trees that are retained on-site, payments in-lieu of
planting, and flexibility for small sites where existing trees are retained.
Section 11.60.030, Tree Protection Specifications, outlines the minimum size and species
diversity for all trees required by this Code. Standards include the following:
• Broadleaf trees must be 1.5 inches in caliper for one- and two-family residential
development (on-site or on street) or on-site for all other development types.
• Broadleaf street trees are required to be a minimum of two inches caliper for multi-
dwelling residential and 2.5 inches caliper for all other types of development types.
• Coniferous trees are required to be at least five feet in height.
• Native trees are permitted to be ½ inch caliper less than required.
• When more than eight but fewer than 24 trees are required, no more than 40 percent
of trees may be of one species. When more than 24 trees are required, no more than 24
percent may be of one species. In some overlay districts all trees provided are required
to be native species.
Portland also uses some unique approaches to enforcement of tree planting, maintenance, and
removal requirements, including the following:
• Street trees are included in the warranty period for infrastructure (e.g., sidewalks and
streets) that require a Public Works permit, which generally lasts two years. This means
that any required street trees that are damaged, poorly maintained, or die during the
warranty period are required to be replaced by the applicant. Staff noted that this has
worked well and does not require a separate process for enforcement.
• Penalties for failure to comply with the Code standard for trees and landscaping is based
on an internal document that is informed by the Technical Specifications of Chapter
11.60. The City’s current approach is not to make it more expensive to follow the Code,
which may disincentivize people from coming info conformance. This approach still
allows the City to require planting of three to seven trees when a tree is illegally
removed. City staff hopes to eventually establish an administrative manual outside of
the Code that clarifies penalties for noncompliance that can be easily updated if those
penalties change in the future).
• The City Forester is permitted to require payment (based on an adopted fee schedule)
into the Tree Planting and Preservation Fund instead of requiring replacement trees if
the Forester finds there is insufficient or unsuitable area to accommodate some or all of
the replacement trees within the street planting area or site.
Although not a complete success, City staff mentioned that they recently completed a study
showing that compliance with various landscaping standards varied from 50 to 75 percent. The
City currently enforces landscaping and tree regulations based on complaints by neighbors and
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concerned citizens, which can make it difficult to ensure that required landscaping on private
property is provided and maintained with limited resources.
Additional Portland tree-related regulations are documented in Title 33, Planning and Zoning.
Primary Contact
Rick Faber, Permitting and Regulation Coordinator, Urban Forestry Division of Portland Parks
and Recreation, Richard.Faber@portlandoregon.gov
Other Valuable Practices
San Antonio, TX
The San Antonio Unified Development Code (UDC) was amended in 2010 to include Section 35-
523, Tree Preservation. The regulations are based on a required minimum canopy coverage,
which is 38 percent for single-family residential properties, 25 percent for multi-family and
nonresidential properties, and 15 percent in the Community Revitalization Action Group (CRAG)
area, which generally encompasses central San Antonio. Based on these final tree canopy
coverage requirements, the applicant may use one of two methods for determining tree
preservation. The tree survey method establishes a minimum percentage of all diameter inches
of significant or heritage trees, or canopy area, which must be preserved or mitigated (e.g., 35
percent of six inch caliper trees are to be preserved on a single-family dwelling lot). The tree
stand delineation method requires a minimum percentage of tree canopy coverage (not
including floodplains and environmentally sensitive areas) to be preserved (e.g., 35 percent of
non-heritage tree canopy for any project that requires any permit after the master
development plan stage or 30 percent with a master development plan). San Antonio allows
various alternatives when trees that are required for preservation are removed, including a fee-
in-lieu payment into the Tree Mitigation Fund and protection and maintenance of natural areas
within the surveyed area.
The City also offers tree preservation incentives, which include:
• Reduction of one required parking space for every four diameter inches of trees
protected or mitigated on-site, up to a maximum of 15 percent of required parking
spaces (or 30 percent with approval of the Planning Director). Preservation of
woodlands and significant tree stands may qualify the site for a 50 percent reduction in
parking spaces;
• Reduction in sidewalk width or elimination of a sidewalk requirement;
• Additional tree protection credits for preservation of tree clusters;
• Credit for trees provided to meet required landscape buffers and on-site landscaping
(see Sec. 25-511, Landscaping);
• Credit for preservation of native understory plants alongside trees;
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• Reduction of lot size and setback requirements for exceeding tree protection
requirements.
• Exemption from City tree protection requirements for projects certified under the Texas
Parks and Wildlife (TPW) Texas Wildscape Program;
• Credit for planting trees on the south and west sides of habitable buildings (to benefit
energy conservation);
• Additional credit for preservation of woodlands, significant trees, and heritage trees;
• Reduction of required tree canopy for athletic fields; and
• Additional credit for incorporation of Low Impact Development (LID) to aid in
stormwater management.
San Antonio defines the root protection zone as being one linear foot of radial distance for each
one inch in tree diameter, which allows construction within five feet on one side of the tree.
Alternatively, the City allows applicants for multi-family and nonresidential development to
warranty the trees for five years to ensure trees are otherwise protected and maintained.
City staff noted that the codified list of approved plants and trees should be expanded and also
highlighted the need for more detailed direction in the Code and clearer definition of terms.
The San Antonio tree protection program is complex, but offers a variety of possible methods,
alternatives, and incentives for the City of Fort Collins to consider.
Primary Contact
Herminio Griego, Assistant City Arborist, herminio.griego@sanantonio.gov
Bloomington, IN
The City of Bloomington recently adopted an updated Unified Development Ordinance (UDO)
that includes a unique approach to preserving urban canopy during land-disturbance activities.
Section 20.04.030(i), Tree and Forest Protection establishes a minimum required canopy cover
based on how much of the property is currently covered with tree canopy as shown below:
• 80-100 percent baseline canopy cover requires 50 percent of that coverage to be
retained;
• 60-79 percent baseline canopy cover requires 60 percent of that coverage to be
retained;
• 40-59 percent baseline canopy cover requires 70 percent of that coverage to be
retained;
• 20-39 percent baseline canopy cover requires 80 percent of that coverage to be
retained; and
• 0-19 percent baseline canopy cover requires 90 percent of that coverage to be retained.
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This approach requires that more of the canopy be preserved when there is less canopy
available. City staff indicated that this approach is somewhat complicated because it requires
calculation and sometimes on-site review, but general found that the approach is fair to
developers and seems to work well. Section 20.04.080, Landscaping, Buffering, and Fences, also
establishes standards for landscaping on private property (including single-family dwelling
development) and in the public right-of-way, which includes regulations for species diversity,
minimum tree sizes, and protection of existing trees.
The City notes the following improvements to the UDO that could help with clarity and
implementation of the Bloomington Urban Tree Canopy Assessment Summary Report (2019):
• A clearer definition of “closed canopy,” or an alternative method of determining what
constitutes tree canopy.
• A requirement that trees located in boxes include suitable soils.
• A fee-in-lieu option, especially for sites where there are conflicts between existing and
potential planting areas and utility infrastructure).
• Coordination of tree-related regulations between Chapter 12.24, Trees and Flora, which
applies to street trees in the public right-of-way, and Title 20 of the Unified
Development Code, which governs private development.
City staff highlighted several enforcement challenges and potential solutions or alternatives.
The City needs:
• Clearer standards for tree-protective fencing during construction and better
enforcement of the required 10 foot setback beyond the dripline, which tends to be
encroached upon;
• Clearer direction on who determines when a tree is a “heritage tree,” which is defined
as “a tree that is unique and important to the community because of its species, age,
size, location, or historic significance;”
• An escrow payment program to ensure street tree maintenance. Currently, the City is
responsible for street tree replacement, and poor private maintenance of street trees
leads to higher costs to the City for tree replacement.
• Potentially updating UDO standards to require a minimum 10 foot wide tree lawn
(where possible) and greater emphasis on planting and protecting native trees.
• A bond funded program (2022) for tree planting with emphasis on creating a more
equitable urban canopy.
Primary Contacts
Linda Thompson, Senior Environmental Planner, thompsol@bloomington.in.gov; Beth
Rosenbarger, Planning Services Manager, rosenbab@bloomington.in.gov
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Boulder, CO
The City of Boulder Code adopted an Urban Forest Strategic Plan in 2018 to establish a policy
framework for urban canopy management. Today, the City offers limited protection for trees
on private property (see Chapter 9-9, Development Standards). During the development
process the applicant is required to identify all trees greater than four inches caliper and have a
qualified arborist conduct an inventory of the trees worthy of preservation. The City reviews
this inventory and works with the applicant on a tree protection plan, including identifying the
trees to be preserved and the fencing and measures required to ensure protection during
development of the property (see drawings 3.01, 3.02, 3.03, and 3.04). Trees required to be
preserved can be removed with payment of a mitigation fee.
Although the City does not currently have a permit process for removal of street trees, the City
Forester noted that the City would like to formalize the process with a permit (see Chapter 6-6,
Protection of Trees and Plants). Currently, the City Forester determines what trees are required
to be preserved and the mitigation payment to compensate the City for any removed trees.
Boulder uses the trunk formula method, which determines the value of trees to be removed
based on the value of similar sized trees in a local nursery, the cost of installation, and other
factors. Any tree that is illegally removed during the development process results in a
mitigation fee to be paid before other permits are issued. Otherwise, the City documents the
illegal tree removal and issues a fine (almost always) or requires replacement (rare because of
the large share of development that takes place on infill sites that are too small to
accommodate additional trees). Tree mitigation fees and fines go towards Capital Improvement
Projects in the Parks and Recreation Budget. The City Forester supports the use of mitigation
fees instead of tree replacement because it is easier to administer and because funds can be
carried forward from year-to-year so that mitigation fees collected late in the year aren’t lost
when trees cannot be planted during the winter. Boulder has an Approved Tree List to guide
tree planting in the right-of-way and on other municipal property, including information on tree
spacing, hardiness zone, water needs, canopy size, and soil preferences.
The City Forester did note the following challenges and potential improvements to Boulder’s
current Code and practices:
• Standards for mulching and irrigation of trees are only identified during the permitting
process and are otherwise difficult to enforce.
• The City could better educate property owners about when they are responsible for
care and maintenance of street trees. The City generally manages street trees adjacent
to residential properties and businesses manage those adjacent to their property.
Alternatively, the City could explore taking over responsibility for all street trees.
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• The City should consider alternative arrangements to ensuring required trees are
maintained, including having developers prepay for cost of maintenance when the City
is required to provide maintenance. An escrow payment program has been considered
before, but it is not always clear which party should pay, or be responsible, or receive
any funds required to be rebated if not used within a specific period of time.
Primary Contact
Kathleen Alexander, City Forester, alexanderk@bouldercolorado.gov
Madison, WI
The City of Madison requires private development (except for one- and two-family dwellings) to
provide trees and landscaping through a menu of options in Section 28.142, Landscaping and
Screening Requirements. These regulations establish a point value for distinct types of
vegetation, which encourages the installation of higher quality (and larger) trees and requires a
greater number of “points” for larger lots. Higher points are also provided for protection of
“existing significant specimen trees” (those greater than 2.5 inches caliper) to prioritize
preservation of large trees over removal and replacement with smaller trees that take longer to
provide similar benefits. This section also requires any development that provides five or more
trees to provide a specified diversity of tree species (with greater diversity required when more
than 50 trees are provided) and at least three different street tree species per block. Once
landscaping is installed, however, the City does not require or enforce tree protection on
private property.
Trees in the right-of-way, however, are highly protected, primarily through Section 10.101,
Regulation of Tree Trimming, Pruning and Removal within the Public Right-of-Way of Any
Street, Alley or Highway). These standards require permits for tree trimming, pruning, and
removal of trees in the public right-of-way, which include requirements for tree inventories
and/or street tree report prepared by a certified arborist for any request to remove, prune, or
perform most construction activities. The reports are typically triggered by a proposal to do any
work that could impact the urban canopy or impact a tree that is six inches or greater in caliper.
The City noted that tree protection regulations are relatively cumbersome, but that developers
view the street tree report as a way to expedite the process because they can hire a certified
arborist to conduct the review.
Madison is unique for codifying detailed standards for how the City and any contractors must
protect trees in the right-of-way. Section 107.13 of the City’s Standard Specifications for Public
Works projects require that a five-foot area around each tree remain undisturbed, provide
information on what City Forester markings indicate, describe methods of root cutting to limit
damage to trees, lists best practices for trimming, pruning, and avoiding soil compaction, and.
establishes penalties for damage to trees. The City Forester noted that current practice has
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been to collect a deposit of $125 per trunk diameter inch (measured 4.5 feet above the ground)
prior to any work being done near trees. This ensures that the City is able to collect any
damages without hassle.
The City noted that they will be reviewing the City Code in the next year to ensure
implementation of the Urban Forestry Task Force Final Report (2019) and had the following
suggestions to improve the effectiveness of current standards.
• Codify standards for soil volumes and require a third-party review and approval for the
City to evaluate during the development review process.
• Modify parking lot landscaping requirements to require different parking lot tree
arrangements.
• Assess development regulations in urban neighborhoods where the required setbacks
are less than five feet, because it can prevent the full, healthy growth of trees if the
sidewalk width is also narrow.
• Explore recommendations from the Tree Board for improving maintenance of public and
private trees.
Primary Contacts
Heather Strouder, Planning Division Director, HStouder@cityofmadison.com; Marla Eddy, City
Forester, MEddy@cityofmadison.com
Seattle, WA
The City of Seattle’s 2020 Draft Urban Forest Management Plan has established a goal of
increasing tree canopy coverage to 30 percent by 2037. Currently, Chapter 25.11, Tree
Protection focus on preserving “exceptional trees” as opposed to thinking about the overall
urban canopy. This reflects an increase in interest in tree protection from citizens and elected
officials due to rapid development the past several years. Generally, Seattle has very few
standards related to the planting, preservation, or maintenance of trees on private property (no
tree removal permits, no tree planning requirements, no standards for tree size, no required
species diversity, etc.). Street trees have more protections (removal requires permit approval),
but standards for maintenance and replacement are minimal. Although Seattle takes a more
hands-off approach to tree preservation, they are in the process of updating some regulations.
Fort Collins may consider some of the following existing valuable practices:
• The City has developed an interactive tree list (using Tableau) to allow residents to tailor
any new tree plantings to site conditions (sun exposure, width of planting strip for street
trees, presence of overhead wires) and desired tree characteristics (drought tolerance,
size, native/non-native, and flower and fall colors). Voluntary planning does not require
any specific tree type or size to be provided.
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• Removal of a street tree without City approval results in a fine that is triple the cost of
the permit that should have been obtained prior to tree removal. The City is considering
alternative penalty structures (including charging a dollar value per caliper inch of the
removed tree), but staff notes that City officials are weary of fines that could
disproportionately impact underserved communities.
Primary Contacts
Chanda Emery, Senior Planner, Chanda.Emery@Seattle.gov; Nolan Rundquist, City Arborist,
Seattle.Trees@Seattle.gov
Fort Wayne, IN
Fort Wayne has struggled with the loss of large trees and clear-cutting of trees on private
property prior to or during the development review process, partly because existing regulations
are very permissive about tree removal (see Section 157.408, Landscape Standards). Over the
past decade, the City found that they have lost about six percent of existing tree canopy
coverage. The City is in the early stages of looking at solutions (and assessing community
support) for addressing the issue with new regulations and further implementing the City’s
Urban Forest Management Plan (2014), but does have the following regulations and practices
that have proven successful or provide lessons learned from current practice:
• To limit conflicts with trees and infrastructure in utility easements, the City recently
adopted provisions that allow landscaping to be provided elsewhere without requiring a
waiver of standards. This is not yet reflected in the Code.
• Instead of requiring that trees be replaced at one-tree-to-one-tree ratio, the City is
considering requiring tree replacement at a ratio of one-inch of tree caliper for every
one-inch of tree caliper being removed. The current standard is not resulting in quality
replacement trees.
• The City has been actively protecting about 1,000 of the highest value Ash trees (along
key corridors, in parks, etc.) with TREE-äge Insecticide Treatment and has removed
about 10,000 other Ash trees to manage Emerald Ash Borer damage. Any removed tree
is replaced with guidance from the Parks Department to ensure species diversity.
Otherwise, there is no species diversity requirement for new trees.
Primary Contact
Derek Veit, Superintendent of Urban Forestry, Derek.Veit@cityoffortwayne.org
Reno, NV
The City of Reno is in the process of updating standards for tree protection, installation, and
maintenance. Although this example does not offer an analysis of existing standards, it reflects
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related discussion with City staff about what is working well or proving to be challenging, this
community does offer an opportunity to see what another Western community is trying based
on best practices. The draft ordinance language (as of 3/28/22) is set for review and
recommendation by the Planning Commission, which has already been recommended to City
Council for adoption by the Urban Forestry Commission. The draft ordinance focuses on many
of the issues identified by the City of Fort Collins, including soil standards, tree protection
regulations, enforcement mechanisms, and updated definitions—all with the goal of improving
and expanding tree canopy. New standards in Chapter 8.32, Trees and Shrubs, and Title 18,
Land Development Code:
• Establish a landmark tree designation for tree protection on private property;
• Establish a process for removal of a public tree by an adjacent property owner;
• Establish a methodology for tree appraisal and financial assurances in public trees are
not adequately protected during construction;
• Clarify minimum soil volume and quality standards based on tree size;
• Increase quality standards for street trees and parking lot trees;
• Enhance standards for tree maintenance and replacement if required trees are
damaged or removed;
• Establish procedures for landscape permits if required landscaping is removed or
negatively impacted; and
• Expand penalties to apply based on number of trees impacted instead of applying the
penalty based on a particular property not following regulations.
Primary Contacts
Matt Basile, Urban Forester, basilem@reno.gov; Kelly Mullin, Principal Planner,
mullink@reno.gov.
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Item 2.
Fort Collins Land Use Code Additional Audit
June 2023
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Item 2.
Fort Collins Land Use Code Additional Audit
June 2023
Table of Contents
Part 1: Introduction and Overview ....................................................................................... 1
About the Project ............................................................................................................ 1
About this Document ....................................................................................................... 2
Part 2: Code Audit Focus Areas ............................................................................................ 2
1. Soil Amendments ........................................................................................................ 2
Current Standards and Challenges ...................................................................................................... 2
Recommended Changes ....................................................................................................................... 4
Reorganization for Clarity ................................................................................................................ 4
Substantive Soil Amendment Standards ........................................................................................ 4
Flexibility and Relief ......................................................................................................................... 5
Administration and Enforcement .................................................................................................... 5
2. Xeriscaping ................................................................................................................. 5
Current Standards and Challenges ...................................................................................................... 6
Recommended Changes ....................................................................................................................... 7
Limits on Amounts of Irrigated Turf ................................................................................................ 7
Water Conservation and Irrigation .................................................................................................. 9
Landscape Materials ...................................................................................................................... 10
Streetscape ..................................................................................................................................... 11
3. Tree Protection and Tree Canopy Enhancement ............................................................. 12
Current Standards and Challenges .................................................................................................... 12
Recommended Changes ..................................................................................................................... 18
Definitions ...................................................................................................................................... 18
Tree Preservation ........................................................................................................................... 19
Tree Planting .................................................................................................................................. 23
Tree Removal Mitigation and Penalties......................................................................................... 26
4. Additional Recommendations ..................................................................................... 28
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Item 2.
Fort Collins Land Use Code Additional Audit 1
June 2023
Part 1: Introduction and Overview
About the Project
Since 2020, Clarion Associates has been assisting the City of Fort Collins to implement its Nature in the
City (NIC) initiative. To date, that support has included:
• Collaboration with Fort Collins staff to identify four areas of initial focus:
Establishing common terms and definitions for the NIC implementation effort;
Clarifying and quantifying NIC standards by type and location;
Strengthening “edge” standards where possible; and
Encouraging other innovative approaches as opportunities arise.
• Preparation of a first Land Development Code Audit to identify barriers to implementing
different components of the initiative in these four areas.
• Preparation of draft text amendments to the Land Development Code (LDC) to implement the
following aspects of the NIC initiative:
Requirements for inclusion of common open space;
Limits on impervious surfaces in new development; and
Requirements that certain types of development earn at least a minimum number of
points is a new Nature in the City Score system, which provides numerous flexible options
related to site and building design.
• Expansion of the NIC effort to research four additional topics related to the goals and visions
of Nature in the City, namely:
Soil amendments to ensure that new vegetation survives, thrives, and provides maximum
environmental and experiential benefits;
Xeriscape practices to reduce outdoor water consumption without compromising the
public experience of being in nature or the environmental benefits that healthy vegetation
provides;
Tree protection during site work and construction phases and during the creation of
landscaping and planting plans for the proposed development and redevelopment; and
Tree canopy enhancement in order increase public perception of nature, increase
shading, and reduce the impacts of urban heat islands over time.
• Preparation of an Additional Best Practices Report summarizing our findings and examples of
recommended practices in each of these four additional areas. During the preparation of the
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June 2023 2
report, to avoid repetition of similar materials, we consolidated our research and
recommendations on the tree protection and tree canopy enhancements into a single section,
and that three-topic structure is carried forward in this document.
About this Document
This document supplements the first LUC Audit prepared in 2020 to reflect the findings of the
Additional Best Practice Report on the three additional topic areas. Like the first Audit, and at staff’s
request, this document does not recommend specific regulatory language to adopt but indicates what
types of regulatory changes will be needed and where in the LUC structure those changes will need to
appear. In large part, this approach reflects the fact that another consultant has been retained to
update the entire Land Use Code, the specific regulatory language to implement the NIC program
needs to be consistent with the structure and terminology developed by the lead code consultants,
and that work is still in process. We recommend that the findings of this Additional LUC Audit (as well
as the first Audit and our first round of Draft Code Amendments) be provided to the lead code
consultant for use in their drafting process.
Part 2: Code Audit Focus Areas
1. Soil Amendments
This section identifies potential changes to the Municipal Code to support compliance and
enforcement of existing soil amendments regulations and provide additional flexibility to applicants
where possible to reflect site-specific considerations.
Current Standards and Challenges
Unlike most other topics addressed during the NIC process, Fort Collins’ soil amendment regulations
are found in both the Land Use Code and the Municipal Code. The relevant regulations are shown
below:
Land Use Code Section 3-8-21, Soil Amendments
For any development project, prior to installation of any plant materials, including but not
limited to grass, seed, flowers, shrubs or trees, the soil in the area to be planted shall be
loosened and amended in a manner consistent with the requirements of City Code Section
12-132(a), regardless of whether a building pe rmit is required for the specific lot, tract or
parcel in which the area is located . A certification consistent with the requirements of City
Code Section 12-132(b) shall be required for the area to be planted. This requirement may
be temporarily suspended or waived for the reasons and in the manner set forth in City Code
Sections 12-132(c) and (d).
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Municipal Code Section 12-132, Soil Amendment
(a) Except as otherwise provided below, the holder of any building permit shall, as a condition of
the issuance of a certificate of occupancy, prepare any area in which any plant materials,
including but not limited to grass, seed, flowers, shrubs, or trees, are expected or intended to
be installed, prior to installation of any plant materials in that area, as follows:
(1) The soil in such areas shall be thoroughly loosened to a depth of not less than eight (8)
inches; and
(2) Soil amendments shall be thoroughly incorporated into the soil of such areas to a depth of
at least six (6) inches by tilling, discing or other suitable method, at a rate of at least three
(3) cubic yards of soil amendment per one thousand (1,000) square feet of area to be
planted, unless at least four (4) inches of loose top soil has been placed on the area after
completion of construction activity on top of not less than four (4) inches of loosened
subgrade soils. Documentation of the content and quantity of the soil amendments and
topsoil placed in an area, prepared by the commercial source of the material or a qualified
soils testing laboratory, shall be submitted in connection with the certification required in
Subsection 12-132(b), below.
(b) Prior to the issuance of any certificate of occupancy, the prospective recipient of such
certificate of occupancy shall submit written certification to the Utilities Executive
Director that all planted areas, or areas to be planted, have been thoroughly loosened and
the soil amended, consistent with the requirements set forth in this Section.
(c) In the event that the Utilities Executive Director determines that compliance with this
Section is rendered unreasonably difficult by weather or seasonal conditions, the Utilities
Executive Director may temporarily suspend the application of this requirement,
contingent upon the provision by the prospective recipient of such arrangements,
guaranties or assurances as the Utilities Executive Director determines to be adequate to
ensure compliance.
(d) In the event that the Utilities Executive Director determines that compliance with this
Section in a specific area is unreasonably difficult as a result of site conditions such as, for
example, an excessively steep gradient or a very narrow side lot, the Utilities Executive
Director may waive the application of this requirement for such area.
(e) The Utilities Executive Director or City Manager may inspect any property in order to
determine compliance with the requirements of this Section as a condition of issuance of
any certificate of occupancy.
(f) Payment of any administrative fee established by the City Manager for the purpose of
recovering the costs of administering and enforcing the requirements of this Section shall
be required as a condition of issuance of any building permit, excluding any building
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Item 2.
June 2023 4
permit where it can be shown that no areas within the project limits will be disturbed by
construction activities and planted with vegetation.
These provisions commingle substantive regulations (Subsection (a)) with opportunities for flexibility
or relief from those regulations (Subsections (c) and (d)) and procedures to administer the regulations
(Subsections (b), (e), and (f)).
Recommended Changes
Reorganization for Clarity
The content currently contained in Section 12-132 of the Municipal Code should be reorganized
into the following three new subsections for clarity:
• Section 12-132: Substantive Soil Amendment Standards
• Section 12-133: Flexibility and Relief
• Section 12-134: Administration and Enforcement
Substantive Soil Amendment Standards
This revised Section should include current Subsection 12-132(a) but with the following changes:
• The text of Subsection 12-132(a) should be revised to clarify that it applies when soil has not
been tested to identify deficiencies.
• As alternatives to the requirement of Subsection (a), add provisions allowing the following:
o If topsoil that has been tested and confirmed to meet the minimum soil amendment
standards, allow the topsoil to be stored on site (using best storage practices) and
then reapplied to the site after subgrade soils have been loosened;
o If topsoil has been tested and found not to meet the minimum sold amendment
standards, allow the topsoil to be stored on site (using best storage practices),
amended to bring it up to those minimum standards, and then reapplied to the site
after subgrade soils have been loosened.
• As exceptions to the requirements of Subsection (a), the revised Section could include the
following:
o To avoid damage to root systems, remove the require for soil amendment in areas
around new and existing trees, provided that topsoil in those areas has been loosened
following construction activities;
o To avoid potential erosion and pollution, do not require soil amendments within 25
feet of any perennial waterway; and
o To encourage the retention of existing vegetation and their established root systems,
do not require soil amendments in areas where existing vegetation is retained.
o To simplify administration, do not require soil amendment in planting areas smaller
than 1,000 square feet in areas.
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Flexibility and Relief
• Add a new Section 12-133 consolidating provisions related to available flexibility. These
provisions will allow soil amendment requirements to be tailored to the specific needs of each
site and will remove common barriers to compliance. This new Section should include current
Subsections 12-132(c) (temporary delays due to weather conditions) and (d) (waivers due to
impracticability).
In addition, this new Section should include the following provisions:
• On larger projects, where the applicant for a Certificate of Occupancy is unrelated to the entity
responsible for installing landscaping, allow Certificates of Occupancy to be issued even if
required soil amendments have not been installed, provided that one of those entities has
provided the City financial guarantees or other assurances that the soil amendments will be
completed when landscaping is installed.
• In site areas where (a) site compaction did not occur during construction, and (b) required or
planned landscaping will be installed as plug installations, container plantings, overseeding
applications, or xeriscaping, allow soil aeration or other no-till soil treatments as an
alternative to soil amendments.
Administration and Enforcement
• Add a new Section 12-134 consolidating provisions related to administration and enforcement
of the revised regulations. This new Subsection should include current Subsections 12-132(b)
(written certification of performance), (e) (allowance of inspections), and (f) (administrative
fee payment).
In addition, the new Subsection should include the following provisions:
• Applicants should be allowed to document compliance with the regulations through
submittal of photos along with soil amendment load tickets or affidavits.
• Simplify the inspection process by conducting a single inspection to verify soil amendment,
tilling depth, and other standards are addressed.
• Establish the amount of the administrative fee already authorized by Subsection 12-132(f) and
begin collecting that fee.
Importantly, because the provisions of current Section12-130 through 132 are only relevant to
landscaping and all other landscaping provisions are located in the LUC, we recommend that those
provisions (as modified by the changes listed above) be relocated from the Municipal Code to the
Land Use Code. They should appear as a new general landscaping standard (applicable to all required
landscaping) as a new Subsection 3.2.1(E)(4) Soil Amendments. Subsequent subsections should be
renumbered accordingly.
2. Xeriscaping
This section focuses on issues identified by City staff related to landscaping and water conservation
following review of the Additional Targeted Best Practices Report (May 2022) and internal discussions.
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Current Standards and Challenges
These recommendations build on, and should be coordinated with, the current LUC regulations on
landscaping, irrigation, and water conservation. More specifically, they build on the following current
LUC regulations:
Section 3.2.1(E) Landscape Standards
. . .
“(3) Water Conservation. Landscape plans shall be designed to incorporate water-efficient
techniques.
“(a) Landscape designs shall be designed according to the xeriscape landscaping
principles described as follows:
(1) Plan and design. Plan for how people will use and interact with the landscape.
Group landscape materials accordingly based upon hydrozone.
(2) Landscape arrangement. Provide a cohesive arrangement of turf, plants, mulch,
boulders, and other landscape elements that support the criteria in Section
3.2.1(H). Landscape elements shall be arranged to provide appropriate plant
spacing and grouping and to avoid disproportionate and excessive use of mulch
areas.
(3) Appropriate use of turf. Limit high water-use turf to high-traffic areas where turf is
functional and utilized.
(4) Appropriate plant selection. Selected plants shall be well adapted to the Fort
Collins climate and site conditions. Plants shall be grouped according to water
and light requirements.
(5) Efficient irrigation. Design, operate and maintain an efficient irrigation system.
Select equipment appropriate to the hydrozone. Water deeply and infrequently to
develop greater drought tolerance.
. . .
(9) Xeriscape principles do not include or allow artificial turf or plants; paving of areas
not used for walkways, patios, or parking; excessive bare ground or mulch; weed
infestations; or any landscaping that does not comply with the standards of this
section.
(b) Landscape plans shall include:
1. A water budget chart that shows the total annual water use, which shall
not exceed an average of fifteen (15) gallons/square foot for the
landscape.
a. Accurate and clear identification of all applicable hydrozones using
the following categories:
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Section 3.2.1 (J) Irrigation
“(1) Provision shall be made for permanent, automatic irrigation of all plant material, with the
following exceptions:
(a) plantings that do not require any irrigation beyond establishment.
(b) trees and other plants used to landscape a residential local street parkway abutting lots for
single-family detached dwellings.”
. . .
“(3) The City of Fort Collins irrigation system standards for water conservation are as follows:
(a) Irrigation methods and layout:
1. The irrigation system shall be designed according to the hydrozones shown on the
landscape plan.
2. Each zone shall irrigate a landscape with similar site, soil conditions and plant material
having similar water needs. To the extent reasonably feasible, areas with significantly
different solar exposures shall be zoned separately.
3. Turf and non-turf areas shall be irrigated on separate zones.
4. On steep grades, an irrigation method with a lower precipitation rate shall be used in
order to minimize runoff, and, to the extent reasonably feasible, these areas shall be
zoned separately.
5. Drip, micro-sprays, spray heads and rotors shall not be combined on the same zone.
6. The irrigation method shall be selected to correlate with the plant density. Drip
irrigation or bubblers shall be used for sparsely planted trees and shrubs, and rotors,
sprayheads and multi-jet rotary nozzles shall be used for turfgrass.
Recommended Changes
Limits on Amounts of Irrigated Turf
Although existing standards limit the total annual water use on a given site to an average of 15
gallons/square foot/year for each water tap, there are currently no limits on the amount of
residential and commercial sites on which irrigated turf can be installed. The 2020 LUC Code Audit
addressed this shortcoming directly, stating that the City should:
High Hydrozone 18 gallons/square feet/season
Moderate Hydrozone 10 gallons/square feet/season
Low Hydrozone 3 gallons/square feet/season
Very Low Hydrozone 0 gallons/square feet/season
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“Make water conservation standards stronger by requiring a minimum percentage of
qualifying native or xeric plantings, and by restricting the overall amount of turf grass allowed
in the context of landscaping and open space requirements;”
We recommend that limits similar to those applied in some comparison communities be included,
both to reduce water demand and to encourage the installation of more natural landscapes
consistent with the NIC program goals. These limits should be integrated as a new Subsection
3.2.1(E)(3)(c), Limitations on Irrigated Turf, and should include the following content:
• On non-residential properties (including commercial, institutional, and industrially zoned
lands) irrigated turf shall be limited to no more than 30 percent of the total landscaped area,
not to exceed a maximum of 10,000 square feet of irrigated turf on the lot or parcel.
• On residential properties (including both single-family and multi-family development)
irrigated turf shall be limited to (a) no more than 30 percent of any area front yard area, and
(b) no more than 1,000 sq. ft. of the lot or parcel.
• In order to avoid water waste that occurs through overspray on small areas, on both
residential and non-residential properties irrigated turf shall not be installed:
o In contiguous areas smaller than 300 sq. ft.; or
o In parkway areas between the sidewalk and street.
While the current LUC regulations do not apply to detached single-family homes, it is important
that the revised regulations do so, since that land use often occupies more than one-half of the
developed land. Because a substantial portion of Fort Collins occupied by this one land use,
requiring that single-family homes install more natural landscaping suitable for survival in
Colorado’s climate without irrigation can make a large contribution to the NIC goals of more
frequent and consistent exposure to natural environments. The Additional Best Practices Report
documents the ways in which cities such as Aurora, Castle Rock, and Albuquerque have already
imposed similar limitations on irrigated turf.
In addition, the LUC should be revised to clarify what level of development or redevelopment
should trigger the application of these turf limits. We recommend that they apply to:
• All projects involving the construction of new primary buildings on vacant land;
• All redevelopment involving the expansion of the gross floor area of an existing primary
building by more than 25 percent;
• All redevelopment expanding the number of parking spaces on a lot or parcel by more than 25
percent; and
• All redevelopment involving changes to the exterior of primary structures in which the total
value of building permits exceeds 25 percent of the current fair market value of the property,
as shown in current property tax records.
For internal consistency, Subsection 3.2.1(J)(1) should be revised by the addition of a Subsection
(c) clarifying that the general requirement for installation of landscape irrigation systems does not
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apply to areas where irrigation is prohibited pursuant to proposed new Subsection 3.2.1(E)(3)(c)
above.
In addition, for internal consistency, Subsection 3.2.1(E)(2) should be deleted, as it contains
inconsistent provisions regarding the installation of irrigated turf.
Water Conservation and Irrigation
Increasing the exposure of Fort Collins residents to natural environments will require that more of
the landscaping installed in the future be water conserving or xeric landscaping, and that any
irrigation installed for non-turf landscaping be highly water efficient. The City’s current standards
for irrigation installation and design are found in Section 3.2.1(J), and could be strengthened and
better aligned with the NIC goals and vision by:
• Removing the Subsection 3.2.1(J)(1)(b) exemption from irrigation for trees and other plants
used to landscape a residential local street parkway abutting lots for single-family detached
dwellings. In most cities, these types of frontages make up a significant percentage of overall
street frontage, and ensuring that trees and vegetation planted in these areas have a high
likelihood of survival would make a major contribution to the achievement of NIC goals;
• Adding a new Subsection 3.2.1(J)(3)(a)7 requiring that drip irrigation be installed for all new
trees in parkways and front yard areas and whenever the submittal of a landscaping plan is
required;
• Clarifying where and when the water efficient irrigation equipment and design standards in
Section 3.2.1(J)(3) apply. More specifically, clarifying:
o Whether they apply to all irrigation installed on single-family detached dwelling lots
(many cities would not do so because of limited administrative and enforcement
capacity); and
o Whether they apply to redevelopment projects. We recommend they apply in the
same situations where the irrigated turf limits described above apply.
Although some have suggested that the LUC contain a prohibition on overhead irrigation (i.e.,
non-drip irrigation) between 10:00am and 6:00pm to reduce evaporation, Clarion does not
recommend including such a standard in the LUC. This type of standard is likely to change over
time and vary by season, weather, and drought events. These types of operational standards are
generally adopted in a City Council resolution or regulation that is then cross-referenced in the
Code.
To achieve this level of flexibility:
• A new LUC Subsection 3.2.1(J)(4), Overhead Watering Restrictions, could be added to clarify
that City Council can, by resolution, limit the hours when overhead watering (i.e., non-drip
irrigation) may occur, and that a violation of that resolution is a violation of the LUC. If further
detail is needed, the new subsection could also state that unless and until the City Council
adopts such a resolution, overhead watering is prohibited between 10:00am and 6:00pm.
As a corollary to the recommendation above, Fort Collins may want to remove some of the highly
detailed standards in Subsections 3.2.1(J)(3)(b) Equipment Selection, (c) Sleeving, (d) Water
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Pressure, and (E) Sprinkler Performance Audit from the LUC and instead list them in a regulatory
administrative manual. These standards are significantly more detailed than those found in many
newer codes and could require significant changes over time if irrigation technology and best
practices advance. It is generally significantly easier and quicker to update a City Council-
authorized manual of technical standards that is maintained outside the Code than to update the
Code itself.
Although a suggestion was made to include a prohibition on overhead watering between 10:00 am
and 6:00 pm to reduce evaporative water losses, we generally do not recommend including such a
provision in the LUC. Most communities include those types of operational restrictions in a
technical manual or document cross-referenced in the code, because the specifics times of
watering restrictions may change over time, and it is easier to amend technical standards outside
the code than to make amendments to the code itself.
Landscape Materials
Although Subsection 3.2.1(E)(3)9 states that xeriscape principles do not include artificial turf and
plants, staff noted that this standard is often interpreted to apply only to developments
implementing xeriscaping, instead of to all scenarios. In addition, while Subsection 3.2.1(D)(3)
includes species diversity requirements for trees, there is no similar requirement for shrubs,
grasses, ground covers, or other required plantings. Because plants indigenous to Colorado are
generally relatively drought-resistant, provisions that require the use of drought-resistant species
will help ensure that installed landscaping survives drought events and the ability to experience
nature remains uninterrupted. To further increase exposure of Fort Collins residents to nature
throughout the city, the current prohibition on artificial turf should be clarified and requirements
for species diversity and the use of drought-resistant species should be strengthened. This will
require the following changes to Section 3.2.1(I), Landscape Materials.
• Add a new Subsection 3.2.1(I)(10) stating that the use of artificial turf and plants are
prohibited in any area required to be landscaped.
• Add a new Subsection 3.2.1(I)(11) stating that in any area required to be landscaped, the
landscape materials shall (a) comply with the tree diversity provisions in Section 3.2.1(D)(3)
and (b) ensure that each landscaped area between 500 and 1,000 sq. ft. in size contains at
least two species of shrubs, and that each landscaped area larger than 1,000 sq. ft. in size
contain at least one additional shrub species for each additional 1,000 sq. ft. or part thereof.
• Subsection 3.2.1(I)(2) already requires that plant materials be selected from the City of Fort
Collins Plant List created by Fort Collins Utilities Customer C onnections Department, and we
assume that list requires the use of many native, Waterwise, and drought -resistant species.
If it does not, then the list should be revised to do so. We do not recommend that Subsection
3.2.1(I)(2) be revised to reference drou ght-resistant species separately, since that could
create confusion as to whether that requirement is in addition to o r may conflict with the
City’s cross-referenced Plant List. Most newer land use codes do not try to list all required or
encouraged species, but instead include them in a cross -referenced manual outside the
Code.
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• In addition, the list of prohibited tree species in Municipal Code Section 27 -18 should be
incorporated into the Plant List, or LUC 3.2.1(I)(2) should be revised to also cross -reference
the prohibition. In general, all of the information listing prohibited and permitted tree
species should be found in one place to make that information easier to find and to simplify
updating that information the future.
In addition, experiencing natural areas along the Front Range generally involves exposure to a
significant amount of living (rather than inorganic) material. The LUC currently contains very few
standards addressing how non-turf areas are to be landscaped and could be strengthened by
requiring a minimum amount of landscape material. When combined with the current tree
diversity standards and the recommended shrub diversity standards, requirements for at least a
minimum amount of live material in these areas could make a significant contribution to the
experience of nature in Fort Collins.
• Add a new Subsection 3.2.1(E)(2)(f) stating that not less than 50 percent of the surface of each
landscaped be covered with live landscaping or plant material at maturity. Renumber the
current Subsection 3.2.1(E)(2)(f) to (g).
Please note that the first NIC Audit of the LUC in 2020 also recommended that the new Common
Open Space regulations include the following text:
“All common open space areas required to be vegetated or landscaped pursuant to this section
or pursuant to other requirements of the Land Development Code shall use native, non-invasive,
and xeric or low water use plant species to the maximum extent practicable.”
Streetscape
The applicability of streetscape standards is often a source of confusion in land use regulation,
because it is unclear whether parkway areas (generally those areas between a detached sidewalk
and the curb) are subject to general landscaping standards applicable to private property, or are
instead subject to separately adopted streetscape standards generally designed to be applied
when a street is created, widened, or reconstructed. In many communities, it depends on who
owns the parkways; privately owned parkways are subject to the landscaping standards in zoning
regulations and publicly owned parkways are subject to separately adopted streetscape
standards. We assume this is the case in Fort Collins, but this source of confusion should be
clarified as the City’s new Land Use Code as drafted. Because the use of turf on privately owned
parkways was addressed above, this section will address separately adopted parkway standards
related to the creation, widening, or reconstruction of streets.
Most of the City’s streetscape standards appear in Appendix C of the Larimer County Urban Area
Street Standards, although there are also numerous references to the Prospect Road Streetscape
Program. To maximize exposure to Nature in the City, each of the streetscape standard
documents applicable in the City or the Urban Area should be made consistent with the
recommendations for private property listed above. If they do not already do so, the streetscape
standards should be revised to clarify that the following LUC provisions and recommendations
discussed above apply to publicly owned parkways and medians.
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• The prohibition on the use of irrigated turf. Currently, both cool season long grasses (Kentucky
Bluegrass, Tall Fescue, Perennial Ryegrass, and Wheatgrass) and warm season native short
grasses (Buffalograss and Blue Grama) are permitted to be planted in parkways, which is
inconsistent with the recommendations for private property above.
• The requirements for use of drip irrigation and high efficiency irrigation equipment;
• The prohibition on the use of artificial turf and plants;
• The requirements for tree and shrub diversity; and
• The requirement to select plants from the City of Fort Collins Plant List created by Fort Collins
Utilities Customer Connections Department .
3. Tree Protection and Tree Canopy Enhancement
This section of the Audit focuses on regulations related to tree protection and tree canopy
enhancement based on staff and consultant discussions following review of the Additional Targeted
Best Practices Report (May 2022). Staff identified ten themes to be addressed in this Additional LUC
Audit.
• Tree inventories required prior to conceptual review;
• Tree preservation during construction;
• Tree preservation for single-family residential development (including ADUs and carriage
houses);
• Ash tree preservation;
• Heritage tree program;
• Street tree escrow for right-of-way tree establishment;
• Species diversity requirements;
• Parking lot heat island mitigation;
• Tree mitigation; and
• Penalty for tree removal after commercial development.
In addition to the ten themes identified for Forestry Division, this portion of the audit addresses one
key definition that needs to be addressed in order to achieve the goals of the Nature in the City
program.
Current Standards and Challenges
The current Fort Collins regulations related to these topics are listed below.
Section 5.1.2 Definitions
• Tree, significant shall mean any tree with a DBH of six inches or more.
Section 3.2.1(D)(1)(c) “Full tree stocking” means:
• In all “landscape areas” within 50 feet of any building or structure.
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• “Landscape areas” occur along all high use or high visibility sides of any building or
structure—extending at least seven feet from any building or structure wall and containing at
least 55 square feet of nonpaved ground area.
• For street trees:
o Planting cutouts in walkways shall contain at least 16 square feet.
o Planting cutouts, planters, or other landscape areas for tree planting shall be provided
within any walkway that is 12 feet or greater in width adjoining a vehicle use area that
is not covered with an overhead fixture or canopy that would prevent growth and
maturity.
• Full tree stocking shall mean formal or informal groupings of trees planted according to the
following min./max. spacing dimensions:
o Canopy shade trees 30'—40' spacing
o Coniferous evergreens 20'—40' spacing
o Ornamental trees 20'—40' spacing
• Exact locations and spacings may be adjusted at the option of the applicant to support
patterns of use, views, and circulation as long as the minimum tree planting requirement is
met.
• Canopy shade trees shall constitute at least 50 percent of all tree plantings.
• Trees required for parking lot landscaping and street trees may be used to contribute to this
standard.
Section 3.2.1(D)(2) Street Trees
Planting of street trees shall occur in the adjoining street right-of-way, except as described in
subparagraph (b) below, in connection with the development by one (1) or more of the methods
described in subparagraphs (a) through (d) below:
(a) Wherever the sidewalk is separated from the street by a parkway, canopy shade trees shall be
planted at thirty-foot to forty-foot spacing (averaged along the entire front and sides of the
block face) in the center of all such parkway areas. If two (2) or more consecutive residential
lots along a street each measure between forty (40) and sixty (60) feet in street frontage width,
one (1) tree per lot may be substituted for the thirty-foot to forty-foot spacing requirement.
Such street trees shall be placed at least eight (8) feet away from the edges of driveways and
alleys, and forty (40) feet away from any streetlight and to the extent reasonably feasible, be
positioned at evenly spaced intervals.
(b) Wherever the sidewalk is attached to the street in a manner that fails to comply with
the Larimer County Urban Area Street Standards, canopy shade trees shall be established in
an area ranging from three (3) to seven (7) feet behind the sidewalk at the spacing intervals as
required in Subsection (a) above. Wherever the sidewalk is attached to the street and is ten
(10) feet or more in width, or extends from the curb to the property line, canopy shade trees
shall be established in planting cutout areas of at least sixteen (16) square feet at thirty-foot to
forty-foot spacing.
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(c) Ornamental trees shall be planted in substitution for the canopy shade trees required in
Subsection (D)(2)(a) and (b) above where overhead lines and fixtures prevent normal growth
and maturity. Ornamental trees shall be placed at least fifteen (15) feet away from any
streetlight.
(d) Wherever existing ash trees (Fraxinus species) are in the adjoining street right-of-way, the
applicant shall coordinate and obtain an onsite analysis with the City Forester to determine
replacement canopy shade trees either through shadow planting or other emerald ash borer
mitigation methods.
Section 3.2.1(D)(2)(d)
• Wherever existing ash trees (Fraxinus species) are in the adjoining street right-of-way, the
applicant shall coordinate and obtain an onsite analysis with the City Forester to determine
replacement canopy shade trees either through shadow planting or other emerald ash borer
mitigation methods.
Section 3.2.1(D)(3), Minimum Species Diversity
To prevent uniform insect or disease susceptibility and eventual uniform senescence on a
development site or in the adjacent area or the district, species diversity is required, and extensive
monocultures are prohibited. The following minimum requirements shall apply to any development
plan.
Number of trees on site Maximum percentage of any one species
10—19 50%
20—39 33%
40—59 25%
60 or more 15%
Section 3.2.1(D)(4) Parking Lot Perimeter Landscaping
Parking lot perimeter landscaping (in the minimum setback areas required by Section 3.2.2(J), Access,
Circulation and Parking, shall meet the following minimum standards:
(a) Trees shall be provided at a ratio of one (1) tree per twenty-five (25) lineal feet along a public
street and one (1) tree per forty (40) lineal feet along a side lot line parking setback area. Trees
may be spaced irregularly in informal groupings or be uniformly spaced, as consistent with
larger overall planting patterns and organization. Perimeter landscaping along a street may
be located in and should be integrated with the streetscape in the street right-of-way.
(b) Screening. Parking lots with six (6) or more spaces shall be screened from abutting uses and
from the street. Screening from residential uses shall consist of a fence or wall six (6) feet in
height in combination with plant material and of sufficient opacity to block at least seventy-
five (75) percent of light from vehicle headlights. Screening from the street and all
nonresidential uses shall consist of a wall, fence, planter, earthen berm, plant material or a
combination of such elements, each of which shall have a minimum height of thirty (30)
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inches. Such screening shall extend a minimum of seventy (70) percent of the length of the
street frontage of the parking lot and also seventy (70) percent of the length of any boundary
of the parking lot that abuts any nonresidential use. Openings in the required screening shall
be permitted for such features as access ways or drainage ways. Where screening from the
street is required, plans submitted for review shall include a graphic depiction of the parking
lot screening as seen from the street. Plant material used for the required screening shall
achieve required opacity in its winter seasonal condition within three (3) years of construction
of the vehicular use area to be screened.
Section 3.2.1(D)(5) Parking Lot Interior Landscaping
As required in Subsection 3.2.2(M)(1) Access, Circulation and Parking, six (6) percent of the interior
space of all parking lots with less than one hundred (100) spaces, and ten (10) percent of the interior
space of all parking lots with one hundred (100) spaces or more shall be landscape areas. (See Figure
1). All parking lot islands, connecting walkways through parking lots and driveways through or to
parking lots shall be landscaped according to the following standards:
(a) Visibility. To avoid landscape material blocking driver sight distance at driveway-street
intersections, no plant material greater than twenty-four (24) inches in height shall be located
within fifteen (15) feet of a curb cut.
(b) Maximized Area of Shading. Landscaped islands shall be evenly distributed to the maximum
extent feasible. At a minimum, trees shall be planted at a ratio of at least one (1) canopy shade
tree per one hundred fifty (150) square feet of internal landscaped area with a landscaped
surface of turf, ground cover perennials or mulched shrub plantings.
(c) Landscaped Islands. In addition to any pedestrian refuge areas, each landscaped island shall
include one (1) or more canopy shade trees, be of length greater than eight (8) feet in its
smallest dimension, include at least eighty (80) square feet of ground area per tree to allow for
root aeration, and have raised concrete curbs.
[Drawing not reproduced]
(d) Walkways and Driveways. Connecting walkways through parking lots, as required in
Subsection 3.2.2(B)(5)(a), Walkways, shall have one (1) canopy shade tree per forty (40) lineal
feet of such walkway planted in landscape areas within five (5) feet of such walkway.
Driveways through or to parking lots shall have one (1) canopy shade tree per forty (40) lineal
feet of and along each side of such driveway, in landscape areas within five (5) feet of such
driveway.
(e) Parking bays shall extend no more than fifteen (15) parking spaces without an intervening
tree, landscape island or landscape peninsula.
Section 3.2.1(F) Tree Preservation and Mitigation
• Existing significant trees (six (6) inches and greater in diameter) within the LOD and within
natural habitat buffer zones shall be preserved to the extent reasonably feasible and may help
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satisfy the landscaping requirements of this Section as set forth above. Such trees shall be
considered "protected" trees within the meaning of this Section, subject to the exceptions
contained in Subsection (2) below. Streets, buildings, and lot layouts shall be designed to
minimize the disturbance to significant existing trees. All required landscape plans shall
accurately identify the locations, species, size, and condition of all significant trees, each
labeled showing the applicant's intent to either remove, transplant, or protect. Where it is not
feasible to protect and retain significant existing tree(s) or to transplant them to another on-
site location, the applicant shall replace such tree(s) according to the following requirements
and shall satisfy the tree planting standards of this Section. To the extent reasonably feasible,
replacement trees shall be planted on the development site or, if not reasonably feasible, in
the closest available and suitable planting site on public or private property. The closest
available and suitable planting site shall be selected within one-half (½) mile (2,640 feet) of
the development site, subject to the following exceptions. If suitable planting sites for all of
the replacement trees are not available within one-half (½) mile (2,640 feet) of the
development, then the City Forester shall determine the most suitable planting location
within the City's boundaries as close to the development site as feasible. If locations for
planting replacement trees cannot be located within one-half (½) mile of the development
site, the applicant may, instead of planting such replacement trees, submit a payment in lieu
to the City of Fort Collins Forestry Division to be used to plant replacement trees to plant
replacement trees as close to the development site as possible. The payment in lieu
mitigation fee per tree is determined by the City Forester and may be adjusted annually based
on market rates. Payment must be submitted prior to the Development Construction Permit
issuance or other required permits.
(1) A significant tree that is removed shall be replaced with not less than one (1) or more than
six (6) replacement trees sufficient to mitigate the loss of contribution and value of the
removed significant tree(s). The applicant shall coordinate with the City Forester to
determine such loss based upon an onsite tree assessment, including, but not limited to,
shade, canopy, condition, size, aesthetic, environmental and ecological value of the
tree(s) to be removed. Replacement trees shall meet the following minimum size
requirements unless otherwise determined by the City Forester:
(a) Canopy Shade Trees: 2.0" caliper balled and burlap or equivalent.
(b) Ornamental Trees: 2.0" caliper balled and burlap or equivalent.
(c) Evergreen Trees: 8' height balled and burlap or equivalent.
(2) Trees that meet one (1) or more of the following removal criteria shall be exempt from the
requirements of this subsection unless they meet mitigation requirements provided in
Section 3.4.1(E)(1) of this Code:
(a) Dead, dying or naturally fallen trees, or trees found to be a threat to public health,
safety, or welfare;
(b) Trees that are determined by the City to substantially obstruct clear visibility at
driveways and intersections;
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(c) Siberian elm less than eleven (11) inches DBH and Russian-olive or ash
(Fraxinus species) less than eight (8) inches DBH;
(d) Russian-olive, Siberian elm, and ash (all Fraxinus species) of wild or volunteer origin,
such as those that have sprouted from seed along fence lines, near structures or in
other unsuitable locations;
(3) All existing street trees that are located on city rights-of-way abutting the development
shall be accurately identified by species, size, location, and condition on required
landscape plans, and shall be preserved and protected in accordance with the standards
of Subsection (G).
Section 3.2.1(G) Tree Protection Specifications
The following tree protection specifications shall be followed to the maximum extent feasible for all
projects with protected existing trees. Tree protection methods shall be delineated on the demolition
plans and development plans.
(1) Within the drip line of any protected existing tree, there shall be no cut or fill over a four-inch
depth unless a qualified arborist or forester has evaluated and approved the disturbance.
(2) All protected existing trees shall be pruned to the City of Fort Collins Forestry Division
standards.
(3) Prior to and during construction, barriers shall be erected around all protected existing trees
with such barriers to be of orange construction or chain link fencing a minimum of four (4) feet
in height, secured with metal T-posts, no closer than six (6) feet from the trunk or one-half (½)
of the drip line, whichever is greater. Concrete blankets, or equivalent padding material,
wrapped around the tree trunk(s) is recommended and adequate for added protection during
construction. There shall be no storage or movement of equipment, material, debris or fill
within the fenced tree protection zone. A tree protection plan must be submitted to and
approved by the City Forester prior to any development occurring on the development site.
(4) During the construction stage of development, the applicant shall prevent the cleaning of
equipment or material or the storage and disposal of waste material such as paints, oils,
solvents, asphalt, concrete, motor oil or any other material harmful to the life of a tree within
the drip line of any protected tree or group of trees.
(5) No damaging attachment, wires, signs, or permits may be fastened to any protected tree.
(6) Large property areas containing protected trees and separated from construction or land
clearing areas, road rights-of-way and utility easements may be "ribboned off," rather than
erecting protective fencing around each tree as required in Subsection (G)(3) above. This may
be accomplished by placing metal t-post stakes a maximum of fifty (50) feet apart and tying
ribbon or rope from stake-to-stake along the outside perimeters of such areas being cleared.
(7) The installation of utilities, irrigation lines or any underground fixture requiring excavation
deeper than six (6) inches shall be accomplished by boring under the root system of protected
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existing trees at a minimum depth of twenty-four (24) inches. The auger distance is
established from the face of the tree (outer bark) and is scaled from tree diameter at breast
height as described in the chart below. Low pressure hydro excavation, air spading or hand
digging are additional tools/practices that will help reduce impact to the tree(s) root system
when excavating at depths of twenty-four (24) inches or less. Refer to the Critical Root Zone
(CRZ) diagram, Figure 2, for root protection guidelines. The CRZ shall be incorporated into and
shown on development plans for all existing trees to be preserved.
Tree Diameter at Breast Height (inches) Auger Distance From Face of Tree (feet)
0-2 1
3-4 2
5-9 5
10-14 10
15-19 12
Over 19 15
Section 3.2.1(I) Landscape Materials, Maintenance and Replacement
. . .
(5) Maintenance. Trees and vegetation, irrigation systems, fences, walls, and other landscape
elements shall be considered as elements of the project in the same manner as parking,
building materials and other site details. The applicant, landowner or successors in interest
shall be jointly and severally responsible for the regular maintenance of all landscaping
elements in good condition. All landscaping shall be maintained free from disease, pests,
weeds and litter, and all landscape structures such as fences and walls shall be repaired and
replaced periodically to maintain a structurally sound condition.
(6) Replacement. Any landscape element that dies, or is otherwise removed, shall be promptly
replaced based on the requirements of this Section.
Recommended Changes
Definitions
The definition of “full tree stocking” in Section 4.3.2(D)(1)(c) is not a commonly used term in either
zoning or in the landscaping profession outside of Fort Collins and is unlikely to be
understandable to Fort Collins residents. In addition, the embedded definition of “landscape
areas” is apparently intended to apply only in the context of “full tree stocking” but could easily
be confused or misunderstood to be a general definition to other LUC uses of this common term
(where it would not be applicable and could undermine the intent of the landscaping regulations.
• The definition of “full tree stocking” should be avoided if possible or should be clarified and
simplified to be more understandable to residents and landscapers, and regulatory text
should be removed. In general, definitions should only define terms, and related regulations
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should appear in the regulatory standards applicable to the activities and places referred to in
the definition.
• The use of a second, inconsistent, definition of “landscape area” should be avoided if possible.
If that is not possible, then it should be either grouped near the general definition of that term
so the difference is clear, or the general definition of “landscape area” should include a cross-
reference to this term so that the reader understands that Fort Collins uses the term in two
different ways.
Tree Preservation
For clarity, this portion of the report groups together recommendations on several themes
identified by staff related to the preservation of existing trees prior to and during the development
process, including:
• Tree inventories;
• Tree preservation during construction;
• Tree preservation for single-family residential development;
• Ash tree preservation; and
• Heritage tree program.
Tree Inventory
In many communities, well-intentioned regulations for to protect existing trees are undermined
by lack of knowledge of what trees are on a particular property before development or
redevelopment of the property is proposed or a concept plan or site plan is submitted. As
recognition of the value of mature trees for carbon dioxide absorption, heat island mitigation, and
the experience of nature has increased in recent years, some communities have adopted
requirements that a tree inventory be prepared and presented to staff at the first concept plan
meeting, so that protection of those trees can be better integrated into site design. In order to be
effective, requirements for tree inventories need to clarify that not only the number and location,
but the type, size, and health of the tree need to be shown, and should clarify that the City may
compare the inventory to existing available aerial photography in order to verify the accuracy of
the inventory.
A few cities have gone further to require that no trees may be removed (except those that are
create public health or safety hazards or a risk of disease transmission to other trees) for a defined
period of time following the inventory, or following concept review of a proposed development, in
order to allow time for processing of subsequent applications. In our experience, however,
regulations prohibiting removals during these preliminary stages of development are rare.
Because the removal of existing mature trees that could potentially be incorporated into site
design would significantly undermine the goals of the Nature in the City program, we recommend
that a tree inventory requirement be incorporated into the LUC. To be effective, we also
recommend that the LUC include limits on overlot grading and tree removal for a period of time
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prior to concept or site plan submittal or require more-than-mitigation for any tree removal in the
final site plan.
• The LUC should clarify that a tree inventory describing the number, location, type, size, and
health of existing trees on the property is required before Concept Review (or before the
submittal of a Preliminary Design Plan or other site plan) unless waived by the Director based
on the availability of recent aerial photography of the site or known site conditions. The
detailed requirements for the inventory should be contained in a technical manual outside
the LUC to allow for easier updating as technology changes without the need for a formal
code amendment. For consistency with current Subsection 3.2.1(F)(3), this new provision
should require that the inventory also include all street trees located on public property
abutting the development lot or parcel. This new provision could appear as either:
o An addition to Subsection 2.2.1(A)(3), Concept Plan Submittal; or
o An addition to Subsection 3.2.1(C), General Standards, preceding the text that
requires the submission of a landscaping plan.
• Revise Subsection 3.2.1(F), Tree Protection and Mitigation, to break up the very long
introductory paragraph into more readable subsections, and to add a new first subsection
prohibiting overlot grading and tree removal for a period of one year prior to Concept Plan
submittal, and that if the City determines that has occurred, the applicant may be required to
mitigate any removal of significant trees at up to twice the rate stated in current Subsection
3.2.1(F)(1).
Tree Protection During Construction
Sections 3.2.1(F) and (G) together require that all significant trees over six inches in diameter
within the LOD and within natural habitat buffer zones be preserved to the extent reasonably
feasible and allows those preserved trees to be used to satisfy other landscaping requirements.
Trees required to be protected are shown on development construction plans (DCPs) and building
permits. Section 3.2.1(G) lists the ways in which those trees must be protected, and those
requirements are fairly typical of many tree protection ordinances.
Like many communities, however, Fort Collins does not have the staff or resources to monitor all
development sites to ensure that existing trees that are required for preservation are protected
from damage during the development process. Staff reports that many trees are in fact being
damaged during this process. This suggests the need for a better approach that allows the City to
confirm tree protection measures are in place prior to and throughout construction in order to
minimize impacts to trees.
To address these weaknesses, we recommend the following changes:
• We assume that the introductory text of Section 3.2.1(F) that applies mitigation standards to
the LOD and natural habitat buffers implies that significant trees (and other trees) outside
those areas may not be removed (since that would be a disturbance of the site). However, if
that is not how this provision is currently interpreted, Section 3.2.1(F) should be revised to
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clarify that tree removal outside the LOD would constitute unauthorized site disturbance. In
addition, if there are any development approvals that do not include the designation of a
Limit of Disturbance on the development property, revise Section 3.2.1(F) to include all
significant trees on the entirety of that development parcel.
• For clarity, and to distinguish the content of this Section from that of the previous Section
addressing long-term tree preservation, Section 3.2.1(G) should be retitled “Tree Protection
During Construction.”
• For readability, the long introductory text in Section 3.2.1(F) should be broken into smaller,
labeled, subsections, each addressing a different requirement.
• Expand the applicability of Section 3.2.1(G)(1) to require that fencing be installed one foot
beyond the dripline of each protected tree, and to clarify that chain link fencing or wooden
slat fencing be required (not just plastic construction fencing).
• Revise Division 2.14.1, Enforcement, to note that provisions of the LUC may be enforced
through the issuance of stop work orders. As an alternative, this section could be replaced
with a cross-reference to general code enforcement powers in the new LUC, and those powers
could include stop work orders in the list of possible enforcement tools for all violations of the
code.
• Revise Division 2.14.2, to require an initial site inspection to confirm compliance with any pre-
construction requirements (including but not limited to tree protection and mitigation
requirements) before any overlot grading or site preparation may occur.
• Revisit the schedule of penalties in Section 3.8.16 to ensure that the applicable penalty for
failure to protect significant trees during construction, and for unauthorized removal of trees,
are large enough to deter those actions. See the discussion on Tree Removal Mitigation and
Penalties below.
Residential Tree Preservation
Section 3.2.1, Landscaping and Tree Protection, exempts from all of its provisions “development
on existing single-family detached dwellings”, which is true of many landscaping regulations in
other communities. Because residential land makes up over 57 percent of the developed land area
in Fort Collins, this exemption has a significant impact on the ability of the City to protect existing
trees and tree canopy. The impact of this exemption has been compounded in recent years by
increased allowance of Accessory Dwelling Units (ADUs), which could lead to the removal of
additional trees in order to accommodate new construction of detached ADUs. The marginal
contribution of ADUs to tree removal, however, is a much lower threat to maintenance of existing
trees than the blanket exemption of all single-family detached dwelling lots from all provisions of
Section 3.2.1.
In most communities, similar exemptions are driven primarily by the fact that the community has
inadequate staff capacity to inspect and monitor the removal or planting of trees on so many
individual residential lots, as well as the political reluctance to interfere with activities in this
popular form of U.S. housing. Because of the impact of this exemption on the NIC goals, it may be
time to revisit this exemption, or at least to limit it to smaller, more affordable lots that help
protect the City’s affordable housing stock.
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We recommend that the City consider the following changes to Section 3.2.1:
• Limit the single-family detached housing exemption to requirements for installation of new
landscaping, but make those lots subject to the tree protection requirements of Sections
3.2.1(F) and (G); or
• Limit the single-family detached housing exemption to lots under 5,000 square feet in area; or
• Require the designation of Limits of Development (within which tree protection provisions
would apply) on all residential single-family detached lots over 5,000 square feet in area.
Because of the potential contribution of ADUs to more affordable housing, we do not recommend
a separate program for protection of individual trees during the ADU process unless or until the
broader weaknesses in the current exemptions listed above have been considered.
Ash Tree Preservation
Although Emerald Ash Borer (EAB) is present in Fort Collins and has been impacting Ash trees
(Fraxinus species) in the community, the Forestry Division believes that many existing Ash trees
continue to contribute to the urban tree canopy and provide benefits to the community. Because
they are generally mature trees with significant tree canopy, their preservation (where possible)
would contribute to needed tree diversity, and because the risks of spreading the EAB is not
limited to those Ash trees located in the street right-of-way, their protection on private property
would also contribute to achievement of Nature in the City goals and objectives. When Ash trees
are located in the street right-of-way adjacent to a proposed development property, Section
3.2.1(D)(2)(d) requires coordination with the City Forester and possible protection or mitigation
measures, but those same protections do not apply to Ash trees located on private property.
To address this issue, we recommend that the City:
• Establish a new Subsection 3.2.1 (E), Ash Tree Protection and Mitigation, that contains the text
of Section 3.2.1(D)(2)(d) modified to apply to Fraxinus species located on both private and
public property. As an alternative, the City could retain the regulations in current Section
3.2.1(D)(2)(d) and create a parallel provision applicable to private property as a new
Subsection 3.2.1(F)(4).
Heritage Tree Program
Although Fort Collins current regulations protect “significant trees,” those trees are only required
to be preserved “to the extent reasonably feasible,” and when that that is not the case, on- and
off-site mitigation by up to six trees as well as payment of an in-lieu fee are available. Because of
the higher value of larger trees to carbon dioxide absorption, heat island mitigation, and the
perception of Nature in the City, some communities have gone further to create additional
protections for very large trees. Often this takes the form of a heritage tree designation and
program with higher standards for preservation, higher levels of required approval for removal,
and stricter or higher requirements for mitigation. In addition to establishing those higher
standards, creation of a heritage tree program would require Fort Collins to establish criteria for
designation of heritage trees and a process for designating them.
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The protection of heritage trees, beyond standards like those for existing significant trees, is not
typical. Instead, heritage tree programs are often voluntary and intended to encourage
preservation and maintenance through pride of ownership. In some cases, participation in a
heritage tree program is incentivized through City efforts to support heritage tree maintenance.
Because of the importance of Nature in the City goals within Fort Collins planning process, we
recommend that the City consider the following changes:
• Retitle Section 3.2.1(F) as “Significant Tree Protection and Mitigation,” creating a new Section
3.2.1(G) titled “Heritage Tree Protection and Mitigation,” and re-lettering the following
Subsections accordingly.
• Redefining significant trees to be those between four- and 10-inches diameter at breast height
(DBH) that do not otherwise meet the definition of a heritage tree.
• Defining heritage trees as those larger than 10 inches DBH as well as those that the City
Forester determines (a) contribute to the historic character of a designated historic landmark
or districts, (b) are associated with a notable person or historic event, (c) are landmarks in the
community, or (d) have horticultural significance due to rarity in the community.
• Clarifying that the City Forester may initiate an application for designation of a heritage tree
on any property, a private property owner may initiate an application to designate a heritage
tree on property he or she owns, and that Planning Commission approval would be required
following a public hearing in either case. Any member of the community may contact the City
Forester to informally recommend a heritage tree, but the Forester is not obligated to
investigate or act on each such recommendation.
• Establishing a list and GIS layer for designated heritage trees.
• Offering that care and maintenance of designated heritage trees shall be provided by the City,
and at City expense, if requested by the property owner.
• Providing that a heritage tree may only be removed if preservation of the tree would result in
the value of the property for uses listed as permitted uses in its current zoning district being
reduced by 25 percent or more, as established by an appraisal acceptable to the City, unless
the City approves zoning changes or development variances needed to offset the diminution
in value.
• In addition, to provide a significant incentive for preservation of larger old trees, Subsection
3.2.1(F) could be revised to provide that the preservation of each “significant tree” shall create
a credit of two inches of DBH for each DBH of the preserved tree against tree plantings
required by other landscaping regulations. Although resulting in fewer total DBH in new tree
plantings, some cities conclude that the benefits of preserving larger trees are worth this
tradeoff.
Tree Planting
This section addresses themes identified by staff related to the provision and planting of trees,
including:
• Escrow for street tree establishment;
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• Species diversity; and
• Parking lot heat island mitigation.
Escrow for Street Tree Establishment
Fort Collins currently requires planting of street trees generally every 30 to 40 feet along streets. In
cases where the street features an attached sidewalk “that fails to comply with the Larimer
County Urban Area Street Standards,” trees are then required to be planted behind the sidewalk
at the same spacing intervals. The City also enforces standards that require trees to be set back
from driveways and alleyways by eight feet and from streetlights by 40 (shade trees) or 15
(ornamental trees) feet.
Although it often takes three to five years for a street tree to become fully established, the current
warranty period for street improvements is only two years. Currently, standards are applied
during the development approval process (at the time of planting), which makes enforcement
easier because the City has leverage over the issuance of development permits. For large new
developments, street tree permits are issued after installation, not establishment. However, staff
notes that required trees are often not well-maintained following development leading to many
trees that die and require removal (and that should require replacement) between the end of the
warranty period but before trees become established.
Other communities that have addressed this issue sometimes require that an escrow fund be
created to replace trees that die during a specified period of time after the warranty is released.
However, monitoring and maintenance of escrow accounts tends to be complex and time
consuming and is more often limited to high-cost infrastructure such as roads and utilities. To
avoid the cost and complexity of operating an escrow program, other communities simply require
that the property owner (not the applicant or developer) remains responsible for the continued
survival or the replacement) of street trees and all other landscaping required to be installed as a
condition of site approval. Fort Collins already has those regulations in place in Sections 3.2.1(I)(5)
and (6). Rather than establishing an escrow program to guarantee the survival of street trees until
fully established, we recommend that the City focus on more pro-active enforcement of those
existing regulations. Enforcement details are an administrative matter subject to staffing and
budget constraints and should not be codified in the LUC.
Tree Species Diversity
Currently, Section 3.2.1(D)(3) of the LUC states that required trees meet a certain level of species
diversity for the overall site, depending on the number of trees on the site, in order to reduce the
creation of monocultures that increase the chances of disease spread and other arboriculture
challenges. Forestry Division staff have recommended increasing the standards for overall species
diversity as shown in the following table. Based on recent development codes that we have
researched or authored, Clarion is not aware of a “standard” approach to species diversity, and
we have no objection to replacement of the current standards with the proposed requirements
shown in the table. We note that both the current and proposed requirements for species diversity
are more detailed than those used in many other communities.
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Number of Trees on Site Current Percent of Any One
Species (Max.)
Proposed Percent of Any
One Species (Max.)
10-19 50% 40%
20-39 33% 30%
40-59 25% 20%
60+ 15% 10%
Forestry Division staff have also noted that the current standard only requires diversity based on
the number of trees on the entire development site, and therefore does not require diversity
among new street tree plantings, all of which could be of the same species as long as the required
mix of species was achieved elsewhere on site. The City and County of Denver currently requires
that no more than two consecutive street trees of the same species may be planted in a
continuous row, including around corners and in groupings, in order to provide particular
protection against disease for the most visible evidence of urban forestry (i.e., along public
streets).
Fort Collins staff requested that Clarion assess the viability of a similar standard (no more than
three consecutive trees of one species) in the new LUC. Our research suggests that, despite a
historic preference for consistent rows of trees of a single species along parkways and other highly
visible street frontages, the advantages of street tree diversity requirements outweigh their
disadvantages, primarily because of the risk that a new disease or blight (such as the Ash borer or
the Chestnut blight) could rapidly eliminate a public and environmental value that took decades
to grow and mature, and because that risk is avoidable at little cost. We would therefore support a
strengthened standard for street tree diversity but would not recommend that stricter standards
be applied to all tree plantings on a development site because of the difficulty of monitoring and
enforcement over time. This change could be achieved by the following:
• Revise Section 3.2.1(D)(3) by relabeling the current standards as Subsection (a) and adding a
new Subsection (b) requiring that no more than two adjacent street trees be of the same
species.
Parking Area Heat Island Reduction
LUC Sections 3.2.1(D)(4) and (5) include relatively detailed requirements for the installation of
trees along the perimeters of, and in the interiors of, parking lots. This approach is relatively new
for the City and replaces previous standards that were vague and required the City to negotiate for
quality parking area layouts and landscaping elements. Installation of generous landscaping in
larger surface parking lots is important to achieving the Nature in the City goals, both because the
views of large expanses of uninterrupted asphalt create an experience almost the opposite of
natural areas, but because unshaded expanses of asphalt create significant heat islands that are
inconsistent with the cooler temperatures experienced outside of urban areas. For these reasons,
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Item 2.
June 2023 26
we assume that Fort Collins wants to be a leader in avoiding unshaded surface parking lots as new
development and redevelopment occurs.
Although no two medium or large cities appear to regulate parking lot landscaping in the same
way, Fort Collins’ current standards are generally consistent with those found in newer land
development codes, with a few exceptions. Many of the key terms used in the current LUC are
undefined and could be applied more effectively and consistently if those definitions were added.
In addition, while the levels of tree planting required are fairly consistent with those found for
medium to high density areas, they are lower than those applied in some suburban areas. An
increasing number of cities vary not only the number of parking spaces required, but also the
amount of parking lot landscaping required, based on the level of “urbanism” existing or desired
in different parts of the city. Finally, some newer codes include requirements for the installation of
“terminal islands”—planted islands dividing the end of each row of parking spaces from drive
aisles and driveways, which also tends to spread out required tree plantings and increase the
amount of surface asphalt they shade.
To address these weaknesses, the LUC could be amended as follows:
• Revise Section 5.1.2, Definitions, to include clear definitions accompanying graphics for
“landscaped island,” “landscaped peninsula,” “pedestrian refuge,” “driveway,” “parking
space” and “terminal island.” Ensure that the definition of “landscaped island” includes a
“terminal island.” Currently, it is unclear if a driveway includes both vehicle access points
to/from a street and drive aisles between parking stalls. In addition, it appears that the terms
“parking spaces” and “parking stalls” are used interchangeably, and we recommend using
only one term consistently throughout the LUC.
• When defining “landscape islands,” require that they be designed as swales below the level of
the parking surface, so that stormwater flows into these areas rather than off the parking lot
into engineered stormwater systems. While freestanding curb stops can still be required to
protect landscaping from damage by cars, the elimination of continuous curbing and
artificially elevated landscaped areas helps promote a more natural appearance for parking
areas, as well as allowing for natural filtration and treatment of at least part of stormwater
falling on the parking lot.
• Add a new Subsection 3.2.1(D)(5)(b) to add a provision requiring the creation of terminal
islands to separate the end of each row of parking space from driveways and internal drive
aisles and requiring that the terminal island extend the full length of the parking space that it
abuts.
• Consider revising Subsection 3.2.1(E)(5) to provide that in Fort Collins lower intensity zoning
districts – i.e., those with a more suburban character – a minimum of 14 percent of the interior
of parking lots with more than 100 spaces be landscaped.
Tree Removal Mitigation and Penalties
This section of the Audit addresses themes identified by staff related to the removal and
mitigation of removed trees, including:
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Item 2.
June 2023 27
• Tree mitigation; and
• Penalty for tree removal after commercial development.
Tree Removal Mitigation
Over the past years, Fort Collins has experienced the illegal removal of required trees by
commercial developments, and Forestry Division staff have noted that the LUC penalty for doing
so does not deter this behavior or provide the City with the resources to mitigate the damage of
illegal removals to the experience of Nature in the City. If the removed tree was a “significant
tree,” Section 3.2.1(F) requires mitigation with between one and six trees, but staff indicates that
often only one mitigation tree is required. For smaller trees, no mitigation is required or enforced.
Replacements for significant trees removed must meet the minimum size requirements of Section
3.2.1(D)(4), but those are not related to the size of the tree removed. The result is often the loss of
an established, healthy tree and the planting of a new tree that is years from being able to replace
the shade and quality of the removed tree. The current LUC requires on-site mitigation, but where
not feasible mitigation trees may be planted within one-half mile of the development site. In rare
cases, the City allows payment in lieu as determined by the City Forester.
We understand that Fort Collins’ Forestry Division staff are currently in the process of drafting a
detailed proposal for LUC changes to address these weaknesses, but we will limit our
recommendations to those often found in newer development codes in other communities.
Generally, these provisions try to address the illegal removal of trees that were required to be
planted or were required to be preserved because they are shown on approved site plans and are
necessary for compliance with landscaping standards.
The weaknesses identified above could be addressed by the following revisions to the LUC during
the code rewrite process.
• Because of the priority that Fort Collins places on the experience of Nature in the City, the
definition of a “significant tree” should be revised to apply to all trees over four inches DBH.
The four-inch DBH standard is currently used by the City of Boulder. The definition of
“significant tree” in Section 5.1.2 would need to be revised accordingly.
• Because of the importance of larger trees to carbon dioxide absorption, heat island
prevention, and the NIC goals, Section 3.2.1(F) should be revised to require mitigation at a
two-inches-per-DBH-inches of each significant tree removed. This would require
documentation of not just the location but also the DBH of each existing tree shown on an
approved site plan.
• In addition, Section 3.2.1(F), Tree Preservation and Mitigation, should be revised to add a
Subsection requiring mitigation for removal of any tree under two inches DBH shown on an
approved site plan and necessary for compliance with the City’s landscaping standards or the
conditions of site plan approval to be mitigated on an inch-to-inch, rather than tree-to-tree
basis.
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June 2023 28
• The current requirement for on-site mitigation if possible, and for plantings within one-half
mile if that is not feasible, is similar to that used in other communities. However, this
regulation could be strengthened by requiring that the off-site mitigation be as close as
reasonably practicable to the subject site, and by clarifying that those mitigation plantings
can occur in the parkways on public-rights-of-way that do not currently comply with street
tree standards (with the permission of the City).
Penalty for Tree Removal after Commercial Development
While most newer development codes focus on mitigating the impacts of illegal tree removal
through stronger mitigation standards, some communities have also adopted enhanced financial
penalties to encourage the practice. While these are not common, they are usually limited to cases
of illegal tree removal on multi-family, commercial, mixed-use, industrial, and institutional
properties. They generally do not apply to single-family or low-density residential properties
because of the difficulty of monitoring and enforcing tree removal on properties where the
existing trees have not been documented (and because of the political unpopularity of
enforcement actions against these types of properties).
As an example, the City of Seattle, Washington, imposes a financial penalty based on the size of
the illegally removed tree and equal to three times the environmental value of the removed tree
to the community. However, our discussions with Seattle staff suggest that the fine is rarely
enforced and may not be effective in discouraging illegal tree removal. In general, we believe that
even very high monetary penalties may not be effective in discouraging tree removals that are
motivated by market driven development opportunities that create much greater value to the
property owner, and that focusing on strengthening enforcement and mitigation regulations may
be more effective in minimizing reductions in tree canopy due to illegal tree removals. While it is
useful to periodically revise zoning enforcement penalties to ensure that they are internally
consistent, that they compound daily after notice from the City and a reasonable period to cure
the violation, and high enough to encourage prompt action by the landowner after they begin to
accrue, we do not recommend an increase in tree removal penalties separate from a thoughtful
periodic update process.
4. Additional Recommendations
We also recommend the following changes to the LUC and the Municipal Code to further promote the
Nature in the City program.
• The purpose statement for the Landscaping and Tree Protection regulations in Section
3.2.1(B) does not clearly reflect the goals of the Nature in the City initiative and should be
revised to do so. The purpose statement could be strengthened by explicitly referencing the
City’s intent to increase tree survival rates, to protect and expand tree canopy, to reduce
unauthorized removal of trees before and after construction, to reduce damage to trees
during construction, and conserve water, and to avoid the creation of monocultures.
• The requirements for obtaining permits related to trees in public places described in
Municipal Code Sections 27-31 and 27-32 should be cross-referenced in LUC Section 3.2.1, in
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Item 2.
June 2023 29
order to put private property owners on notice that City approval may be required to alter
trees on a public parkway adjacent to their property (and that they may not understand is on
public property).
• The duties of each property regarding trees on their property contained in Municipal Code
Section 27-57 and 27-58 should also be cross-referenced in LUC Section 3.2.1, as many
property owners may be unfamiliar with those duties.
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Item 2.
Utilities
electric · stormwater · wastewater · water
222 Laporte Ave.
PO Box 580
Fort Collins, CO 80522-0580
970.212.2900
V/TDD: 711
utilities@fcgov.com
fcgov.com/utilities
M E M O R A N D U M
DATE: January 13, 2023
TO: Mayor Arndt and City Councilmembers
FROM: Katie Collins, Water Conservation Specialist
Mariel Miller, Water Conservation Manager
THROUGH: Kelly DiMartino, City Manager
Kendall Minor, Utilities Executive Director
RE: January 10, 2023, Work Session Summary: Land Use Code Changes to Address
Xeriscape and Soil Amendment
Mayor Arndt, Mayor Pro Tem Francis, and Councilmembers Canonico, Pignataro, Gutowsky,
and Ohlson were present. Staff members present were Katie Collins, Mariel Miller, Danielle
Reimanis, Gretchen Stanford, Kathryne Marko and Jesse Schlam.
The purpose of this item was to seek Council feedback on four proposed code update
opportunities that support water-wise landscaping in Fort Collins. The four proposals presented
were:
1. Less turf in new development and redevelopment (three options)
2. Allow synthetic turf in some scenarios
3. Expand irrigation standards and residential equipment efficiency
4. Increase flexibility in soil amendment policy
Summary
Overall: Councilmembers expressed general support for proposals 1, 3, and 4. Councilmembers
were not in support of proposal 2.
All Councilmembers indicated support for a turf limit between 15 – 30% maximum of the
landscape area of new and redeveloped residential and commercial properties. Several
councilmembers request more exploration of turf minimums and maximums across all
property types.
All Councilmembers expressed significant concern for updating code to allow the
installation of synthetic turf in Fort Collins. Of most concern is the PFAS content of
synthetic turf material.
Council indicated support for an update to irrigation efficiency standards.
Councilmembers are in favor of proposed soil amendment code changes related to
smaller, more “micro” landscape changes and best practices. Council requests
additional evaluation of current inspection and enforcement processes, and of
opportunities for improvement on larger, more “macro” landscape changes (e.g. new
development).
Questions
How are front yards and recreation defined and identified?
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How would larger, estate lots be evaluated and are there incentives to keep some area
more natural?
Would landscape standards override HOA rules?
Will properties irrigated with hose-end sprinklers be subject to the proposed watering
window?
How does the city enforce current soil amendment code?
Has Utilities considered adjusting the top tier water rate for those that use the most
water?
Can the Xeriscape Incentive Program be expanded to include other water districts?
What additional costs are associated with proposed landscape and irrigation standards?
Next Steps
Q1-Q3 2023: Continue internal/external outreach and engagement and identify,
communicate additional resource needs (i.e. budget, education campaigns)
Q2 2023: provide answers to the above questions via a memo to Council, which will
include detail on the following:
o cost impact analysis for landscape and irrigation proposals
o soil amendment program information and cost and resource analysis to scale up
soil amendment inspections
Q3 2023: Incorporate feedback and draft code updates for first reading, scheduled for
September 19, 2023
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Item 2.
Page 1 of 2
Forestry Division
Parks Department
413 S. Bryan Ave.
Fort Collins, CO 80521
970.221.6660
forestry@fcgov.com
fcgov.com/forestry
MEMORANDUM
Date: January 27, 2023
To: Mayor and City Councilmembers
Thru: Kelly DiMartino, City Manager
Tyler Marr, Deputy City Manager
Dean Klingner, Interim Community Services Director
Mike Calhoon, Parks Director
Rebecca Everette, City Planning Manager
From: Kendra Boot, City Forester
Re: January 24, 2023 Work Session Summary: Urban Forest Strategy and Land Use Code
Audit related to Forestry
Introduction
The purpose of this memo is to summarize and provide follow-up items from the January 24,
2023, work session around urban forest strategy and policy. Mayor Arndt and all
Councilmembers attended the discussion.
Discussion:
The feedback gathered from Council on both the urban forest strategy and the tree related
Land Use Code audit work sessions was supportive. The work sessions were a great opportunity
for staff to bring Council up to speed on topics such as:
• Emerald ash borer management and the prohibited sale of ash trees.
• Current operations and the current operating budget shortfall on tree replacement.
• Proposed areas of focus for the urban forest strategic plan with a strong focus on
canopy cover goals, prioritizing vacant planting sites, and advancing canopy equity.
• Concerns for large healthy tree removals and support for stronger code to incentivize
more tree preservation.
• Acknowledge the benefits of having trees dedicated as important community
infrastructure.
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Item 2.
Next Steps:
As requested by Council:
• Members of the Ad Hoc Committee assisting with the tree-related Land Use Code audit
included:
- Shelley Lamastra (Landscape Architect, Russell Mills Studio)
- Mollie Bradehoft (Landscape Architect, BHA Design)
- Fred Haberecht (Retired Landscape Architect and Planner, Colorado State
University)
- Elizabeth Judd (Urban Forestry Planner, City and County of Denver)
- Daniel Burcham (Urban and Community Forestry and Arboriculture Professor,
Colorado State University)
- Edith Silvas (Diversity, Equity, and Inclusion Coordinator, One Health Institute,
Colorado State University)
- Dana Hornkohl (Civil Engineering Director, City of Fort Collins)
- Marc Virata (Civil Engineer III, City of Fort Collins)
- Kirk Longstein (Sr Environmental Planner, City of Fort Collins)
- Freddie Haberecht (Forestry Specialist, City of Fort Collins)
- Carrie Tomlinson (Forestry Specialist, City of Fort Collins)
- Christine Holtz (Forestry Specialist, City of Fort Collins)
- Ralph Zentz (Assistant City Forester, City of Fort Collins)
- Kendra Boot (City Forester, City of Fort Collins)
• Approximately 22-percent of the urban forest resides in commercial areas, 75-percent in
residential areas already developed, and 3-percent in open space (Community Tree
Assessment, April 2016).
• American Forest’s Tree Equity Score link - https://treeequityscore.org/
• The Urban Forest Strategic Plan will have a strong emphasis in setting canopy cover
goals as well as addressing canopy disparities community wide. The proposed schedule
for the plan is to kick-off in Spring of 2023 and wrap-up for Council adoption Spring of
2024.
• Staff plans to continue internal and external stakeholder engagement for the following
themes to influence code amendment recommendations for adoption in Q3 of 2023:
- Escrow for tree establishment
- Improved mitigation standards to incentivize preservation
- Increased penalties for healthy tree removal post construction
- Heritage Tree Program – additional staffing resources would be required for this
program.
• Further, Staff plans to explore the following code amendments during Phase 2 of the
LUC update.
- Improved parking lot standards to address urban heat island
- Tree preservation and protection for residential redevelopment
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Item 2.
Utilities
electric · stormwater · wastewater · water
PO Box 580
Fort Collins, CO 80522
970.212.2900
V/TDD: Dial 711 for Relay Colorado
utilities@fcgov.com
fcgov.com/utilities
M E M O R A N D U M
DATE: June 27, 2023
TO: Mayor Arndt and Councilmembers
THROUGH: Kelly DiMartino, City Manager
Gretchen Stanford, Utilities Deputy Director, Customer Connections
Jason Graham, Director of Water Utilities
FROM: Kathryne Marko, Environmental Regulatory Affairs Manager
Katie Collins, Water Conservation Specialist
RE: Council Priorities Update: Additional Details for Soil Amendment
Inspections and Artificial Turf
Bottom Line
The purpose of this memo is to provide additional background for the current and proposed soil amendment
compliance program and the proposed restriction of artificial turf on all new development. These topics
relate to a larger code update project that originated from two City Council priorities:
14. Effective soil amendment policies and compliance (water usage)
19. Xeriscape – Increase rebates and education, less green lawns with new development
Background
On November 21, 2023, Council will consider adoption of landscape-related codes, that promote water
conservation, stormwater quality, and resilient urban landscapes. Staff will present a preview of the
ordinance to discuss final direction of the proposal at the October 10, 2023 Council Work Session. The
package of proposals will include artificial turf and soil amendment standards as well as standards related
to general soil health, limits on irrigated grass, irrigation efficiency, and tree canopy protections. These
items were discussed at the January 10, 2023 Council work session. Up to date details for these other
proposals may be found in the most recent Council Priority Update.
Soil Amendment
The Soil Amendment Program is currently implemented via an administrative review process using site
knowledge gained from other required field inspections for erosion control. The ability to resource and
scale-up soil amendment inspections from an administrative review process to onsite inspections is
dependent on numerous variables, including availability, existing workload, and timing of soil amendment
submittals. A qualitative analysis of different scalability options is provided in this memo; this initial
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evaluation indicates that to increase inspections with any significance, additional staffing/funding would be
needed.
Soil amendment information is provided to address two questions from the January 10, 2023, Work Session:
Land Use Code Changes to Address Xeriscape and Soil Amendment:
How does the city enforce current soil amendment code?
Resource analysis to scale up soil amendment inspections
Enforcement of Current Soil Amendment Program
The Soil Amendment Program is run through the Environmental Regulatory Affairs (ERA) Erosion
Program staff. Staff consists of three FTE’s – Two Senior Inspectors and one Senior Specialist. The core
function of this work group is to manage the City’s Erosion Control Program which is mandated by the
City’s Municipal Separate Storm Sewer System (MS4) Permit. Typically, construction sites that disturb
over 10,000 ft2 are inspected every two weeks during active construction for adequate erosion control. The
following table is an overview of the activities performed by the Erosion Program staff.
Activity 2022 Statistics
Soil Amendment Certifications 350 Soil Certifications
127 Temporary Waivers
Soil Amendment Site Inspections <10 sites
Development Review 566 Projects
Erosion Control Inspections 170 sites
2115 routine inspections
Permanent Stormwater Quality Feature
Inspections (SWQF)
58 sites
67 SWQF Inspections
Vegetation / Site Stabilization Inspections 65 sites
283 Vegetation Inspections
Other Responsibilities Spill response
Fugitive dust complaints
Construction site complaints
Erosion enforcement
The review and approval process consists of reviewing a certification form along with amendment receipts.
During winter, when soil conditions do not allow for tilling, a temporary waiver is issued and staff tracks
completion of the soil amendment the following Spring. In most cases, knowledge of the site from erosion
control inspections feeds into review of the soil amendment certification review. Soil amendment
verification site inspections are performed based on indicators such as:
Delivery dates not consistent with certification date
No Area to Amend Certification
New compost supplier
Inconsistent ratio of cubic yards to lot size (3 yds / 1,000 SF)
Timing of soil amendment not consistent with phase of construction
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If field verification determines soil amendment was not consistent with the requirements, staff will not sign
off for a Certificate of Occupancy (CO). If a CO has been issued, as is the case for Temporary Waivers,
other building permits can be put on hold.
Resource Analysis to Scale Up Soil Amendment Inspections
Qualitative analysis for scaling up soil amendment inspections is summarized in the following table.
Inspection Type Considerations/Limitations Feasibility/Needs
Investigative
Inspect if indicators
of deficiencies
Solely reactive, based on indicators Status Quo
Sporadic
Inspect as time allows
Likely would not occur during busy
construction season
Without additional resources, a
significant increase would not be
likely with the existing workload.
Seasonal
Focus inspections
during busy
landscape season
Increase existing staff time for hiring
and/or training.
Likely based on grouping of submittals
and available staff time.
Additional resources/funding
needed.
Consider the use of temporary
hourly employees or consultant
Percentage
Inspect a certain
percentage of sites
Likely based on grouping of submittals
and available staff time.
Additional resources/funding is
needed to ensure consistent
coverage.
Resource and funding needs
dependent on percentage.
Full with adjusted
thresholds
Inspect all except
Single Family
Residential (SFR)
landscape renovations
SFR landscape renovations currently do
not get permitted and survey results show
existing homeowners do amend soil.
Could evaluate other thresholds
Need higher additional
resources/funding to ensure
consistent coverage.
Full
Inspect all vegetated
landscape projects
Requires significant process changes to
add SFR landscape renovations to permit
and inspection procedures.
Highest increase of additional
resources/funding needed to address
both inspections and process change
for SFR.
To conduct a full evaluation of selected alternatives, the following topics will need to be considered for a
sustainable soil amendment inspection program:
Timing of certification submittal related to when soil amendments occur and/or when CO is requested
and staff’s availability to perform a site inspection on short notice.
Staffing to ensure consistent coverage for all work and avoid conflicting priorities with other
regulatory permit requirements, while also considering coverage for all work throughout vacations, sick
leave, and seasonal workload changes. Staffing considerations may also include use of 3rd Party
consultants.
Software improvements can help with efficiency and documentation. Both new and expanded
capabilities of current systems are being explored, some being part of the City’s digital transformation
efforts.
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Consider results from the Assessment of Compliance with Local Environmental Policy project
which will evaluate how various city workgroups address compliance with local environmental policy
and provide recommendations to improve our approach.
Artificial Turf
Current Policy in Land Use Code
Land Use Code 3.2.1 restricts the use of artificial plants as a “Landscape Area Treatment.” Except for
single-family detached dwellings, all development and building permit applications are subject to review
by this standard. Historically, a few projects have been approved for artificial turf installation given that the
area proposed for installation was not considered landscape area by the code’s definition.
During the “Land Use Code Changes” discussion at the January 10, 2023, work session, Council responded
to a proposal that would have allowed the use of artificial turf in the city by exception if installed to high -
standard specifications. Council overwhelmingly opposed the proposal, preferring not to allow artificial
turf in Fort Collins.
While the benefits of artificial turf can include reduced water use, maintenance and chemical inputs, a
growing body of research suggests the negative impacts of artificial turf to human health and the
environment may outweigh the benefits. Potential risks include chemical exposures and contamination from
the materials themselves, such as the release of per- and polyfluoroalkyl substances (known as PFAS) and
carcinogens, and non-chemical impacts such as increased heat and heat island and waste-stream
implications.
Proposed Policy Changes in Land Use Code
On November 21, Council will consider an ordinance that clearly restricts the use and installation of
artificial turf on all new development and major redevelopment including non-residential and multi-family
properties and single-family residential front yards. The artificial turf restriction ordinance will be packaged
with additional landscape standards.
Impact
The restriction of artificial turf on single-family residential front yards will require review of landscape
plans for new single-family residential development, a process that does not currently exist. This process
would also serve the other landscape standards discussed at the January 10 work session for new single-
family residential properties. The added review willimpact the development review process and require
additional staffing needs, which are being considered and will be discussed further during the October 10,
2023 Council Work Session. There will be an impact on owners challenged with finding suitable
alternatives for high-traffic, low-water ground cover. Staff will continue to engage with landscape
professionals and the community to identify and promote suitable alternatives.
Attachments
January 10 Council Work Session Materials
cc: Kendall Minor, Utilities Executive Director
Jill Oropeza, Sr. Director, Integrated Sciences & Planning
Mariel Miller, Water Conservation Manager
Eric Potyondy, Assistant City Attorney
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Headline Copy Goes Here
10-10-2023
Kathryne Marko, Environmental Regulatory Affairs Manager, Utilities
Katie Collins, Water Conservation Specialist, Utilities
Kendra Boot, City Forester, Forestry Division
Landscape Standards –Soil,
Xeriscape and Trees
Page 150
Item 2.
Headline Copy Goes HereBrief Topic Overview
Staff have partnered to draft codes that align across soil,
xeriscape and tree priority areas:
•City Council Priorities (#s 14, 19, and 28)
•Municipal Code, Chapters 12 and 26
•Land Use Code 3.2.1 and 3.8.21
•Landscaping and Tree Protection
Council Priority 14
Effective soil amendment
policies and compliance
(water usage)
Council Priority 19
Xeriscape –increase
rebates and education, less
green lawns with new
development
Council Priority 28
Improve tree policies
Benefits of Landscapes Benefits of Landscape Codes
•Reduce air temperature/
heat island effect
•Stormwater quality
•Reduce runoff
•Better air quality
•Wildlife habitat
•Recreation
•Visual Appeal
•Landscapes built “smart
from the start”
•Better prepared for future
needs or changes
•Reduced frequency of low
to no benefit landscapes
2
Page 151
Item 2.
Headline Copy Goes HereBrief Topic Overview
3
Status Update
•Key Improvements
•Additional Considerations
•Resource Needs
•Themes from Engagement
•Timeline
•Next Phases
Page 152
Item 2.
Headline Copy Goes HereQuestions for Council Discussion
Specific to Xeriscape and Irrigation
1.What feedback or questions does Council have on applying landscape and irrigation standards to single-unit
dwelling front yards?
2.On daytime watering restrictions, what feedback or questions does Council have regarding:
a.application to all water districts within city limits?
b.staff continuing conversations with raw water users and providers?
General feedback for all sections
3.What feedback or questions does Council have on the proposed path forward?
4
Page 153
Item 2.
Headline Copy Goes HereTrees
Land Use Code 3.2.1
•Improved mitigation standards incentivizing tree preservation
•Creation of separate street tree escrow and timeframe for tree
replacement responsibility
•Specified repercussions for tree damage or healthy tree
removal violations
•Improved tree diversity requirements
•Improved tree protection during construction
Resources and Impacts
•2 FTE Zoning Landscape Inspectors funded, hired one in 2023
and another in 2024
•Increase in tree mitigation requirements
Proposed Implementation -January 1, 2024
Page 154
Item 2.
Headline Copy Goes Here
SpeciesSize (Diameter
at Breast Height)Tree ConditionCurrent Mitigation StandardProposed Mitigation
Standard
Honeylocust20"Fair3 trees = $1500$8,404
Honeylocust17"Fair3 =1500$6,072
Boxelder6"Fair1 = 500$1,500
Boxelder8"Fair.5 = 250$2,000
Boxelder12"Fair1.5 = 750$3,000
Siberian Elm18"Fair minus1.5 = 750$2,778
Siberian Elm5"Fair minus00
Siberian Elm6"Fair minus00
Siberian Elm16"Fair minus1.5 = 750$2,195
Boxelder10"Fair1 = 500$1,500
Honeylocust 26"Fair3.5 = 1750$14,204
Rocky Mountain Juniper18"Fair2.5 = 1250$5,189
Rocky Mountain Juniper20"Fair2.5 = 1250$6,406
Ponderosa Pine20"Fair minus2 = 1000$8,516
Ponderosa Pine20"Fair minus2 = 1000$8,516
Ponderosa Pine24"Fair minus2.5 = 1250$12,263
Ponderosa Pine19"Fair minus2 = 1000$7,685
Siberian Elm11"Fair minus1 = 500$750
31 trees = $15,500$90,978
Trees –Mitigation Standard Comparison
6
Sample Project: Kum & Go Prospect and Lemay
~$63,000 savingsPage 155
Item 2.
Headline Copy Goes HereSoils
7
Municipal Code, Chapter 12
•Define standards for soil compaction and soil quality
•Clearly define thresholds for applicability
•Residential seeking Certificate of Occupancy and
> 1000 sf where plant materials will be installed
•Non-residential requiring development review and
> 1000 sf where plant materials will be installed
•Remove barriers for considering existing soil and/or plant type
Program-related
•Implement comprehensive field inspection program for all sites
Proposed Implementation -January 1, 2025
Page 156
Item 2.
Headline Copy Goes HereXeriscape and Irrigation
8
Proposed changes to Land Use Code 3.2.1
•30% of landscape can be irrigated turf
•Front yards up to 1,000 sf
•Commercial up to 10,000 sf
•Artificial turf restriction with limited exceptions
•50% living plant coverage on the surface of landscaped areas
•Irrigation equipment and design standards for front yards
•Dedicated irrigation to trees
Proposed change to Municipal Code Sec. [12-123]
•Limit overhead irrigation of landscaping and turf between 10
a.m. and 6 p.m.
Program-related
•Continue to promote programs and provide education
Proposed Implementation -January 1, 2025Page 157
Item 2.
Headline Copy Goes HereSoil and Xeriscape -Resources per Proposal
9
Proposal # FTE Description of Role Ongoing Cost One-time Cost
Soil Inspection Program 1 Review plans and perform site inspections
for sites required to meet soil standards.$93,300 $3,000
Daytime Watering Restriction 0.5 Enforcement $53,760 $3,000
Landscape Standards,
non-single-unit residential 1 Review landscape and irrigation plans and
perform inspections.$98,960 $1,500
Landscape Standards,
single-unit residential 1 Review landscape and irrigation plans and
perform inspections.$87,334 $38,000
Landscape Education Programming 1 Develop landscape resources; education
and outreach $105,871 $1,500
Total 4.5 $439,225 $47,000
100% General Fund assuming applicability throughout city limits and fully implemented inspections.
Page 158
Item 2.
Headline Copy Goes Here
Daytime Watering Limit
For Raw Water?
›Maximizes benefits of water
efficiency
›City overreach?
›Impact on functionality
›Impact to delivery window?
* Raw water will not be
considered until further vetting
Xeriscape Standards
For Single-Unit Dwellings?
›Built “smart from the start”
›Reduces water demand
›Front yards only
›Best supported with education
›New processes and additional
staff
›Development fees don’t match
landscape type
Additional Details
Daytime Watering Limit
In City Limits?
›Utilities service area vs. all
treated water
›City staff responsible to
enforce
10
Page 159
Item 2.
Headline Copy Goes HereXeriscape Standards –Cost Comparison
11
Property, Landscape
Type
Total Landscape Area
(% high-water grass)
Design &
Install. cost
Estimated
Water
Supply Req.*
20-year cost to
irrigate**Total
Water-wise
cost
difference
over 20 years
Commercial, typical 26,000
(80%)$110,000 $82,530 $68,067 $260,597
-$15,536
Commercial, water-wise 26,000
(30%)$140,000 $51,975 $53,086 $245,061
Res. front yard, typical 900
(70%)$6,500 $21,168 $5,287 $23,633
+ $4,936
Res. front yard, water-wise 900
(30%)$12,000 $21,168 $4,723 $28,569
* Fort Collins Utilities 2023 Rates. Residential estimates based on 4-bedroom house on 7,300 sf lot with 5,200 sf outdoor area.Commercial
assumes irrigation-only tap.
** Based on Fort Collins Utilities 10-year rates forecast. Residential water bill estimate is for front yard only with ¾” tap. I ndoor and
remaining outdoor water use estimates are not included in 20-year cost to irrigate. Commercial water bill estimate is based on 1-1/2”
irrigation-only tap. Page 160
Item 2.
Headline Copy Goes Here
Support for:
•General direction
•Importance of education and outreach
•Applicability citywide
•Importance of simple, predictable processes for
implementation
Concerns about:
•Impact to costs, affordability
•Funding sources for additional staff and
processes
•Applicability for single-unit houses
•Consideration of unique public sites
such as parks,downtown core
•Allowing turfgrass in parkways
•Artificial turf –what’s the alternative?
Public, Community Partners, Boards and Commissions expressed
Themes of Engagement
12
Page 161
Item 2.
Headline Copy Goes Here
13
Timeline
1 2
4 3
5 6
RESEARCH &
OUTREACH
CODE
DEVELOPMENT
RECOMMENDATIONSADOPTION
ADOPTION &
APPROPRIATION IMPLEMENTATION
First Reading of Code
Ordinance for Trees
Nov. 21, 2023
First Reading of Ordinances for
Xeriscape and Soils -
Code and Appropriation
Jan. 2024
Trees -2024
Xeriscape and Soils -2025
Work Session
Oct. 10, 2023
ONGOING
7
Pursue
additional
project phases
Fall 2021
Page 162
Item 2.
Headline Copy Goes Here
14
Next Phases
Assessment of
Compliance with Local
Environmental Policy
(Q1 2024)
•Alignment of related
permitting, inspection
and enforcement
efforts
•Where would
additional resources
provide the most
benefit
In Progress
Urban Forest Strategic
Plan (Q2 2024)
•Heritage Tree
Program
•Tree preservation and
protection on single-
unit properties
Water Efficiency Plan
(Q4 2024)
•Goalsetting for water
efficiency
•Effective strategies to
meet goals
•Turfgrass in parkways
•Unique public areas -
such as parks, and
downtown core
•Raw water
opportunities
•Single-unit
development fees
In Progress In Progress Future Exploration
Page 163
Item 2.
Headline Copy Goes HereQuestions for Council Discussion
Specific to Xeriscape and Irrigation
1.What feedback or questions does Council have on applying landscape and irrigation standards to single-unit
dwelling front yards?
2.On daytime watering restrictions, what feedback or questions does Council have regarding:
a.application to all water districts within city limits?
b.staff continuing conversations with raw water users and providers?
General Feedback for All Sections
3.What feedback or questions does Council have on the proposed path forward?
15
Page 164
Item 2.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 1 of 8
October 10, 2023
WORK SESSION AGENDA
ITEM SUMMARY
City Council
STAFF
Sylvia Tatman-Burruss, Senior Project & Policy Manager
Megan Keith, Senior Planner
SUBJECT FOR DISCUSSION
East Mulberry Plan and Potential Annexation Strategy.
EXECUTIVE SUMMARY
The purpose of this work session is to seek Council feedback on the draft of the East Mulberry Plan and
potential annexation considerations related to the plan. Staff will share a potential approach to annexation
for Council to consider based on a concept referred to as “Thresholds.”
GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED
1. Do Councilmembers have feedback on the East Mulberry Plan?
BACKGROUND / DISCUSSION
Staff have been working towards an update to the East Mulberry Plan, including extensive community
engagement, since early 2021. Council discussions on this topic include:
March 2021: Work session focused on the public engagement plan and the fiscal impact analysis of a
potential phased annexation approach.
March 2022: Work session focused on the plan update, strategic approach to plan-making and
annexation evaluation.
April 2022: City Council and County Commissioner discussion of potential future annexation and the
existing Intergovernmental Agreement for Growth Management.
April 2022: Work session focused on overall community approach to annexation and growth
management, including implications for the East Mulberry Enclave area.
August 2022: Staff presented a financial analysis framework for five subarea designations within a 20-
year timeframe separated into 5-year increments.
October 2022: Staff presented Opportunities and Tradeoffs by Character Area and received feedback
to provide ranges of costs to inform future discussions at the November 8th full Council Work Session
June 2023: Engagement summary and memo shared with City Council
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 2 of 8
Feedback from Council
Significant discussion has occurred regarding the East Mulberry Plan and the implications of potential
annexation. Council feedback has generally centered around an interest in moving slowly and deliberately
to avoid acquiring infrastructure without adequate resources to support them; focusing on lessons learned
from the most recent large annexation project – the Southwest Enclave Annexation; and a desire to
conduct substantial analysis prior to annexation of large portions of the East Mulberry Enclave.
History
The current East Mulberry Corridor Plan was adopted in 2002. The plan was jointly adopted by the City of
Fort Collins and Larimer County. The plan update reexamines the East Mulberry area relative to changed
conditions, emerging trends, and aligning with key policy recommendations found in the 2019 City Plan
update. Through engagement with area business owners, residents, and extensive internal staff
conversations, the plan aims to highlight area priorities, guide thoughtful growth, and prioritize future public
investments.
An area of unincorporated County land surrounded by land within the city limits, referred to as an 'enclave’,
was formed along East Mulberry in August 2018. Three years after an enclave is formed, the City of Fort
Collins may initiate involuntary annexation. Therefore, the East Mulberry Enclave became eligible in
August 2021. Although not statutorily required to annex the enclave, the City has an agreement with
Larimer County that such an enclave annexation will be pursued when it becomes eligible. Given the size
of the East Mulberry enclave, such an annexation could be phased over several years.
Annexation has been a tool used to grow the boundary of the City’s jurisdiction since the late 1800s. Since
the 1950s, many of the City’s annexations have occurred to the south in conjunction with development
proposals on otherwise “greenfield” land, often of formerly agricultural lands or undeveloped prairie lands.
Much of the East Mulberry area developed between the 1950s and 1970s, especially the industrial area
north of East Mulberry Street. This area was generally isolated from the development occurring to the west
around the core of College Avenue. As development occurred outward from the Fort Collins core in the
1980s, the East Mulberry area eventually became surrounded by City limits.
Fort Collins Subarea Plans: Position and Purpose
Subarea plans, like the East Mulberry Plan, are important tools for implementing geography-specific
implementation strategies of broader city policy and goals. Subarea plans can achieve the following:
Address important issues and opportunities unique to a given area.
Offer context-sensitive implementation and funding strategies that are actionable.
Provide vision, policy, and land use guidance for a particular area.
Guide policy considerations related to large potential annexations.
East Mulberry Plan Update: Why Update? Why Now?
Much has changed since the East Mulberry Corridor Plan was created in 2002. In the 20 years since the
plan was adopted, conditions have changed both in the East Mulberry Plan area and across the broader
Fort Collins community. A plan update should be pursued for the following reasons:
The East Mulberry Enclave was created in 2018 and became eligible for annexation in 2021. Since the
adoption of the 2002 plan predated these conditions, the East Mulberry Plan did not outline an
annexation strategy specifically through policy recommendations or other elements of the plan.
Many comprehensive citywide documents have been updated since the East Mulberry Corridor Plan
was adopted. This includes City Plan, updates to the City’s Land Use Code, key outcome areas of the
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 3 of 8
City’s Strategic Plan, amongst others. An East Mulberry Plan update could ensure alignment with these
documents.
Substantial development activity is occurring in the East Mulberry Plan area. Specifically, the Bloom
and Mosaic communities may be catalysts for additional development proposals in this area. A plan
update could address known future development and proactively address the remaining undeveloped
areas of the East Mulberry Plan area.
Market conditions have also changed, creating a need to analyze current zoning designations and
explore application of policies that could serve to protect and preserve existing land uses while creating
opportunity for new development.
Public Engagement
Community engagement for this plan began in 2020 and has focused primarily on the business owners
and residents within this area. While this area is important to the community of Fort Collins and the Northern
Colorado region as a whole, Area Plan engagement usually occurs first with those who experience and
interact with the place on a daily basis as an employee, business owner, resident or a combination of
these.
During the December 13, 2022, City Council Work Session, members of Council directed staff to perform
a full update of the existing 2002 East Mulberry Corridor Plan and to explore the annexation thresholds
approach (formerly referenced as tipping points). As part of this exploration into annexation thresholds,
staff launched a new series of public outreach events to inform and engage residents and businesses on
the proposed thresholds approach.
Recent Project Activities
A series of four sessions were held spanning February and March of 2023. At these virtual and in-person
sessions, staff offered a 45-minute presentation, followed by a 45-minute Q&A session to allow attendees
to clarify questions and share concerns with staff members. A report prepared by the Institute for the Built
Environment (IBE) documents the community engagement activities that occurred between February and
March of 2023. This and other engagement summaries from previous engagement events are included as
an appendix in the plan document.
As noted in the IBE report, notification methods used to inform and invite residents and community
members to these events in February and March 2023 included:
Over 2,200 postcard invitations were mailed to all addresses within the East Mulberry Enclave.
Press Release distributed February 23, 2023.
Over 200 in-person business visits to hand-deliver invitations.
Invitation and event reminders distributed to over 300 East Mulberry email newsletter subscribers.
Previous Engagement: The engagement activities that took place in February and March of 2023 are just
the most recent events in an extended series of engagement work that has been conducted as part of the
East Mulberry Plan update efforts. It is important to note that in addition to the most recently heard
feedback, previous community and business feedback is being utilized to formulate recommendations in
the updated East Mulberry Plan. As previously mentioned, summary documents of all engagement
activities spanning the project history are included as an appendix in the plan.
Beginning in 2020, some of the notable previous engagement activities included the following:
East Mulberry Business Focus Groups, August 2020
Community Q&A Sessions, April 2021
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 4 of 8
Community Visioning Sessions, June 29, July 14, and August 4, 2021
Online Visioning Survey, Summer 2021
Community Advisory Group Meetings – five meetings spanning October 2021 through April 2022
Community Workshops, October 2021
Community and Business Workshops, January and February 2022
Some of the primary opportunities and priorities that have been highlighted thus far in the public
engagement process and internal conversations include:
Infrastructure & Development
o Flooding and its impact on the community
o Integrated transportation system connecting neighborhoods to the surrounding area
o Safety and accessibility
o Sustainable development practices
Gateway & Entry Aesthetic
o An interest in aesthetic improvements at the I-25 and East Mulberry interchange as well as
along the East Mulberry Highway corridor
o An interest in maintaining the diverse uses within the area
o An interest in preserving the industrial and agricultural function and character of the area
Amenities and Services
o Access to essential amenities and services, such as parks, schools, and grocery stores
o Residents and business owners have struggled with issues related to vandalism, drug use, and
homelessness, especially near the I-25 interchange
Housing & Gentrification
o Interest in preserving the affordability in the area
East Mulberry Plan
The East Mulberry Plan is broken down into five distinct sections:
Introduction This section provides background and context on
the East Mulberry Plan Area.
Character Areas The Character Areas section describes how
character areas were formulated, the unique
attributes of the character areas, and how
character areas serve to provide more
customized recommendations within the plan
strategies.
Goals & Strategies The Goals & Strategies section contains the goal
statements for the East Mulberry Plan Area as
well as the policies and strategies that will help
bring these goals to fruition.
Implementation This section includes the place type framework
plan that envisions the future place types within
the East Mulberry Plan Area, the Transportation
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 5 of 8
Framework Map, and the Development Review
Framework.
Annexation Thresholds The Annexation Thresholds section provides a
detailed overview of the annexation thresholds
approach, how thresholds will be identified, and
how the thresholds approach could be managed
in the long-term.
Introduction
This section provides background and context on the East Mulberry Plan Area, including history of the
area since the 1950s, a comprehensive review of existing conditions, community priorities and what we
heard through community engagement, and review of the formation of the enclave and the general purpose
of annexation.
Character Areas
The East Mulberry Plan Area is a large area that encompasses various land use types. While several of
the goals above apply to the entire area, each of the distinct land use types requires some specificity when
it comes to the application of each goal. That said, the plan area has been divided into distinct Character
Areas. Considerations for defining character area boundaries included land uses, the built form,
transportation system factors, and other defining aspects of each area. Character areas are not intended
to create hard edges or boundaries, but instead generally serve to define and strengthen each area’s
distinct qualities. The map of all Character Areas is depicted below:
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 6 of 8
The Plan Area has been broken into 6 distinct Character Areas:
Airpark
East Mulberry Frontage
I-25 Interchange
Northern Residential (Mixed)
Southern Residential (Estate)
Transitional
Through community engagement and internal staff conversations, specific issues and areas of opportunity
continued to present themselves. Many of these issues are geographically tied to a specific character area
given the diversity of land uses and context across the Plan Area. For example, small-business
preservation and support continued to come up for industrial business owners within the Airpark area,
while concerns about crime and aesthetics came up frequently for business-owners within the I-25
Interchange area. As mentioned above, while several of the plan goals apply to all character areas, there
are unique priorities and implementation action items for future consideration.
Goals and Strategies
When approaching this update to the East Mulberry Plan, study of existing conditions and conversations
with residents and business owners reveal the complexity and challenge of planning within this area. The
diversity and uniqueness of land uses, combined with the desire to simultaneously preserve many things
about the plan area, while at the same time, improving other aspects, like deteriorating infrastructure and
lack of community amenities, pose a unique challenge from a planning perspective. For these reasons,
establishing a set of goals that cover a wide breadth of elements impacting the East Mulberry Plan area
felt like an appropriate way to balance both the preservation and augmentation needs of this area that a
single vision statement could not adequately capture. The plan goals speak to desired future outcomes for
the plan area and were collaboratively generated with community members and City staff.
There are seven major goals within the East Mulberry Plan. Below each of the seven plan goals are
strategies and implementation action items. Strategies are action-oriented statements that support
achievement of the goal. The implementation action items are more specific than the strategy statements
and provide more detailed methods for how the strategies may be achieved.
Because annexation of the East Mulberry Enclave under a thresholds approach may take a long time, the
sections called “Note on Fulfillment of this Strategy” acknowledge that implementation of these str ategies
and implementation action items are mostly dependent on when the areas are brought under city
jurisdiction. Ongoing coordination and collaboration with Larimer County will continue throughout a
threshold annexation strategy.
• Goal 1: Commercial/Industrial Hub (industrial/ag uses): Foster a healthy and prosperous commercial
and industrial hub for the City, while remaining viable for small businesses and industry.
• Goal 2: Stormwater infrastructure: Master plan, construct and maintain stormwater infrastructure to
provide safe conveyance of stormwater flows and reduce flood risk.
• Goal 3: Multimodal (mobility, streets): Plan and support safe and comfortable infrastructure for multi-
modal transportation.
• Goal 4: Community Access (amenities & services): Increase access for residents and businesses to
community amenities & services.
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 7 of 8
• Goal 5: Housing Affordability: Explore mechanisms to maintain housing affordability and existing
character of residential neighborhoods.
• Goal 6: Historic, Cultural, Natural Features (ecological health): Protect and promote natural, historic,
and cultural resources that support a cohesive and resilient community using nature-based solutions.
• Goal 7: Gateway Aesthetic: Improve the function and visual appearance of the Mulberry & I-25
interchange and Mulberry Street frontage as a gateway into Fort Collins.
Implementation
The Implementation Section explores more practically how the goals, strategies, and implementation
action items recommended within this plan could be accomplished. Within this section, there is a Place
Type Framework map that depicts future land uses, a Transportation Framework map that explores a
potential transportation network, and a Development Review Spectrum to guide future development activity
in the East Mulberry Plan Area.
Place Type Framework: Place Types were developed through the creation of the most recent iteration of
City Plan, adopted in 2019. These place types provide a framework for the ultimate buildout of Fort Collins
and help guide future land use decisions, such as initial zoning when areas of the East Mulberry Enclave
are annexed. Place types are not zoning districts but instead broader categories that focus on the types of
land uses and development intensities to encourage.
Transportation Framework: The Transportation Framework map depicts connectivity needs, proposed
streets for augmentation, and areas that require future evaluation and improvement. Some areas, such as
the East Mulberry Street corridor, would benefit from a standalone design effort in partnership with the
Colorado Department of Transportation (CDOT). This framework is not meant to be a comprehensive
transportation plan and is instead a reflection of opportunities and concerns surfaced through community
and internal staff engagement.
Development Review Spectrum: The Development Review Spectrum highlights typical requirements and
areas of flexibility for site upgrades within the City of Fort Collins’ development review process. The
purpose of this spectrum is to provide a structured and strategic approach for revitalizing and improving
properties over time as they come through the City’s Development Review process. It can also serve as a
resource for Larimer County reference when reviewing properties within the East Mulberry Enclave that
are going through the County’s Development Review process, but not yet eligible for annexation. Each of
the categories outlined within this spectrum highlights the requirements based on the level of proposed
site improvements and the priorities for each of the corresponding City departments.
Threshold Annexation Strategy
The Annexation Threshold strategy occupies its own section of the East Mulberry Plan but continues to
detail implementation of this potential approach. Staff have been further analyzing and exploring this
potential approach for Council consideration. This approach is based on “Thresholds”. Thresholds could
be defined as a set of conditions that when reached, may represent an opportune time to consider
annexations of portions of the East Mulberry Enclave. When a threshold is identified, strategic annexation
of the area in question and the surrounding parcels could be initiated. Thresholds for consideration could
include a combination of predictable or anticipated events, opportunities, and other defined conditions.
Specifically, opportunities to achieve city priorities, major development/redevelopment activity,
maintenance of logical jurisdictional boundaries, funding opportunities, and infrastructure upgrades. In
many cases, thresholds would be initiated when future conditions are met, therefore, thresholds and
opportunities to consider annexation may be spread across a longer time horizon. Some potential
thresholds that staff have begun formulating for evaluation include:
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Item 3.
City Council Work Session Agenda Item Summary – City of Fort Collins Page 8 of 8
Maintaining Logical Boundaries: Over time, voluntary annexation establishes a smaller enclave or area
that is essentially surrounded by City of Fort Collins. To create or maintain logical boundaries for
enforcement, provision of services (i.e., police services, roadway/sidewalk improvements, and create
areas of compatible land uses), annexation of the parcels to form more logical or contiguous
boundaries may be a threshold.
Proactive Resource Protection: Imminent impact to a critical natural resource or buffer. To apply natural
resource protection under city codes, this may be considered a threshold for considering annexation.
Redevelopment Risk: A redevelopment risk threshold represents the ability to preserve mobile home
parks and other sources of naturally occurring affordable housing. Future property sales may pose risk
of redevelopment to existing mobile home parks. To protect these sources of existing affordable
housing stock, bringing the mobile home park into the City of Fort Collins could allow application of the
City’s Manufactured Housing district, which would aid in preservation of these communities.
External Funding and Capital Project Alignment: This threshold is related to receipt of external funding
that could help alleviate some of the cost burden associated with annexation. It also would include the
ability to consider annexation of areas containing multiple priority project sites from adopted plans.
Example Threshold
During the October 10 Work Session, staff will explore with Councilmembers an example threshold that
demonstrates what types of considerations would be made when examining potential thresholds. The
example threshold combines a variety of the identified threshold categories and will aim to explain how
potential annexation boundaries could be established for Council consideration. While this example is
meant to illuminate the threshold annexation process, the example is not included in the Draft Plan
document and will not be included in the final version of the Plan.
NEXT STEPS
First reading of the East Mulberry Plan is set for November 21 at a regular Council meeting.
ATTACHMENTS
1. East Mulberry Plan - Draft
2. Presentation
Page 172
Item 3.
9/28/23 DRAFT
East
Mulberry
Plan
Page 173
Item 3.
Acknowledgments
City Council
Jeni Arndt, Mayor
Emily Francis, Mayor Pro Tem, District 6
Susan Gutowsky, District 1
Julie Pignataro, District 2
Tricia Canonico, District 3
Shirley Peel, District 4
Kelly Ohlson, District 5
Planning and Zoning Board
Michelle Haefele
David Katz (Chair)
Adam Sass
Ted Shepard
Julie Stackhouse (Vice Chair)
Samantha Stegner
York
City Leadership
Kelly DiMartino, City Manager
Tyler Marr, Deputy City Manager
Travis Storin, Chief Financial Officer
Caryn Champine, Director of PDT
Paul Sizemore, Director of CDNS
Boards and Commissions
Planning and Zoning Board
Larimer County Board of County Commissioners
Transportation Board
Economic Advisory Board
Consultant Team
Metta Urban Design
Economic and Planning Systems
Institute for the Built Environment
Staff Project Management Team
Megan Keith, Senior Planner
Ryan Mounce, City Planner
Sylvia Tatman-Burruss, Senior Policy Manager
Shawna Van Zee, City Planner
Staff Core Team Working Group
Drew Brooks, Deputy Director of PDT
Michael Bussman, Lead Business Specialist
Caryn Champine, Director of PDT
Clay Frickey, Interim Planning Manager
SeonAh Kendall, Director of Economic Sustainability
Amanda King, Communications Director
David Lenz, Director of Financial Planning & Analysis
Paul Sizemore, Director of CDNS
Travis Storin, Chief Financial Officer
Greg Yeager, Deputy Chief of Police
Plan Team Working Group
Phillip Amaya
Kraig Bader
Dave Betley
Dashiell Bubar-Hall
Maren Bzdek
Heidi Hansen
Members of the Public
Many property owners, residents, and members of the
public participated in this planning effort. Thank you to
all who contributed to the Plan.
Community Advisory Group
The Community Advisory Group was comprised of
residents and business owners from within the East
Mulberry Plan Area.
Business Community Participants
Fort Collins Area Chamber of Commerce, Local
Legislative Affairs Committee.
Kirk Longstein
Seth Lorson
Cody Snowdon
Brad Yatabe
Marcy Yoder
Page 174
Item 3.
This policy plan is advisory only, and it is not intended to establish development
standards applied through the Land Use Code to any development within the City of
Fort Collins unless a provision of the Land Use Code, other than a provision set forth in
Article 1, explicitly applies all or a portion of this plan as a development standard.
Page 175
Item 3.
Introduction to Character Areas
Frontage
Airpark
I-25 Interchange
Transitional
Northern Residential (Mixed)
Southern Residential (Estate)
How to Use this Section
Plan on a Page
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater Infrastructure
Goal 3: Transportation
Goal 4: Community Access: Amenities & Services
Goal 5: Housing Affordability
Goal 6: Historic, Cultural, Natural Features
Goal 7: Gateway Aesthetic
About this Document
About East Mulberry
Planning for East Mulberry
Why Update, Why Now?
i. Existing & Changed Conditions
ii. Community Priorities & What We Heard
iii. East Mulberry Enclave & Annexation
Table of Contents
Section 1: Introduction
Section 3: Goals & Strategies
Section 2: Character Areas
7
28
43
8
30
44
10
32
46
11
34
51
12
36
56
22
38
65
78
24
40
72
87
East Mulberry Plan Update
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Item 3.
Introduction to Implementation
Place Type Framework
Transportation Framework
Development Review Framework
Appendix A: Community Engagement Reports
Appendix B: Mulberry Corridor Financial Impact Analysis
Appendix C: Role of Subarea Plans
Section 4: Implementation
Appendices
94
94
101
105
Intro to Annexation Thresholds
Thresholds Overview
Ongoing Management of East Mulberry Plan
Section 5: Annexation Thresholds
110
115
123
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Item 3.
1 Introduction
About this Document
Introduction to East Mulberry
Planning for East Mulberry
Why Update, Why Now?
Page 178
Item 3.
1: INTRODUCTION
7EAST MULBERRY PLAN
East Mulberry Plan Update
About this Document
PURPOSE & INTENT
PLAN ORGANIZATION
How to Use this Document
The plan is organized into the following sections:
The 2023 East Mulberry Plan serves as an update to the previously adopted 2002 East Mulberry Corridor Plan. The
Plan incorporates new goals, the Plan policy direction and action items for the next 10-20 years based on extensive
business-owner and resident feedback within the area and internal policy discussions amongst City staff. Much like
the previously adopted plan, the East Mulberry Plan will continue to be a guidance document for Larimer County
staff prior to annexation and a policy document for future areas potentially annexed into Fort Collins. The Plan
incorporates recently completed planning efforts and studies, including the City Plan, the Transportation Master
Plan, the Active Modes Plan, and other relevant work related to utilities and small business support services.
In addition to the three sections and appendices of the
East Mulberry Plan Document, you will see the gray
callout boxes like this one indicating terminology or
more detailed information on supporting plan items.
When you see this ‘Information’ icon it either indicates a
definition of terms or additional information on a subject.
When you see this icon, funding sources for
implementation of the goals and strategies are addressed.
2. CHARACTER AREAS
i
$
1. INTRODUCTION
•About this Document
•Introduction to East Mulberry
•Planning for East Mulberry
•Why Update, Why Now?
3. GOALS & STRATEGIES
•Plan on a Page
•Goals & Strategies
4. IMPLEMENTATION
•Place Types Framework
•Transportation Framework
•Development Framework
5. ANNEXATION
This section provides background and context on the East Mulberry Plan
Area. Coverage of existing conditions, how the plan area is evolving, and
community and stakeholder input frame why this plan update is needed.
This section introduces Character Areas and describes the unique characteristics
of each easily identified area within the East Mulberry Plan Area.
The Goals & Strategies section contains the goal statements for the East
Mulberry Plan Area as well as the policies and strategies that will help bring
these goals to fruition.
This section provides guidance related to plan implementation, including
the place type framework plan that envisions the future place types
within the East Mulberry Plan Area, the transportation framework plan,
and the development framework plan.
This section includes a discussion of the annexation thresholds strategy.
•Annexation Thresholds Framework
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8EAST MULBERRY PLAN
Introduction to East Mulberry
The East Mulberry Plan Area is located in the
Northeastern section of Fort Collins, at the
gateway of Interstate I-25 to the east, East Vine
Drive to the north, Lemay Avenue to the west
and the Poudre River to the South.
East Mulberry began to develop as an industrial and
agricultural area in the 1950s, separated from the core of
Fort Collins. Residential neighborhoods to the south were
predominantly developed in the 1960s, as a combination of
large lots and traditional suburban block patterns. As Fort
Collins grew geographically, the East Mulberry area became
surrounded by commercial and residential development.
East Mulberry remains an important gateway into the City
of Fort Collins and connects downtown and Colorado State
University campus to I-25. It is also a Scenic Byway and
gateway to the Poudre Canyon. The East Mulberry “enclave” -
an area of unincorporated Larimer County surrounded by the
City of Fort Collins, was established in 2018 and encompasses
roughly 2,500 acres of land to the east of Downtown Fort
Collins. The area is now comprised of over 400 businesses,
serving customers both locally and internationally.
RESIDENTS
5141
SQ. MILES
4.6
ACRES
2500+
BUSINESSES
400
THE AREA IS UNIQUE IN
SEVERAL WAYS:
It is the largest concentration of
independent and industrial
businesses in Northern Colorado.
It is a mixed-use area of industrial,
commercial/retail, and residential uses.
It is a gateway to Downtown, the
Poudre Canyon, and is the start of the
designated Highway 14 Scenic Byway.
It is a unique confluence of natural
areas, floodways, and waterways
with multiple jurisdictions and
agencies providing services.
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1: INTRODUCTION
8 9EAST MULBERRY PLAN
Introduction to East Mulberry
History of East Mulberry
State Highway (SH) 14 began as a dirt road surrounded by farms and ranches,
stretching from Fort Collins east beyond Ault and west to the Poudre Canyon.
The highway later became East Lincoln Avenue.
As Fort Collins began to grow more rapidly in the 1960s and 1970s,
staff and elected officials from Larimer County and the City of Fort
Collins began to discuss a formal service-area agreement for the East
Mulberry area, which would also set the stage for a potential future
annexation.
East Mulberry Plan Adopted
East Mulberry Plan Update
Discussions regarding the future of East Mulberry became more
detailed in 1997 when the City of Fort Collins identified this area of land
as a priority for planning in anticipation of potential future annexation.
Fort Collins and Larimer County establish an Intergovernmental
Agreement to set Fort Collins’ Growth Management Area, which
includes the Mulberry Corridor.
East Mulberry began to develop as an industrial and agricultural area in the
1950s, separated by the Poudre River from the city core of Fort Collins.
Much of the development in this area occurred under County jurisdiction in
the 1950s and 1960s. As Fort Collins grew geographically, the East Mulberry
area became surrounded by commercial and residential development.
The SH 14 Bypass was created in the 1950s and soon became more traveled than the
older East Lincoln Avenue. By 1957 it was no longer a bypass but relabeled as SH14.
The Greeley Water Transmission Line that ran diagonal northwest to southeast
along East Lincoln Avenue/Summit View Drive helped to shape the area. Many of
the early businesses and homes were built on this diagonal to tap into the line for a
steady water supply. Only later did the City of Fort Collins and other utility companies
provide water to developing areas east of city limits.
Residential neighborhoods to the south were predominantly developed in the
1960s, some as large lots and others with more traditional suburban block patterns.
The Fort Collins Downtown Airport (originally named “Airpark” and now “Airport”)
was constructed during the spring and summer of 1966 and opened the following fall
with a 2,700ft runway and ten “T” hangars, housing about 25-30 planes. The thirty
stockholders who financed the airport also built the industrial park to the southwest.
The East Mulberry “enclave” was established in 2018 and
encompasses roughly 2,500 acres of land to the east of Downtown
Fort Collins. The area is now comprised of over 400 businesses,
serving customers both locally and internationally.
1960s
1950s
1970s
1980s
1990s
2000s
2010s
2023
AIRPARK
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1: INTRODUCTION
10EAST MULBERRY PLAN
i
Planning for East Mulberry
Updating the 2002 East Mulberry Corridor Plan
East Mulberry Plan Area
In 2002, the development of the East Mulberry Corridor Plan (EMCP) was
led by staff at the City of Fort Collins and was jointly adopted by Fort Collins
City Council and the Larimer County Board of County Commissioners.
Objectives outlined in the EMCP include provision and maintenance of public
facilities and services, annexation, costs of improvements, redevelopment,
and streetscape design. The EMCP acknowledged that continued growth
and change may impact current conditions, including the robust industrial
business mix and the rural feel of the residential neighborhoods.
• Goals for the future of the area
• Allowed land uses
• Look & feel of the area
• Public transportation needs
• Bicycle & pedestrian
infrastructure
While some of the objectives from the 2002 plan will carry over into the new plan, the
new plan will address concepts and services that have changed since 2002 and update
policies and objectives to align with various plans that have been adopted since, including
City Plan, the Transportation Master Plan and the Active Modes Plan, among others.
The East Mulberry Plan Area is
the area of focus for both the
2002 East Mulberry Corridor
Plan and this newly updated
plan document. The plan area
is different than the enclave
area, but largely overlaps. Plan
area boundaries are typically
established based on other
adjacent City of Fort Collins
subarea plans. It is important that
subarea plan boundaries do not
largely overlap so that guidance
for each area can remain clear.
The East Mulberry Plan Area is
adjacent to the Mountain Vista
Subarea Plan, the Downtown Plan,
the I-25 Subarea Plan, and the
Northside Neighborhoods Plan.
Refer to Page 22 for more
information on Annexation
and Enclave terminology
2002 EAST MULBERRY PLAN
TOPICS INCLUDE:
East Mulberry Plan Area
THE PLAN BOUNDARY FOR THE UPDATED 2023 EAST MULBERRY PLAN WAS
ADJUSTED FROM THE 2002 EMCP BOUNDARY IN SOME LOCATIONS TO INCLUDE
MORE OF THE AREAS CONTAINED WITHIN THE EAST MULBERRY ENCLAVE.
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1: INTRODUCTION
10 11EAST MULBERRY PLAN
Why Update, Why Now?
In the ever-evolving landscape of the East Mulberry Plan Area, it’s important to recognize
the dynamic nature of the built environment and the impact of changes in growth
patterns, social structures, community goals, business trends, technology, and more.
Twenty years after adoption of the 2002 East Mulberry Corridor Plan, these changes warrant a
reevaluation of existing goals and strategies for today’s issues and tomorrow’s opportunities.
Through a comprehensive understanding of existing and changed conditions, reflection of past
and present stakeholder input and priorities, and context from the history and formation of the
East Mulberry Enclave, this plan seeks to address new and emerging issues and shape a vision and
framework for the future of the East Mulberry Plan Area.
Planning history of the East Mulberry Enclave and a reexamination of
how future annexation for this area could occur.
I. EXISTING & CHANGED CONDITIONS
II. COMMUNITY PRIORITIES & WHAT WE HEARD
III. EAST MULBERRY ENCLAVE & ANNEXATION
Existing & Changed Conditions in the plan area since the EMCP in
2002, including infrastructure, growth, and development.
Priorities have shifted since the 2002 EMCP; we’re also hearing
about new goals from a new generation of residents and
businesses in the corridor.
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12EAST MULBERRY PLAN
• STREETS & SIDEWALKS pg. 13
• STORMWATER pg. 14
• ELECTRIC GRID pg. 14
• BICYCLE & MULTIMODAL pg. 15
• TRANSIT pg. 15
• OPPORTUNITY, EQUITY, &
ACCESSIBILITY pg. 16
• FIRE & SAFETY pg. 17
• PARKS & RECREATION pg. 17
• NATURAL AREAS pg. 17
• HOUSING & AFFORDABILITY pg. 18
• DEVELOPMENT & GROWTH pg. 19
• LAND USE pg. 20
• EMPLOYMENT & INDUSTRY pg. 21
I. EXISTING & CHANGED CONDITIONS
Why Update, Why Now?
At the highest level, the Mulberry Corridor looks and functions much as it had twenty years ago in 2002 when
the first East Mulberry Corridor Plan was adopted. It’s a primary entrance to the community, an important
commercial and industrial hub, and an area where one can best experience both the benefits and drawbacks
of urban-level County development. Many of the same concerns that have long been associated with the
corridor persist – street maintenance and traffic congestion, a lack of access to certain amenities, and
uncertainty about the impacts and timing of potential annexation into the City of Fort Collins.
Dig deeper and changes in growth patterns, new development, and the application of recent community-
wide goals and strategies present new opportunities and challenges. Many of the original 2002 EMCP
strategies and implementation actions have also been completed or may no longer be relevant and invite
further study of what elements of the original corridor plan should be continued forward.
Development in the plan area spans more than seven decades across multiple
jurisdictions and features an environment constructed to varying development
standards, a patchwork of urban-level infrastructure, and an assortment of street
maintenance quality. Compared with the broader community, one of the most
recognizable characteristics of the corridor is its lack of certain infrastructure
such as curb & gutter, sidewalks, and on-site stormwater detention.
Transportation & Infrastructure
Community Services & Infrastructure
While many policy goals for the community and plan area remain the same
today as in 2002, there are also several policy areas where the community
has established new goals and plans that will need to be contextualized to
the East Mulberry Plan Area. Key among these changes is the importance
of Community Services & Infrastructure; including housing, equity and
opportunity, and accessibility.
Changing Growth & Development Patterns
Over the past twenty years, new development in the East Mulberry Plan Area
has been modest when compared to the broader community and region,
and slower than originally anticipated by the market study completed for the
2002 EMCP. However, since 2020, over 2,400 new residential units have
been constructed or approved as part of future phased developments, which
would represent almost a doubling of the housing in the plan area over the
next 10-20 years.
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1: INTRODUCTION
12 13EAST MULBERRY PLAN
STREETS & SIDEWALKS
15%34%50%of streets have
sidewalks
of streets have
Curb & Gutter
have markings (travel and bike lanes, shoulder demarcation)
$The City of Fort Collins streets and maintenance are paid for through a combination of a dedicated 1/4-cent tax for street maintenance plus
general fund dollars and are spread across the entire City. Some streets are maintained by the Colorado Department of Transportation (CDOT)
including East Mulberry outside of City limits. Some streets within the East Mulberry area are maintained through Special Improvement Districts
whereby business owners or residents’ tax themselves and the money is managed and applied to the specified tax district. These are expected to
remain in place through any future annexation activity.
i. Existing & Changed ConditionsWhy Update, Why Now?
Transportation & Infrastructure
Surface condition is only one
component of what the City calls,
“Complete Streets” which include
sidewalks, curb and gutter, bike lanes,
and proper markings, among other
details depending on the street type.
47% - GOOD/SATISFACTORY
37% - FAIR/POOR
16 % - VERY POOR/FAILING
47%
37%
16%Good asphalt surface condition, including few major cracks or potholes
Larger cracks and may have chips that have become potholes over time
Large cracks and potholes. Generally, these streets must be completely
rebuilt to be considered functional
SURFACE CONDITIONS OF ROADS MAPPavement Condition Data collected by the City of Fort Collins in 2021.
Mulberry Enclave Street Surface Conditions
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14EAST MULBERRY PLAN
STORMWATER
ELECTRIC GRID
i. Existing & Changed Conditions
Much of the East Mulberry area is currently served by Poudre Valley REA and Xcel Energy. Most of this infrastructure is
above ground, including poles and wiring. The majority of the electrical infrastructure within Fort Collins city limits is
undergrounded or planned to be undergrounded in coming years. Upon annexation into city limits, existing infrastructure is
purchased by City of Fort Collins Light & Power. When areas are developed or redeveloped, the development supports most
of the cost of installing underground infrastructure to serve it. Other areas that are already developed do not have the same
funding to support undergrounding, therefore the mechanism for undergrounding these areas is dependent on available
budget and electric infrastructure priorities across the community.
Why Update, Why Now?
Transportation & Infrastructure
Stormwater infrastructure is comprised of several components, including street gutters, storm drains, open channels,
underground culverts, regional and on-site detention areas, among others. Unlike streets, the stormwater system
within the East Mulberry area has not yet been inspected or evaluated. A few known issues include:
• Stagnant water and flooding are significant concerns.
• Public stormwater infrastructure within the area is currently not being maintained.
• For the existing stormwater system to be evaluated, it will need to be flushed of sediment and debris and
inspected. Once an inspection of the system has been conducted, a more thorough analysis can be done to
understand what improvements need to be made to create a more functional stormwater system in the area.
• A capital improvement project is planned within the area to channel the Dry Creek floodway. This project would
only be added to the capital improvement project list upon annexation of the area.
FLOODWAY MAP
Stormwater infrastructure is built using several funding mechanisms, including Capital Projects funds, private funding through
development projects and sometimes State and Federal funding. $
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14 15EAST MULBERRY PLAN
BICYCLE & MULTIMODAL
Why Update, Why Now?i. Existing & Changed Conditions
Transportation & Infrastructure
TRAILS, BICYCLE, & TRANSIT MAP
The existing and most contiguous bicycle facilities in the East Mulberry Plan Area include the facilities on Vine Drive,
Timberline Road, Lemay Avenue, Lincoln Avenue, and the Poudre Trail (these facilities are shown as bike routes on the map
below). There are other shorter segments of bicycle facilities, but overall, this area has relatively few high-comfort bicycle or
multimodal facilities. Vine Drive provides a continuous east-west bicycle facility, but it is classified as low comfort. Timberline
Road is a north-south connection between Mountain Vista Drive and the neighborhoods in north Fort Collins, through the
East Mulberry Plan Area, continuing all the way to south Fort Collins. However, like Vine Drive, the entire extent of Timberline
Road is classified also as a low-comfort facility. Lincoln Avenue is the most direct east-west connection for bicycle traffic
from Downtown Fort Collins into the East Mulberry Plan Area. There are striped bike lanes on Lincoln Avenue until around
12th Street. Continuing east on Lincoln, bicycles use the road shoulder. Lincoln Avenue is also considered a low-comfort
facility for bicycle travel.
The East Poudre Trail parallels the flow of the Poudre River and passes through portions of the East Mulberry Plan Area. This
multi-use trail provides a high-comfort pathway for bicycles, pedestrians, and other multimodal traffic. The East Poudre Trail
continues southwest to nearby the Running Deer Natural Area and northwest through Laporte to Bellvue.
TRANSIT
The Transfort Route 14 bus serves the East Mulberry area.
The route runs from the Downtown Transit Center largely
on Lincoln Avenue, John Deere, Vine, and Timberline.
*Source of the proposed multiuse trails comes from the City’s Paved Recreational Trail Master
Plan and the Planned Transit Routes come from the City’s Transportation Master Plan.
*
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16EAST MULBERRY PLAN
Why Update, Why Now?i. Existing & Changed Conditions
OPPORTUNITY, EQUITY, & ACCESSIBILITY
Located at the edge of the community, many parts of the East Mulberry Plan Area lack
quick and convenient access to amenities such as parks, schools, grocers, and neighborhood
supportive retail. Health and equity indicators also show that some census tracts within the
plan area contain more vulnerable populations such as seniors, lower income residents, racial
and ethnic minority groups, or those suffering from poor physical and mental health resulting
in areas of the plan area could be prone to forms of gentrification and displacement in the
future. Incorporating new policies and goals while promoting equity into the plan is essential
for fostering a more inclusive and equitable environment.
Fort Collins has a vision to become a 15-minute city where every resident can walk, bike,
or roll within 15-minutes of their home to their daily needs and services. One goal of
implementing the 15-minute city concept is to strengthen underserved communities where
basic needs and services are inaccessible without an automobile. The 15-minute city analysis
uses average speed for typical walking, biking, and other micromobility options. Based on
each modes’ speed, the defined 15-minute network range was three miles for those biking or
using micromobility and 3/4-mile for those walking or rolling. The East Mulberry Plan Area
will continue to balance a diversity of uses into the future, including working as an industrial
hub for Fort Collins. However, the City will utilize the goals of the 15-minute city concept for
residential and commercial parts of the East Mulberry Plan Area so residents can have more
inclusive and equitable access to community amenities and daily needs.
Community Services & Infrastructure
AMENITIES MAP
Equityi
Equity is the process by
which policies, programs
and tools are developed
to ensure the elimination
of existing disparities
and includes inclusive
engagement that leverages
diversity. It becomes an
outcome once a person's
identity or identities no
longer impacts their ability
to experience equality and
access to services.
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16 17EAST MULBERRY PLAN
NATURAL RESOURCES & PARKS MAP
i. Existing & Changed ConditionsWhy Update, Why Now?
This area is served primarily by Poudre Fire Authority (PFA) Station 6
and Station 1. The Larimer County Sheriff’s Office (LCSO) provides law
enforcement services for the area contained within the East Mulberry
Plan Area. LCSO breaks down their law enforcement jurisdiction
into seven areas across Larimer County. Fire service provision is
not anticipated to change based on either this plan or annexation,
however the intergovernmental agreement with PFA stipulates funding
adjustments for the differential between City Property Tax and Poudre
Valley Fire Protection Property Tax. The plan area currently falls into
the service area designated by LCSO as ‘Area 1’.
FIRE & SAFETY
There are no existing parks or public recreational
facilities within the East Mulberry Plan Area. The
Fort Collins Parks and Recreation Master Plan
identifies a proposed park to be included within
the Mosaic neighborhood, located inside the East
Mulberry Plan boundary. However, at the time of
this document’s publication, this park is yet to be
constructed. New neighborhood parks called Iron
Horse Park and Traverse Park in the Waterfield
and Trailhead neighborhoods respectively are
north of Vine Drive, outside of the East Mulberry
Plan Area.
• Future private and public parks could be
associated with future development
• Upcoming trails master plan in 2024
that could identify new opportunities for
additional trails and trail connections in the
corridor.
• The Poudre Trail runs along or near the plan
area’s southwestern boundary.
PARKS & RECREATION
Short segments of the Poudre River and accompanying Poudre River
Trail pass through the East Mulberry Plan Area. The northern portions of
the Kingfisher Point Natural Area and the Springer Natural Area also fall
within the East Mulberry Plan Area boundary. Dry Creek runs through
the industrial and Airpark area and often causes flooding issues during
rain events. The Cooper Slough runs in a generally north-south direction
on the eastern portion of the East Mulberry Enclave. There is currently a
natural buffer agreement between the City of Fort Collins and Larimer
County to protect this natural feature when development occurs.
NATURAL AREAS & FEATURES
Community Services & Infrastructure
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18EAST MULBERRY PLAN
Community Services & Infrastructure
Shifts in the types of housing developed over the past two decades, changing
family sizes and social structures, and large increases in home prices have
catapulted housing attainability and affordability to the forefront of resident
and policy maker priorities.
Existing housing in the East Mulberry Plan Area tends to be both older, more
varied, and affordable than housing in Fort Collins as a whole. One such
example of this includes the existing manufactured housing communities.
There are three such communities, including the Nueva Vida Mobile Home
Park, Collins Aire Mobile Home Park, and the Villas. There is growing
recognition that these existing homes provide an important source of naturally
occurring attainable/affordable housing that could be at risk of gentrification
and resident displacement without appropriate policies and neighborhood
support. The East Mulberry Plan Area also contains older, established
neighborhoods with larger lot sizes that impart a rural character to these
areas. Some of the residents with large lots keep small livestock or horses.
Existing attainable housing options in the plan area also house more
vulnerable populations such as seniors, young children, persons of color, non-
native English speakers, or lower-income wage earners. These populations
tend to have reduced access to educational opportunities, nature, healthcare,
and other amenities, often resulting in poorer health and economic outcomes.
HOUSING & AFFORDABILITY
• The East Mulberry Plan Area captures an increasing share of Fort Collins’ new housing and population as growth in the
community shifts towards the northeast.
• Housing types and price points along Mulberry are also more diverse than the community as a whole with a greater
percentage of manufactured and missing-middle housing options.
• Housing growth is anticipated to continue with new developments proposed near the Vine and Lemay overpass and
north of Mulberry and Greenfields.
*2020 US Census
i. Existing & Changed ConditionsWhy Update, Why Now?
RESIDENTS*
HOUSING UNITS*
5141
2268
Missing-Middle Housing
Refers to housing that accommodates more
people than a single-family home but is
smaller than a large apartment building.
Typically, this term encompasses housing
types such as accessory dwelling units,
duplexes, townhomes, and small apartment
buildings that are designed to blend into
and be compatible with a residential
neighborhood dominated by single-
family homes. It is called “missing” middle
because many communities do not have
much of this sort of mid-range housing.
Attainable Housing
The term “attainability” implies that housing
is within reach or achievable for individuals
or families with moderate incomes, who
may find it challenging to afford market
rate housing or qualify for subsidized low-
income housing.
i
i
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18 19EAST MULBERRY PLAN
NEW/APPROVED
HOUSING UNITS*
2470
i. Existing & Changed ConditionsWhy Update, Why Now?
REMAINING VACANT/
BUILD ABLE LANDS*
418
*2021 City of Fort Collins
Changes in Growth & Development
DEVELOPMENT & GROWTH MAP
Since the 2002 EMCP, new growth in Fort Collins was largely focused south of Harmony
Road, but development patterns are now shifting to the northeast quadrant of the
community where the largest source of vacant and developable land remains. Alongside
growth in surrounding communities like Wellington, Timnath, Windsor, and Severance,
recent and projected growth in the region now surrounds the East Mulberry Plan Area from
the north to the southeast.
Within the plan area, new growth has also recently accelerated with residential
development near the new Vine Drive and Lemay Avenue overpass and the vacant land
between Timberline Road and Greenfield Court.
Residential growth within and surrounding the plan area is also likely to generate additional
commercial and retail development, with active proposals for office and retail space near
Mulberry Street and Greenfield Court as originally envisioned in the 2002 EMCP. With
approximately 420 acres of vacant land left in the plan area, much of which is impacted
by floodplains or will be used to support buffering around sensitive natural features, the
remaining areas for commercial development remain a critical resource for future services
and amenities to serve the area’s existing and growing residential population.
DEVELOPMENT & GROWTH
This map depicts place type designations from City Plan’s Structure Plan map. The Structure Plan map illustrates
how the community may grow and change over time, setting a basic framework for future land use decisions.
acres
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20EAST MULBERRY PLAN
LAND USE
The Mulberry Corridor features a mix of
land uses with a particular emphasis on
industrial and commercial operations serving
the broader region. Existing residential
neighborhoods can be found south of
Mulberry Street and newer neighborhoods
and residential development proposals are
clustered north of Mulberry Street.
While vacant and agricultural uses remain
in portions of the corridor, many of these
properties may transition to new greenfield
development in the short and mid-term as
overall growth in the community continues
to favor areas northeast of Downtown.
i. Existing & Changed ConditionsWhy Update, Why Now?
Changes in Growth & Development
INDUSTRIAL COMMERCIAL
PUBLIC
VACANT
AGRICULTURAL
RESIDENTIAL
EXISTING LAND USE MAP
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20 21EAST MULBERRY PLAN
EMPLOYMENT & INDUSTRY
Mulberry is home to one of the largest concentration of small
businesses in Fort Collins and is one of the largest employment centers
in Fort Collins alongside Downtown, Colorado State University, and the
Harmony Corridor. As a large hub for industrial and business support
firms, the Mulberry corridor is an important location for industrial and
manufacturing businesses that support Fort Collins and the broader
region.
Mulberry
Enclave
Mulberry
Enclave
General
Commercial
District
(Midtown)
General
Commercial
District
(Midtown)
Harmony
Corridor
Harmony
Corridor
Downtown
Downtown
NUMBER OF ESTABLISHMENTS
NUMBER OF EMPLOYEES
MANUFACTURING
TOP INDUSTRY CATEGORIES
CONSTRUCTION WHOLESALE TRADE
19%17%11%
419
423
6,098 # OF EMPLOYEES
# OF EMPLOYERS
# OF BUSINESSES
i. Existing & Changed ConditionsWhy Update, Why Now?
Changes in Growth & Development
0
100
200
300
400
500
600
700
800
423
6,098 6,649
447
609
13,097
Mulberry
Enclave
General
Commercial
District
(Midtown)
Harmony
Corridor
Downtown
NUMBER OF EMPLOYERS
0
100
200
300
400
500
600
700
800
419 439
577
701
691
13,618
Of the total 423 businesses
within East Mulberry:
52% have under 10 employees
95% have under 50 employees
*2022 QCEW data
0
3000
6000
9000
12000
15000
*2020 Bureau Labor Statistics
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22EAST MULBERRY PLAN
The creation of the goals for this plan were driven by extensive community input,
ensuring that the plan reflects the needs and aspirations of local businesses and
residents. The following is a summary of the community input collected as part of this
plan update. In some instances, community sentiment varied quite extensively on some
of these topics. This plan tries to recognize that there are inherent tensions about the
future of the plan area and strives to reflect and respond to these diverse perspectives.
Amenities & Services
• Community members expressed a desire for improving
access to essential amenities and services, such as
parks, schools, and grocery stores.
• There was acknowledgment that this area has not
received the level of service that is typical in a more
urban area and has struggled with issues related to
vandalism, drug use, and homelessness, especially
near the I-25 interchange. Housing & Gentrification
• Residents stressed the importance of preserving
the affordability of the area in hopes of preventing
gentrification.
Corridor Character & Uses
• The community expressed a desire to maintain the
diversity of uses in the corridor, including the range of
job opportunities offered, and desire for the City to help
preserve small businesses and industries.
• Business owners emphasized the importance of
preserving the industrial and agricultural function and
character of the area.
Infrastructure & Development
• Flooding and its impact on the community were major
concerns raised by residents and business owners.
• The community emphasized the need for a big
picture plan to manage stormwater for large areas
rather than site by site.
• Residents advocated for an integrated transportation
system connecting neighborhoods to the surrounding
area, that accommodates various modes of travel,
including walking, biking, public transit, and driving.
• Safety and accessibility were key considerations
in the community’s input, with a focus on creating
infrastructure that maintains usability for businesses
and reduces traffic congestion.
• Community members expressed a desire for
sustainable development practices that prioritize
green spaces and protect natural corridors.
Gateway & Entry Aesthetic
• Many participants identified East Mulberry as a prominent
entry point into the City that could benefit from aesthetic
improvements However, many voiced concerns about
related costs for businesses.
• The community is seeking a more visually appealing
gateway that reflects the character of Fort Collins
and the history of this corridor, creating a positive first
impression for visitors and residents alike.
• This community values their unique identity and ability
to support many small businesses and industrial uses.
There is a clear need for improved infrastructure. Altering
the existing built environment to accommodate new
infrastructure could be met with some resistance, as this
community fears compromising affordability and losing
its unique character. However, many support modernizing
infrastructure for improved services and interconnectivity.
Why Update, Why Now?
WHAT WE HEARD FROM THE COMMUNITY
ii. Community Priorities & What We Heard
Page 194
Item 3.
1: INTRODUCTION
22 23EAST MULBERRY PLAN
APRIL 2021 Community Q&A Sessions - approx. 60 participants
City staff hosted two virtual Q&A sessions for businesses and residents of the East Mulberry Plan Area to
address questions about the update to the East Mulberry Plan and potential annexation.
SUMMER 2021 Visioning Sessions
Over a series of six meetings in June, July, and August of 2021, City staff presented key themes from the Existing
Conditions document and gathered input from community members on the future vision of the East Mulberry Plan
Area. See Appendix A-1 for more information.
FALL 2021 Online Survey - 43 Survey Responses
The East Mulberry Online Visioning Survey received 43 completed surveys. The invitation to participate in the East
Mulberry online survey was sent out in a mailer to those in the plan area and via email to everyone who subscribed to
the newsletter. See Appendix A-2 for more information.
OCTOBER 2021-
FEBRUARY 2023
Community Advisory Group - 14 members, 6 meetings
A community advisory group was formed to better understand the needs, concerns and desires of both
businesses and community members in the East Mulberry Plan Area to provide in-depth feedback and input at
each critical stage of the planning process. See Appendix A-3 for more information.
JANUARY &
FEBRUARY 2022
Business & Community Workshops - 4 Workshops
These four virtual workshops covered a range of topics including: look and safety of streets, new sidewalks,
bike lanes, and connections to the Poudre River Trail, improvements to Internet speed and ways to address
flooding, community priorities for businesses and housing. See Appendix A-4 for more information.
FEBRUARY &
MARCH 2023
Annexation Q&A Sessions - 133 Community Participants
This series of four public meetings were hosted to share information as well as proposed ideas and policies
impacting the East Mulberry Plan Area. Four meetings were held with both virtual and in-person options. A
presentation covered strategies related to a potential annexation approach and the latest information about the
East Mulberry Plan Area update. See Appendix A-5 for more information.
FEBRUARY 2023 Online Comment Form
In tandem with the Annexation Q&A Sessions, staff released an online comment and question form for anyone
with questions or concerns to be able to reach out with staff directly to have their questions answered or
request follow-up phone or in-person meetings. Staff had multiple one-on-one meetings with community
members asking to share additional thoughts or ask questions to staff about their specific properties.
MAY 2023 Nueva Vida Resource Fair
Planning staff attended the Nueva Vida Resource Fair (a Mobile Home Park community within the East Mulberry
Plan Area) to share information with Nueva Vida residents about the update to the East Mulberry Plan and potential
annexation. An FAQ document translated into Spanish was distributed to those interested.
MAY & JUNE 2023 Business Information Sessions - Ongoing Collaboration with Chamber of Commerce
Staff hosted individual and group informational sessions with business owners from the Mulberry Plan area to
address their specific concerns and hear feedback on the plan and annexation thresholds strategy.
Staff visitations to
businesses to get
involved in planning
Business
Canvassing
200+ Businesses
Why Update, Why Now?
HOW WE GOT THE WORD OUT
HOW WE HEARD FROM THE COMMUNITY
II. COMMUNITY PRIORITIES
• Meeting Noticing for
Community Visioning,
• Community Updates &
Feedback Engagement
2 Mailers
2,200+
Postcards Video on overview
of East Mulberry
Plan and Intro
to Annexation
Thresholds
YouTube Video
265 views
Information
on Annexation
Q&A Sessions,
encouragement for
community participation
Press Release
PRESS
• Project Updates
• 2 Webpages on
East Mulberry
Information &
Resources
Project Newsletter
475 Subscribers & Website
Page 195
Item 3.
1: INTRODUCTION
24EAST MULBERRY PLAN
An ‘Enclave’ refers to unincorporated Larimer County properties
surrounded by the City of Fort Collins due to urban growth.
‘Annexation’, on the other hand, brings urbanized areas into the
City’s jurisdiction. The ‘Growth Management Area’ (GMA) helps
guide growth and development, ensuring efficiency, contiguity,
and consistent standards within the City.
In the 1960s and 1970s, as Fort Collins experienced rapid
growth, discussions began between Larimer County and the
City of Fort Collins regarding the East Mulberry area. They
aimed to establish a formal service-area agreement and explore
potential future annexation. This led to the formation of an
Intergovernmental Agreement (IGA) in 1980, creating the
Growth Management Area (GMA) that defined urban and rural
areas. Areas within the GMA are considered more urban, or
expected to become more urban in the future as Fort Collins
continues to grow in an orderly and responsible way within the
GMA boundaries.
By 2018, the East Mulberry Area was completely surrounded by
the city limits, forming an enclave of unincorporated Larimer
County along Mulberry Street. According to the City-County
IGA, the City agreed to pursue annexation of enclaves as they
became eligible under state law. The formation of the East
Mulberry Enclave was intentional on the part of City Council,
and since that time City Staff have planned for annexation of
the enclave in the future consistent with the adopted IGA with
Larimer County. The creation of the enclave and its eligibility
for annexation occurred after the adoption of the 2002 Plan
(enclave created in 2018 and became eligible in 2021).
Enclave: An enclave is a property, or group
of properties, that are in unincorporated
Larimer County but, due to urban growth and
development are now surrounded by the City
of Fort Collins municipal boundary. An enclave
is unincorporated County territory that is
surrounded by a municipality. The State Statute
gives a municipality the authority to annex an
enclave without property owners’ consent at such
time that the enclave has been surrounded by the
municipality for three or more years.
Annexation is used to bring urbanized areas
into the urban service jurisdiction of the City
of Fort Collins. Annexation can happen both
reactively in response to development activity and
proactively in response to identified needs, goals
and plans .
Growth Management Area (GMA): The Fort
Collins Growth Management Area, created in 1980,
defines “urban” vs. “rural” areas in and around the
City of Fort Collins. It has been an effective tool
for intentional, orderly, and responsible growth.
The GMA creates a more consistent design vision
for future development and serves to help protect
rural and agricultural lands outside of urban
development areas . Planning within the GMA
helps ensure efficiency and contiguity of City
programs, services, infrastructure and utilities.
It provides consistency for signage, lighting,
site design, building code, and natural feature
protection to align with community goals.
1980
Growth Management Area
(GMA) established
2000-2002
East Mulberry Corridor Plan
development and adoption
2018
East Mulberry Enclave created
through City Council action
2021
East Mulberry Enclave
eligible for annexation
ENCLAVE & ANNEXATION BACKGROUND
Why Update, Why Now?
iii. East Mulberry Enclave & Annexation
i
i
i
Page 196
Item 3.
1: INTRODUCTION
24 25EAST MULBERRY PLAN
ANNEXATION AREAS & THE EAST MULBERRY PLAN
The East Mulberry Plan Area overlaps with the enclave and guides future development and policy decisions.
Why Update, Why Now?
• Clear delineation between service provisions of “urban” vs. “rural” standards.
• Allows for the application of a consistent vision for future growth and development.
• Ensure efficiency and contiguity of City programs, services, infrastructure and utilities.
• Allows for regulatory control over signage, lighting, site design, building code, and natural
feature protection to align with community goals.
• Grow responsibly, protecting rural and agricultural lands outside of urban development areas.
• Ensure service levels match expectations in City Plan and other adopted plans.
Purpose of Annexations:
III. ENCLAVE & ANNEXATION
Page 197
Item 3.
1: INTRODUCTION
26EAST MULBERRY PLAN
What Changes in Annexations?What doesn’t change
upon Annexation?As annexation thresholds are met and portions of the
East Mulberry area become annexed, some service
providers would change quickly upon annexation, and
some would happen over time. Some service providers
would remain the same, regardless of annexation.
• In annexing areas, law enforcement would transfer
from the Larimer County Sheriff’s Office to City of
Fort Collins Police Services
• Electric service would transfer from Poudre Valley
REA or Xcel Energy (depending on location) to
City of Fort Collins Utilities as infrastructure can be
built out to support it
• Storm Drainage would transfer from Larimer
County to City of Fort Collins stormwater Utility
• Road Maintenance* (in some cases) would transfer
from Larimer County Road and Bridge to City of
Fort Collins Transportation Services
• Water and Wastewater services will still be
provided by Eastern Larimer County Water
District (ELCO) and the Boxelder Sanitation
District
• Fire Protection will still be provided by the
Poudre Fire Authority
• Health and Human Services will still be
provided by Larimer County
• Animal Control Services will still be provided
by the Humane Society
*Note: Annexing streets are accepted for
maintenance by the City of Fort Collins at the
same level that Larimer County has maintained it.
Private streets would remain private and current
maintenance responsibilities would continue.
An annexation thresholds approach bases future annexation decisions
on when certain conditions are met within the East Mulberry Enclave.
Rather than a phased approach that commits to certain timeframes
and geographic boundaries, thresholds provide more flexibility in the
size and timing of the areas brought forward for annexation. This can
help ensure that the City can adequately serve these areas before
annexation occurs. Annexation thresholds fall into various categories.
A full description of the thresholds approach and management is
contained in Section 3 of this document.
ANNEXATION THRESHOLDS
Why Update, Why Now?III. ENCLAVE & ANNEXATION
Annexation thresholds are a set of conditions
that when reached, may represent an opportune
time to consider annexation. Annexation thresholds
could relate to maintaining logical boundaries and
areas of City or County jurisdiction, advancing
important policy goals for an area, or ensuring
coordination of similar properties and land for
upcoming infrastructure projects.
i
Perspectives on Annexations: Conversations about potential annexation with community members and businesses owners
highlighted many differing perspectives. While some residents and business owners favor annexation for the potential benefits, some
community members and business owners in the East Mulberry area oppose it due to perceived drawbacks. Proponents voiced that
it could improve access to essential services and long-term infrastructure improvements. Conversely, opponents expressed concerns
that annexation might lead to increased taxes and fees, causing financial strain, especially on small businesses.
The tension between these perspectives underscores the complexity of annexation’s impact.
i
Page 198
Item 3.
2 : CHARACTER AREAS
27EAST MULBERRY PLAN26
CharacterAreas2Introduction to Character Areas
Frontage
Airpark
I-25 Interchange
Transitional
Northern Residential (Mixed)
Southern Residential (Estate)
Page 199
Item 3.
2 : CHARACTER AREAS
28EAST MULBERRY PLAN
Introduction to Character Areas
Frontage
Airpark
I-25 Interchange
Transitional
Northern Residential
(Mixed)
Southern Residential
(Estate)
At the mention of East Mulberry, several locations or landmarks
may come to mind. Some may picture Mulberry Street itself, or
possibly the interchange at Mulberry and I-25 and its function as a
gateway into Fort Collins. Just beyond the commercial borders of
Mulberry Street itself are many more districts and neighborhoods
that have their own varied and complex character. For example,
there are several areas made up predominantly of industrial
businesses that have unique characteristics and needs distinct from
those within the residential neighborhoods. Even the characteristics
of the residential neighborhoods north of Mulberry Street are quite
different from those located south of Mulberry Street. This diversity
of land uses is one of the components that makes the East Mulberry
Plan Area special, but this diversity also poses challenges for how
to plan in such a way that respects the unique context of each area.
Considerations for defining character area boundaries included
land uses, the built form, transportation system factors, and
other defining aspects within each area. Under the description
of each character area in the following sections is a notation of
‘Predominant Place Types’. Place types are land use categories from
City Plan. While character areas and place types designations are
used for different purposes within this document, they both serve
to guide the future land uses and character of the East Mulberry
Plan Area. These notations are meant to correlate what place types
tend to fit into each character area. For more information on place
types, please see Section 4 of this document.
Staff formulated character area boundaries with the help and
review of the Community Advisory Group as well as other
residents and business owners within the plan area. These
defining characteristics influence planning for what is important
to preserve, where and what kinds of change and development
should be supported, and what kinds of public improvements and
maintenance should be prioritized as each area continues to change
and grow. These character areas are not intended to create hard
edges and boundaries. They are intended to generally define and
strengthen their unique or distinct qualities, while simultaneously
weaving them into the broader character of the East Mulberry Plan
Area and the community of Fort Collins.
To incorporate this complexity
and plan comprehensively for the
entire East Mulberry Plan Area, six
character areas were identified.
Page 200
Item 3.
2 : CHARACTER AREAS
29EAST MULBERRY PLAN
Ch
a
r
a
c
t
e
r
A
r
e
a
M
a
p
Page 201
Item 3.
2 : CHARACTER AREAS
30EAST MULBERRY PLAN
Frontage
The Mulberry Frontage character area (Frontage) generally hugs the
Mulberry Street alignment, beginning at Lemay Avenue on the west side and
continuing east until between Sherry Drive and Canal Drive. Originally rural
in character with farm and open lands, the area has been transformed into
a commercial corridor with a diverse array of service providers, retail stores,
and restaurants as the community has grown.
EXISTING CHARACTER
The Frontage serves as a vital hub for both residents and businesses,
offering a range of services and products for the corridor and the entire
community. The area reflects a mix of building ages and a wide assortment of
architectural styles. Many properties are configured with surface parking lots,
outdoor storage, and product displays facing or visible from Mulberry Street.
Another prominent feature of the Frontage includes a number of billboards
and older, highway-oriented, pole-mounted signage that may appear out of
place when compared to sign standards found elsewhere in the community.
SPECIALTY AUTOBODY
Page 202
Item 3.
2 : CHARACTER AREAS
31EAST MULBERRY PLAN
Frontage
FORT FUN
YOUNG’S LIQUOR SIGN
SUNDANCE STEAKHOUSE & SALOON
AMISH SHOWROOM
FUTURE CHARACTER
The Frontage is likely to remain primarily commercial
in nature. The visibility and accessibility along
Mulberry Street will continue to provide commercial
support and retail that serves both the immediate
plan area and the broader community. Mulberry
Street itself should continue to function as a primary
entrance to the community and business/truck
route, while its expansive right-of-way, including
the adjacent Frontage Roads, may lend themselves
to unique opportunities to begin to introduce
multimodal infrastructure set further away from
traffic. Over time, the aesthetics of the frontage may
be improved through the application of modern sign
standards and the screening of outdoor storage/
parking areas as individual properties redevelop or
through a more comprehensive capital project for
Mulberry Street itself.
Predominant Place Type:
Suburban Mixed-Use District
Page 203
Item 3.
2 : CHARACTER AREAS
32EAST MULBERRY PLAN
Airpark
The Airpark character area is located on the west side of the East Mulberry Plan Area, centered around the
intersection of Link Lane and Lincoln Avenue. This area includes a large concentration of industrial and commercial
businesses that developed around the former Fort Collins Airpark / Downtown Fort Collins Airport. The
Airpark character area has maintained its industrial character for decades and is home to numerous small, local
businesses. While many ‘back of house’ industrial businesses operate in the area, there are numerous other land
uses, including gyms, breweries, studios, and pockets of residential, including the Nueva Vida Mobile Home Park.
EXISTING CHARACTER
Serving as an industrial hub developed primarily during the mid-20th-century, the design character of the area
tends towards simpler, metal buildings. The area generally lacks infrastructure for bicycles, pedestrians, and
stormwater management, but the lower traffic volumes, roadway ditches, and wide rights-of-way along local
streets can create more comfortable opportunities for walking or biking along the side of the road. The Airpark
contains what could be considered two ‘main streets’ along Link Lane and Lincoln Avenue. Link Lane south of
Lincoln Avenue tends to contain more retail and service-oriented businesses serving nearby employees and
visitors, while Lincoln is a primary connection into and out of the Airpark and features the only transit route
serving the Mulberry Corridor. Page 204
Item 3.
2 : CHARACTER AREAS
33EAST MULBERRY PLAN
Airpark
SANDBOX SOLAR
HIGH PLAINS DOOR & MILLWORK
THE GENESIS PROJECT
HORSE & DRAGON BREWING COMPANY
GENESIS HEALTH CLUBS
FUTURE CHARACTER
While rooted in industrial land uses, the area is likely to
continue to see an increase in other service-oriented
and start-up businesses, which has been a growing
trend in recent years and may continue as businesses
continue to seek out the smaller footprints and
relatively cheaper rents found in the area. Addressing
multimodal infrastructure needs along Link and Lincoln
will be a transportation priority to better serve and
support the role of these streets as key transit and
connecting corridors. A future stormwater plan for
the area could also better address water pooling
often experienced in the area by identifying broader
stormwater network and outfall opportunities rather
than the piecemeal approach currently employed
as individual sites redevelop. Finally, there may be
additional opportunities from a transportation and
urban design perspective to further explore the
role of Link Lane south of Lincoln as a main street
that continues to serve the needs of businesses and
employees in the vicinity.
Predominant Place Type: Industrial District
Page 205
Item 3.
2 : CHARACTER AREAS
34EAST MULBERRY PLAN
I-25 Interchange
The I-25 Interchange character area is centered around the I-25 and Mulberry Interchange. This area serves as a
significant regional commercial and industrial hub with clusters of lodging establishments, agriculture service and
retail businesses, and furniture retail. These clusters of businesses benefit from the visibility and accessibility of
being located adjacent to the interstate and proximity to the regional transportation network.
EXISTING CHARACTER
The area does not feature an established design theme due to the mix of land uses and the span of time over
which sites have been developed. New construction and redevelopment are an ongoing process in this character
area, as some of the remaining vacant lots in the industrial and business parks surrounding the interchange
continue developing. Like many other areas of the East Mulberry Plan Area, this character area does not possess
strong multimodal and stormwater infrastructure. Adjacent to the interchange, this character area also features
the most prominent nonconforming signage in the corridor with tall, pole-mounted signs. Many corridor
stakeholders and nearby businesses also frequently express concern about drug and safety issues related to
homelessness/transient populations near the interchange. Users of the interchange itself also remark about the
inefficient design of the interstate ramps and interaction of the frontage roads with Mulberry Street that decrease
travel safety and efficiency. Page 206
Item 3.
2 : CHARACTER AREAS
35EAST MULBERRY PLAN
I-25 Interchange
QUALITY INN & SUITES MAVERIK GAS STATION
EDWARD’S STONE SUPPLIERCENTENNIAL LIVESTOCK AUCTIONS
FUTURE CHARACTER
In the mid-term, it is anticipated the interchange itself
will be redesigned and reconstructed, which may
catalyze additional development and redevelopment in
this character area. Simultaneously, this could present
opportunities to establish a more consistent design
and landscaping palette for the area as well as improve
multimodal infrastructure and transportation safety.
Both elements could contribute towards goals to
establish the interchange area as a more aesthetically
pleasing gateway into the community.
Land uses around the interchange are expected to
remain largely the same with a focus on existing
agricultural services and other lodging and regional
commercial/retail establishments. Upon annexation,
Fort Collins Police Services would take over policing
responsibilities for the area and may be better
positioned to respond to ongoing safety concerns
through the application of established urban-oriented
safety and homelessness programs.
Predominant Place Types:
Industrial District, Suburban Mixed-Use District
AMERICAN FURNITURE WAREHOUSE
Page 207
Item 3.
2 : CHARACTER AREAS
36EAST MULBERRY PLAN
Transitional
The Transitional character area primarily represents the
undeveloped lands situated between the Airpark and the
residential neighborhoods south of Vine Drive. This area features
prominent natural features and habitat corridors such as the Lake
Canal and Dry Creek, and, as a natural low spot in the corridor,
many properties are impacted by floodways and floodplains.
EXISTING CHARACTER
Owing to the established natural features and floodplains, the
western half of this character area remains undeveloped, while
the eastern half features a mix of commercial and industrial
businesses, primarily clustered along or near the Timberline Road
frontage. Compared with other portions of the plan area, these
businesses tend to feature a greater mix of office employment
and institutional users and generally features newer buildings or
site development.
INTERNATIONAL BLVD.
POUDRE FIRE AUTHORITY, STATION 6
Page 208
Item 3.
2 : CHARACTER AREAS
37EAST MULBERRY PLAN
Transitional
BARKER CONSTRUCTION
S TIMBERLINE RD.
3 SQUARE ART STUDIOUS
AIRSTRIP
FUTURE CHARACTER
In the short term, new development, especially north
of the Airpark, is likely to be limited due to floodway
restrictions and the protection of sensitive natural
features. Outside established floodplains, this character
area could play host to a variety of mixed land uses that
support the retail needs of both nearby industrial and
residential users, or new types of business and industry
that can demonstrate compatibility with established
residential neighborhoods.
The City may play an important role in this character
area in the future through a combination of future
capital projects and master planning efforts. The Master
Street Plan identifies an extension of International
Boulevard to Cordova Road and upcoming studies
seek to understand the opportunities and challenges
of future trail corridors and stormwater/floodplain
improvements in the area.
Predominant Place Type: R&D Flex District
HERITAGE CHRISTIAN ACADEMY
Page 209
Item 3.
2 : CHARACTER AREAS
38EAST MULBERRY PLAN
Northern Residential (Mixed)
The Northern Residential character area features a mix of both established and newly developing neighborhoods
north of Mulberry Street, many of which have already been annexed and/or were recently developed or approved
under the City’s development standards.
EXISTING CHARACTER
Many of the neighborhoods in this character area look and feel like other neighborhoods throughout Fort Collins,
owing to their more recent development under City standards, and internally, tend to feature a more consistent
local street network with developed stormwater and multimodal infrastructure. Residents in this character area
have expressed a desire for better connectivity with the broader corridor and community through nearby street
and trail connections, and to address ongoing plan area-wide issues such as undergrounding utilities, addressing
flooding and stormwater issues, and encouraging additional neighborhood amenities in the plan area.
Page 210
Item 3.
2 : CHARACTER AREAS
39EAST MULBERRY PLAN
Northern Residential (Mixed)
MOSAIC NEIGHBORHOOD
COLLINS AIRE
THE COTTAGES OF FORT COLLINS
TIMBERVINE
FUTURE CHARACTER
A large majority of the remaining vacant land in this
character area has recently been developed or has
an approved development plan which is likely to
add an additional 1,500 units to the area. As these
neighborhoods continue their buildout, the character
established in the near and mid-term is likely to remain
for the foreseeable future. Both the City and residents
should work to improve connectivity to this area
and work to advance City preservation and livability
support to the Collins Aire Mobile Home Park.
Predominant Place Type: Mixed Neighborhood
Page 211
Item 3.
2 : CHARACTER AREAS
40EAST MULBERRY PLAN
The southern residential character area features established
neighborhoods south of Mulberry Street, generally around
Summit View Drive and Greenfields Court. Many of these
neighborhoods have existed for decades as the plan area and
broader community have grown up to or surround them.
EXISTING CHARACTER
Nearly all land in this character area has already been
developed and features a mix of neighborhoods with single-
family dwellings and smaller plexes. The residential areas
along Summit View Drive near Prospect Road have a more
rural character and feature larger estate lots, some with
horses or other farm animals. These rural neighborhoods also
generally lack streets with curb and gutter, sidewalks, or other
types of more urban-level multimodal infrastructure.
Southern Residential (Estate)
BOXELDER ESTATES
Page 212
Item 3.
2 : CHARACTER AREAS
41EAST MULBERRY PLAN
Southern Residential (Estate)
COUNTRYSIDE ESTATES
COUNTRYSIDE ESTATES
SUNRISE ACRESSUNRISE ACRES
FUTURE CHARACTER
As an established set of neighborhoods, the future
character of this area should remain similar to its
existing character, while addressing plan area-wide
opportunities and deficiencies. This could mean
future augmentation to major streets, such as Summit
View Drive, to implement some level of multimodal
infrastructure while keeping the more rural streetscape
in other locations with gravel shoulders. The City
should also provide flexibility to help maintain the
longstanding ability for the keeping of horses and farm
animals on appropriately-sized lots. Upon annexation,
the City should also work with neighbors to identify
ongoing street maintenance options for some of the
neighborhood streets in the character area that are
currently failing.
Finally, as little new development is anticipated in
this character area, annexation initiated either by the
existing Fort Collins-Larimer County Intergovernmental
Agreement or a thresholds annexation approach
suggest this may be one of the last areas of the
corridor to be considered for annexation into the City.
Predominant Place Types: Mixed Neighborhood,
Suburban Neighborhood, Rural Neighborhood
Page 213
Item 3.
Goals & Strategies3How to Navigate this Section
Plan on a Page
Goals & Strategies:
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
Page 214
Item 3.
3 : GOALS & STRATEGIES
43EAST MULBERRY PLAN
Goals & Strategies
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
The updated East Mulberry Plan has seven goals to guide the future of the East Mulberry Plan Area. The
seven goals cover a wide breadth of topics and have been crafted using feedback from the community
and stakeholders to reflect continued and future priorities. The following list includes the numbered goal
and the topic of each goal. Full goal text appears on the following pages.
HOW TO NAVIGATE THIS SECTION
GOAL INTENT
& PURPOSE
WHAT WE HEARD
NOTE ON FULFILLMENT
OF STRATEGY
PRIOR TO ANNEXATION
Under each of the seven goals, there is a short explanation of the goal’s intent and purpose.
This section provides more context on why this goal statement appears in this plan and
reflects on how the existing conditions within the East Mulberry Plan area have resulted in
these goals. All of the goals strive to strike a balance between preservation of the important
characteristics that make this area unique and should continue into the future, while also
envisioning how the quality of life in this area could be improved for residents and businesses.
Each ‘What We Heard’ section captures statements synthesized from community
and stakeholder engagement that relate to the plan goals. One aspect motivating
this plan update is to ensure that the most recent feedback and sentiments collected
during conversations with the community are reflected in how goals, strategies, and
implementation actions were formulated.
STRATEGIES &
IMPLEMENTATION
ACTION ITEMS
Below each of the seven plan goals are strategies and implementation action items.
Strategies are action-oriented statements that support achievement of the goal. The
implementation action items are more specific than the strategy statements and provide
more detailed methods for how the strategies may be achieved.
Because annexation of the East Mulberry Enclave under a thresholds approach may
take a long time, the sections called ‘Note on Fulfillment of this Strategy’ acknowledge
that implementation of these strategies and implementation action items are mostly
dependent on when the areas are brought under City jurisdiction. Ongoing coordination and
collaboration with Larimer County will continue throughout a threshold annexation strategy.
As mentioned, implementation of most strategies are dependent on when different areas of
the East Mulberry Enclave may annex in the future. However, in some cases, there are actions
that the City could pursue to prepare to implement these strategies in the future. Some of
these may be strengthening or continuing the existing partnerships the City has with Larimer
County and other agencies that serve the East Mulberry area. If there are any actions to be
completed prior to annexation, those are captured on the ‘Prior to Annexation’ section.
Page 215
Item 3.
3 : GOALS & STRATEGIES
44EAST MULBERRY PLAN
Plan on a Page
Master plan, construct and maintain stormwater
infrastructure to provide safe conveyance of
stormwater flows and reduce flood risk.
Foster a healthy and prosperous commercial and
industrial hub for the City, while remaining viable
for small businesses and industry.
Goal 2
Goal 1
STORMWATER
COMMERCIAL & INDUSTRIAL HUB
Goal 3 Plan and support safe and comfortable
infrastructure for multi-modal transportation.
TRANSPORTATION
The updated East Mulberry Plan has seven goals to guide the future of
the East Mulberry Plan Area. The seven goals cover a wide breadth of
topics and have been crafted using feedback from the community and
stakeholders to reflect continued and future priorities.
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3 : GOALS & STRATEGIES
45EAST MULBERRY PLAN
Goal 5 Explore mechanisms to maintain housing
affordability and existing character of residential
neighborhoods.
HOUSING
Goal 6 Protect and promote natural, historic, and cultural
resources that support a cohesive and resilient
community using nature-based solutions.
HISTORIC, CULTURAL, & NATURAL FEATURES
Goal 7 Improve the function and visual appearance of
the Mulberry & I-25 interchange and Mulberry
Street frontage as a gateway into Fort Collins.
MULBERRY GATEWAY
Goal 4 Increase access for residents and businesses to
community amenities & services.
COMMUNITY AMENITIES & SERVICES
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GOAL INTENT AND PURPOSE:WHAT WE HEARD
East Mulberry has traditionally been an Industrial
area with a wide variety of spaces for warehousing,
distribution, small office support, engine/vehicle
repair, fabrication and many other uses. Many of
these businesses serve the Northern Colorado
region, while many other businesses are significant
nationally and internationally as well. Policies
should support the continued operation of such
businesses into the future.
→Business owners want to be
able to continue operating their
businesses and are concerned
that new, adjacent uses would
not be compatible.
→Some business owners are
concerned that City standards
may be too high regarding
“Change of Use” applications and
may inhibit business expansion.
Foster a healthy and prosperous commercial
and industrial hub for the City, while remaining
viable for small businesses and industry.
Goal 1 COMMERCIAL & INDUSTRIAL HUB
COMMERCIAL BUSINESSES IN AIRPARK
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WHAT WE HEARD
Note on Fulfillment of this Strategy: Because
much of the East Mulberry area was developed
during the 1950s and 1960s and has had limited
redevelopment since, many existing streets
and lot configurations would not be developed
the same today. Therefore, some flexibility in
standards will be needed depending on the site
and the proposed improvement/expansion.
Prior to Annexation: Larimer County will
continue to manage development review
applications and refer those within the East
Mulberry enclave to City staff for review and
comments. Larimer County will continue
to have decision-making authority on most
projects within the enclave unless they are
eligible for immediate annexation.
Customize approach to infill development and business improvements.
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
1.1.1 Where possible, work with City staff to prioritize
site improvements based on project size and other
site-specific constraints.
STRATEGY 1
Implementation Action Item:
See Section 4 of the East Mulberry Plan document for the
Development Review Framework and Development Review
Spectrum.
UNDEVELOPED LAND NORTH OF MULBERRY STREET
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Note on Fulfillment of this Strategy:
Fort Collins does not currently have a major
industrial area within city limits. Therefore,
some of the zone districts that support
industrial operations may need to be altered
to better foster a thriving industrial area if
the area were to be annexed in the future.
Prior to Annexation: Larimer County will
continue to manage development review
applications and refer those within the East
Mulberry enclave to City staff for review and
comments. Larimer County will continue
to have decision-making authority on most
projects within the enclave unless they are
eligible for immediate annexation.
Support the retention of existing industrial and agricultural
business uses and their future expansion.
Implementation Action Items:
1.2.1 Market studies have documented the East Mulberry
Plan Area as a significant component of the larger Fort
Collins business community. Existing businesses, including
agricultural and industrial, should be encouraged to remain
and expand in the study area. Specific tools to explore to
achieve this strategy should include examination of allowable
uses in existing zone districts and a consideration of possible
changes or additions to zone districts to accommodate a
larger number of industrial and agricultural businesses.
1.2.2 Agricultural-related business uses, such as livestock
auctions, cooperatives, veterinary supply, implement
dealerships and stockyard activities, located within the East
Mulberry Plan Area, will be allowed to continue as part of the
industrial land use designation and zoning.
1.2.3 Staff from the Economic Health Office and the Planning
Department will continue to work with businesses in the
area to understand changing needs and concerns, especially
when the area is being examined as a potential “Threshold”
for annexation. Staff will continue to communicate with
businesses in the area regarding tools available to them and
any requirements of them upon annexation should that occur.
1.2.4 Foster innovation and entrepreneurship for commercial
and industrial uses by allowing for business incubation and
start-up spaces.
1.2.5 As properties redevelop, billboards will generally be
required to be removed and nonconforming or outdated
signage should be updated to be brought into compliance
with City standards. Prior to redevelopment, the City should
explore with businesses incentives for voluntary consolidation
or removal of billboards in the corridor.
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
STRATEGY 2
Please reference Section 4 of this document to view the Land
Use Framework Plan map and further discussion of land uses.
See also Goal 7.
MOUNTAIN VET SUPPLY
4 RIVERS EQUIPMENT
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Note on Fulfillment of this Strategy: The
unique nature of industrial businesses,
especially those related to manufacturing,
warehousing, and shipping often require safe
and efficient truck access. This is especially
important for access along East Mulberry
Street and out to I-25. Safe access to and
from I-25 is currently impeded by substandard
turning lanes and dangerous circulation
patterns near the I-25 and East Mulberry
interchange. Ultimately, as future annexed
areas become served with the City’s Light &
Power system, businesses will have reliable and
efficient service.
Prior to Annexation: The Colorado Department
of Transportation (CDOT) will continue to
manage and will retain decision-making
authority regarding improvements of East
Mulberry Street from Lemay to I-25 as well
as the I-25 interchange. Larimer County will
continue to manage development review
applications and refer those within the East
Mulberry enclave to City staff for review and
comments. City staff will focus on creating
recommendations to support connectivity for
reference by County staff prior to annexation.
Recognize interconnectivity of infrastructure and business.
1.3.1 Continue to support East Mulberry Street as a
primary travel and freight corridor for travel-related
businesses, shopping and employment.
1.3.2 Focus on safe truck access that also
accommodates bicycle and pedestrian traffic within
and between areas of the enclave.
1.3.3 Bring highly reliable and efficient energy through
Fort Collins Light & Power’s underground system.
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
STRATEGY 3
Implementation Action Items:
FUNKWERKS BREWERY INDUSTRIAL EQUIPMENT
IN THE MULBERRY
CORRIDOR
NOCO SELF STORAGE
ATLAS MEAT COMPANY
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1.A - Airpark
1.A.1 Support the preservation of industrial businesses and functions within the Airpark.
1.A.2 Maintain current land designations.
1.F - Frontage
1.F.1 Mulberry Street as a travel corridor to support efficient freight access for industrial and commercial functions.
1.F.2 Preserve the East Mulberry Frontage character area as commercial through land use guidance and
zoning when areas annex into the City of Fort Collins.
1.N - I-25 Interchange
1.N.1 Preserve existing agricultural and industrial businesses through land use guidance and zoning upon
annexing into the City of Fort Collins. See Section 4 of the Plan for more specific recommendations
related to existing agricultural and industrial businesses around the I-25 Interchange.
1. E - Southern Residential (Estate)
Goal 1 pertains primarily to existing commercial and industrial areas within the East Mulberry Plan Area.
Neighborhoods within the Southern Residential (Estate) Character Area are intended to be preserved as
lower intensity residential zones.
1. M - Northern Residential (Mixed)
Goal 1 pertains primarily to existing commercial and industrial areas within the East Mulberry Plan Area,
however, neighborhood centers supporting smaller commercial amenities could be incorporated where
appropriate.
1. T - Transitional
1.T.1 Maintain flexibility for future land uses that act as a buffer between industrial and residential areas,
thereby supporting the continued viability of industrial and commercial areas.
1.T.2 Explore the creation of a green infrastructure corridor along Dry Creek. One of the multiple benefits
of a green infrastructure corridor could be reduced on-site stormwater burden for industrial and
commercial businesses surrounding the Transitional character area.
Goal 1 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
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Master plan, construct and maintain stormwater
infrastructure to provide safe conveyance of
stormwater flows and reduce flood risk.
GOAL INTENT AND PURPOSE:
There are longstanding stormwater drainage and
floodplain issues in the East Mulberry Enclave,
and it will take a coordinated effort to begin to
identify, plan, and prioritize necessary repairs,
improvements, and maintenance. Enhancements
to the stormwater system will be generational
in nature and long-term master planning should
begin even before annexation fully occurs so public
and private stakeholders can begin to understand
needs and funding requirements.
WHAT WE HEARD:
→Community members want to see
improvements to ongoing flooding
issues in the area.
→Some businesses are worried about
flooding from local creeks that overflow
near business centers in the area.
Goal 2 STORMWATER
RUNWAYS AT THE OLD AIRPARK
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Note on Fulfillment of this Strategy:
Waterways, floodplains, and stormwater
conveyance ignore property and jurisdictional
boundaries and there is a need to understand
deficiencies and opportunities on a plan
area-wide scale. While future stormwater
improvements and maintenance are not likely
to occur until annexation into the City, master
planning needs to begin sooner to understand
needs and identify and prioritize funding
mechanisms and opportunities.
Prior to Annexation: The City should engage
with Larimer County and other stakeholders
to lay the groundwork for a joint stormwater
master plan for the plan area, including
consideration of funding to begin the study
even before large areas of the plan area have
been annexed.
Dedicate funding to prepare an East Mulberry Enclave
stormwater master plan.
2.1.1 Explore joint master planning of the East Mulberry Plan
Area with Larimer County to manage future improvements
and maintenance while areas of the plan area remain
under split jurisdiction and to reconcile different regulatory
approaches to Poudre River floodplain requirements.
2.1.2 Coordinate with Larimer County and private property
owners to inspect and clean existing stormwater system
infrastructure and identify repairs and improvements in the
Master Plan.
2.1.3 The Master Plan should identify storm drainage
improvements to Dry Creek, Cooper Slough, and Boxelder
Creek to better manage the area’s flood flows and adjacent
local drainage and prepare funding estimates for future
capital project planning and prioritization.
2.1.4 The Plan should coordinate with Larimer County and
other services providers for the provision of urban level
drainage infrastructure, maintenance, and the timing of
future public improvements.
GOAL 2: STORMWATER
STRATEGY 1
Implementation Action Items:
STORMWATER DRAINAGE ON LINCOLN AVENUE
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Note on Fulfillment of this Strategy:
Older development in the East Mulberry
Plan Area lacks modern stormwater
conveyance features that can lead to
flooding and safety issues. As sites
redevelop, they will generally be required
to install or incrementally upgrade
stormwater infrastructure and begin the
long-term process of developing plan
area-wide stormwater infrastructure.
Prior to Annexation: City staff will
continue collaborating with Larimer
County and provide referral comments
on stormwater upgrades and floodplain
requirements when sites undergo
redevelopment through Larimer County’s
development review process.
Protect people, property and the environment through
floodplain and stormwater regulations.
2.2.1 Reduce flood risk and floodplain encumbrances
on public and private property with improved drainage
infrastructure.
2.2.2 Development and redevelopment will be required to
follow the City’s stormwater regulations for protection of
the project site and neighboring properties by improving
localized and substandard storm water conveyances.
2.2.3 Development and re-development activity within the
Poudre River corridor shall comply with existing floodplain
regulations.
2.2.4 Storm drainage improvements along and adjacent to
Dry Creek, Cooper Slough and Boxelder Creek should be
designed using nature-based solutions and constructed
wetlands to balance flood protection, environmental
enhancement, and natural habitat buffering.
GOAL 2: STORMWATER
STRATEGY 2
Implementation Action Items:
COOPER SLOUGH
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Note on Fulfillment of this Strategy: Larger
stormwater and floodplain enhancements
in the plan area should seek to collocate
alongside other planned environmental and
transportation improvements identified in
the plan area to achieve design and funding
efficiencies. Many of the waterways in the
East Mulberry Plan Area have been identified
for additional environmental protection and
possible trail or multimodal corridors that could
benefit from joint project planning.
Incorporate or collocate stormwater and floodplain enhancements
alongside other East Mulberry Plan Area environmental protection
and transportation enhancements.
2.3.1 Future transportation and storm drainage projects
should be coordinated to assess design opportunities,
funding assessments, and impacts to adjacent
properties.
2.3.2 Stormwater and floodplain enhancements should
incorporate natural features while improving drainage
infrastructure by creating/improving natural areas,
wetlands, and wildlife corridors.
2.3.3 Storm drainage improvements to Dry Creek,
Cooper Slough and Boxelder Creek, will be designed
using nature-based solutions and constructed wetlands
to balance flood protection and environmental
enhancement of Nature Habitat buffering.
GOAL 2: STORMWATER
STRATEGY 3
Implementation Action Item:
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3 : GOALS & STRATEGIES
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GOAL 2: STORMWATER
2.N - I-25 Interchange
2.N.1 Accommodate improvements identified through stormwater master planning in new developments
in the area.
2.N.2 Construct future improvements to reduce flooding along Cooper Slough.
2.E - Residential Estate
2.E.1 Implement improvements identified through stormwater master planning to mitigate flooding in
the area.
2.E.2 Prioritize the study of localized drainage issues caused by the lack of stormwater infrastructure
and incorporate them into the City’s overall project prioritization list.
2.E.3 Add existing stormwater infrastructure within this character area to the maintenance schedule.
2.M - Residential Mixed
2.M.1 Ensure new residential areas have sufficient stormwater infrastructure. Coordinate with Larimer
County to determine when maintenance of public infrastructure should be transferred.
2.M.2 Implement improvements through stormwater master planning to mitigate flooding in the area.
2.T - Transitional
2.T.1 Implement recommendations identified in stormwater master planning efforts to reduce flooding in
the adjacent Airpark character area.
2.T.2 Develop a green infrastructure corridor through the the Transitional character area along Dry Creek
that can serve partially as a flood channel corridor.
2.T.3 Protect and improve the Lake Canal corridor.
Goal 2 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
2.A - Airpark
2.A.1 Address the lack of stormwater infrastructure available for redevelopment by conducting an
inventory, adding it to the maintenance schedule, and planning improvements based on the Citywide
prioritization list.
2.F - Frontage
2.F.1 Coordinate with CDOT to improve and maintain stormwater infrastructure between Mulberry Street
and the frontage roads.
2.F.2 Reduce flooding along Mulberry Street through future improvements identified through joint
stormwater master planning efforts.
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Goal 3 Plan and support safe and comfortable multi-
modal transportation infrastructure.
TRANSPORTATION
GOAL INTENT AND PURPOSE:
Transportation infrastructure in the East Mulberry
Plan Area will support walking, rolling, bicycling,
driving, and commercial activities. The connections
will focus on safety and comfort, especially for the
most vulnerable road users. Infrastructure design will
recognize business needs and utilize creative design
elements to ensure both efficient and safe travel for all
modes.
WHAT WE HEARD:
→Residents who rely on frontage roads know
that they are unsafe but worry the city will get
rid of the frontage roads entirely.
→Some business owners want to preserve access
to key business and manufacturing corridors,
like Lincoln Avenue.
→Some business owners are interested in
improved connectivity along East Mulberry
between I-25 and downtown Fort Collins.
→Transportation related infrastructure is needed
for all modes, especially pedestrian and bicycle
infrastructure, including improvements at key
intersections.
→Many residents voiced a desire for improved
bicycle and pedestrian connectivity to nature
trails, open green space, and downtown as
a priority. Some residents would like to see
neighborhood access for cars prioritized over
pedestrian and bike access routes. When considering future improvements to Lincoln Avenue,
consult design alternatives and concepts developed as part of
the Lincoln Corridor Plan (such as the graphic below).
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Item 3.
3 : GOALS & STRATEGIES
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Augment existing streets to create multi-modal connections that
support safe and comfortable mobility and traffic calming prior to
improving streets to Larimer County Urban Area Street Standards
(LCUASS).
Note on Fulfillment of this Strategy: According
to standards adopted by City of Fort Collins
and Larimer County, improvements to many
streets upon annexation either require resident
financial involvement or the street will be
added to a long capital improvement list with
a several-year wait. However, much of the
area currently lacks sidewalks and bike lanes –
necessary implements for safe travel. Strategies
will be explored to create safe infrastructure by
augmenting existing streets with improvements
that do not necessarily comply with LCUASS
standards. Also, traffic-calming techniques will
be explored for streets leading to existing and
future neighborhoods used by larger vehicles
traveling from commercial and industrial
land uses, reducing encroachment of heavy
truck traffic and other related traffic through
residential neighborhoods.
Prior to Annexation: Identify deficiencies
on all streets in the annexation area and
prioritize opportunities to augment with safe
infrastructure and traffic calming.
GOAL 3: TRANSPORTATION
WEST VINE STREET
NORTH LEMAY AVENUE
Protected
multi-use
path
Attached multi-
use path with
permeable curb
3.1.1 There are many State and Federal grants that focus
on bicycle and pedestrian safety that will be explored to
augment currently deficient streets in the East Mulberry
Plan Area.
STRATEGY 1
Implementation Action Items:
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Note on Fulfillment of this Strategy:
State Highway 14 (Mulberry Street) is a wide
4-lane arterial street that serves as a CDOT
designated trucking route (Denver to Laramie)
with frontage roads for business access.
Presently there are no sidewalks or bike lanes
along this stretch of road. The frontage roads
offer an opportunity for bicycle and pedestrian
access with creative design solutions on
relatively low-speed streets. And the generous
size of Mulberry provides opportunities for
dedicated transit lanes.
Prior to Annexation:
Coordinate with CDOT about design options and
schedule for the next maintenance or resurfacing
project for Highway 14.
Collaborate with CDOT, adjacent business owners and other
community stakeholders on the re-design or augmentation of Highway
14 (East Mulberry) and frontage roads for multi-modal transportation.
3.2.1 Coordinate with CDOT to evaluate the existing plan
to expand Mulberry to six travel lanes as identified in the
Access Management Report and the Master Street Plan.
3.2.2 The US 287/SH 14 Access Management Report shall
be updated to reflect the goals and strategies in the East
Mulberry Plan Area.
3.2.3 Continue to support East Mulberry Street as a primary
travel and freight corridor for businesses, shopping and
employment.
3.2.4 The Active Modes Plan calls for side paths (shared-
use for bicycles and pedestrians) along East Mulberry.
This infrastructure would support bicycle and pedestrian
travel on the frontage roads as well. Coordinate with
the Active Modes implementation team on design and
implementation of side paths on East Mulberry.
GOAL 3: TRANSPORTATION
STRATEGY 2
Implementation Action Items:
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Note on Fulfillment of this Strategy:
Annexation of the East Mulberry Plan Area
will likely happen in pieces and phases.
However, the timeline and extent are
unknown. This uncertainty introduces a
challenge to creating a transportation plan
and its implementation details prior to
annexation.
Prior to Annexation: Communicate
this intent with decision-makers as
they determine schedule and extent of
annexation.
Create a transportation-specific plan for the East Mulberry Plan
Area, analyzing transportation needs – focusing on multi-modal
travel, opportunities, and defining strategies for implementation.
GOAL 3: TRANSPORTATION
Note on Fulfillment of this Strategy:
The importance of this strategy is to be
transparent with all stakeholders being
annexed into the City of Fort Collins with
levels of maintenance they can expect. An
inter-governmental agreement between
Larimer County and the City of Fort Collins
generally says that streets need to be built
and maintained to City standards upon
annexation for the City to perform more than
minor maintenance. Some neighborhoods
have created Special Improvement Districts
to fund the improvement of their streets.
(See following page for more details.)
Prior to Annexation: The City of Fort Collins
will work with CDOT and Larimer County
to evaluate existing streets and understand
existing maintenance activities.
Plan and identify strategies, costs, funding, and timelines for City
acceptance of public streets for maintenance. This includes CDOT
right-of-way, existing and future improvement districts, and all
street classifications.
3.4.1 Identify funding and resources for a
transportation plan prior to annexation.
3.3.1 Identify funding and resources for a transportation
plan prior to annexation.
3.3.2 Encourage future City transportation plans and
studies to incorporate the East Mulberry Plan Area into
plan boundaries and evaluation criteria prior to annexation
to begin building data capacity and funding/prioritization
needs.
STRATEGY 4
STRATEGY 3
Implementation Action Item:
Implementation Action Item:
Infrastructure Standards
Developed land, or areas seeking voluntary annexation, must
have their infrastructure improved (e.g., streets, utilities and storm
drainage systems) to City standards, or must have a mechanism
(e.g. a special improvement district, capital improvements
program or other type project) in place to upgrade such services
and facilities to City standards before the City will assume full
responsibility for future maintenance.
*Larimer County Urban Area Street Standards (LCUASS): Appendix G
i
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GOAL 3: TRANSPORTATION
Mechanism of Public Improvements
Ongoing deterioration, maintenance, and repair of infrastructure has been a critical topic for the plan area since before the
2002 East Mulberry Plan was adopted. Timing for updates to aging infrastructure, maintenance responsibility, and what
changes with annexation often raises questions for residents and business owners.
One solution for adding clarity around these issues is the implementation of Improvement Districts. There are various
improvement districts that can be explored and established within the City: Special Improvement Districts (SID), Business
Improvement Districts (BID), General Improvement Districts (GID), and Metropolitan Districts (Metro Districts).
Special Improvement Districts
A Special Improvement District (SIDs) is used for one-time projects that will serve a particular area. The City Council can establish
SIDs on its own initiative without the affected property owners’ consent. However, their participation encouraging the City Council
to establish the SID is advisable. The cost to build the improvements are funded with “special assessments” imposed on the adjacent
properties that are expected to increase in value by the proposed improvement rather than funded with property taxes. SID special
assessments can therefore be imposed by the Council without a TABOR election. SIDs do not have a maintenance aspect, so the
expectation is that once the improvement is built, such as a street, the City accepts the improvement for future maintenance, repair
and replacement. SIDs should be initiated only when the adjacent properties are sufficiently developed to support the property
owners’ payment of the special assessments. Also, if the improvement is to be oversized to serve more than just the adjacent
properties, such as oversizing a street, this may require the City to separately fund the oversized portion.
i
General Improvement Districts (GIDs) can be set up to not only construct public improvements, but also to operate and
maintain them. GIDs can construct pretty much any public improvement the City can construct. A GID can only be established
if a significant percentage of the property owners within the boundaries of the proposed GID have signed a petition requesting
creation of the GID and then the creation must be approved in an election approved by the GID’s voters. Also, any taxes imposed
by the GID to fund its projects must be approved by the GID’s voters in a TABOR election. The Council is the governing board of the
GID. GIDs can include residential, commercial and industrial zoned properties.
i
Metro Districts are not established by the City, but typically by the developers of large developments and used by them to
help fund the public infrastructure for those developments. Metro Districts have a separate governing body, and their powers are
governed by a Service Plan that must be approved by the City Council. Service Plans approved by the Council typically limit the
Metro District’s authority and define the scope of its operation. A Metro District’s improvements are usually funded with a property
tax imposed on the properties and future development within the District. Some Metro Districts are dissolved after construction
of the public infrastructure has been completed and all related debt has been paid. However, some have a perpetual existence if
needed to fund the future operation, maintenance, or replacement of such infrastructure.
i
Business Improvement Districts (BIDs) are organized in a similar manner as GIDs, and they can impose property taxes
after a TABOR election. They can also impose special assessments without an election. BIDs can construct, maintain and operate
its public improvements like a GID can. However, BIDS are intended to be used for public improvements to serve commercial
business areas, so the boundaries of BIDs cannot include residentially zoned properties. The governing board of BIDs can either
be the Council or the Council can appoint electors from the BID to serve on the board, which are usually owners of commercial
properties within the BID.
i
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Item 3.
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Note on Fulfillment of this Strategy: This
plan provides a high-level view of intended
multi-modal transportation connections.
A more detailed transportation plan will
provide specific infrastructure and funding
recommendations.
Prior to Annexation: The city will identify
opportunities for improvements consistent
with jurisdictional boundaries such as
transit improvements, new development
improvements, and land owned by the City of
Fort Collins such as parks and natural areas.
Establish safe and direct multi-modal connections between
destinations/character areas within the East Mulberry Plan Area,
as well as primary travel corridors and to adjoining areas within
the City of Fort Collins such as Downtown, natural areas, and the
Mulberry & Lemay Crossings commercial area.
3.5.1 Prioritize capital improvement for Lincoln Avenue to
Timberline Street consistent with improvements west of
Lemay to serve as a multimodal connection between the
core of East Mulberry and the heart of Downtown.
3.5.2 Incorporate the existing and proposed bikeway and
pedestrian networks, as part of the transportation system,
along roadways as well as multi-use trails (off-street) just
outside of the natural habitat and features buffers along
Cooper Slough, Lake Canal, and other ditches.
3.5.3 Plan and design multi-use trails to function as both
recreational and transportation facilities for all skill and
user types, with well-connected trail access points to
surrounding developments, such as the adjacent Mountain
Vista and Poudre River areas.
3.5.4 Review and update the city’s Master Street Plan
consistent with the goals of this plan, City Plan, and newly
established development patterns.
3.5.5 Land use development will provide and allow for
a well-connected direct pedestrian / sidewalk system
and bike network from points of origin to destinations,
including transit stops along East Mulberry Street.
3.5.6 Lessen potential accidents between various
transportation modes by reducing points of conflict by
utilizing grade separated crossings at major roadways such
as the multi-use trail underpasses of East Mulberry Street
and by utilizing access management techniques. Update
the City’s Trails Strategic Plan accordingly.
3.5.7 Utilize the Active Modes Plan as a guide for all new
multi-modal infrastructure in the East Mulberry Plan Area.
GOAL 3: TRANSPORTATION
STRATEGY 5
Implementation Action Items:
S LEMAY AVE
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GOAL 3: TRANSPORTATION
Transportation Framework Map
Full description and discussion of the Transportation Framework Map can be found in Section 4 of the Plan.
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Note on Fulfillment of this Strategy:
Transfort already serves this area with Route
14 at 1 hour increments. The Transit Master
Plan calls for 30-minute local service on East
Mulberry. However, the plan area represents
an opportunity for regional commuters to
either park their vehicles or transfer from
regional transit to local service bringing
them to and from Downtown and other
employment destinations.
Please note that the implementation of
transit service is typically based on demand
which is created from housing and jobs.
The Transit Master Plan outlines densities
needed to provide various levels of service.
However, this is not always the case when it
comes to park-n-rides and regional service
so commuting patterns and opportunities to
provide service to commuters will continue
to be monitored.
Prior to Annexation: Transfort will continue
to evaluate opportunities to implement
the Transit Master Plan as it relates to East
Mulberry.
Improve transit service to the East Mulberry Plan Area
consistent with goals in the Transit Master Plan.
3.6.1 A mobility hub with a park-n-ride should be located
near the I-25/SH 14 Interchange and should be integrated
with transit service connections.
3.6.2 Improve existing bus stops to ensure safe ADA access.
3.6.3 Include transit planning in the transportation-specific
plan for the East Mulberry Plan Area. Consider opportunities
for high-frequency/BRT service and bus-only lanes.
GOAL 3 - TRANSPORTATION
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Page 235
Item 3.
3 : GOALS & STRATEGIES
64EAST MULBERRY PLAN
1.A - Airpark
a. Plan for safe pedestrian and bicycle infrastructure in an area that continues to cater to industrial
and commercial vehicles.
b. Connect the Airpark character area with the rest of the community by prioritizing capital
improvements on Lincoln Avenue, following the design model of Lincoln Avenue east of Lemay
Avenue.
c. Evaluate and amend the Master Street Plan to prioritize connections within this character area and
to surrounding areas.
d. Prioritize pedestrian-friendly infrastructure such as landscaping, trees, and sidewalks, along Link
Lane and Lincoln Avenue.
1.F - Frontage
a. Identify opportunities to enhance Mulberry Street and its frontage roads for safe bicycle and
pedestrian infrastructure.
b. Plan for future enhanced transit service in the corridor, including potential bus-only lanes for Bus
Rapid Transit (BRT) service.
1.N - I-25 Interchange
a. Collaborate with CDOT to redesign and reconstruct the I-25 & Mulberry interchange, incorporating
design enhancements that align with Fort Collins’ character.
b. Improve safety, multimodal options, and efficiency for accessing and crossing I-25.
c. Establish a Park & Ride / Mobility Hub for regional services at the I-25 & Mulberry interchange.
1. E - Residential Estate
a. Ensure safe, comfortable, and convenient connections for pedestrians, cyclists, and other modes
of transportation between residential areas, commercial areas, and natural areas.
b. Enhance or expand multimodal options along Summit View Drive.
c. Evaluate and work with neighborhoods on desired frontage improvements (sidewalks, curb &
gutter) along rural residential streets.
1. M - Residential Mixed
a. Ensure safe, comfortable, and convenient multimodal connections between residential areas,
commercial areas, and natural areas.
b. Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and continuing north, in
alignment with the future Strategic Trails Plan in 2024.
1. T - Transitional
a. Extend International Boulevard to Cordova Road.
b. Extend Airpark Drive to International Boulevard and amend the Master Street Plan accordingly.
c. Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and continuing north, in
alignment with the future Strategic Trails Plan in 2024.
Goal 3 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 3: TRANSPORTATION
Page 236
Item 3.
3 : GOALS & STRATEGIES
65EAST MULBERRY PLAN
Goal 4 Increase access for residents and businesses to
community amenities & services.
COMMUNITY AMENITIES & SERVICES
GOAL INTENT AND PURPOSE:
There is a need for increased availability and access to
amenities and services within the East Mulberry Area.
This includes access to daily needs such as a grocery
store, but also the types of services that can assist in
making this area safer and more connected to the rest
of Fort Collins.
WHAT WE HEARD:
→Many residents want a closer grocery store
and access to more community amenities
such as parks, schools, and trails.
→There are safety concerns with drug
use, vandalism, and some instances of
homelessness.
→Some residents are interested in having
more options for affordable and stable
internet connectivity including broadband.
E LINCOLN AVENUE
Page 237
Item 3.
3 : GOALS & STRATEGIES
66EAST MULBERRY PLAN
Increase community policing resources and safety within the
East Mulberry Enclave.
Note on Fulfillment of this Strategy:
When any portions of the East Mulberry
Enclave annex into the City of Fort Collins,
they may be immediately served by Fort
Collins Police Services, or depending on
the size and anticipated call volume of the
potential annexation area, may require a
transition over time. Therefore, fulfillment
of this strategy depends on annexation
and potential agreements with other law
enforcement agencies. This is explored
further in the Implementation Action
Items for this strategy. The City’s policing
programs such as the Patrol, Traffic Unit,
detectives, Homeless Outreach and Proactive
Engagement Team (HOPE), Neighborhood
Engagement Team (NET), and Mental Health
Response Team (MHRT) can be deployed to
help address safety issues in this area once
new personnel are hired and trained.
Prior to Annexation: Fort Collins Police
Services (FCPS) will continue to partner with
the Larimer County Sheriff’s Department
(LCSO) and the Colorado State Patrol (CSP)
to understand the safety concerns and
response needs of this area.
GOAL 4: COMMUNITY AMENITIES & SERVICES
4.1.1 To prepare for annexation, ideally Fort Collins Police
Services (FCPS) will have 18 to 24 months of lead time
to hire and train officers to adequately cover the newly
annexed area. As soon as the geographic area of a potential
annexation is determined, FCPS analysts will determine the
number of officers needed to serve the area. It has been
determined that full annexation of the entire East Mulberry
Enclave would lead to a 10% increase in calls for service
(2022 data). That increase will require 23 police officers
supported by 12 varied professional staff members.
Hiring processes take six (6) months with an additional
twelve (12) months of training. Therefore, a full annexation
of the entire East Mulberry Enclave would require FCPS
to have authorization for 35 employees. As previously
stated, FCPS requires 18 to 24 months from the moment an
annexation is certified until officers can be in place to serve
a newly annexed area. This timeframe is also influenced by
alignment with basic training academy cycles.
4.1.2 The staffing needs of a threshold annexation must
be evaluated by the call data in the areas/zones proposed
for annexation. Staffing increases will be based upon that
percentage increase.
4.1.3 Annexation (full or phased in threshold annexations)
may be supported by later introduction of police services if
FCPS is able to enter into mutually beneficial agreements
with Larimer County Sheriff’s Office (LCSO) and Colorado
State Patrol (CSP) for their continued corridor responsibility
during FCPS’ hiring and training of new personnel. However,
no funding exists to pay such contracts and would need to
be added to the FCPS budget in addition to the funding
for the personnel. That “contract” funding would expire as
the new FCPS personnel took over responsibility for any
annexed area/zone.
Implementation Action Items:
STRATEGY 1
Page 238
Item 3.
3 : GOALS & STRATEGIES
67EAST MULBERRY PLAN
Implementation Action Item:
Note on Fulfillment of this Strategy:
While future City parks and trails require
annexation prior to development, proactive
master planning and identification of potential
locations will continue before annexation occurs
as City policy plans are updated.
Increase access and availability of public amenities that contribute to
the wellbeing and quality of life for individuals and neighborhoods,
including but not limited to green spaces, recreational parks, schools,
pedestrian and bike trails, and natural areas.
4.2.1 Incorporate the East Mulberry Enclave into
future parks, recreation, and trails master planning
and encourage Poudre School District and new
developments to incorporate schools and other
amenities that are accessible to plan area residents.
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 2
In the Mosaic Neighborhood, future parks have been identified to facilitate amenities for the local neighborhood
Page 239
Item 3.
3 : GOALS & STRATEGIES
68EAST MULBERRY PLAN
Note on Fulfillment of this Strategy:
When portions of the East Mulberry
Enclave annex into the City, a zoning
district will be assigned to annexing
parcels. The Framework Plan within this
document (Section 4 of this document)
outlines a series of Place Types that will
preserve existing commercial uses and
ensure future commercial uses, such as a
grocery store, can be accommodated.
Prior to Annexation: The Framework Plan
will be used by both the City and Larimer
County to influence referral comments
and land use decisions regarding
development in Larimer County that do
not yet trigger annexation into the City.
The East Mulberry Area will designate areas for commercial
development that serve both the broader community and region
and support the daily needs of residents and businesses.
GOAL 4: COMMUNITY AMENITIES & SERVICES
4.3.1 When annexation of an area is planned, the zoning
designation in the County will generally match the zone district
applied upon annexation into the City. Existing businesses
within the enclave will generally be able to continue to operate
no matter the zoning designation applied upon annexation.
4.3.2 The City will continue to support Neighborhood
Commercial (NC) zoning near the Mulberry and Greenfields
intersection to encourage a central location in the corridor for
a grocery store. Staff and decision-makers should also look
favorably upon other non-residential areas of the East Mulberry
Plan Area for opportunities for grocery stores, pharmacies, and
other neighborhood supporting retail.
4.3.3 Prior to any annexation, staff will communicate regularly
with affected businesses and residents within and surrounding
the area to offer ample time to discuss any effects of
annexation. Staff can also be available to discuss any potential
changes prior to any annexation decisions to allow businesses
to plan for changes that may affect them upon annexation.
The annexation threshold process, including communication
strategies in advance of any potential annexations, are
described in Section 5 of this document.
Implementation Action Item:
STRATEGY 3
Page 240
Item 3.
3 : GOALS & STRATEGIES
69EAST MULBERRY PLAN
Provide residents and businesses with upgraded levels of service
over time and as annexation occurs.
Note on Fulfillment of this Strategy:
Like other strategies contained within
this plan, fulfillment is dependent on
annexation into the City of Fort Collins.
Specifically related to this strategy, it is
important to distinguish between new
development occurring within newly
annexed areas and existing, established
areas. Newly developing areas, or areas
where a site will be totally redeveloped
will be required to meet full development
standards required by the City, including
constructing/reconstructing roadways that
meet full LCUASS (Larimer County Urban
Area Street Standards) establishing other
electric and stormwater infrastructure
that meets City standards at the time
of development. The areas of the East
Mulberry Enclave impacted by new
development or total site redevelopment
will receive upgraded levels of service
through the development process. Existing
neighborhoods and other areas where new
development or redevelopment may not
occur will take longer to receive upgraded
levels of service as those areas are annexed
into City Limits.
4.4.1 On public roads, the City of Fort Collins will maintain
roadways at the same level they are maintained by Larimer
County at the time of annexation. That means there may be
roads that receive very minimal improvements. For these areas,
Special Improvement Districts may be formed proactively
by property owners or required by the City or County to
reconstruct failing streets. The primary goal of an improvement
district would be to improve existing streets to Larimer County
Urban Area Street Standards, at which point the City would
begin and continue to provide full street maintenance.
4.4.2 Implement Light & Power infrastructure and service in
newly annexed areas as expeditiously as feasible. When areas
are identified for potential annexation, the land use composition
and potential service requirements of the area will be evaluated
to determine service needs. Each potential annexation area
will be evaluated based on proximity to existing Light & Power
Infrastructure within City Limits and if there is the ability to tie
into existing infrastructure or if build-out of new infrastructure is
required.
The time required to assess service needs of a potential
annexation area can be completed during the analysis period
after an annexation threshold has been identified. Once an area
or zone has been established for annexation and service needs
are understood, a detailed assessment of the area will require
at least six months to develop a plan for infrastructure layout
and installation. Coordination of infrastructure with Platte River
Power Authority (PRPA), the public power utility that serves Fort
Collins, may require additional time before service can begin.
The coordination required with PRPA and any implications on
the timeline will be discovered and explored during the analysis
period when infrastructure needs are under study. Coordination
with external agencies such as PRPA may require between 2 to 4
years to assure coordination of electric transmission facilities.
Evaluation of new infrastructure needs will ensure that any
newly served areas meet Light & Power service standards at the
time service begins.
Implementation Action Items:
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 4
Page 241
Item 3.
3 : GOALS & STRATEGIES
70EAST MULBERRY PLAN
Implementation Action Items:
4.4.2 (continued) Once the evaluation of infrastructure needs
assessment is complete, it may take several years before
service is transferred to Fort Collins Light & Power. With a
plan developed, an associated budget must be approved
as part of the normal two-year financial cycle for necessary
capital projects. For service lines that are above ground,
moving these lines underground may take additional time
after service is transferred.
When an area is set to be annexed and following study of
infrastructure service requirements and timelines, staff will
update residents and businesses impacted by annexation with
an estimate of when their property will be served by Light &
Power. This communication will be important in establishing
realistic expectations for when service can be provided.
4.4.3 Expand Connexion broadband services to the East
Mulberry Area as annexation occurs and infrastructure
connections are possible.
4.4.4 Reduce flood risk and other floodplain encumbrances
on both public and private property through improved
drainage infrastructure. Future storm drainage projects
that minimize ongoing flooding issues within the East
Mulberry Area will reduce impacts to property and over
time can provide an increase in service compared to current
conditions. (See Goal 2)
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 4
CONTINUED
DETENTION AREA LOCATED AT
THE LINCOLN AVE & CORDOVA RD
ROUNDABOUT.
Page 242
Item 3.
3 : GOALS & STRATEGIES
71EAST MULBERRY PLAN
GOAL 4: COMMUNITY AMENITIES & SERVICES
4.A - Airpark
a. Maintain the diversity of businesses and services along Link Lane to continue serving as an activity
center.
b. Address and work to mitigate floodplain encumbrances on individual property owners.
4.F - Frontage
a. Encourage grocery stores or other neighborhood-serving retail to locate in the East Mulberry Plan
Area, supporting daily needs of residents and businesses.
b. Implement principles of 15-minute cities along this corridor.
4.N - I-25 Interchange
a. Increase availability of specialized and general police services to enhance safety, improve
response times, and provide proactive and community-based law enforcement services.
4.E - Residential Estate
a. Improve the quality of services over time, including street infrastructure, utilities, and broadband
availability.
b. Provide education on Code Compliance and City incentive programs to the community.
c. Increase access to existing natural areas, trails, schools, and other nearby amenities, while also
encouraging new amenities where contextually appropriate.
4.M - Residential Mixed
a. Improve the quality of services over time, including street infrastructure, utilities, and broadband
availability.
b. Provide education and resources to neighborhoods about Code Compliance and City incentive
programs.
c. Increase access to existing natural areas, trails, schools, and other surrounding amenities while
also encouraging new amenities where contextually appropriate.
4.T - Transitional
a. Continue engaging community members to help formulate the vision for this area, including the
possibility of event/convention spaces, including the possibility of event/convention spaces, based
on feedback received during Staff outreach efforts.
b. Explore the potential for institutional services and amenities, such as trails, roadway connections,
utilities, natural areas, and gathering spaces, along the Dry Creek corridor.
Goal 4 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
Page 243
Item 3.
3 : GOALS & STRATEGIES
72EAST MULBERRY PLAN
Goal 5 Explore mechanisms to maintain housing
affordability and existing character of
residential neighborhoods.
HOUSING
GOAL INTENT AND PURPOSE:
The East Mulberry Plan Area features a diverse assortment
of housing with varying styles, ages, and price points.
From areas with a mix of single-family homes, duplexes,
and triplexes, to manufactured housing communities,
apartment complexes, and large acreages with farm
animals, the plan area is home to a wide variety of
neighborhoods.
As new development, infrastructure investment, and
potential annexation occurs within the East Mulberry Plan
Area, it is important to establish strategies to promote
livability and the unique characteristics that originally
drew residents to live in the plan area, whether due to
its relative affordability, opportunity for a more rural or
relaxed county lifestyle, or the proximity to employment
opportunities and other nearby City amenities.
WHAT WE HEARD:
→Many residents moved to the plan area
for a more relaxed feel and rural lifestyle
and feel annexation and City rules &
enforcement may jeopardize this lifestyle.
→Residents in manufactured housing
communities are interested in the City’s
mobile home parking zoning to discourage
redevelopment and displacement of their
mobile home parks.
→Neighbors are simultaneously concerned
about deteriorating infrastructure and road
maintenance in certain neighborhoods as
well as the costs to fix these issues.
Page 244
Item 3.
3 : GOALS & STRATEGIES
73EAST MULBERRY PLAN
Note on Fulfillment of this Strategy:
For established Larimer County
neighborhoods, this strategy is contingent
upon annexation into the City. In the interim,
land use regulations, code enforcement
responsibilities, and infrastructure and
streetscape requirements are determined
by Larimer County. While small changes and
natural neighborhood evolution over time
is expected, large changes to intensity or
appearance of established neighborhoods
should be minimized.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments that would limit larger changes to
the look and feel of existing neighborhoods.
GOAL 5: HOUSING
Implementation Action Items:
5.1.1 Upon annexation, designate City zone districts and
land uses that closely resemble development patterns
originally established in Larimer County. Staff and
decision makers should be especially mindful to maintain
similar intensity and character in neighborhoods with an
established rural setting.
5.1.2 Staff and decision-makers should favorably consider
additional flexibility to maintain or compatibly expand
the keeping of farm animals in neighborhoods with a rural
setting or demonstrated livestock history.
5.1.3 Unless otherwise required for safety and accessibility,
frontage improvements such as tree lawns, curb and
gutter, and sidewalks should not be required in more rural
neighborhoods along low traffic roadways to maintain the
established streetscape.
Implementation Action Items:
5.2.1 Upon annexation, zone existing mobile home parks
into the Manufactured Housing zone district to discourage
redevelopment and the displacement of residents.
5.2.2 Connect and educate park owners and residents
to City resources such as neighborhood mini-grants and
the City’s mobile home park liaison that can help address
infrastructure and livability needs.
Preserve and enhance existing mobile home parks.
Note on Fulfillment of this Strategy:
City land use controls and certain City mobile
home park program and grant funding are
only available after annexation occurs.
Prior to Annexation: Continue to partner with
Larimer County and community organizations
to extend grant opportunities, neighborhood
programs, and infrastructure planning to
mobile home park owners and residents.
Utilize character area designations to maintain similar land use
and streetscape character in established neighborhoods.
STRATEGY 2
STRATEGY 1
MOSAIC ENTRANCE TO THE PARK ALONG
COLLINS AIRE LN
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Mobile Home Park Resources: Beyond preservation,
the City of Fort Collins’ Neighborhood Services department
provides support for enhanced livability and support for park
or individual unit upgrades through grant opportunities. Visit
the Neighborhood Services website to learn more about:
• Mobile Home Park Residents’ Handbook
• Dispute & Complaint Resolution Services
• Neighborhood Mini-Grant Opportunities
• Training & Legal Advice from Partner Agencies
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COLLINS AIRE MOBILE HOME PARKVILLAS MOBILE HOME PARK
GOAL 5: HOUSING
Manufactured Housing Preservation
Manufactured or mobile homes feature many of the
benefits of stick-built single unit dwellings such as first
floor living and entries, the privacy of an individual
unit, and smaller semi-private yards and garden areas.
In addition, manufactured housing communities are
often considered a natural source of affordable housing
with comparable costs to deed-restricted affordable
housing units.
While manufactured housing communities feature
many benefits, they can also create uncertainty for
residents who may own their units but lease the
land underneath, which could result in displacement
if a mobile home park unexpectedly closes or is
redeveloped.
The City of Fort Collins supports and encourages
the retention of existing mobile home parks to help
preserve this unique and limited form of housing and
as a strategy to support naturally occurring affordable
housing in the community. Local efforts include grant
support and resident organizing/training through the
City’s Neighborhood Services department and land use
controls through zoning.
Manufactured Housing (MH) Zoning
The City’s Manufactured Housing (MH) zone district
was developed to discourage redevelopment
of existing parks by limiting opportunities for
redevelopment into other competing land uses, such as
commercial or multifamily development. Manufactured
housing communities are the primary land use
permitted in the MH zone district and sends a strong
policy signal to current and future landowners and
residents that the City encourages this type of land use.
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Implementation Action Items:
5.3.1 Perform outreach prior to and after annexation to
educate residents and neighborhoods about Neighborhood
Services programs and services such as mediation,
neighborhood mini-grants, Adopt-A-Neighbor, and more.
Educate and promote City services, programs, and code
enforcement expectations to neighbors.
Note on Fulfillment of this Strategy:
The City has many different programs, grants,
and neighborhood resources as well as code
enforcement opportunities which are generally
only available or enforced upon annexation.
Prior to Annexation: Before annexation occurs,
the City can begin to educate neighbors on
upcoming services and code enforcement
expectations. For programs, grants, and other
services that are available to the Growth
Management Area, greater promotion should be
directed towards the East Mulberry Plan Area.
GOAL 5: HOUSING
Periodically evaluate mitigation and redevelopment strategies
for existing sources of attainable and affordable housing.
Note on Fulfillment of this Strategy:
Many neighborhoods in the East Mulberry Plan
Area feature a range of affordable and attainable
housing options, from mobile home parks
deed-restricted rental options in developing
neighborhoods. Over time and as residential
areas are annexed into the City, a periodic review
of housing options and price points should take
place to better understand and evaluate the
full spectrum of housing options, prices, and
redevelopment and displacement risk in the plan
area. The specific application of any strategies
may only be possible once an area is annexed
into the City.
Prior to Annexation: Continue to include the East
Mulberry Plan Area into relevant City housing
data monitoring and policy updates.
Implementation Action Items:
5.4.1 Periodically update the ‘Equity and Opportunity
Analysis’ with East Mulberry Plan Area data to evaluate
gentrification and redevelopment risks.
5.4.2 Use a data-driven approach to apply counter-
displacement strategies, as appropriate, after annexation
of vulnerable neighborhoods. Counter-displacement
strategies could include strategies such as preservation of
mobile home parks and other naturally-occurring sources
of affordable housing.
STRATEGY 3
STRATEGY 4
5.3.2 Educate and promote City code enforcement
standards with residents and neighbors prior to beginning
proactive and graduated enforcement activities.
Improvement Districts: As part of educating neighbors prior to and after annexation, the City and Larimer County can work
proactively with neighborhoods to educate and/or promote Improvement Districts as a potential long-term maintenance structure
for neighborhood infrastructure and amenities. See information about various types of Improvement Districts under Goal 3.
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Note on Fulfillment of this Strategy:
As new development occurs in the
East Mulberry Plan Area there will be
opportunities to promote strategic
locations for neighborhood services
such as grocery stores and childcare or
to create and enhance transportation
connections to existing amenities.
Fulfillment of this strategy will partially
depend upon annexation and (re)
development opportunities in the plan
area.
Prior to Annexation: Staff should provide
referral comments to Larimer County when
new development is proposed outside city
limits so as to achieve connectivity and
amenity-driven goals.
GOAL 5: HOUSING
5.5.1 As community-wide policy plans are updated, identify
locations in the East Mulberry Plan Area for public and
institutional amenities such as parks, recreation facilities,
and satellite government offices/services.
5.5.2 Preserve supportive land use opportunities in the
plan area that allow for mixed-use and retail development
near existing and future neighborhoods. Maintain a focus
on opportunities for a grocer to locate within the plan area.
5.5.3 Utilize the plan area’s existing and future public lands
(parks, regional stormwater detention, natural areas, etc.)
to promote greater multimodal connectivity and access to
amenities and destinations internal to the plan area and
externally to the remainder of the community.
Implementation Action Items:
Implement 15-Minute City strategies to promote complete
neighborhoods with improved access to neighborhood
supporting amenities and destinations.
15-Minute Cities Graphic from 15-Minute City Analysis
E-Micromobility refers to electric transportation like scooters or bikes.
STRATEGY 5
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5.A - Airpark
a. Preserve the existing Nueva Vida mobile home park through land use guidance and zoning upon
annexation into the City.
b. Support the existing Nueva Vida mobile home community in pursuing necessary upgrades and
services.
5.F - Frontage
a. Not applicable.
5.N - I-25 Interchange
a. Not applicable.
5.E - Residential Estate
a. Maintain the Southern Residential (Estate) character area as neighborhoods with lower
development intensity and a rural look and character.
b. Preserve the existing Villas mobile home park through land use guidance and zoning upon
annexation into the City.
5.M - Residential Mixed
a. Preserve the “missing middle” housing that already exists in this area and encourage inclusion of
diverse housing types in new developments.
b. Preserve the existing Collins Aire mobile home park through land use guidance and zoning upon
annexation into the City.
5.T - Transitional
a. Not applicable.
Goal 5 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 5: HOUSING
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GOAL INTENT AND PURPOSE:
Fort Collins has a long history of protecting and
enhancing existing natural and cultural resources, and
the community’s leadership continues to reinforce
environmental stewardship and conservation as core
values. From areas with natural habitat characteristics,
and cultural assets, these areas can be found throughout
the East Mulberry Plan Area, including, along the Cooper
Slough, the Poudre River watershed, as well as adjacent
ditches, wetlands, and undeveloped greenfield.
As new development, infrastructure investment, and
potential annexation occurs within the East Mulberry Plan
Area, it is important to establish strategies that support
Fort Collins’ commitment to natural and cultural resources
conservation. Recognizing that the East Mulberry Plan
Area’s long history of development has had unintended
impacts to existing natural resources, the Plan’s strategies
seek solutions that utilize nature-based solutions and
protection of existing natural and cultural assets.
Goal 6 Protect and promote natural, historic, and cultural
resources that support a cohesive and resilient
community using nature-based solutions.
HISTORIC, CULTURAL, & NATURAL FEATURES
WHAT WE HEARD:
→Residents would like to preserve natural
space and promote outdoor recreation.
→The community has a concern about loss
of natural resources and cultural spaces to
development.
COOPER SLOUGH
Nature Based Solutionsi
refer to actions that incorporate
natural features or processes into
the built environment. Nature-based
solutions can be implemented within
design, planning, and environmental
management practices to improve
resilience and achieve other benefits
such as reducing flood risk, restoring
wetlands, creating new recreational
spaces, improving water quality, and
more.
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GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Protect and enhance existing natural habitats and features
(including the Poudre River, Dry Creek, Cooper Slough, and
Boxelder Creek) and significant historic and cultural resources
through buffer standards and nature-based design.
Implementation Action Items:
6.1.1 Protect and enhance existing wetlands, naturalized
stormwater features, and associated natural habitat buffers
zones using nature-based solutions and green infrastructure
design principles that build community resilience to climate
change. Proposed development must not negatively impact
the integrity of these existing features.
6.1.2 Improve water quality and reduce flooding by restoring,
enhancing, and protecting the ecological function of natural
habitats and features within the East Mulberry Plan Area to
the maximum extent feasible.
6.1.3 Where a multi-use trail underpass is identified, the
design of the facility should also consider such underpass
to be a potential wildlife movement corridor and should be
designed to accommodate such habitat value.
Note on Fulfillment of this Strategy:
This strategy aligns with existing Land
Use Code sections, and contingent upon
annexation, staff will establish predictable
linkages with stormwater goals/strategies
to clearly define nature-based design
strategies.
Prior to Annexation: Work proactively
with Larimer County to provide input and
referral comments that would limit larger
changes to the look and feel of existing
neighborhoods.
STRATEGY 1
POUDRE RIVER TRAILPOUDRE RIVER
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Implementation Action Items:
6.2.1 Enhance existing drainageways and natural areas
to create an interconnected system of open lands and
Greenways.
6.2.2 Enhance linkages to existing natural features and
manmade infrastructure providing a comprehensive system
for drainage, habitat, transportation and recreational
purposes.
6.2.3 Based on both the current travel demand modeling
results and existing natural resources within the Cooper
Slough drainageway, Weicker Drive will not extend across
the Cooper Slough from the industrial park to the east, to
the planned extension of Greenfields Court to the west.
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Preserve, enhance, and improve connections of the existing
natural and manmade open lands system to provide a
comprehensive system for drainage, habitat, transportation,
and recreational purposes.
Greenways are corridors of protected open space
managed for both conservation and recreation.
Greenways often follow rivers or other natural
features. They link habitats and provide networks of
open space for people to explore and enjoy.
Stormwater parks are recreational spaces that
are designed to flood during extreme events and
to withstand flooding. By storing and treating
floodwaters, stormwater parks can reduce flooding
elsewhere and improve water quality.
Note on Fulfillment of this Strategy:
Spending time outdoors can contribute
to improved physical health, emotional
well-being, and cognitive function. By
enhancing natural and manmade open
areas the Plan aims to create habitats for
biodiversity, providing not only buffering
in-between development but also places
where people can feel a sense of wonder.
The City will be able to apply best practice
strategies to the resources within the East
Mulberry Plan Area as future annexations
occur.
Prior to Annexation: Work proactively
with Larimer County to provide input and
referral comments that would limit larger
changes and impacts to existing natural
resources and open spaces.
STRATEGY 2
POUDRE RIVER WHITEWATER PARK
(DOWNTOWN)
POUDRE RIVER
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Item 3.
3 : GOALS & STRATEGIES
81EAST MULBERRY PLAN
Provide a vital connection to the Poudre River and regional
trail system, while protecting the recognized sensitive natural
areas by maintaining responsible public access.
Implementation Action Items:
6.3.1 Involve property owners, ditch companies and railroads
in the planning of park and trail facilities.
6.3.2 The interface, between the Poudre River riparian
habitat and development along East Mulberry Street, should
be coordinated to retain environmental quality, encourage
wildlife habitat and, where impacts can be appropriately
buffered, provide recreational use.
STRATEGY 3
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Note on Fulfillment of this Strategy:
Preserving and enhancing equitable access
to the Poudre River recognizes the
essential role that Poudre River has in
creating and maintaining a thriving and
healthy community. Prior to additional
portions of the Poudre River annexing
into the City of Fort Collins, continue to
collaborate with stakeholders to manage
this resource.
Prior to Annexation: Work proactively
with Larimer County to provide input and
referral comments to prevent any decrease
in access to the Poudre River beyond the
existing conditions.
“The Interface”
EAST MULBERRY
DEVELOPMENT
POUDRE RIVER
RIPARIAN HABITAT
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GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Improve and increase appropriate public access to open spaces
and natural features.
Identify new areas for parks and natural areas to purchase.
Implementation Action Items:
6.4.1 Continue to provide environmental, recreational and
transportation benefits to the community through the
existing system of open lands.
6.4.2 Proposed parks and trails should be integrated with
the Citywide system, including facilities in the adjacent
Mountain Vista and Poudre River areas.
Implementation Action Items:
6.5.1 Prioritize land conservation as a way of preserving
and improving interconnected systems of open space that
sustain healthy communities. As an example, the Cooper
Slough’s natural drainageways, wetlands, and wildlife
habitat will be preserved and protected.
6.5.2 The East Mulberry Plan Area will be served by parks,
multi-use trails, and other recreational facilities to support
existing and planned neighborhoods, and to integrate
with other facilities within the community.
STRATEGY 4
STRATEGY 5
Note on Fulfillment of this Strategy:
Preserving and enhancing appropriate and
equitable access to open spaces and natural
features recognizes the essential role that natural
habitat buffers have in creating and maintaining
thriving communities. Like other strategies in the
Plan, fulfillment depends upon annexation to apply
the City’s preferred management strategies.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments to prevent any decrease in access to
the open spaces and natural features beyond the
existing conditions.
Note on Fulfillment of this Strategy:
Urban natural areas help to meet the need for
increasing everyone’s access to nature. Urban
natural areas provide islands of habitat in the urban
environment that benefit wildlife as well as people
seeking a close-to-home connection with nature.
All urban natural areas serve a stormwater function
to reduce flooding in nearby neighborhoods. Full
realization of this strategy depends on annexation.
Prior to Annexation: Time, location, and cost were
the three greatest barriers to increasing access to
nature identified in the “Plug in to Nature Study,”
conducted in Larimer County (Design Workshop
2012).
POUDRE RIVER TRAIL
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Item 3.
3 : GOALS & STRATEGIES
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GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Increase urban tree canopy.
Implementation Action Items:
6.6.1 Protect and preserve trees wherever possible and
mitigate and/or plant trees beyond the minimum requirements
stipulated by the Fort Collins Municipal Land Use Codes
and Larimer County Street Standards to create healthy and
resilient people and tree populations.
STRATEGY 6
Note on Fulfillment of this Strategy:
Although the City can continue to work
proactively with Larimer County on referral
comments for projects within the East
Mulberry Plan Area, full implementation
of this strategy depends on when areas
are annexed and under City jurisdiction to
implement them.
Prior to Annexation: Work proactively
with Larimer County to provide input and
referral comments that would limit larger
changes to the quantity and quality of the
existing urban tree canopy.
Trees as Community Infrastructure - Trees are essential
ecological, cultural and socioeconomic resources for the City,
its residents and visitors. The benefits provided by a diversified
and abundant community forest are many and include:
• Releasing oxygen and capturing air pollutants and carbon
dioxide;
• Maintaining slope stability and preventing erosion;
• Filtering stormwater and reducing stormwater runoff;
• Reducing energy demand and the urban heat island effect
through shading of buildings and impervious areas;
• Providing visual screening and buffering from wind, light,
and noise;
• Sustaining habitat for birds and other wildlife;
• Providing a source of food for wildlife and people;
• Maintaining property values; and
• Contributing to the community health, appeal, beauty,
character, and heritage of the City.
i
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Item 3.
3 : GOALS & STRATEGIES
84EAST MULBERRY PLAN
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Support the persistence, visibility, and physical integrity of significant
historic places and cultural features that maintain a continuous sense
of place throughout the ongoing evolution of the plan area.
Implementation Action Items:
6.7.1 Existing man-made irrigation ditches and canals,
should be enhanced to provide multi-use trails where
feasible; including preservation of existing native vegetation,
addition of new native landscaping and trails, and utilization
of other site amenities to create an open lands system.
6.7.2 Identify historic resources of primary importance
and anticipate strategies for adaptive reuse while working
closely with and using input from community members to
identify cultural resources for preservation.
STRATEGY 7
ROSELAWN CEMETERY
SUPERMARKET LIQUORS
CHARCO BROILER
Note on Fulfillment of this Strategy:
Application of the City’s Municipal Code,
Land Use Code, and Design Standards and
Guidelines pertaining to historic buildings
and structures is dependent on areas being
under City jurisdiction.
Prior to Annexation: Work proactively
with Larimer County to provide input and
referral comments that would limit larger
changes to the look and feel of existing
neighborhoods.
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Item 3.
3 : GOALS & STRATEGIES
85EAST MULBERRY PLAN
6.A - Airpark
a. Incorporate naturalized stormwater features that align with the spirit of protecting natural habitats
as specified in the Land Use Code.
b. Promote nature-based solutions at the neighborhood level, including along parkways, trail systems,
and common areas.
c. Celebrate and enhance the history of the Airpark and its significance in the development of
Northern Colorado by recognizing and preserving remaining historic resources.
d. Support and incentivize urban design elements that create a cohesive character identity based on
the history of the Airpark area.
6.F - Frontage
a. Enhance the urban tree canopy and establish tree buffer zones along I-25 to mitigate noise and
improve aesthetics.
b. Promote the use of green infrastructure approaches, such as bioswales, rain gardens, and urban
forests, in public and private development projects.
c. Preserve recognizable historic buildings, site features, and signage of legacy businesses that have
contributed to the corridor’s commercial success.
6.N - I-25 Interchange
a. Maintain the existing 300-foot Natural Habitat Buffer Zone (NHBZ) along Cooper Slough.
b. Consider aligning future Urban Area Zones and stormwater master plans with the Natural Areas
department.
c. Enhance the urban tree canopy and establish tree buffer zones to reduce noise and enhance
aesthetic features.
d. Promote nature-based solutions at the neighborhood level along parkways, trail systems, and
common areas.
e. Use interpretive signage to recognize the agricultural, industrial, and commercial history of the
corridor as travelers enter from the highway.
Goal 6 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
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Item 3.
3 : GOALS & STRATEGIES
86EAST MULBERRY PLAN
6.E - Residential Estate
a. Ensure equitable access to natural areas in the western extent of this character area.
b. Continue to protect and buffer the remaining pockets of habitat features along the Cooper
Slough.
c. Enhance the tree canopy in this character area.
6.M - Residential Mixed
a. Continue to buffer and enhance Natural Habitat Buffer Zones in new development.
b. Promote nature-based solutions at the neighborhood level, such as along parkways, trail systems,
and common areas.
c. Ensure equitable access to natural areas along Cooper Slough.
6.T - Transitional
a. Incorporate nature-based solutions, such as greenways or stormwater features, with naturalized
and nature-based designs. Explore the creation of a green infrastructure corridor along Dry Creek.
b. Consider equitable access to natural features and improve connectivity of trails.
c. Preserve and enhance natural habitat corridors along ditches and adjacent wetland features to
promote wildlife connectivity throughout this character area.
Goal 6 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
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Item 3.
3 : GOALS & STRATEGIES
87EAST MULBERRY PLAN
Goal 7 Improve the function and visual appearance of
the Mulberry & I-25 interchange and Mulberry
Street frontage as a gateway into Fort Collins.
MULBERRY GATEWAY
GOAL INTENT AND PURPOSE:
As a prominent entrance to the community and a
primary route to Downtown, Colorado State University,
and the Poudre Canyon many stakeholders expressed
a desire to create a better first impression for the plan
area and broader community – one that is visually
attractive, functional, and safe. The current I-25 &
Mulberry Interchange and the surrounding area features
a mix of jurisdictional authority between the City,
County, and Colorado Department of Transportation
that could benefit from a broader vision and standards
to promote aesthetic, transportation, and safety
improvements.
WHAT WE HEARD:
→Residents and businesses inside and
outside the East Mulberry Plan Area voiced
a desire for aesthetic improvements to the
gateway area around I-25 and along the
Mulberry Street frontage. A lack of formal
landscaping, sign clutter, and material
stockpiling and outdoor storage were
often cited as conditions that lowered
visual quality.
→Businesses want to ensure Mulberry Street
remains functional as a logistics and supply
route for businesses.
→Some residents and businesses share
concerns about the safety and efficiency
of navigating the corridor and the
interchange at I-25. Safety and ease-of-
use of the frontage roads and interchange
ramps should be improved or redesigned.
MULBERRY STREET
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Item 3.
3 : GOALS & STRATEGIES
88EAST MULBERRY PLAN
Implementation Action Items:
7.1.1 Develop an urban design and streetscape program to
provide design standards and guidance for future enhancements
within the Mulberry Street right-of-way and for improvements
along private property frontages abutting Mulberry Street and
the I-25 interchange.
7.1.2 Actively partner with CDOT, Larimer County, and other
stakeholders on the redesign of the I-25/Mulberry interchange.
Similar to other gateway interchanges, safety, multimodal
connectivity, and aesthetic/design enhancements should be
emphasized in preliminary design.
As a baseline, draw upon input provided by the community
regarding future gateway design elements. Based on 2019
community workshops on gateways, the future gateway design
elements should consider the design priorities described on the
following page.
7.1.3 In coordination with CDOT and the National Scenic Byway
program, enhance wayfinding and signage along the corridor to
identify important destinations such as Downtown, the Poudre
Canyon, and important local delivery routes serving Mulberry
businesses.
7.1.4 New development abutting the I-25/Mulberry interchange
will be required to meet the land use, transportation, and design
standards adopted as part of the I-25 Subarea Plan and the
Mulberry Activity Center.
GOAL 7: MULBERRY GATEWAY
Develop design standards and funding strategies for enhancements to
emphasize the I-25 interchange and Mulberry Street corridor frontage.
Note on Fulfillment of this Strategy:
While the City recently annexed the I-25
right of way, the majority of Mulberry
Street remains outside Fort Collins
jurisdiction which will limit the application
of City-specific goals and standards.
Prior to Annexation: Prior to full
annexation, the City should begin to
identify and budget resources for design
work and key aesthetic enhancements
to the interchange and Mulberry
Street frontage for anticipated future
reconstruction and capital projects.
STRATEGY 1
See the Gateway Character Area in Section 2 for further guidance on
priority gateway design characteristics.
MOUNTAIN OPENINGS PUBLIC ART
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Item 3.
4 : IMPLEMENTATION
EAST MULBERRY PLAN 89
GOAL 7: MULBERRY GATEWAY
One of the largest opportunities for the I-25 Gateway will be the future reconstruction of the
Mulberry & I-25 interchange. Similar to other major gateways into the community, the City
should participate alongside CDOT and other corridor stakeholders to enhance the design of
the transportation infrastructure and surrounding streetscapes and landscapes. Based on 2019
community workshops on gateways, the future gateway design elements should consider the
following characteristics:
• Naturalized grading – Community members expressed a strong preference to prioritize naturalistic
qualities over more structural components, e.g., berming versus retaining walls. Where structural
elements are required, they should use natural materials such as stone.
• Landscaping – The gateway design and surrounding streetscapes should rely primarily on landscaping
elements to create a positive impression. Native landscaping and green edges of the right-of-way with
the potential for more formal plantings near interchange and street infrastructure, reminiscent of the
planters and flowers installed at the Mulberry Street bridge over the Poudre River.
• Welcome Signage – Community members voiced a preference for muted welcome signage similar to
what was constructed at the I-25/CO392 interchange that complements rather that competes with other
landscaping and design elements.
• Artwork & Sculpture – Artwork, patterns, and sculpture all received positive mentions by community
members as appropriate localized features within a gateway design.
• Themes – Additional outreach should be completed at the time the future interchange design is
underway. While naturalistic qualities are desired on a community-wide basis, there may be additional
opportunities to reflect Mulberry’s unique cultural and economic history as a center for industry,
aviation, agriculture, or the gateway to the Poudre Canyon as a scenic byway.
Design Priorities
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Item 3.
3 : GOALS & STRATEGIES
90EAST MULBERRY PLAN
GOAL 7: MULBERRY GATEWAY
Implement interim enhancements to improve the attractiveness
of the gateway and Mulberry Street frontage.
Note on Fulfillment of this Strategy:
A functional and attractive gateway will be
the result of actions taken on by both private
property owners and businesses, and the
public sector and in the public right-of-way.
Incremental enhancements are likely to occur
over a number of years as private properties
(re)develop, while larger functional changes
to roadways and interchanges are likely to
require catalyst capital projects, such as
rebuilding the Mulberry and I-25 interchange.
Enhancements in the right-of-way such
as landscaping, street furniture, urban
design elements, and public art may require
annexation into the City or special funding
partnerships with overseeing jurisdictions
prior to annexation.
Prior to Annexation: The City should continue
advocating and partnering with Larimer
County and CDOT to align site, building,
and landscaping requirements towards City
standards along Mulberry Street and the I-25
gateway prior to annexation.
Implementation Action Items:
7.2.1 When minor redevelopment and changes of use occur
along the interchange or Mulberry Street frontages, staff
should prioritize and emphasize aesthetic improvements as
part of the review process and site upgrade requirements.
The most impactful site enhancements will typically include
new/replacement canopy trees, replacing nonconforming
signage, and relocating or screening low visual quality site
areas like outdoor storage.
7.2.2 Replace or modify nonconforming or outdated signage
in the plan area to ensure compliance with City standards
and reduce visual clutter. Strictly enforce the City’s 7-year
sign amortization period after annexations occurs to
transition nonconforming signage to City standards.
7.2.3 As properties redevelop, billboards will generally be
required to be removed. Prior to redevelopment, the City
should explore incentives for the voluntary consolidation or
removal of billboards in the plan area.
7.2.4 Expand the offering of City landscaping and
beautification programs to businesses and properties along
the Mulberry frontage prior to annexation. Programs such
as free mulch and the community canopy program provide
free resources to property owners to enhance on-site
landscaping and improve tree canopies.
7.2.5 When new development or catalyst projects occur
along the Mulberry Street frontage, encourage high quality
building and site design to set an enhanced style for future
development. New developments should focus on frontage
landscaping design, implementing an appropriate tree
canopy in an industrial/commercial context and building/
roof design variation and other design standards articulated
in the I-25 Subarea Plan for the Mulberry Activity Center.
STRATEGY 2
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91EAST MULBERRY PLAN
GOAL 7: MULBERRY GATEWAY
Balance desires for aesthetic improvements with the ongoing
role of the East Mulberry Plan Area as an industrial and
commercial hub with unique business needs and requirements.
Note on Fulfillment of this Strategy:
Areas within the East Mulberry Plan Area
feature a variety of industrial businesses that
may include outdoor storage yards, material
stockpiling, and other less attractive lower
quality visual but otherwise vital functions that
support the entire community. Aesthetics are just
one important component of an overall gateway
strategy and should be provided with enough
flexibility so as not to compromise the plan area’s
role for industrial and commercial development.
Prior to Annexation: City and County staff
and decision makers should consider flexibility
in adapting community-wide development
standards and requirements to the context of the
East Mulberry Plan Area and its industrial and
commercial businesses and development history.
Implementation Action Item:
7.3.1 In new or redeveloping properties, shift lower quality
aesthetic site functions such as outdoor storage to the back
of properties when possible. In lieu of relocation, ensure
screening of lower quality visual areas on the front, public-
facing half of properties.
STRATEGY 3
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92EAST MULBERRY PLAN
7.A - Airpark
a. Not Applicable
7.F - Frontage
a. Create and establish a healthy tree canopy and improve other landscaping.
b. Consider providing incentives for the removal of billboards on private property.
c. To achieve goals related to aesthetic improvements for the Mulberry Street frontage, consider
enhanced screening for uses that involve outdoor storage.
d. Implement wayfinding to improve navigation.
7.N - I-25 Interchange
a. Improve wayfinding, signage, and landscaping to indicate the entrance to Fort Collins.
b. Remove pole signs.
c. Enhance the safety, aesthetics, and functionality of the I-25 interchange.
d. Create a healthy tree canopy and improve other landscaping.
e. Provide incentives for the removal of billboards on private property.
f. To achieve goals related to aesthetic improvements for the I-25 Gateway, consider enhanced
screening for uses that involve outdoor storage.
7. E - Residential Estate
a. Not Applicable
7. M - Residential Mixed
a. Not Applicable
7. T - Transitional
a. Not Applicable
Goal 7 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 7: MULBERRY GATEWAY
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Item 3.
Implementation4
Place Type Framework
Transportation Framework
Development Review Framework
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PLACE TYPES IN THE EAST MULBERRY PLAN AREA
This section describes the recommended composition
of place types throughout the East Mulberry Plan
Area. Overall, the plan area is comprised of many place
types, again reflecting the diversity of land uses found
within this area. The residential neighborhoods north of
Mulberry, including Mosaic, Dry Creek, Buffalo Run, and
others are designated as Mixed Neighborhood. Mixed
Neighborhoods have principal land uses of single-
The Implementation Section explores more practically how the goals, strategies, and implementation action
items recommended within this plan could be accomplished. Within this section, there is a Place Type
Framework map that depicts future land uses, a Transportation Framework map that explores a potential
transportation network, a Development Review Spectrum to guide future development activity in the East
Mulberry Plan Area.
Implementation Introduction
The Place Type Framework will help guide land use
and development/redevelopment activity within the
East Mulberry Plan Area. The Place Type Framework
depicts place types for the entire plan area. Place types
are land use categories that are designated in the City
Plan, Fort Collins’ comprehensive plan. These place
types provide a framework for the ultimate buildout of
Fort Collins and help guide future land use decisions,
such as initial zoning when areas of the East Mulberry
Enclave are annexed. Place types are not zoning
districts but instead broader categories that focus on
the types of land uses and development intensities to
encourage.
However, place types can be correlated to City zoning
districts. The table within this section called “Current
City Zoning Districts and Corresponding Structure Plan
Place Types” further depicts the alignment between
Fort Collins zoning districts and City Plan Place Types.
Place Type Framework
The 2002 EMCP includes a Framework Plan that is
based primarily on zone districts that exist under
City zoning. Though this map has served well in
guiding land use decisions for the plan area, place
type designations can offer additional flexibility with
an annexation thresholds strategy where the timing
of annexation is unknown. In most cases, place types
closely align with existing land uses and, in some cases,
may better align with existing uses. When areas are
annexed in the future, upon annexation they will be
assigned one of the City’s zoning district designations.
Staff will consider both the underlying Larimer County
zoning designation as well as the place type guidance
to apply a City zoning designation.
In general, the key land use philosophies for the East
Mulberry Plan Area remain largely the same as they
are both in the 2002 EMCP as well as the 2019 City
Plan. This includes retaining the Mulberry commercial
frontage, preserving areas of industrial use, and
highlighting buffers that protect natural resources.
family homes, duplexes, triplexes, and townhomes in
a compact neighborhood setting. The three existing
Mobile Home Parks within the plan area (Nueva Vida,
Collins Aire, and the Villas) are included under the
Mixed Neighborhoods place type. Note that it is a
recommendation of this plan to designate Nueva Vida
as the Mixed Neighborhoods place type, as previously
stated.
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Place Type Framework
Suburban Neighborhood and Rural Neighborhood
The majority of the neighborhoods south of Mulberry
Street are designated as either Suburban Neighborhood
or Rural Neighborhood place types. The Pleasant
Acres and Boxelder Estates neighborhoods fall within
the Rural Neighborhoods place type. Note that it is
a recommendation of this plan to reassign Pleasant
Acres and Boxelder Estates to the Rural Neighborhoods
place type. Rural Neighborhoods have a principal land
use of single-family homes and agricultural uses. This
place type supports opportunities for rural lifestyles
and connectivity to open spaces. Use of this place
type supports and aligns with feedback collected from
residents within these neighborhoods who shared
that they most value the existing rural character of
their communities. The Suburban place type also has a
principal land use of single-family homes, but supports
suburban intensity levels as well as additional amenities
such as parks, recreational facilities and schools.
Suburban and Neighborhood Mixed-Use
Preservation of the commercial frontage along
Mulberry Street is a key element of the Place Type
Framework map. On the Place Type Framework map,
the areas along and immediately surrounding Mulberry
Street are designated as the Suburban Mixed-Use
place type. This place type primarily supports retail,
restaurants, and commercial services. The Suburban
Mixed-Use place type can include lower-intensity, auto-
oriented uses, which is the case for much of Mulberry
Street frontage. However, as infill/redevelopment
occurs in the long-term future of Mulberry Street,
this place type is also supportive of transit-oriented
development pattern if a high-frequency transit service
were to be implemented along Mulberry Street. Of note
is a small area near Mulberry Street and Greenfield
Court designated as the Neighborhood Mixed-Use
District place type. This place type principal land uses
include grocery stores, supermarkets, or other types of
retail like drug stores and neighborhood-serving uses.
The 2002 EMCP had also designated a Neighborhood
Commercial land use around this area, with the aim
of attracting a grocery store or other neighborhood-
serving retail function in this location. As described in
other sections of this plan, the plan area lacks retail
options that serve the daily needs of residents. By
designating this area as a Neighborhood Mixed-Use
District, it is still the intent of this plan to encourage
and attract retail uses such as a grocery store to serve
the growing residential population in the plan area.
TIMBERVINEBOXELDER ESTATES
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Place Type Framework
Industrial and Research & Development (R&D) Flex
Other key place types that comprise the East Mulberry
Plan Area include the Industrial and Research &
Development (R&D) Flex Districts. As shown on the
Place Type Framework map, the Industrial District is
applied to the Airpark area as well as surrounding the
Mulberry and I-25 Interchange. The R&D Flex place
type is applied to the area northeast of the Airpark,
including the former runway/taxiways and the areas
near Timberline and International Boulevard. The
Industrial District place type supports land uses such
as manufacturing, assembly plants, warehouses,
outdoor storage yards, distribution facilities, as well as
flex space for smaller, local start-ups. Transportation
facilities in the Industrial District should promote the
efficient movement of commercial truck traffic that
supports and facilitates industrial function.
The R&D Flex District is one of the most flexible place
type designations and supports a wide range of light
industrial, employment, and commercial/retail land
uses.Application of the R&D place type is supportive
of Plan goals to remain a viable place for business
and industry and promote additional neighborhood
services and retail. This is particularly relevant for large
portions of the ransitional Character Area which forms
a bridge between established industrial development
and new residential neighborhoods. The flexibility and
range of uses within this place type make it ideal to
accommodate a variety of future functions and land
uses serving the needs of industrial and residential
users while applying more modern buffering and
compatibility development standards.
Parks: Natural or Protected Lands
The Parks; Natural/Protected Lands place type is
applied to many areas of the East Mulberry Plan
Area as shown on the Place Type Framework map.
This place type is used where the City has already
established ownership of land as an existing or
future park, natural area or green space, and in areas
bordering sensitive natural features and resources
where buffering standards in future development
will be required, such as along the Cooper Slough or
Poudre River. The principal land uses within this place
type as stated in City Plan include parks, open space,
greenways, natural areas, spaces for outdoor recreation,
agriculture, or community separators. South of Vine
Drive and northeast of the Airpark is Dry Creek. The
Airpark generally is located within the floodplain,
but the area surrounding Dry Creek is designated as
a high floodway. Designating the portion of the area
surrounding Dry Creek, as the Parks and Natural/
Protected Lands place type, is supportive of integrating
future stormwater/floodplain enhancements along
with environmental protection and transportation
enhancements. Multiple strategies in this plan speak
to incorporating natural features with floodplain
enhancement (See Goal 2).
RIVERBEND PONDSOUTDOOR STORAGE
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PLACE TYPES AND PLAN GOALS
Place type designations, as guided by City Plan, are intended to help realize the ultimate desired character and
land use for all areas within the Fort Collins Growth Management Area. The place types assigned to the East
Mulberry Plan Area closely align with the goals of this plan. Place type assignments are supportive of the strategies
outlined in Section 2 of this plan and collectively will serve in tandem to implement the vision of this plan.
Place Type Assignment or
Recommended Place Type Change
Alignment with Plan
Goals and Strategies
Reassign the areas north of the Kingfisher Point
Natural Area bordering Mulberry Street from
Suburban Mixed-Use District to Parks; Natural/
Protected Lands place type
Goal 6, Strategy 1 and 3
Protect and enhance existing natural habitats and features
like the Poudre River and the areas that surround it.
Assign the Nueva Vida Mobile Home Park to the
Mixed Neighborhoods place type
Goal 5, Strategy 2
Preserve and enhance existing mobile home parks.
Reassign the Pleasant Acres and Boxelder Estates
Neighborhoods from Suburban Neighborhood
place type to Rural Neighborhood place type
Goal 5, Strategy 1
Maintain similar land use and streetscape character in
established neighborhoods.
Apply the R&D Flex place type designation to
portions of the plan area near the Airpark
Goal 1, Strategy 2
Support the retention of existing industrial and agricultural
business uses.
Maintain the Neighborhood Mixed-Use District
place type near the Mulberry Street and Greenfield
Court intersection
Goal 4, Strategy 3
Designate areas for commercial development that support
the daily needs of residents and businesses.
Place Type Framework
RECOMMENDED PLACE TYPE CHANGES FROM CITY PLAN
The East Mulberry Plan is recommending several changes to place type designations within the plan area that will
require updates to the City Plan Structure Plan map. A recommended action item emerging from the adoption of
this plan is to update the Structure Plan map in City Plan to be consistent with these changes.
Most recommended changes to place types are minor and reflect changes such as:
• Project-specific rezonings or annexations occurring since the last Structure Plan Map update in 2019
• City-purchased properties for future natural areas
Other minor changes to place type designations include the following:
• Increase in commercial designations fronting the I-25 Interchange to better reflect existing uses in place. It is recommended
that these areas change from the Industrial place type designation to Suburban Mixed-Use District place type designation.
• Reassign the areas north of the Kingfisher Point Natural Area bordering Mulberry Street from Suburban Mixed-Use District
to Parks; Natural/Protected Lands.
• Assign the Nueva Vida Mobile Home Park to the Mixed Neighborhood place type (change from Suburban Mixed-Use
District).
• Reassign the Pleasant Acres and Boxelder Estates Neighborhoods from Suburban Neighborhood place type to Rural
Neighborhood place type to better reflect the established large lot residential character of these neighborhoods.
The most substantial change recommended as part of this plan update is to reassign a large portion of the area
surrounding the Airpark from the Industrial place type to the Research and Development/Flex District place type.
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Place Type Framework
The table below illustrates the general alignment between current Fort Collins zoning districts and the Place
Types found in the City Plan Structure Plan Map. In some instances, there is a one-to-one relationship between
the current zoning districts and the corresponding Structure Plan place types (i.e., the Industrial zoning district
and the Industrial District place type). In other instances, there are multiple zoning districts that may correspond
with the purpose and intent of a particular Structure Plan place type (i.e., there are four zoning districts that
correspond to the Mixed-Neighborhood place type), or multiple place types that correspond with a zoning district.
Place Types represent a broader approach to future land use guidance compared to zoning alone.
CURRENT CITY ZONING DISTRICTS CORRESPONDING STRUCTURE PLAN
PLACE TYPES
Residential
Rural Lands DIstrict (RUL)Rural NeighborhoodResidential Foothills District
Urban Estate District Rural Neighborhood or Suburban Neighborhood
depending on development context
Low Density Residential District (RL)Suburban Neighborhood
Low Density Mixed-Use Neighborhood (LMN)Suburban Neighborhood or Mixed- Neighborhood
depending on development context
Neighborhood Conservation, Low Density District (NCL)Suburban Neighborhood
Medium Density Mixed-Use Neighborhood District (MMN)
Mixed Neighborhood
Neighborhood Conservation, Medium Density District
(NCM)
Neighborhood Conservation, Medium Density District
(NCM)
Neighborhood Conservation, Buffer District (NCB)
Commercial and Mixed Use
Downtown Downtown
Community Commercial District (CC)
Suburban Mixed-Use
Community Commercial District- North College District
(CCN)
Community Commercial District- Poudre River District
(CCR)
Service Commercial District (CS)
General Commercial District (CG)Urban Mixed-Use
Neighborhood Commercial District (NC)Neighborhood Mixed-Use
Limited Commercial District (CL)Downtown; Suburban Mixed-Use
Employment and Industrial
Employment and Industrial Mixed Employment; R&D FlexEmployment District (E)
Industrial District (I)Indistrial, R&D Flex
CURRENT CITY ZONING DISTRICTS AND CORRESPONDING STRUCTURE PLAN PACE TYPES
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Place Type Framework
PLACE TYPES AND UNIQUE USES WITHIN THE EAST MULBERRY PLAN AREA
As previously mentioned, this plan has assigned place
types rather than prescribing Fort Collins zone districts
to the East Mulberry Plan Area, namely because the
broader place type categories are better suited to
flexibly accommodate the diversity of unique land use
types that already exist in the plan area. Also, place
types can help guide general land use decisions as the
plan area grows and changes over time, particularly
for places where new development or redevelopment
is expected. In these areas that will evolve and change,
it does not make sense to assign a zone district until a
more concrete vision for land use is known.
It was also previously noted that as areas of the East
Mulberry Plan Area may be annexed through threshold
annexations, they will be assigned to a City zone
district upon annexation. It is anticipated that zone
districts will remain aligned with existing Larimer
County zoning and with a zone district consistent with
the assigned place type. This is particularly important in
meeting this plan’s goal to preserve existing industrial
areas by zoning them appropriately when they come
into the City through annexation. However, there are
some existing uses within the East Mulberry Plan
Area that are not currently allowed within the City’s
industrial zone district, or any other City zone district.
These include many of the long-standing agricultural
service businesses located around the Mulberry and
I-25 Interchange such as livestock auctions or livestock
meat processing. If these areas were to be annexed into
the City, they would receive a ‘lawful, non-conforming’
status.
Future Viability of the Agricultural Service Uses
The Fort Collins Land Use Code defines nonconforming
uses as a use which was lawful immediately before
annexation, but which does not conform to the use
regulations for the zone district in which such use is
located at the time of annexation. Nonconforming
uses have limitations as directed in the Land Use
Code, including that the expansion or enlargement
of existing buildings shall not add more than 25% of
new floor area. To preserve and support the future
viability of the agricultural service uses surrounding
the interchange that would be non-conforming, it
is the recommendation of this plan that additional
permitted uses be added to the City’s Industrial zone
designation. At the time that these areas surrounding
the interchange experience a threshold annexation, a
simultaneous amendment to the Land Use Code should
be put forward to add these uses within the Industrial
zone district, the zone designation that would likely be
applied to these areas.
Proximity Based Standards
It is recommended that this addition of uses to the
Industrial zone district be accompanied by proximity-
based standards. Proximity-based standards are a tool
that can be used to allow uses only in the industrially
zoned land within a certain specified geographic
area. In this case, these uses are concentrated in the
northwest quadrant of the interchange. Therefore, the
proximity-based standards could specify that certain
additional uses be allowed in the Industrial zone district
within a certain distance from the I-25 and Mulberry
Interchange. The exact uses to be added and the
appropriate distance determination should be evaluated
at the time of annexation. This can help ensure that
existing businesses offering meat processing, livestock
auctioning, and other agricultural service uses remain
in their current locations near the interchange without
a non-conforming status following annexation. The
proximity-based standards can also ensure that these
types of uses, which are appropriate in their current
context, but may not be appropriate in other areas, are
not allowed within other parcels across Fort Collins with
an Industrial zone designation.
AGRICULTURE SERVICE USES
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Transportation Framework
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Transportation Framework
Summit View Drive
Summit View Drive is an important connection between Prospect Road and Mulberry
Street. It is indicated on the Transportation Framework map as a potential area for
multimodal augmentation or enhancement from Prospect northwest across Mulberry
to Lincoln Avenue. Summit View Drive currently has no sidewalks or bike lanes.
Inclusion of some infrastructure that could safely accommodate other modes without
compromising the rural character of this street should be explored.
Link Lane (between Mulberry Street and Lincoln Avenue)
• The mix of uses, character, and development pattern along Link Lane is the most
reminiscent of a commercial “main street” atmosphere within the corridor. With
some infrastructure augmentation, this street could be more conducive as a
walkable or bikeable corridor, adding a north-south connection between Mulberry
Street north to Lincoln Avenue. Further study to determine appropriate types of
augmentation is needed.
The Transportation Framework map depicts connectivity needs, proposed streets for augmentation, and
areas that require future evaluation and improvement. Like other aspects of the Plan, the timing and
implementation of many of these proposed strategies are dependent on annexation and available resources
at that time. Because the existing streets in this area are deficient both in condition and multimodal
infrastructure (see the Surface Conditions of Roads Map in Section 1 of the Plan), the general philosophy
of the Transportation Framework is to address priority and interim needs. In the long-term, it is assumed
that streets in the plan area will meet Larimer County Urban Area Street Standards (LCUASS). To reach full
LCUASS standards represents a substantial investment of resources, therefore, many of the improvements
captured on the Transportation Framework map represent augmentation opportunities that may not meet
full LCUASS standards but offer a way to enhance streets with safe and convenient multimodal connections
in a more interim capacity. This approach is further described under Goal 3, Strategy 1 within Section 2 of the
Plan. Some of the areas identified on the Transportation Framework map in the “Multimodal Augmentation &
Enhancements” category include:
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Transportation Framework
Mulberry Frontage Roads
• One concept that requires further analysis and collaboration with CDOT and other
stakeholders would be to explore building shared use paths along the medians
between Mulberry Street and the adjacent frontage roads. If feasible, this concept
could offer a way to integrate multimodal infrastructure that is separated from the
fast-moving traffic of Mulberry Street. This concept is included in the Active Modes
Plan. See also Implementation Action Item 3.2.4 under Goal 3.
The Transportation Framework map also indicates
Future Capital Projects. Capital Projects in this case
would be larger scale infrastructure enhancements that
would be permanent changes to the characteristics
and function of these roadways. One potential future
Capital Project identified would be to continue the
same street cross section on Lincoln Avenue from
Lemay to Summit View. The City of Fort Collins
improved the Lincoln Avenue Corridor between
Riverside and Lemay, incorporating a buffered bike
lane, landscaped medians, improved sidewalks, and
integrated transit stops with bus pull-outs. These
conditions do not continue beyond the roundabout
near Cordova Road and there are no sidewalks or
designated bicycle infrastructure on Lincoln Avenue
through the remainder of the plan area. When
considering future improvements to Lincoln Avenue
east of Cordova Road, the design alternatives and
concepts explored in the Lincoln Corridor Plan should
be consulted so that continuous conditions from
Lincoln Avenue to the west can be maintained as
much as feasible. Future improvements to the segment
of Lincoln Avenue within the plan area as well as
other streets containing transit stops should consider
potential transit stop improvements or enhancements.
The continuation of International Boulevard is identified
on the Transportation Framework map as another
Future Capital Project. At the time of this plan’s
publication, International Boulevard currently exists
in a short segment between Timberline and Bannock/
Toronto Street in the Dry Creek neighborhood. From
the Dry Creek neighborhood, the ultimate alignment of
International Boulevard would connect with Cordova
Road at the most northwest corner of the Airpark
area. International Boulevard from Timberline Road
would then jog slightly north and continue eastwards
just below the Bloom and Mosaic neighborhoods.
A direct connection northeast from Airpark Drive
across the former runways/taxiways to International
Boulevard should be considered during future Master
Street Plan updates to improve connectivity to/from
the Airpark. The Dry Creek, Timbervine, and Collins
Aire neighborhoods have no access to the Airpark
without first traveling east to Timberline, then into the
Airpark via Lincoln Avenue. This potential connection
is indicated on the map as “Connectivity Needs” and
should be evaluated through further study.
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Transportation Framework
Also overlaid on the Transportation Framework
map is a network of proposed trails. Many of the
proposed trails shown are consistent both with what
was previously depicted on the 2002 East Mulberry
Corridor Plan Framework Map, as well as with the City’s
Trails Master Plan. Following publication of this plan,
the City will be performing an update to the Strategic
Trails Plan. That plan will include the East Mulberry
Plan Area and should be consulted for guidance on
integration of future trails within this area.
Many of the concepts put forward on the
Transportation Framework map represent opportunities
and ideas to further augment the transportation
network of the East Mulberry Plan Area. These
concepts would represent substantial change and
would be accompanied by substantial costs to
implement. The depth and breadth of analysis required
to evaluate and explore these concepts cannot be
accomplished through just this plan. Therefore, a
key recommendation of the East Mulberry Plan is to
complete a transportation-specific plan for the East
Mulberry Plan Area to understand and address the full
set of needs. Part of this effort would be to identify
funding and resources for a transportation-focused
plan prior to when this area may be annexed in the
future. See Goal 3, Strategy 3.
Specific areas within the East Mulberry Plan Area that
will require additional evaluation are indicated on
the Transportation Framework map as “Evaluation
& Improvement Areas”. A few specifically identified
areas for further study include the intersection
around Mulberry Street, Lincoln Avenue, Timberline
Road, and Summit View Drive. The Mulberry and
I-25 Interchange is another area identified for further
study, including the evaluation of this area for a future
mobility hub. Mobility hubs are meant to provide a
seamless connection between transit and other modes
of transportation and are intentionally located in key
areas where the transit network intersects with other
components of the transportation system. Mobility
hubs can combine features like park-and-rides, bike
parking, microtransit such as scooters, and enhanced
transit shelters, amongst other elements.
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The Mulberry Corridor’s built environment spans multiple jurisdictions and over 70 years of varying development
standards. The corridor still lacks a consistent pattern of development, and in many locations, basic health
and safety infrastructure such as sidewalks, curb and gutter, and drainage networks. While new greenfield
development in the corridor is expected to meet all modern development standards, as existing sites undergo
changes in business activity or partial redevelopment, challenges remain in determining and prioritizing site
upgrades. While the overarching goal is to bring properties closer to modern standards, this must be balanced
against both a proportionate level of change to the site and while being mindful of corridor goals to maintain
a unique and affordable location in the community for industrial and commercial businesses. With these goals
and challenges in mind, the Development Review Spectrum was developed to guide future development and
redevelopment activity for annexed properties within the plan area.
EXISTING CHALLENGES TO DEVELOPMENT
BILLBOARDS
NEIGHBORHOOD FLOODING
SIDEWALK DEVELOPMENT
Development Review Framework
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The Development Review Spectrum highlights typical requirements and areas of flexibility for site upgrades
within the City of Fort Collins’ development review process. It is called a spectrum because it is organized
by the level of review for different configurations of site and building upgrades, from lowest level of
requirement to highest level of requirement. The purpose of the Development Review Spectrum (the
spectrum) is to provide a structured and strategic approach for revitalizing and improving properties over
time as they come through the City’s Development Review process. It serves as an informational guide
or roadmap for stakeholders involved in the redevelopment process, such as staff and decision-makers,
developers, community organizations, and residents. The intent of the spectrum is to respond to context-
specific needs by taking into account unique characteristics, challenges, and opportunities of the specific
area being developed. The spectrum should be used alongside Plan strategies and a site’s character area to
identify priorities and flexibility for incremental site upgrades when appropriate based on site context and
the proposed level of review.
Key objectives of the spectrum include:
1. Establish Priorities: It establishes clear goals for the redevelopment of the area, outlining what the
desired outcome and future state of the area should be.
2. Preserve Flexibility: The spectrum recognizes that different contexts may require different
implementation strategies. It outlines land use strategies that help shape the physical layout and
character of the redevelopment area. By utilizing the place-types approach, the framework allows
for adjustments and adaptations as needed to ensure future annexation projects align with changing
conditions and can respond to current needs.
3. Respond to Context Specific Needs: The spectrum considers strategies and character area
priorities to identify priority enhancements in the Corridor (e.g. parking, urban design, and aesthetic
improvements along the Mulberry Frontage or near the I-25 gateway).
4. Identify Infrastructure and Service Needs: The spectrum identifies the infrastructure and service
requirements that are specific to the area. It considers gaps, and potential requirements under interim
conditions to ensure infrastructure and services can meet immediate and long term goals of the
corridor.
By providing a structured framework, site improvements can be carried out in a coordinated and cohesive
manner, maximizing the positive impact on the area while addressing community needs and aspirations.
Development Review Framework
DEVELOPMENT REVIEW SPECTRUM
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Development Review Framework
< < < Lowest Requirement Highest Requirement > > >
Change of Use
(and/or Change of Business)
Minor additions and site enhancements
((i.e. <1,500 sf building addition, changing
parking lot)
Significant change in character
to site (i.e. building addition or
reconfiguration)
Greenfield development,
total site redevelopment
STORMWATER, FLOODPLAIN, EROSION CONTROL
Adding or modifying 1,000 sf
or more of impervious surfaces
requires meeting stormwater
detention, water quality, and low
impact development standards.
• Adding or modifying 1,000 sf or more
of impervious surfaces requires meeting
stormwater detention, water quality, and low
impact development standards.
• Additional requirements may be linked to other
site plan requirements or standards (e.g. paving
parking areas).
• If there is lack of an adequate outfall, the site
may need to over-detain.
Meets all Development Code
Standards for stormwater quality,
detention, erosion control, and
floodplain management.
Meets all Development
Code Standards for
stormwater quality,
detention, erosion
control, and floodplain
management.
LANDSCAPING & FORESTRY
Inventory onsite trees • Replace any dead trees.
• Mitigation for any removed trees.
• Install new/missing trees in street parkways.
• Soil amendments and water conservation
considerations.
Full tree stocking throughout the
site.
Meets all Development
Code Standards
PARKING & WALKWAY CONFIGURATION
• Ensure required amount of
general, handicap parking
spaces.
• Add bicycle parking.
• Reconfigure and delineate parking areas.
• Augment parking lot landscaping and screening.
• Ensure adequate covered bike parking.
• Create formal or informal on-site walkway
connections.
• Direct walkway connection from
building to the street.
• Interior and perimeter parking
lot landscaping standards met.
• May require moving parking
areas on site.
Meets all Development
Code Standards
ENVIRONMENTAL & HISTORIC RESOURCE PROTECTION
Survey onsite resources as pre-
submittal requirement, if data is
missing.
• New lighting fixtures meet lighting standards (4
more fixtures requires full site lighting review).
• Establish any required natural habitat buffer
zones and considerations for mitigation.
• New development abutting historic resources
meets design compatibility requirements.
• Enhance the natural ecological characteristics
of the site by focusing native seed mixes and
weed management plans based on site specific
conditions.
• Ecological Characterization
study.
• Replace/ensure all lighting
meets lighting standards.
• Onsite Historic Resources
comply with alternative
mitigation requirements if not
adaptively reused.
• Meets all Development
Code Standards
• Onsite Historic Resources
are adaptively reused,
and design compatibility
requirements met
TRANSPORTATION & FRONTAGE IMPROVEMENTS
Repair or replace damage to any
existing frontage improvements
(e.g. sidewalks)
• Dedicate any necessary right-of-way.
• Traffic Study or Memo may be required.
• Minor frontage improvements (Replacing
sidewalks, curb & gutter).
• Full frontage improvements:
curb & gutter, sidewalk,
parkway.
• Traffic Study or Memo may be
required.
Meets all Development
Code Standards
SITE DESIGN & AESTHETICS
• Replace nonconforming
signage.
• Replace dead landscaping.
• Screened trash/recycling
enclosure.
• Define/reconfigure parking areas.
• Parking paving may be required (front, publicly
visible, or high-use areas).
• Parking lot landscaping/screening.
• Building addition meets LUC building design
standards.
• Walkways out to public right
of way.
• Parking lot meets LUC
standards.
• New buildings/additions meets
LUC building standards.
Meets all Development
Code Standards
UTILITIES & DEDICATIONS
Utility easement behind side-
walk/street right-of-way may be
required.
• Additional utility easements may be required for
new utility installations.
• Ensure fire separation and emergency access
requirements met.
• Ensure proper utility separation requirements
met for newly installed utilities.
New tap or capital expansion fees
for additional utility services need-
ed (e.g. new dwelling units).
Meets all Development
Code Standards
Development Review Spectrum
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There are many types of development activity which may
prompt the development review process and potential
site upgrades. This spectrum of development intensity
spans from simple changes of use as one business moves
into a new space all the way to total site redevelopment
or new greenfield development. Between both ends
are more common types of proposals that may involve
site reconfiguration or building expansions. In these
middle scenarios there are often areas where staff and
decision-makers can apply flexibility and or alternative
prioritization of site upgrades that are more appropriate
to the context of the East Mulberry Plan Area or which
further Plan goals.
The table on the previous page highlights some of
the common site upgrades and enhancements that
may be required based on different levels of proposed
development or redevelopment intensity. Each site
and type of development proposal is unique, and the
spectrum is meant as a guide to help property and
business owners understand potential requirements when
a site enters the development review process. For staff
and decision-makers, both the spectrum and the priority
section for each character area include high priority
enhancements that are recommended based on a site’s
location within a specific Mulberry Character Area. Given
the plan area’s lack of consistent development patterns
and need to prioritize different site upgrades based
on character areas, this plan encourages future staff
and decision-makers to collaborate with property and
business owners on incremental site improvements that
help maintain the plan area’s unique and affordable role
in the community.
Development Review Framework
UNDERSTANDING POTENTIAL SITE UPGRADES AND ENHANCEMENTS
The Development Review Spectrum and the requirements
contained within would be applied when the City has
annexed an area into City jurisdiction and a property has
entered the City’s development review process. These
requirements would not apply to established sites that are
not making changes to their properties or performing any
of the types of activities contained in the Development
Review Spectrum.
The spectrum provides policy guidance for how
development review may be performed within the East
Mulberry Plan Area. In many cases, requirements must
meet existing code standards as prescribed in the Land
Use Code, but code changes that would assist in enacting
these standards should be considered following adoption
of this plan. City staff and decision makers should also
use the spectrum to support flexibility for redeveloping
sites in the plan area through prioritizing certain site
upgrades or deferments when allowed by the Land Use
Code or through modification or variance procedures
when it can be demonstrated the proposal advances
goals and strategies of this plan.
Sites within the East Mulberry Plan Area that develop
or redevelop in Larimer County and do not initiate an
annexation threshold will likely still be referred from the
County to the City for comment. City staff will continue to
coordinate review on development activity with Larimer
County staff.
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Annexation
Thresholds5Annexation Thresholds Framework
Annexation Overview
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INTRODUCTION AND ANNEXATION SUMMARY
Annexation Thresholds Framework
The source of annexation law in the state of Colorado is the Colorado Revised Statutes (C.R.S). C.R.S Title 31
Legislative Declaration states that the policies and procedures contained within are necessary and desirable for
the orderly growth of urban communities in the state of Colorado.
Annexation in Colorado can take place in three ways:
1. Petition for annexation by landowners (voluntary annexation): If more than 50% of the landowners
owning more than 50% of the area petition the governing body for annexation or in association with a
serial annexation.
2. Petition for annexation election (voluntary annexation): Registered electors may petition the governing
body of any municipality to commence proceedings for an annexation election in the area proposed to be
annexed.
3. Annexation of Enclaves (involuntary annexation): An enclave is formed when an unincorporated area
becomes entirely contained within the boundaries of a municipality. A municipality may initiate involuntary
annexation of an enclave three years after it is formed.
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Both petition for annexation by landowners and
petition for annexation election are forms of voluntary
annexation, meaning that if a majority of landowners
or a certain number of electors within the area to be
annexed are in favor of the annexation, they may initiate
annexation. Involuntary annexation means that the
annexing municipality is utilizing its authority pursuant
to the C.R.S. to annex enclaves when eligible with or
without the consent of the landowners or electors within
an enclave.
The East Mulberry Enclave was officially formed on
August 31, 2018, when the East Gateway Annexation
became effective (annexing land into the City of Fort
Collins from unincorporated Larimer County). Therefore,
three years from that date on August 31, 2021, the East
Mulberry Enclave was eligible for involuntary annexation
by the City of Fort Collins. However, once an enclave is
eligible for annexation, the C.R.S. does not require the
City to annex the enclave unless either of the following
occur:
• A petition is received by the City signed by more
than fifty percent of the property owners owning
more than fifty percent of the property in the
enclave.
• At least 75 electors that reside in or own property
within the enclave petition for an annexation
election.
If either of the two above occur, the City has to initiate
enclave annexation proceedings within one year.
Intergovernmental Agreement with Larimer County:
The City of Fort Collins and Larimer County have an
intergovernmental agreement (IGA) between the two
local agencies to help guide matters of annexation
and growth, including management of the Fort Collins
Growth Management Area (GMA). The IGA also
facilitates coordination in other matters of joint planning
Annexation Thresholds Framework
and management of public services and facilities.
This IGA (Regarding Cooperation on Managing
Urban Development) between Fort Collins and
Larimer County specifically outlines how annexation
is to occur within the GMA and how the City and
Larimer County will coordinate these agreements.
Approaches to Annexation - Financial
Considerations
The City partnered with consultant Economic &
Planning Systems (EPS) in 2020 to provide a fiscal
impact evaluation of the potential annexation of the
East Mulberry Enclave. EPS developed an Excel-
based scenario modeling tool to assist in measuring
the fiscal impacts resulting from alternative phasing,
sequencing and potential funding options related to
annexation of the enclave area. An overview of the
EPS work is included as Appendix B.
The fiscal model is structured to evaluate the
impacts of providing a full suite of City services
within the annexation area. Core assumptions
include providing all existing governmental
services and electric, stormwater and broadband
utility services. Water and wastewater services are
excluded from the analysis and will continue to be
delivered by the incumbent providers. The modeling
is structured to capture all expected ongoing
revenues and expenses (sales taxes, property taxes,
street maintenance, police patrol services, etc.). On
the capital side, one-time revenues such as capital
expansion fees (CEF) and plant investment fees
(PIF) are modeled, as are required expenditures
(stormwater infrastructure, new parks, etc.). The
difference between expected revenues and expenses
is the Net Fiscal Impact, an indication of whether
new sources of revenue will be required.
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The potential annexation area was mapped using
GIS data to break out the land parcels into logical
planning units (following existing land use designations,
historical area characterizations, City Plan guideposts,
etc.) that allowed for comparison of sequencing and
phasing alternatives. These “boundaries” were not
specific recommendations but a tool to establish a set
of different potential annexation options. The enclave
area currently has an inventory of approximately 1,100
housing units and 500 businesses. Significant growth
in both segments is likely to occur over the next 20
to 30 years. Several projects are already in the early
development stages. The mapping of these subareas is
highlighted below:
Annexation Thresholds Framework
The initial modeling assumed full absorption of all
five subareas at the onset of the annexation and
concurrent development growth and activity over a
20-year evaluation period. Prioritization, timing and
phasing/sequencing were not explicitly addressed in
this preliminary effort in order to determine the total
financial impact from the enclave.
Subsequent efforts entailed the development of five
phasing lenses to articulate and depict the priorities,
assumptions, and potential “benefits” or “drawbacks”
to each scenario based on previously stated priorities
and analysis by Council, community members, and
City staff. Each of the scenarios includes a different
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Annexation Thresholds Framework
The range of estimates above includes both ongoing
revenue and expenses, as well as one-time capital
expenditures and impact fee revenues. Primary
expenditure drivers are highlighted below:
• Police Services: Analysis of existing activity in the
annexation area suggests that up to 35 additional
FTE (23 sworn officers; 12 professional support)
would be required at an annual cost in excess of $5
million.
• Streets / Traffic: The annexation area encompasses
nearly 46 miles of roadways, of which
approximately 30 miles would be envisioned to
come under City maintenance and upkeep. Annual
estimate of maintaining is around $750,000.
Potential additions of up to 14 miles of roadway w/
new developments would increase this figure.
• Light & Power: Capital expenditure estimate for
connectivity and sub-station buildout requirements
is $90 - $100 million. This figure may change
depending on availability of land upon which to
locate a proposed substation to serve eastern
portions of the plan area.
• Stormwater: Capital improvements primarily
related to the Cooper Slough and Dry Creek/Lincoln
channel areas are approximately $40 million.
sequencing and timing of all five subareas but
ultimately includes all land area within the enclave.
1. Economic Opportunity - Emphasizes economic
development and vitality in the area
2. Residential Enhancement - Emphasizes
connectivity, utilities, and other social priorities
3. Environment & Hazard Protection - Emphasizes
environmental buffers, flood mitigation
4. Fiscal Health for City - Emphasizes fiscal impact
to City of annexation, including existing priorities,
risks, and timing
5. Community Gateway - Emphasizes improvements
and reinvestment potential for the Mulberry
Corridor, including the highway and frontage roads
These five scenarios each depict a slightly different
emphasis of priority but all of them consider the City’s
Triple Bottom Line (TBL) approach to evaluations.
Sustainability advocates use the TBL in decision-
making to bring the global concept of sustainability
to action at the local level. Essentially, that means
projects are evaluated based on their social, economic
and environmental impacts. Rather than make
decisions solely on the basis of profit or the economic
bottom line, three bottom lines (social, economic, and
environmental) are considered. The City is able to use
TBL in both longer-term planning evaluations, as well
as in daily decision making.
These scenarios are theoretical and assume annexation
within given periods of time. They can be adjusted
by changing the underlying assumptions to produce
different results. None of these scenarios are meant to
be “staff recommendations” given the uncertain timing
and velocity of threshold annexation and are instead a
starting point for conversation and analysis. The results
of these modeling efforts were presented at the August
1, 2022, Council Finance Committee meeting, as well as
summarized at the December 13, 2022 Council Work
session.
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Annexation Thresholds Framework
The analysis assumes existing city rates, fees and cost
structures will be applied to the potential annexation
areas. No new fees, increases in rates or inflationary
impacts are included in the base analysis. The timing
and need for services will be dependent on the types
of services provided (police services, for example,
would be required up front upon annexation; parks
maintenance needs would be ramped up with the
potential development of new facilities). On the
governmental side, new capital expansion fees and
grants could help offset the increased operating costs
needed for providing incremental services. Timing
and sequencing of potential annexation areas would
determine if additional funding sources would be
required. On the utility side, there is an expectation of
heavier infrastructure requirements up front (both to
acquire assets from existing providers and to build out
and connect to existing City systems). Offsets would be
available from new development fees and potential rate
adjustments to the customer base.
Additionally, the scenarios above were also evaluated
by accelerating or de-accelerating the potential
annexation timeframes. While the annual, average
bottom line impacts are not much different than the
above estimates, accelerating the timeframes does
increase risks by committing to larger expenditure
outlays upfront (police, street maintenance,
L&P infrastructure) with revenues dependent on
development activity and increased revenue (sales tax)
generation to come.
The governmental side will require additional funding
upon any potential annexation option. No specific
identified source of funding is currently available, and
while tax and fee revenue would increase from the
annexed areas, council priorities and existing needs will
inform the extent to which additional funding may be
assigned. The Infrastructure Investment and Jobs Act
(IIJA) and Inflation Reduction Act (IRA) may provide
some opportunity for federal funding assistance.
On the utility side, mechanisms are in place to pay
for additional requirements brought on by potential
annexations, subject to impacts to existing projects
and funding requirements, and the resulting impact to
ratepayers.
In response to Council feedback and further community
engagement, city staff has continued to update the
analysis frameworks. Staff has provided additional input
to council centered around opportunities and trade-
offs. In December 2022, staff provided a framework
for evaluation of the enclave area centered on a
“thresholds” concept. While no specific additional
financial scenarios have been developed to date
around a specific threshold event given the multitude
of annexation scenarios under threshold annexation,
the basic process for further evaluation will utilize the
same general approach as has been done to date and is
addressed in the sections that follow.
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What are thresholds?
Thresholds are a set of conditions that when reached,
may represent an opportune time to consider
annexation. Threshold annexations provide more
flexibility in the size and timing of annexation rather
than annexing the entire enclave all at once or over
time using a fixed, phased schedule. The rationales
for thresholds are varied and may be based on the
ability to achieve Citywide policies, or to ensure that
service provision continues in a logical way between
jurisdictions.
Threshold Categories
The following table describes some of the potential
threshold categories that the East Mulberry Enclave
may experience. These were formulated through
study of previous development patterns within the
enclave and to align with citywide priorities and goals.
Additional categories of thresholds may need to be
considered as the East Mulberry Enclave changes
over time. The magnitude and scale of thresholds
may vary and therefore warrant careful analysis and
consideration. Additional thresholds could be put
forward for consideration and evaluated through the
process described in subsequent sections of this plan
document.
Threshold Alignment with Citywide Priority or Goal
The third column provides information about how each
category of threshold is aligned with adopted Citywide
priorities and goals. The items reflected in this column
are sourced from City Plan (2019) and from the 2022
Strategic Plan. Citywide priorities and community
priorities may change as the City and region continue
to grow and evolve and therefore threshold alignment
with those priorities should be continually monitored
over time.
Threshold Types
Thresholds may be driven by conditions that accrue
over time or met through a one-time event or change
in condition. For this reason, they are categorized
below as either incremental or catalytic. Incremental
thresholds will require agreement on what will amount
to that threshold being reached so that monitoring
over time can accurately evaluate changes and
determine if action is warranted.
MULBERRY FRONTAGE
Thresholds Overview
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Thresholds Overview
THRESHOLD
CATEGORY
ALIGNMENT WITH CITYWIDE PRIORITY OR GOAL THRESHOLD
TYPE
Maintenance of Logical
Boundaries
• City Plan Principle LIV 1: Maintain a compact pattern of growth that
is well served by public facilities and encourages the efficient use of
land.
• Strategic Plan Strategy 1.7: Advance planning efforts in the Growth
Management Area, including holistic considerations for potential
annexations.
Incremental
(condition
accrues over
time)
Achievement of
Citywide Policy
Priorities
Primarily
Catalytic (one-
time event)
Proactive Resource
Protection
• City Plan Principle LIV 9: Encourage development that reduces
impacts on natural ecosystems and promotes sustainability and
resilience.
• City Plan Principle ENV 1: Conserve, create and enhance ecosystems
and natural spaces within Fort Collins, the GMA and the region.
• Strategic Plan Strategy 4.6: Sustain and improve health of the Cache la
Poudre River and all watersheds within Fort Collins.
Redevelopment Risk • City Plan Principle LIV 4: Enhance neighborhood livability.
• City Plan Principle LIV 5: Create more opportunities for housing
choices.
• City Plan Principle LIV 6: Improve access to housing that meets the
needs of residents regardless of their race, ethnicity, income, age,
ability or background.
• Strategic Plan Strategy 1.8: Preserve and enhance mobile home parks
as a source of affordable housing and create a safe and equitable
environment for residents.
Other Proactive/
Strategic Goal
Alignment
• City Plan Principle EH 3: Support local, unique, and creative business.
• City Plan Principle EH 4: Ensure that an adequate and competitive
supply of space and/or land is available to support the needs of
businesses and employers of all sizes.
• City Plan Principle T12: Build and maintain high-quality infrastructure
that supports all modes of travel.
• City Plan Principle T4: Pursue regional transportation solutions.
• City Plan Principle T9: Utilize the transportation system to support a
healthy and equitable community.
• City Plan Principle T10: Support and enhance safety for all modes.
• City Plan Principle LIV 10: Recognize, protect and enhance historic
resources.
External Funding
and Capital Project
Alignment
• City Principle EH 5: Engage and help shape regional economic efforts.
• Strategic Plan Strategy 6.4: Support and invest in regional
transportation connections.
Catalytic (one-
time event)
ANNEXATION THRESHOLD CATEGORIES AND TYPES
The table below describes the categories and types of thresholds that have been identified as part of the
plan update.
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Criteria Needed for Annexation to Proceed
Thresholds Overview
There are criteria set forth in Section 31-12-104, of the
C.R.S. that determine eligibility for annexation. While
these criteria do not apply to an enclave annexation
pursuant to Section 31-12-106, C.R.S., to ensure
orderly development patterns and logical service
boundaries, these criteria should still be considered
as part of evaluating thresholds and whether to
pursue annexation. Specifically, these criteria include:
• A minimum of one-sixth boundary contiguity with
the annexing municipality. This means that areas
of the enclave that have met a threshold shall
still meet requirements pertaining to establishing
contiguity.
• The area of interest to be annexed is integrated
or capable of being integrated with the annexing
municipality and said area is urban or will be
urbanized in the near future.
Per the C.R.S, the governing body of the annexing
municipality (the City of Fort Collins) must create an
annexation transition committee. This is required in
cases of enclaves in which the population exceeds
100 persons and contains more than 50 acres. The
annexation transition committee shall be composed
of nine members, five of whom shall reside, operate
a business, or own real property within the enclave.
The additional four committee members shall
represent the annexing municipality (two members)
and the county in which the enclave is situated (two
members). Published notice of the creation and
existence of the committee is required as part of
communications related to enclave annexation. The
duties of the annexation committee include serving
as a means of communication regarding public
meetings on the proposed annexation between the
annexing municipality, county in which the enclave is
situated, and those who operate businesses or own
property within the enclave. The annexation transition
committee also provides the mechanism by which
residents, business operators, or other property owners
can communicate through electronic mail, telephonic
communication, regular mail, or public meetings with
the annexing municipality or the county within which
the enclave is located.
Under the annexation thresholds approach, it is
possible that there may be extended periods of time
between annexation activity, making it difficult to retain
committee membership over this duration. For this
reason, it is recommended that an annexation transition
committee be formulated following the first threshold
annexation. The committee members representing the
annexing municipality (City of Fort Collins) should be
qualified staff representatives selected by the director
of the Community Development and Neighborhood
Services department. The Larimer County Community
Development Director should select qualified staff
representatives from Larimer County to represent
the county. The remaining five required committee
members should represent residents, business
owners, or property owners from within the potential
annexation area. These representatives could be
selected through an application process collectively by
the staff representatives from the City of Fort Collins
and Larimer County. If there is not sufficient interest
in serving on the committee from within the potential
annexation area, representatives from other parts of the
East Mulberry Enclave could be invited to participate.
As stated, the annexation transition committee should
be formulated concurrently to the first annexation
threshold regardless of the size of area to be potentially
annexed and the size of the population within this
area. Following the first threshold annexation, the
committee members representing the City of Fort
Collins and Larimer County should continue to serve
on the committee, even if there are no immediate
subsequent threshold annexations. If any City or County
staff representatives are no longer able to fulfill their
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committee role for subsequent annexations, new staff
representatives should be designated. Committee
members representing those that live, work, or own
property within the potential annexation area will be
excused from the committee upon completion and
recording of each annexation.
It is recommended that future annexation thresholds
that meet the specified parameters of 100 persons
and containing more than 50 acres formulate
annexation transition committees per annexation.
Subsequent smaller threshold annexations in
which the potential annexation areas do not meet
the parameters of 100 persons and 50 acres will
not formulate committees that include the five
community members. However, the City and County
committee members should continue to coordinate,
particularly on appropriate notification strategies
to maintain communication with the residents and
businesses within the potential annexation area.
As described in the Actions After a Threshold Has
Been Identified section, a neighborhood meeting
is still recommended to be held with the residents
and businesses within the potential annexation area
in the case of every potential threshold annexation.
This will offer a means of communication for those
impacted by smaller threshold annexations without
an annexation transition committee.
The first annexation transition committee should take
responsibility to establish additional guidelines for
the role of the committee and how to establish the
application process for other committee members.
The formulation of this committee is discussed
further in the section ‘Actions After a Threshold has
been Identified’.
Other indicators of annexation readiness:
In addition to the criteria needed for annexation to
proceed as previously described, there are other
factors that may indicate readiness for annexation.
These factors of readiness can contribute towards
a threshold and should be evaluated to determine
whether any individual or combination of readiness
factors amounts to a threshold and annexation
consideration. Examination of these criteria can be
evaluated in Monitoring Reports, a way to track and
monitor thresholds described in the subsequent
sections of this document. This includes the following
factors:
• Street Contiguity: In some instances, there are
portions of streets within the enclave that cross
between City of Fort Collins and unincorporated
Larimer County. This means that the segments
passing through each jurisdiction must be
maintained by that jurisdiction rather than the
street facility in its entirety. Although similar to
a ‘Maintenance of Logical Boundaries’ threshold,
instances where street segmentation could be
consolidated might be an indicator of readiness for
annexation.
• City of Fort Collins owned properties: Parcels
already owned by the City within the enclave may
also represent opportunities for building thresholds.
There are multiple areas within the enclave owned
by the City of Fort Collins (such as the areas
between the Poudre River and East Mulberry Street
near the Kingfisher Point Natural Area, Roselawn
Cemetery, and an area surrounding the Cooper
Slough on the east side of the East Mulberry Plan
Area). Annexation consideration for these areas
should still evaluate contiguity criteria and other
requirements as outlined in the C.R.S.
• Development Activity: Sites that have proposals
for development or sites that are developable
but have not yet may also require consideration
as a threshold. As outlined in Section 1 of this
document, the East Mulberry Enclave is continuing
to experience significant development. The catalytic
effect of nearby development may result in the
undeveloped portions of the enclave experiencing
development interest.
• Availability of City Resources: The City has made
a determination or evaluation of the necessary
financial and personnel resources are available and
ready to begin providing services and enforcement
capabilities in newly annexed areas for municipal
responsibilities that immediately begin upon
annexation (e.g., policing, land use approvals and
development review).
Thresholds Overview
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IDENTIFICATION OF THRESHOLDS AND SUBSEQUENT ACTIVITIES
Maintenance of Logical Boundaries:
A threshold annexation based on maintaining logical
boundaries seeks to streamline the provisions of
services and enforcement responsibilities by uniting an
area that is split between City and County jurisdiction.
Depending on how portions of the Mulberry Corridor
continue to annex organically, a threshold to maintain
logical boundaries could occur in an area as small as
a few blocks or represent something larger if the City
and County begin to experience issues serving a larger
fragmented area. The following factors could indicate a
threshold has been reached:
• There are multiple, individual properties under both City
and Larimer County jurisdiction in close proximity.
• Properties in one jurisdiction may be partially or mostly
surrounded by properties in the other jurisdiction.
• Primary access to properties occurs through/from the
other jurisdiction.
• Isolated parcels in one jurisdiction occur across logical
demarcation points, such as streets, ditches, and natural
areas.
Achievement of Citywide Policy Priorities:
The City may elect to pursue annexation in portions of
the enclave to advance important community policy
priorities which require properties to be located within
City boundaries in order to enforce standards and
receive funding. Examples may include:
• Applying the City’s zoning authority to help preserve
and protect manufactured housing communities or
other naturally occurring affordable housing from
potential redevelopment and resident displacement.
• Protecting sensitive natural features such as the Poudre
River or Cooper Slough by applying the City’s buffering
standards.
• Forming an urban renewal authority to catalyze
development and infrastructure.
• Purchasing property for City amenities and services
(e.g., parks, natural areas, recreational facilities,
stormwater detention, and more).
It is important to note that there is a desire to
simultaneously preserve existing natural features
and affordable housing while also leveraging future
development to help improve infrastructure and quality
of life for residents and businesses in the East Mulberry
enclave. These may sometimes seem in conflict with
one another, but the recommendations and strategies
in this plan strive to achieve both. As thresholds are
implemented, staff will continually evaluate that a
balance is achieved.
External Funding and Capital Project Alignment:
Threshold annexation based on external funding and
capital project alignment could prompt the City to
pursue annexation in the case that external funding
awarded through grants or other means would alleviate
some costs associated with annexation. Projects
that might be eligible for funding opportunities may
include:
• Transportation or pedestrian/bicycle planning and
infrastructure improvements
• Stormwater infrastructure improvements
There could also be Federal funding opportunities
where the City could coordinate or partner on a grant
application with the County and agree to annexation
upon award or completion of the project depending on
the goals of each agency.
The East Mulberry area also falls within a “qualifying
census tract” that may exempt projects from requiring
matching funds. This is an important consideration for
Capital Projects since that is often the limiting factor in
grant applications.
Also, in cases where multiple capital projects either
within or directly impacting the East Mulberry corridor
are able to be consolidated into one logical geographic
annexation action.
This section identifies ways that thresholds may be identified and the subsequent steps that will occur
following identification.
Thresholds Overview
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EAST MULBERRY PLAN 120
Thresholds Overview
Thresholds may occur independently, or some thresholds may be logically combined together when
appropriate. For example, a voluntary annexation that occurs through development activity within
the enclave may contribute towards creating illogical jurisdictional boundaries that make provision of
services and enforcement responsibility challenging (Maintenance of Logical Boundaries Threshold).
When examining that threshold and the potential annexation area, it could be determined that a nearby
property with sensitive natural features could also be studied for inclusion in the annexation area. Inclusion
of this sensitive natural feature would advance City policy priorities for preservation and protection of
natural features and their associated buffers (Achievement of Citywide Policy Priorities Threshold). This
hypothetical example of how multiple thresholds can be combined to determine the potential annexation
boundaries is depicted in the series of diagrams below.
THRESHOLDS DIAGRAMS
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EAST MULBERRY PLAN 121
Staff identifies potential annexation boundaries based on the type of threshold or thresholds that have been
reached. Using these potential annexation boundaries, staff conducts a neighborhood meeting with nearby
residents and businesses to share information about a potential annexation and to collect initial input.
• Following the neighborhood meeting, a six-month analysis period is initiated. During this period, the
following activities should occur:
• Staff performs financial analysis to understand impacts and resources required for annexation. This financial
analysis will utilize the same framework that has been used in the evaluation work conducted so far. Based on
the financial analysis, adjustments to the potential annexation boundaries are made as needed.
• When required, formulation of the annexation transition committee should be initiated at the beginning of the
six-month analysis period so that committee members representing residents, business representatives, or
property owners can be recruited and onboarded to the responsibilities of their role. This will allow adequate
time for the annexation transition committee to be prepared to serve their duties as dictated in the C.R.S. if
decision-makers decide to proceed with annexation.
• Staff will also perform analysis on the condition and evaluate the existing maintenance activities on streets
within the potential annexation boundaries, working closely with Larimer County. City staff can perform
additional outreach to inform stakeholders of options related to the formation of SID’s, GID’s, BID’s and other
mechanisms for bringing streets up to LCUASS standards. One objective of this additional outreach would be
for staff to educate stakeholders about how roadway maintenance is performed currently and how full ongoing
maintenance by the City could be achieved. This may help to more appropriately set expectations.
• The waiting period will allow the City to continue informing residents and businesses in the affected area about
changes to service providers, fees, and other changes to expect upon the date of effective annexation.
• Staff can continue to gather input from affected residents and businesses related to the potential annexation and
their concerns.
• Staff analysis and stakeholder input is shared with City Council and Planning & Zoning Committee members
to identify if a threshold has been reached, timing options, and ultimately whether to pursue annexation.
• If decision-makers provide guidance to pursue annexation, staff may begin annexation proceedings
immediately or consider an additional waiting period. The effective date of annexation could be delayed,
allowing time for the City to ensure personnel resources, including police officers and support staff are in
place to serve the additional areas being brought into the City.
What happens when a threshold has been identified?
Staff identifies potential annexation boundaries
Neighborhood meeting with residents and businesses within potential annexation area
Analysis shared with Decision Makers to identify timing options and whether to pursue annexation
Staff may initiate annexation proceedings immediately or delay effective date of annexation to align with budgeting and resource availability
Adjust Threshold Annexation
boundaries as needed based on
results of analysis
6 month period
• Financial analysis
• Evaluate condition and existing
maintenance activities of streets
and other infrastructure
• Inform residents and businesses
of service provider changes and
anticipated fees
• Staff to continue gathering
feedback
• Formulate annexation transition
committee as applicable
Thresholds Overview
ACTIONS AFTER A THRESHOLD HAS BEEN IDENTIFIED
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EAST MULBERRY PLAN 122
Thresholds Overview
Monitoring of annexation thresholds and initial recognition of when a threshold has been reached will likely
be a staff responsibility alongside City Council and Executive Lead Team consultation to determine whether
official annexation action is warranted. Multiple monitoring strategies can be deployed to help identify when
certain thresholds have been reached:
• Monitoring Reports – Every two years, compile information on the enclave related to individual
annexations, upcoming capital or master planning projects, redevelopment activity, and more, to
determine if any potential thresholds have been reached. The first monitoring report should be issued
within three months of adoption of this plan to establish baseline conditions for future reports.
• Individual Annexations – When individual sites request annexation, staff is responsible for drafting
a staff report and agenda materials for the Planning and Zoning Commission and City Council. These
documents should include specific discussion on whether the annexation contributes to threshold
criteria.
• Capital Projects – Capital projects that may directly or indirectly affect the East Mulberry Plan area
should be monitored as part of the ongoing threshold monitoring and management.
• Future Plan Updates – Subarea plans such as the East Mulberry Plan are often updated every 10 – 20
years to identify new conditions and reconfirm priorities. During any future plan updates, staff should
review and update potential threshold scenarios.
• External Factors – Anytime special outside factors may lead to changes in the corridor, whether a new
funding opportunity, collaboration with another jurisdiction, or a large development project, these
present opportunities for staff to evaluate impacts on the corridor and whether they contribute to an
annexation threshold outside the standard monitoring report timeline. It is important to note that if a
large development project initiates a threshold and annexation consideration, the development project
can continue to progress along the timeline dictated by the City’s development review and annexation
processes. The timing of that development project would not be impacted by the timeline associated
with evaluating and analyzing thresholds.
• Formation of an Annexation Transition Committee – This committee could help identify whether
certain threshold criteria have been met.
• Larimer County Input – Regularly consult with staff and decision-makers in Larimer County regarding
the status of the enclave and fulfillment of the Intergovernmental Agreement in the context of
the Mulberry Enclave. Larimer County staff representatives will serve on the annexation transition
committee and can serve as liaisons to Larimer County Commissioners and leadership.
As described previously, even with a threshold strategy in place, voluntary annexation within the East
Mulberry Enclave can continue in the ways as described within the C.R.S. Individual or groups of property
owners who meet the outlined criteria for annexation eligibility may still petition for annexation as desired
at any time. Also as described in the Introduction/Annexation Summary section, the processes by which
property owners or electors can petition for annexation of the enclave or an annexation election can still
occur. Successful pursuit of either of those two actions could result in the annexation of the entire enclave
before the natural progression of annexation thresholds occurs to completion.
THRESHOLDS STRATEGY LONG-TERM MANAGEMENT
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EAST MULBERRY PLAN 123
The updated East Mulberry Plan and the proposed
threshold annexation structure represents a new
approach towards annexation and a slightly less
traditional subarea plan document than some of Fort
Collins’ other subarea plans. Unlike other subarea
plans, the East Mulberry Plan covers an area largely
outside of City Limits. Many of the implementation
actions suggested through the Plan are dependent
upon these areas coming into City jurisdiction through
potential future annexation. For this reason, the goals
and strategies contained within the Plan attempt
to successfully balance enough specificity to lay a
foundation for the desired future of the East Mulberry
Plan area, while also remaining nimble and adaptable
to the evolution of this area over time. Successful
management and implementation of this approach will
require additional monitoring, updates, and evaluation
over time. As threshold annexations occur, updates to
Ongoing Management of the East Mulberry Plan
this plan may be required as efficiencies and processes
are established and conditions in the corridor continue
to evolve.
City staff will bear responsibility to enact the process
as covered in this plan, however, the involvement of
residents, business owners, property owners, Larimer
County, CDOT, and other stakeholders within the
East Mulberry Plan Area will remain essential. The
proposed thresholds approach was designed to
build in substantial communication and participation
opportunities for community members in the plan area
(including the Annexation Transition Committee as well
as neighborhood meetings). The thresholds process
and opportunities for community participation should
also be co-evaluated and adjusted as needed based on
community feedback and experience following the first
annexations occurring through this process.
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Appendices
Appendix A:
Community Engagement Reports
Appendix B:
Mulberry Corridor Financial Impact Analysis
Appendix C:
Role of Subarea Plans
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Appendix A:
Community Engagement Reports
Visioning Sessions
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1
EAST MULBERRY PLAN
SUMMER 2021 COMMUNITY ENGAGEMENT SUMMARY
August 18, 2021
Engagement Process Summary
The East Mulberry Plan update process is intended to develop and implement a community-engaged
vision for the East Mulberry enclave, which is planned for annexation into the City of Fort Collins. In the
summer of 2021, the City hosted six public engagement meetings, two per month, in June, July, and
August. Residents and business community members were invited to attend the events to learn more
about the annexation process, to ask questions, and to share their concerns and aspirations around
future annexation efforts. Four meetings were conducted virtually and two were conducted in-person.
Meetings took place on the following occasions (in-person meetings marked with an asterisk*):
• June 29th : 12:00 – 1:30pm (business-focused) & 6:00 - 7:30pm (resident-focused)
• July 14th: 12:00 - 1:30pm* (business-focused) & 6:00 - 7:30pm (resident-focused)
• Aug. 4th: 12:00 – 1:30pm (business-focused) & 6:00 – 7:30pm* (resident-focused)
The City presented an overview of the annexation history and participants were invited to ask questions
and to respond to a series of questions from the City.
Key Concerns
Shared concerns were raised by residents and the business community. The most prominent of those
themes, roughly in order of their prevalence included the following:
• Loss of affordability and rising costs (including gentrification);
• Fear of increased restrictions and regulations;
• Loss of diversity, both in uses and demographics /reservation of the industrial and agricultural
character;
• Having a voice and involvement in the decision-making processes;
• Maintaining and improving flow of traffic, streets, and business access;
• Ongoing and increasing experiences of crime, homeless/transient population, flooding and
drainage; and
• Aesthetic appeal of the corridor.
Suggestions
Participants provided suggestions for the plan update process, as summarized below.
Ongoing involvement of the business community: The business community would like to have increased
opportunities to have input into the process, and a business association may be independently formed
for the area with the help of the Chamber of Commerce (no association for this area currently exists). In
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addition, they have requested that the City host more conversations with the business community
throughout the process and even into the phases of implementation.
Ongoing residential engagement: The residential community also requested increased involvement and
City staff has agreed to set up meetings with individual Home Owner’s Associations (HOAs) and
neighborhood groups to discuss the specifics of the plan for their neighborhoods.
Integrate with scenic byway efforts: Current effort to designate the Cache la Poudre Scenic Byway along
Colorado Highway 14 (Mulberry Street) may be an opportunity for collaboration, funding, and a way to
fulfill business, resident, and City desires to improve the aesthetic appeal of the East Mulberry corridor,
make it more appealing “gateway to the City.”
Community Responses to City Questions
The development of the themes above were derived from the following observations synthesized from
the community meetings. The following four tables synthesize and summarize the input provided by the
community at those meetings, as well as important overlaps between the business and residential
communities:
What is valued most by the community?
Business Community Shared Residential Community
Streets, flow of traffic to allow
big trucks
Low taxes Housing affordability
This area is where businesses
can “get dirty & make noise”
Diversity (of people, of uses, of
business types)
Culture of the community
Proximity to I-25 & ease for
customers & workers from
other areas of Larimer/Weld
counties
Affordability
Space for storage, fueling, etc. Character of place
What needs work in this community?
Business Community Shared Residential Community
It is difficult to know what’s
going on and be involved when
they are busy and involved in
their own businesses – need
good info and repeated contact
Homeless population Schools are too far away
Work to keep industrial and
agricultural businesses here
Crimes like theft and vandalism
and drug-use (needles, etc.)
No safe parks and/or bike
paths/sidewalks to get to parks
Traffic flow (confusing,
congested, dangerous for
pedestrians and bikes) –
improvements to frontage
roads
Streets
Flooding & drainage
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What are their fears/concerns?
Business Community Shared Residential Community
Tractor-trailer access will be
splintered, restricted or made
more difficult
Gentrification The time it will take to get the
annexation implemented
More restrictions on parking
and/or signage
Rising rent and other costs
Residential and/or retail will
push out the industrial
businesses
Higher taxes and/or restrictions
(e.g. building standards, code
compliance, etc.)
Unease in opening/closing
businesses because of
transients sleeping in building
entrances, etc.
Adjusting to the new
requirements imposed by the
City
Increased traffic volume,
difficulty “breaking in” to the
traffic stream on Mulberry
City will just overlay plans and
requirements on them that
aren’t right for their area
What do they hope for?
Business Community Shared Residential Community
Opportunities to provide
additional primary employment
More opportunities to be
involved and have a voice
(advisory board, working
groups, business association?)
Keep and/or provide more
attainable housing options
Keep the diversity of uses
allowed
Knowing what is going on as this
process unfolds
Keep the diversity of the
communities
Better aesthetic appeal of the
area
Help with improving &
maintaining roads
Better connectivity for bikes
and pedestrians, as well as
transit
That the City will really listen to
them and include them in the
planning and decision-making
Aesthetic improvements along
the Mulberry corridor,
especially at the interchange
with I-25. Opportunity to create
a gateway effect more like the
Harmony interchange.
Mulberry is the eastern
terminus of a scenic byway and
could be improved to honor/fit
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Appendix A:
Community Engagement Reports
Online Survey
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East Mulberry Plan Area Visioning Summary
Introduction
The East Mulberry online visioning survey received 43 completed responses. Invitations to participate in
the survey were sent out in a mailer for residents within the study area, and in an email to those who
subscribed to the newsletter online.
The online survey rendered similar values, fears, and hopes about the East Mulberry Area that was
captured by the community engagement meetings hosted in the summer of 2021. Overall, the common
values identified by this survey include affordability for housing and property, conservation of natural
areas and open spaces, and a focus on infrastructure that provides accessibility for a safe cohesion of
travel between motorists, pedestrians, and bicyclists. Fears identified throughout the survey were
focused on rapid growth and overdevelopment that may lead to affordability issues and over
commercialization of the land, as well as a lack of safety around poor infrastructure and increasing
traffic. Respondents communicated their hopes of this area to include an enhancement in existing and
future traffic infrastructure, conserve and create access to natural areas/open spaces and look to create
opportunities for affordability and sustainable growth in the East Mulberry Area, while addressing some
of the social issues facing the area.
This Summary will walk through each survey question that was asked to residents and community
members, highlighting the key takeaways learned from each question focus. Sample responses from
each question are included in order to provide examples direct comments that were given from
community members. The responses were analyzed to identify the common phrases and ideas for each
question, which are highlighted in the bar graphs for each question.
Question 1:
The thing I value most in this area is…
“Easy access to both Old Town and I25; Affordability”
“The current existing natural preserves (ponds, river access, open spaces)”
“That it is an industrial area, with less rules and more affordability. Not Old Town,
Not Fort Collins. That the area gives small businesses a more affordable place to
start.”
“Affordability for small business owners.”
“That most city services are offered, although city water would be better than ELCO.
Connexion is awesome, for example.”
“Freedom from city oversight.”
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Question 1 intended to gauge what respondents currently value in the East Mulberry Area today. The
three main values that were identified by respondents were affordability, natural areas & open spaces,
and infrastructure for the purpose of accessibility. The respondents noted that having quick and direct
access to both Old Town and I-25, yet still having more affordable levels of housing and small business
venues, is a highly valued characteristic of the area. Furthermore, respondents also care highly about
the natural aesthetics of the area, including natural areas, parks, and the scenic views of the surrounding
mountains and farmland, as shown in the bar chart below.
There was a small portion of respondents (7%) that valued being outside of city limits. This small portion
of comments highlights the uncertainty some residents share about the idea of the area annexing into
the City of Fort Collins. These comments seemed beneficial to include because there is some uncertainty
among respondents on how and when the City of Fort Collins might annex the area in the future, as part
of the area remains under Larimer County’s jurisdiction. These concerns were also related to a lack of
clarity around the financial implications of annexation for businesses and uncertainty around how
needed services and infrastructure in the area would be managed by the City.
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Question 2:
The thing I would like to see change most is…
“The roads and intersections are the neighborhood unsafe…need lights with left turns
both on Prospect and intersection of Greenfield’s Ct and Mulberry”
“A real street. Currently our neighborhood dirt road is severely eroded.”
“Better bicycle access to downtown and connected bike paths. A path along Vine,
south of the Railroad tracks that makes Timberline to the Beet Park safe and easy
would be AMAZING”
“Sewage tie-in options for those currently on septic on Summit View Drive”
“More community programs to encourage neighbors getting together to help with
people who are less fortunate, trash pick up in the area or just to gather and get to
know one another”
“More connections to the city so we don't have to drive into town for everything.
Need bike paths, sidewalks, city bus connections, and even a supermarket in the
northeast of the city”
Question 2 asked respondents what changes they would like to see prioritized in the area. The most
common response was to add more bike lanes and to prioritize pedestrian connectivity to amenities,
open spaces, and various neighborhoods within the area. Methods for improvements mentioned
included safer traffic patterns, better public transportation, and improvements to roadway
infrastructure.
Respondents would also like to see solutions to social issues like homelessness, as well as lowering the
crime rate. Respondents suggested providing better access to city services to address some of these
concerns. Along with the changes to infrastructure and social issues, respondents would like to see
aesthetic changes, like more landscaping to soften the view of concrete islands and a general clean-up
of the area. Furthermore, adding more convivences to the area like grocery stores, restaurants, gas
stations, and other businesses would benefit residents and consumers. The chart below highlights the
most used phrases among the responses to this question. Note that the top three key phrases revolved
around connectivity and accessibility for multimodal transportation.
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Question 3:
What are your hopes for this area?
“To get more accessible grocery store and small communal spaces with breweries,
parks, coffee shops, restaurants, etc. and to change the current East Mulberry stigma
of being an impoverished, crime zone”
“That the area will remain a more affordable place for businesses that want to start
and grow in the area. And that the valuable space the businesses need for parking
etc. is not used for sidewalks, trees and bushes”
“Interconnectivity to everything the city offers. It would be nice to have more than
one egress in and out of Timbervine/Dry Creek. Last year’s spring snow, quite literally
trapped many of us in the neighborhood for a day”
“Restrictions on raising rents, help with housing inflation”
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“I hope that the community can be mindful of how important supporting small
businesses is; now that Target & Starbucks has moved in, the convenience of having
them so close can be devastating to the family-owned businesses”
“Walkability. You cannot visit this area for shopping or business without a car. Tree
planting and added landscape features/naturalization and preservation.”
Many of the hopes reported by community members addressed the changes that were reported in
Question 2. 55% of respondents commented on a hope to have an infrastructure that leads to better
multimodal connections between the City of Fort Collins and the East Mulberry Area. Common solutions
suggested for these connectivity and accessibility issues were safer trails/bike lanes, more lighting,
additional turning lanes, more crosswalks, and addressing potholes.
Community members also hope for the future development in the area to follow smart growth
principles. Reported smart growth suggestions included having affordable housing, avoiding suburban
sprawl, being small business-friendly, adding grocery stores and other amenities, preserving natural
areas, adding trails and public transportation, addressing homelessness, and preventing crime.
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Question 4:
What are your fears for the future?
“That current open spaces might be encroached on or that current hotels on East
Mulberry will continue to function as they are now, which is part of what attracts
increased substance use, crimes rates, etc. to that area”
“Underutilizing this space. In filling it with meaningless retail/commercial/big box
stores. Losing the opportunity for massive cultural advancement for the next century”
“That costs will increase, and space will decrease, making it less affordable. Look at
the vacancy rate in this area compared to the others in the Fort Collins area. The
draw for business in this area is not a nice sidewalk it is the Industrial affordability”
“I fear that the pace of housing/development growth will far surpass the
infrastructure growth, leading to continued traffic and safety issues”
“The land won’t be brought into the city limits before it’s developed, and terrible
industrial will fill the areas next to our houses. That something terrible will happen
before the city considers the safety of residents. Right now, we can’t walk from our
neighborhoods without almost getting hit!!”
“That the character will change with no architectural/design regulations. Homeless
population will continue to grow. Multifamily, apartment-style building. Housing
prices will continue to rise, making it only accessible to the wealthy.”
Fears for the East Mulberry Area involve poor planning, traffic infrastructure, and affordability. Many
respondents fear that without careful planning East Mulberry will succumb to overdevelopment and fast
growth. The fear of over-development and rapid growth includes the fear of losing natural areas, the
creation of high property values, continued crime, traffic congestion, infrastructure neglect, and a
decrease in cultural advancement.
Most respondents reflected hopes to see some of the successes of infrastructure that the City of Fort
Collins has (utilities, proximity to essential amenities, bikes lanes clean streets, etc.) but fearing that
these successes could hurt affordability and create challenges for local, small businesses. Residents want
to see improvements to the area without it losing its affordability or industrial businesses that have
thrived in the area for years.
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Question 5:
What are some obstacles for the hopes you have for this area?
“I worry about funding because some of the East Mulberry is under the City of FC
jurisdiction, and some is under County jurisdiction: it would be nice to see continued
collaboration between the two for this are specifically”
“The area around I-25 and Mulberry has a population that needs help but as it stands
now, it doesn’t always feel safe visiting the business in the area after dark.”
“Gentrification. Growth. Balance between homes and businesses. Costs.”
“That businesses will not have interest or financial ability to invest in improvement. I
don’t see a path forward. Traffic volume and speed is an enormous safety concern.”
“No resources to solve problems. The county says it’s a city issue/ the city says it’s a
county issue”
“Homeless population has to be addressed…safety for all, many not wanting to be
annexed into the city, affordable housing has to be addressed, and infrastructure
thought out first.”
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Respondents identified various obstacles that the East Mulberry Area may face when working towards
their community hopes. The biggest obstacles surrounded resources, funding, and planning concerns.
Social obstacles included addressing homelessness, crime, and gentrification. Economic obstacles
included funding, affordability, and the potential for the area becoming unsustainable for small
businesses. Infrastructure obstacles included traffic, a lack of supportive resources for individuals in
need, and a lack of affordable housing. All obstacles mentioned came with a general uncertainty from
respondents on how the city plans to develop, fund, and address development in the East Mulberry
Area.
Question 6:
Additional Comments:
“I think the city of Fort Collins should look at what other cities have done as they have
annexed industrial areas. Instead of making the decision itself, the city should present
various scenarios to the businesses of this area with the trades offs to ensure buy in.”
“An Industrial area is nice if the roads are kept up, no potholes, swept / clean. Most
of the businesses are here because they wanted less overhead, more square footage
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inside as well as outside for less money. Don’t take away valuable space.”
“There are so many people in this area that want to help and be a part of the solution
and broader Fort Collins Community, but there is a great sense of disengagement. I
really appreciate this survey coming out and am very hopeful for the future of District
1.”
“I think building new homes adding to the types of businesses in the area will help
remedy the bad rap this area sometimes gets. I think the best way to help awaken
this area is to encourage new, fun, and exciting businesses to come to the northeast
part of town and build affordable housing to allow more people the opportunity to
own a home in our city. More stuff to do, eat, drink, and see with an efficient traffic
pattern within problematic areas are what we need!”
“Northern Fort Collins is an obvious choice for the city to expand with the
infrastructure already in place. Making an investment in the existing communities will
benefit the city for years to come. As someone who was drawn to Fort Collins with
the promise of it being one of the best cities for biking in the country, I have found
that to not be true if you live on the North side of the city. People are constantly
moving to this area for the outdoor recreation and Fort Collins should further
embrace that by providing safer options and more dedicated trails, not just bike lanes
on busy roads.”
“Farming north of Mulberry disappearing. Where will our food come from? Leave
land for community farming. Rooftop Farming”
The final question gave respondents an opportunity to leave any other thoughts that had not been
included in the previous questions. Ensuring that community members are heard and understood is a
vital part of the planning process, and respondents noted their appreciation for the opportunity to voice
their opinions on the East Mulberry Area Plan. Some comments stated they would like to continue to
see more collaboration and engagement options. Respondents also recapped the need for planning that
creates affordability and diversity of the East Mulberry Area, which could lead the area to feel more
appealing to future residents, consumers, and visitors.
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Appendix A:
Community Engagement Reports
Community Advisory Group
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1
ADVISORY GROUP MEETING 1
EAST MULBERRY PLAN
Date: October 18, 2021
Location: Zoom (virtual)
Participants:
Shawna Van Zee (City of Fort Collins), Jeffery McClure, Dave Marvin, Wayne Hunter,
Erika, Stan McGarvey, Carol Cochran, Brown Abrams, Cindy Freeman, Craig McKee,
Jesse Eastman, Josie Plaut (IBE), Susan Hsin (IBE)
MEETING MINTUES
Objective/Topic Notes
Introduction +
Meeting Kick-off
Shawna welcomed everyone from the Advisory Panel and handed off
facilitation to Josie. The group the introduced themselves.
Introductions
• Jeffrey McClure, co-owner of Fort Fun with wife Jan
• Bill Demos, owner of Mountain Pet Supply, been in the area since 1986
• Dave Marvin, residents of Boxelder Estates, been there 1990
• Mike Brown, Western States Bank, bank has been here since 2004
• Wayne Hunter, owners of Super Market Liquors, been the owner for
the past 5 years
• Erika, resident of Countryside Park, been here for almost 4 years
• Stan McGarvey, owner of Charco Broiler Restaurant, 3 generations
• Carol Cochran, owner of Horse and Dragon Brewery since 2014
• Brown Abrams, previous owner of Fiberlock, since 1992, doesn’t own it
anymore but still owns land next to it
• Cindy Freeman, resident of Countryside Park, lived in the area since
1994
• Craig McKee, owner of water quality company, decorative concrete
company, arts center, and distillery + brewery location too, been in Fort
Collins since 2003
• Jesse Eastman, owner of Fort Collins Nursery, been in business since
1932, been in this location since 1950, owner since 1976
Process Overview +
Advisory Group Roles
Shawna shared overview of the East Mulberry Plan, including a map
showing the plan area and the areas up for annexation
• Distinguished boundaries of plan area and annexation areas
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• Defined enclave – an area that is completely encircled by a properties
that are part of the city jurisdiction
• Agreement with the county that once an enclave forms, the City of Fort
Collins will annex the enclave
• Plan Purpose - develop a vision for East Mulberry that will guide public
and private investment in the future
• Existing plan from 2002 as a resource/reference
• Topics Under Consideration
1. Look and feel of the area
2. Types of uses and activities, desired improvements
3. Stormwater, streets, sidewalks, infrastructures
4. Health and Safety
• Reviewed overall plan development timeline (see Power Point)
Community Engagement Goals
• Engaging diverse group of stakeholders
• Utilizing equity and inclusion resources within the City
• Some engagement tailored to businesses/residents in East Mulberry
• Balance of local and broader community engagement
• Public Information Meetings Public Listening Sessions Community
Advisory Group (current phase) & additional Public Meetings
City Commitment to the community
• We will clearly capture and share advisory group perspectives with the
rest of the planning team back and forth communication between
planning team and advisory groups
• We recognize that we will not be able to integrate every idea in the
plan due to the nature of disagreement and limited time, but the goal is
to develop a plan that encompasses community needs and aspirations
• We encourage the participants to follow up with us if they have any
further questions that go unanswered in this session
Group Engagement Guidelines
• Listen with an open mind and seeking to hear and understand all voices
and perspectives
• Be respectful of others, even when you disagree
• Keep responses brief to make space for everyone to share and meeting
continues to flow
Shawna extended the offer to the group to have reach out with any
questions or set up private conversations as needed.
City Plan Core Values Livability
• Attainable housing and businesses hoping to address the growing
concern about how expensive it is to live and grow a business in Fort
Collins
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• Vibrant economy with good jobs
• Safety and stability provided by city services
Community
• Culture of open, honest, communication
• Commitment to equity, diversity, and inclusion
• Strong public and private social services
Sustainability
• Commitment to the Triple Bottom Line social, environmental,
economic
Vision & Guiding
Principles Activity
The advisory panel was invited to share their thoughts about the outlined
vision and guiding principles and to provide more specific input about their
ideas, opportunities, and concerns. In addition to conversation and the
Zoom chat, a Miro collaboration board was used as a means for further
engagement.
• Dave: there is a lot to absorb in a short amount of time in this space
o Josie clarified that there is no rush to get all ideas down during this
session and that it will be open afterwards
• Bill: what is the coordination between Fort Collins and CDOT to manage
HWY 14?
o Must be considered as the design is planned out because this
byway will have a significant impact on local businesses in the area,
for better or for worse
o Lots of industrial transportation
o Must consider the balance between industrial and residential traffic
o I-25 Interchange is a pinch point; residential traffic and truck traffic
are conflicting
o Unloading trucks can cause a
• Mike: expressed his concern about how large area this is, and that
there is currently only 1 description for the entire area; the total area
needs to be broken up to be more comprehensible subareas
o Josie: during the next meeting we will present proposed subareas
and get the advisory panel’s perspectives on how to create buffers
and smooth transitions between the subareas
o Everything will eventually be address in one master plan so that the
area does not become fragmented throughout the planning phase
• Mike: Maintain this area’s industrial character - a place where people
come to make noise and get dirty, and he does not want the city to
apply the same standards to this area compared to the rest of the city
o “We don’t need the city to come in and plant flowers along all the
sidewalks”
o The city has not yet annexed another area that is as developed as
East Mulberry, so the fear is that the city will come in and overlay
their standards and solutions not unique to this area
• Craig: He paid an impact fee for development/beautification on
Timberline north of Mulberry and supports that kind of improvements
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• Carol: Just because the businesses are classified as commercial does not
mean that these areas can all be addressed in the same way. For
example
o Difference between industrial and retail
o Traffic requirements for these areas differ drastically
• Bill: If Fort Collins wants to maintain affordability, then must support
the businesses and industrial properties in this area because these are
what pays the bills for amenities and services
• Erika: Fort Collins promotes the “15 Minute Neighborhood”, how can
they keep this up?
o 15 Minute Neighborhood is idea that all the needs of residents
(grocery stores, retail, work, schools) have should be bikeable or
walkable in 15 minutes; hope to reduce commute time
o Expressed appreciation for the businesses in this area, but she can
see how this would be obstacle to developing this area into a 15
minute Neighborhood
• Dave: Summit View is a racetrack right now, but one of the most
beautiful roadways in the city; this is where the residential areas pour
out onto the road before diverging to other roadways
o Boxelder Estates – the neighborhood appreciates the rural feel and
doesn’t want new city standards to take that away
o Maybe Summit View could be improved, to slow traffic and make
the corridor more of a boulevard.
• Jeffrey: agrees with Dave that beautification of Summit View should be
prioritized
• Jesse: how much influence does the City have over Highway 14 which is
a state highway?
Comments in the Chat
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1. Vision & Aspirations *comments from the Miro Board*
• For the existing neighborhoods, incorporate the concept of the 15-
minute neighborhood - an existing guiding principle of Fort Collins
development already
• Don’t overly design streets and impost too many requirements on
industrial development
• Continue to allow unique business use that was created out of
necessity when Fort Collins was not interesting in our businesses being
within city limits
• Movement of cars, trucks, and people need careful consideration
• Benefits to businesses in improving the look of Mulberry
• Beautification of the Mulberry corridor
• Building for today AND tomorrow - maintain industrial base
2. Map • *comments from the Miro Board*
• I-25 interchange is a pinch point where residential traffic and truck
traffic often clash - must consider this in roadway design
• Residents are coming down the frontage road, which is where some of
the conflicts between trucks and cars exist
• Mosaic needs safer sidewalks and bike lanes
• Impact fee for development/beautification of Timberline x Mulberry
• No need for flowers and medians - would take away from the industrial
feel and function; consider what makes sense for curb and gutter
• Summit View is currently a racetrack, but it’s a really beautiful roadway
- could be a parkway and an important part of the scenic byway
• Boxelder Estates - maintain the rural feel; no curb and gutter is OK for
many residents
• Cooper Slew Open Space
3. Equity Lens *comments from the Miro Board*
No comments were made in this section
Next Steps • The Miro board will stay open and editable through the end of the
week. Additional comments are welcome.
• We will NOT be meeting on November 1st, but will meet November 15th
and will begin reviewing subareas.
• We are hosing public meetings on October 27th and 28th – please invite
friends, coworkers and other interested parties to participate.
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ADVISORY GROUP MEETING 2
East Mulberry Plan
Date: November 15, 2021
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Shawna Van Zee (City of Fort Collins), Bill,
Stan McGarvey, Patty, Craig, Carol Cochran, Cindy Freeman, Dave Marvin, Erika Jan &
Jeffrey Jesse, M. Brown, Amy Young, Josie Plaut (IBE), Susan Hsin (IBE)
FOR NEXT TIME
• Next meeting on December 13th
• Finish subarea questions (Future development and Residential Subareas)
• Priorities for improved main corridor improvements
o Including pedestrian and bicycle connectivity
• Additional questions from internal City working groups
• Targeted outreach focused in subareas - advisory group members will be asked to help extend
invitations
Objective/Topic Notes
Introduction +
Meeting Kick-off
Sylvia welcomed everyone from the Advisory Panel and handed off
facilitation to Josie. Sylvia noted that she will be available for any questions
about the project and welcomed the opportunity to speak with any member
individually.
Overview of meeting agenda and focus on subareas, including the use of
Mentimeter as a technology to help in the online format.
Vision and Equity
Statement
Vision: Advancing citywide goals while honoring the uniqueness of the plan
area.
Equity Statement: Provide meaningful ongoing opportunities for
engagement and help assure equitable outcomes, especially for those most
impacted and those who are historically underrepresented.
Guiding Principles 1. Celebrate Uniqueness: Valuing the industrial area benefits. As this area
is annexed into the City of Fort Collins, we want to figure out how to
maintain its qualities that makes this area ideal for businesses and
residences, such as affordability.
2. Preserve Affordability & Economic Health: Affordability is a quality of
this area that is highly valued by residents and businesses of East
Mulberry. As discussion for changes for this area are being had, we
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need to keep this value in mind in order to prevent unintended
consequences and displacement of businesses and residents.
3. Improve Livability – summarized by the idea of a “15-minute
neighborhood” and improved mobility.
4. Enhance Relationship with Nature: Preservation, mitigation, and
improved connections to natural areas
Subarea Introductions
1. North & South Residential (in yellow)
o Mostly dedicated to residential.
2. Mulberry Corridor (in blue)
o Timberline and Lemay/Timberline and Mulberry intersections.
o Mostly commercial and retail uses along the road.
3. I-25 Area & Gateway (in purple)
o Mostly commercial and industrial uses.
o Primary functions are interchange of commerce, agricultural
related, exchange of supplies to neighboring states.
4. Industrial Park (in red)
o Industrial, retail, and commercial uses.
o Lots of service-related industries (automotive, landscape,
construction, fabrication etc.).
5. Future Development (in brown)
o Currently an “in-between” zone with uses that are not as defined
right now.
6. City Owned Natural Areas (in green)
o These areas will not be developed on, but the city will continue to
maintain.
o Includes the Cooper Slough Drainage Area.
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Advisory Group questions and Comments:
o What are the concentric circles in the I-25 gateway area? Outlines
the gateway area that the city is trying to define. The city has some
ideas for improvement for the interchange area in the future but is
inviting feedback from the Advisory Group and community because
this is not a final map of the subareas.
o Who owns it and what are the plans for development to the Airpark
Area?
It is currently owned by [NEED NAME] and had been proposed as a
technology center, but it was never developed. Greeley waterline
runs through this area, so parts of the area cannot be developed.
The city can control the zoning and plans for potential future uses
but cannot control what happens on the private lands.
Mulberry Corridor Introduction to subarea conversations and use of Mentimeter, an
engagement tool used for polling. Polling results and notes attached
and/or available by separate PDF.
Likely Future…
o Will remain commercial in nature.
o Improvements or changes of ownership for specific properties and
possibility an assemblage of properties.
o Lemay area shopping centers – can expect little to no change
because these are relatively new developments.
Polling questions and conversation:
1. How important is it to see aesthetic improvements in the median and
street landscaping, signage, and screening (making storage/activities
not visible to neighbors)?
There was some confusion and discussion around the polling set up and
especially around the signage question. Josie and Sylvia explained a bit
about the Fort Collins signage code and that the City is currently open to
feedback about how business signage should look in this area (i.e., how
cohesive or different it is compared to other areas in the City).
o Would the area West of Lemay be able to achieve landscaping
improvements like those implemented East of Lemay?
The collaboration of CDOT and the City is something that we would
like to see in hopes of creating something that is functional and
meeting a higher aesthetic standard.
2. Intersection improvements (function + aesthetics) on Lemay, Link Lane,
Timberline, Summit View, Greenfield?
o Even though Lincoln is not directly intersecting with Mulberry, the
intersection between Lincoln and Timberline is a “nightmare” and
needs to be addressed because it directly impacts the traffic that
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flows onto Mulberry. Carol makes a trip to this intersection every
day and it is “terrible”
o Are these questions directed specifically towards cars? Or should
the discussion include pedestrians and cyclists?
For now, this question is about vehicles. We will explore bicycle and
pedestrian connectivity in the next meeting.
3. How important are the AESTHETIC improvements to you at these key
intersections on the Mulberry corridor?
o How do we strike a balance between function and aesthetic when
making changes for the future? Feels like at no point should
aesthetic be prioritized over functionality and clarity.
4. What future uses are you open to seeing along the Mulberry Corridor?
Sylvia explained the distinction between industrial uses, commercial,
and mixed-use (service industries that don’t necessarily have a store-
front, but a facility is necessary for the business operations, commercial
uses are more related to retail and sales)
5. Are there any types of businesses that you would most like to see
added to the Mulberry Corridor?
6. Are there any types of businesses or uses that you DON’T want to see
on the Mulberry Corridor?
Additional Question for Future Discussions
Frontage road improvements?
o Several members stated concerns about the function of the
frontage roads including safety concerns when turning onto West
Bound Mulberry, no meaningful directional traffic signs in place, no
guard rail in place, and many accidents that end up in or near
businesses including Fort Collins Nursery.
I-25 Gateway Likely Future…
o Regional commercial and ag support businesses.
o Planned I-25 and Mulberry interchange improvements.
o Future proposals for additional commercial and industrial uses.
Polling Questions
1. How important are the following improvements to you at the I-25
interchange and Mulberry?
2. How important are these improvement in other parts of the I-25
subarea?
3. What future uses (commercial vs. industrial) are you open to seeing in
the 1-25 sub area?
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4. What traffic & connectivity improvements are important to you in the I-
25 subarea?
5. Are there any types of businesses that you most like to added to the I-
25 subarea?
6. Are there any types of businesses or uses that you DON’T want to see in
the I-25 subarea?
Industrial Park Likely Future…
o Industrial character and uses to remain.
o An area of interest for new uses and businesses.
o Individual properties to change ownership and use.
Polling Questions
1. How important is it to see improvements to landscaping, improved
intersections, signage, and screening?
2. What traffic and connectivity improvements are important to you?
3. How open are you to new industrial uses?
4. Are there businesses types you want to see?
5. Are there business types you don’t want to see?
Conclusion and Next
Steps
Josie provided a brief overview of next steps and plan for next meeting on
December 13th (action items are highlighted in the first section of notes).
Sylvia thanked everyone for their time and extended the invitation to reach
out with any questions that might come up in between this meeting and the
next, and if anyone wants to meet one-on-one to discuss something more
in-depth.
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EAST MULBERRY ADVISORY GROUP MEETING 3
Date: December 13, 2021
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Brown Abrams, Craig McKee, Stan
McGarvey, Dave Marvin, Amy Young, Erika, Carol Cochran, Cindy Freeman, Josie
Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Next Advisory Group Meeting will be in February 2022, exact date and time TBD.
• Sylvia to gather more information from the city’s utilities team about the possibility of increased
rates in response to Cindy’s question about costs associated with changing electrical meters.
• Follow up with Advisory Group members that offered to help with community outreach and
provide them with the necessary materials & information – Stan will reach out to business
owners in his network, Carol will reach out to her neighboring businesses, Amy will reach out to
Mosaic Neighborhood Facebook group chat.
Objective/Topic Notes
Introduction +
Meeting Kick-off
Josie welcomed the group and briefly explained the meeting agenda and
reviewed previous meeting discussion including the subarea map.
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Future Development
Area
Continuing the format from the previous meeting, the group discussed
options for the future development subarea.
Overview & Questions
• This is the subarea with most opportunity for change within the
next 5-15 years.
• Carol – is this area privately owned or can the city put in specific
recommendations for this area?
Sylvia - What can and cannot happen in any given area is primarily
determined by zoning, which is yet to be determined for this
subarea. The city is currently exploring ideas with input from the
community, including this group. Zoning and private party
investment will be the two most influential factors about what
happens here. The City can only do so much to determine what
happens on private land. In addition to zoning, the City has a limited
number of addental ways that they can help incentivize the
development of projects that meet community goals and needs.
• Amy – if a current private property goes up for sale, does that
provide the city an opportunity to rezone that area?
Yes, but this is a complex process and there are a lot of standards
and guidance that help shape what is possible. The City does not
usually do spot zoning, and rezones typically involve a significant
amount of land. The Subarea identified as “Future Development” is
currently being discussed because there is more of a chance that
this area could be rezoned. There is room for community input for
what this area will entail in the future.
• Cindy – if the zoning changes in 5-10 years you are affecting how
they can sell their existing business. Most businesses there were
established prior to the residential built up around it.
Sylvia – For the most part, upon annexation the City would apply
very similar zoning to what properties are currently zoned in the
county.
Josie invited the group to join this session’s Mentimeter engagement tool.
Polling results and notes attached and/or available by separate PDF.
https://www.menti.com/i1vxpojzad
Questions for the Group:
What kinds of uses might you like to see?
Options included the following, which have been ordered from
highest to lowest rank. The expressed desired future uses were
highly variable across the group with every answer having
participants who were strongly opposed or strongly in favor of each
idea. There were no clear winners or losers.
o Basic services (restaurants, grocery, banking, etc.)
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o Arts / creative spaces
o Commercial / retail
o Pharma / tech
o Additional Industrial
o Mixed use (residential and commercial)
o Attractions / entertainment
What do you think would add the greatest value to the area? To the Fort
Collins community at large?
• Several comments mentioned the need for improved connectivity,
especially for active modes of transportation, and the desire for
more parks and basic services.
• Some mentioned arts and entertainment.
• Some expressed concern that the area might be come increasingly
residential over time and push out businesses and industry.
Any additional thoughts & ideas for what add the greatest value here? To
Fort Collins at large?
• Input from the advisory group were captured in the Mentimeter
poll, but there were strong opinions about implementing safe and
integrated trails for bikes and pedestrians.
North & South
Residential
Likely future…
• Existing residential will largely be unchanged.
• Additional new residential is underway and is more likely.
• New residential will conform to current City standards.
Participants were asked to rank the following improvements in of priority
(most desired first). The results in order of priority were as follows:
1. Bike & Pedestrian Infrastructure
2. Improved Trail Connectivity
3. Broadband
4. Undergrounding utilities
5. Stormwater and flooding infrastructure
6. Fix potholes
• Cindy – How much will the cost be for changing out electrical
meters?
Sylvia will check on the answer to this question with her colleagues
in utilities. There will most likely be a slight change to the utilities
with meter changes, but these changes will look different for
different groups depending on their area and energy usage.
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• Craig – There seems to be a need for connectivity from all these
residential zones to adjacent areas.
• Erika – There is currently only one place to catch the bus from
where we live, and it is not the most comfortable for pedestrians to
get there. Hopes to see that students and residents in the area can
have more access to these public transit stations to transport
themselves to other resources in Fort Collins.
Corridor
Improvements
The Advisory Group was introduced to potential design concepts for each of
five roads:
1. Lincoln Ave.
2. Link Lane
3. Summit View
4. Racquette Dr.
5. Mulberry St. / HWY14
Overall Discussion
• Carol – Has a co-worker that is an avid biker, yet he is still scared to
bike a mile to work because he has to get onto Timberline, where
there is lack of bike infrastructure separate from the busy main
road.
• Dave – Intersection between Timberline and Lincoln is horrid.
• Cindy – Does not feel safe biking to work even though she lives
close.
• Amy – Reinforced the idea that she would love to bike to work, but
she does not feel safe doing so and feels worried for her son, who
loves to bike, every time he goes out for a ride.
• Dave – Recognizes that this is a long-term project but emphasized
that this issue needs to be resolved with urgency.
• Erika – Must sit at the Mulberry and Timberline intersection for at
least 4 cycles every morning when she enters Old Town for work.
Proposed Solutions for
Corridors
Lincoln Avenue
Possible Direction
• Capital Project (paid for by public funds)
• Currently a portion of Lincoln has no shoulder, sidewalk, or
protected bike lane.
• Option to extend pedestrian and bicycle pathways like the segment
of Lincoln that has already been upgraded, and to improve median
landscaping and stormwater infrastructure.
Discussion
• Carol – Appreciates the image shown of the stormwater ditch that
runs alongside Lincoln East of Lemay. There is extensive potential
there to make improvements. The bird life there is amazing,
although there is a lot of trash.
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• Generally, the group was favorable to this improvement as
described.
Link Lane
Possible Direction
• Mix of private and public funds.
• Improve pedestrian and bicycle pathways.
• Improve entry and exit options – make curbs possible.
• Would need to work with local business owners to encourage
defined entrances/exits as possible.
Discussion
• Carol – Feeling conflicted because her own property (Horse &
Dragon) had to undergo this rezoning process, but she does feel like
it was worth it because it made customers more comfortable.
Would love to see this enforced for her next-door neighbors.
• Generally, the group was favorable to improvements as described.
Josie – it may be helpful to consider the idea of “front-of-house” and “back-
of-house” regarding the corridors. The larger corridors can be considered
front-of-house and might like a higher-grade finish, but the back-of-house
areas may not need the same level of aesthetic care.
Summit View
Possible Direction
• Capital project paid for by public funds.
• Extend pedestrian and bicycle pathways by adding protected bike
and pedestrian infrastructure on one of road (similar to Vine Dr.)
Discussion
• Dave – Must consider the character of what is existing in the area in
the planning process. Although he appreciates what has been done
on West Lincoln, he feels like the sense of authentic character could
be taken away if we did this for Summit View. There is something
unique about Summit View that needs to be preserved.
• Erika – Echoes Dave’s comments that Summit View provides a great
view in her morning commute and hopes that the open spaces and
character can be preserved with the changes to the roadway in the
future. Hopes to keep the beauty of the natural area in a safer way
rather than the new “manicured” landscape.
• Craig – Implementing some curves and meandering pathways that
complement the beautiful natural views can help to reduce the
speed of drivers in this area in a more natural way. Maybe we could
try something besides the typical wide and straight roadway.
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• Erika – Is there a more aesthetically pleasing way to make the
protected bike and pedestrian lane instead of the concrete bollards
and concrete protective curbs?
• Carol – Would like to see comprehensive improvements for
pedestrian & bicycle safety – not just on Summit View but need
improvements on Timberline/Mulberry and/or Lincoln and also on
Prospect from I-25 to Riverside to make complete routes.
Racquette Dr.
• Likely to experience little change.
• Likely a light touch on safer bike and pedestrian movement.
• Looking at possible piecemeal improvements for one side of the
street adding a sidewalk and some street treats/landscaping.
• The stormwater department will evaluate further infrastructure
needs and budget through Dry Creek Master planning.
Mulberry
Street/HWY14
Mulberry corridor needs a significant dedicated planning effort.
• This corridor deserves its own thorough planning process due to its
sheer scale, and it involves cooperation with CDOT.
• Needs functional improvements on the frontage roads, key
intersections, and bicycle and pedestrian infrastructure.
• Many opportunities for aesthetic improvements on medians and
other street trees and landscaping.
Engagement Strategy The City needs help from the advisory group to invite additional input from
community members throughout the plan area. The area generally has less
formal social infrastructure hopes the advisory group members can help
drive participation in subarea workshops next year.
Josie asked the group:
• How might we best engage people from different areas?
• Who are 10 folks you know who should be involved in some way?
• Thinking of the folks you know, how should the city proceed with
gathering input (online surveys, in-person group conversations,
online group conversations, etc.)?
• Are you willing to extend a personal invitation to people you know?
Discussion
• Amy – There is a Facebook group for the Mosaic Neighborhood that
is relatively active, and she can make a post to get more folks
engaged.
• Craig - Having a survey that is accessible at different businesses
might be helpful. Leaving a QR code for the convenience of survey
participants might be impactful.
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• Dave – Must identify what kind of information the city is trying to
capture from the public, quantitative or qualitative. It might not be
worth it to do the “deep-dive” on a survey because the quality of
information might not be worth the effort for outreach in this
format.
• Carol – There is value in allowing people to feel like they are being
heard. Surprised that there has been minimal participation from
the community because there are many people who have
expressed strong opinions in the past yet are still not finding their
way to these important conversations.
• Josie – Suggested an idea to host subarea meetings/focus groups
where the public interest can be more geared towards specific
interests. There is still a barrier for community engagement since
these meetings must be hosted online.
• Carol – Happy to contact business folks she knows in the area for a
meeting at Horse & Dragon or online.
Conclusion and Next
Steps
Josie concluded the meeting with closing remarks and asked the group for
any final thoughts.
• Dave - Suggested gathering statistically significant data from the
community, understanding doing so can be very difficult to achieve.
So suggested bringing in the university or another 3rd party
organization to help with the survey questions.
Next meeting for the advisory group will be held in February. Josie
encouraged advisory group members to extend this conversation to others
and help invite more people to the subarea workshops.
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EAST MULBERRY ADVISORY GROUP MEETING 4
Date: February 7, 2022
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Tayla Copeland (City of Fort Collins),
Shawna Van Zee (City of Fort Collins), Craig McKee, Erika, Cindy Freeman, Jesse
Eastman, Josie Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Refine and specify the language used in list of goals to make sure that the information
presented resonates with the community and the Council.
• If using Mentimeter results for council, adjust the scale of the graphic results to avoid confusion.
• Send out the draft plan for participants that are interested in staying involved, and maybe
planning a meeting with the City to go over the plan to gain common understanding.
• Possibly finding a new meeting time during the day that would work better for most.
Objective/Topic Notes
Introductory Remarks
+ Meeting Kick-off
Josie welcomed the group and briefly explained the meeting agenda.
Community
Workshops Update
Resident Workshops
• Two Resident workshops have happened so far, one in English and
one in Spanish.
• 12-14 people attended each workshop, which is a successful
turnout in the City and IBE’s experience.
Josie shared the results from the workshops (both Spanish and English) with
the Advisory Board.
• Results identified shared and mixed priorities from each group.
• Spanish-speaking group prioritized improvements to the
Lemay/Mulberry intersections, while the English-speaking group
prioritized the Summit View/Mulberry intersection.
• Residents are generally more oriented towards improving civic
infrastructure compared to the industry sector. Once the business
workshops happen, results will be analyzed and compared.
• Distinctions between Spanish-speaking community and English-
speaking community for connectivity to certain destinations. Access
to Vine Drive is a priority for Spanish-speaking community where as
the English-speaking community prioritized Downtown.
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• Spanish-speaking community was less interested in additions to
industrial, business, retail, and basic services than the English-
speaking community. They were also less inclined for large scale
changes overall.
• The causal drivers of these differences should be explored further.
• Interest from both groups for more natural areas + parks,
restaurants, arts & creative spaces, community & recreation
facilities, and attractions.
• Emphasis on mobility and making larger improvements to natural
areas are consistent themes that emerged.
• The only demographic information we asked for in the meetings
was the relationship to the area. This is also true for the
questionnaire that is available on the City of Fort Collins’ website.
Without a clear use for the demographic information, the team
decided to not ask more questions on demographics. Our focused
on the interaction and perspectives gained from the meetings.
Key Issues & Strategies
of Subareas
Josie provided a brief review of the different subareas in conversation for
the East Mulberry Plan. We will be looking for confirmation and questions
from the Advisory Board during this section.
Safety
• I-25 and East Mulberry consistently noted as an area where the
success of businesses is partially disrupted by safety issues not
adequately addressed by current law enforcement efforts.
Businesses in this area actively requested to be annexed to help
mitigate crime.
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Aesthetics & Transportation
• Aesthetic improvements along the E. Mulberry Frontage Road.
• The highway is currently dangerous to access by all modes of
transportation.
• Many intersections are currently unsafe for pedestrians and
cyclists.
Stormwater Improvements
• The service-area/industrial park southwest of the old airport and
directly east of Home Depot and Walmart is affected by poor
stormwater infrastructure and flooding.
Affordable Housing and Transit
• Mechanisms for affordable housing preservation are an option in
the plan area neighborhoods.
• Investments in transportation improvements can be planned for
Summit View. A bike and pedestrian lane on one side of Summit
View has been in discussion to improve safety for bikers and
pedestrians.
• There are opportunities for enhancing bicycle and pedestrian
connectivity for key corridors.
Plan Structure The following framework and information will be presented to Council. This
is a chance to make sure that this is accurately representing the work and
ideas that have come from the Advisory Board before the presentation to
Council. Josie reminded the group of the reasoning behind why we are doing
all of this in the first place.
• Commitment was made through an intergovernmental agreement
between the County and the City.
• The city is the urban service provider capable of providing more
services than the county.
• This area has urban needs that are not being met (police services,
stormwater mitigation, etc.).
• Disparities exist in access to amenities that will likely increase as
time goes on.
Goals for the East Mulberry Plan
• Dedicated and flexible space for industry.
• Safe and functional stormwater and transportation infrastructure.
• Integrate and connect to community amenities & services.
• Celebrate and enhance historic and natural features.
• Explore phases of annexation.
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The advisory board members expressed some concern that the language in
the goals was missing key ideas. (See discussion for more detail). An
overview of each goal area and strategies was presented to the group.
Dedicated and Flexible Space for Industry
• Make space for additional innovation and entrepreneurship in
commercial and industrial uses.
• Allow for context-specific and customized solutions related to in-fill
development, business expansions, and remodels.
Safe and Functional Stormwater & Transportation Infrastructure
• Collaborate with CDOT, adjacent business-owners and other
community stakeholders on the re-design of East Mulberry Street
(not the corridor as a whole) including multi-model transportation.
• Improve accessibility to greater Fort Collins community and
enhance safe travel and accessibility for all modes of
transportation.
• Improve stormwater infrastructure through capital improvements
and context-specific mitigation strategies, especially in the
industrial area.
• Explore potential funding mechanisms for addressing substandard
and missing infrastructure.
Integrate and Connect to Community Amenities & Services
• Increase safety through Fort Collins Police Service patrols and
community policing efforts.
• Explore ways to maintain housing affordability and existing
character of residential neighborhoods.
• A big challenge for the city, to deliver amenities improvements
without disrupting the affordability of living in this area. This reality
of these challenges is present in ongoing discussions, and planners
are currently trying to arrive at a balanced solution.
Protect and Promote Historic and Natural Features
• Protect existing natural habitats and features (including the Poudre
River, Dry Creek, Cooper Slough, and Boxelder Creek) through
thoughtful and appropriate development. Making this area more
productive and enjoyable from both an ecological and recreational
standpoint.
• Identity new areas for parks and natural areas.
• Increase access to existing parks and natural areas.
• Increase the urban tree canopy throughout the corridor.
Josie took a pause in her presentation to ask the group if they think this
information hits the mark.
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Comments from the Group
• Should aesthetic improvements and beatification be included more
explicitly on this list of goals based on our discussions? Mulberry
corridor being a gateway area into Fort Collins makes it high priority
for aesthetic improvements and good first impressions.
Sylvia’s Response – Much of these beautification initiatives will
occur as a byproduct of some infrastructural re-development. The
goal to enhance the historic and natural features is also related to
aesthetic improvements.
• Will the character of the residential neighborhoods and the smaller
homes in the area be preserved, or forced to change because other
investors are supporting the change? What about other ways to
address affordability, character, and improvements?
Sylvia’s Response – The plan is going to outline context-specific
strategies for different areas. These will be proportional to the
project that is happening (ex: travel corridor specific, building
specific). Residential building permits are usually separate from
commercial development. There are some strategies in place, such
as land-use code, that will serve as guidelines for how these areas
will change. Some of it can be controlled by the city, but some of it
is unpredictable and out of the City’s control.
• Regarding language in the overarching goals:
o Some of our key discussion points that don’t seem to have
as much emphasis in written form compared to what we
have heard consistently in our discussions.
o The titles seem vast and vague, which can leave a lot of
room for interpretation. Motives can be a little unclear with
the current format.
o Some goals do not seem to be reflected in the goal
statements, and some terms can be clarified to avoid
confusion.
• Which improvements are considered a necessity and what will be
the priorities for the City? For example, how do we define what an
amenity is, and which ones should be prioritized? This is currently
unclear due to a lack of hierarchy and refinement.
Sylvia’s Response - The City is aware of the many issues that could
be addressed, but resources are limited, especially with for
expensive capital improvement projects. The City doesn’t want to
over overcommit to promises that don’t have realistic funding
sources.
• Where would the priorities lie?
Sylvia & Josie’s Response - The planners are still in the process of
determining the highest priority needs and allocating capital
budgets. Priorities have not been finalized, but there has been
progress. Progress with the capital projects is happening
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concurrently as we are having discussions about how to move
initiatives along.
Next Steps & Closing
Remarks
Phases Annexation
• Careful and strategic analysis of pros and cons related to annexation.
• Phasing may allow for greater integration and implementation of
plan goals.
Sylvia clarified that the City Council has final say in how annexation happen.
This is an area of Fort Collins that is part of the community, but not currently
served by the City. There is a clear need for providing services and amenities
for this area to be brought in. The City planning group is drafting a phased
annexation plan and will share that back with the community, including this
group, for feedback.
Business Community Workshops
• Tuesday, Feb. 8 12-1:30PM and Wednesday, Feb. 9 6-7:30pm.
• Currently 20 participants registered.
• Josie encouraged everyone to continue sharing events to help drive
participation.
Upcoming Council Work Sessions
• March 8th – Review the plan framework (what was reviewed today)
• April 13th – Joint Council and county meeting
• April 26th - Draft plan for Council to review
• Annexation Phasing – tentative for April or May
• City Council Adoption Hearing – May or June
Josie clarified that the Council workshops are not interactive with the
community participants, but meetings will be streamed live and recorded for
those who wants to see how City Council is thinking.
The group expressed interest in having two more meetings to review the
draft plan and the annexation plan. They also expressed interest in a
daytime (noon?) meeting instead of evening, which is difficult for family
commitments.
Josie and Sylvia thanked the group for their generous participation and time
engaging in this process.
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EAST MULBERRY ADVISORY GROUP: ANNEXATION LENSES & PHASING
Date: April 1, 2022
Location: Zoom (virtual)
Participants: Sylvia Tatman-Burruss (City of Fort Collins), Shawna Van Zee (City of Fort Collins),
Mike Brown, Amy Young, Erika, Josie Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Share recording of this meeting with other Advisory Group members.
• Share recording of Council’s most recent meeting to Advisory Group members.
• Joint City Council and County Commissioners meeting on April 13th
• City Council work session focused on annexation April 26th
• Complete draft of East Mulberry Plan – City will reach out in the coming months.
• Notify Advisory Group when the Council’s vote will take place in an updated newsletter.
KEY TAKAWAYS & PERSPECTIVES
• Support for annexation in hopes of eventually benefitting from increased resources and
attention toward transportation, policing, stormwater, and other topics
• Concerns and surprise that annexation was in question and group member expressed concerns
about perceived lack of leadership, follow through, and potentially damaging optics if the City
chooses to back down from annexation.
• Desire for greater connectivity, continuity, and safety for different modes of transportation.
• Preference to start with Mulberry Corridor and the I-25 Gateway.
KEY MESSAGES FROM ADVISORY GROUP MEMBERS
• The financial implications and concerns should not get in the way for the betterment of the
community.
• It is short-term thinking to hesitate making improvements to this area. Feels like a short-sighted
perspective to think that investing in this area won’t be worth it. I would like to see the council
be more optimistic in this effort.
• It would be challenging to employ a phased approach for the improvements. It seems like the
area should either be annexed or not annexed. If we don’t annex, then the City does not need to
worry about having a plan and can stop spending so many hours and resources to wait on
decisions.
• Lack of vision by the City. Does the City want a cohesive feel on this side of town? At this point it
does not seem like they are convinced it is worth investing in East Mulberry.
Objective/Topic Notes
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Introductory Remarks
+ Meeting Kick-off
Brief overview of the agenda and conversation about the focus on the
difference between the Annexation Plan and the East Mulberry Plan.
The meeting was recorded via Zoom.
Community
Workshops Update
• Council asked staff to focus more on annexation phasing and options
• The East Mulberry Plan, while related, is on hold for a couple months.
• Council work session on April 26th will hopefully provide guidance for
how to move forward.
• The East Mulberry Plan can and does exist without annexation, but
annexation would provide greater accountability and resources focused
on implementation.
• Annexation is part of the longstanding agreements between the City
and the County, though it is not a given. Staff and consultants are
working to develop information and context to help inform council’s
decision-making process
Annexation Overview Difference between Annexation Plan and East Mulberry Plan
Annexation Plan
• There is an intergovernmental agreement that defines when an area
becomes an enclave, it will be annexed into the City and the City will
become the service provider in the area for policing, zoning, building
codes, stormwater infrastructure, and transportation. The current City
council has brought into question the annexation of the area.
East Mulberry Plan
• Existing plan from 2002 that addresses development in the area. It
works as a guiding document on whether this area will be jointly
adopted by the city or not. Recent efforts have focused on updating
the 2002 plan. The plan will be more robustly implemented if the area
is annexed than if it is not.
Questions/Comments from the Group
• We were under the impression that the annexation was going to
happen, and it was just a matter of time until it was finalized. Is that still
the case?
At this point, Council is asking for more information to make a more
informed decision about moving forward.
• Is the City waiting for more information or is there something else going
on behind the scenes?
The starting point was the agreement, but ultimately the decision is
up to Council, and they can choose whether to follow through with
annexation.
• What are the repercussions if Council decides to not annex this area?
This is something that the staff is still trying to understand as well. It
will largely depend on how the conversation goes on April 26th
before we have a better idea.
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• What happens to the East Mulberry Plan that we have been working on
over the past many months?
It was a surprise for everyone that the last Council work session
went the direction it did. They want to make sure that all the
community engagement work that has already been done is still
accounted for moving forward.
The annexation plan and East Mulberry Plan are related, but not
directly tied together. If Council does not decide to proceed with
annexation, the East Mulberry Plan can still be adopted. If the plan
is adopted without annexation, it is likely that it will serve as more
of a guiding document, rather than a plan.
• What was the purpose of updating the 2002 Plan?
Many City policies have changed since 2002, so the City wanted to
reevaluate the original plan in alignment with the current needs of
the community and changes the Fort Collins has experienced since
2002. This gives the City an opportunity to take more community
feedback into consideration as well.
• What factors influence what City Council is looking for in deciding on
annexation?
It’s a matter of having enough resources, the timeline of when to
start projects, and how to handle existing issues with roads and
infrastructure. They are looking for staff to outline these concerns
with more clarity to help make their choices more obvious.
• Has there been discussion about the increasing development and
population increase in this area? Genuine concern about public safety
due to the anticipation of many people moving to this area.
Because the policies of the City have changed to accommodate
multimodal transportation, the City, as an urban service provider,
requires this for new development. The requirements for the county,
which has more rural foundation, are much different. The
requirements and services from the City and the County do not
exactly line up, so the issue at hand is to figure out a solution that
will be a common ground for the differences between the two
jurisdictions.
The objective of today’s conversation is to be able to better
understand and articulate the community’s responses around
potential annexation by understanding different perspectives from
the community. We are trying to identify what the community
perceives as the benefits and drawbacks of annexation.
Suggestion to watch the recorded Council session to better
understand the shift in direction / the Council’s questions around
annexation. It’s important to note that Council works and decides
on issues and that City staff’s role is to provide information and
guidance to Council, but they are not one and the same.
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• Pedestrian, bike, and resident safety in this area is why an advisory
group member decided to join. The Mosaic Neighborhood, for example,
has great roads and infrastructure, but outside of the neighborhood,
that is no longer the case. No private builders and developers are going
to deal with the City’s infrastructural and connectivity issues.
Planning and resources from the City can begin with annexation,
but even if that is the case, it is very unlikely that any major changes
would happen in the next 5 years. It is a long process.
Phasing Overview The group moved into an annexation activity after being introduced to the
annexation subarea map (which is a little different from the East Mulberry
Plan Subarea Map). The group reviewed a summary of concerns and
opportunities by subarea.
There are no hard boundaries for the subareas on this map, but it is divided
up in a way to help us make sense of the area.
Why are we talking about phasing for annexation?
• Allows for the City to build up resources over time, rather than all
at once.
• Allows time for revenue generation ahead of other phases.
• Allows for better community engagement ahead of each phase.
Often, annexation areas are much smaller than what is to be the case for
East Mulberry, so the phasing plan helps annexation be more feasible.
Phasing lenses
Each lens focuses on one priority area. Other priority areas are still present
but might be delayed or resourced differently. The idea is to spark
conversation, rather than expect that the city will take on any one of these
lenses specifically. The options generally represent a time that would start in
couple of years and last 10 or more years.
1. Fiscal Health for City emphasizes fiscal impact to City of annexation,
including priorities, budges, risks, and timing.
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• Prioritizing revenue for the city through primarily through city
sales and some property taxes.
• Annexes commercial areas first with residential areas coming
later.
• Allows financial resources to be built up most quickly to help
offset additional costs (e.g., policing, capital improvements,
etc.)
2. Environmental & Hazard Protection Emphasizes annexation areas
that need improvements to address environmental and natural hazard
concerns (e.g., flooding).
• Recognizes that floods are a major concern in this area.
• Prioritizing subareas 1, 2, 4, which include Cooper Slough, Dry
Creek, and the Poudre River Trails.
• Might be a while until stormwater infrastructure improvements are
made, but this lens would get it on the list as a priority.
3. Economic Opportunity Prioritizes the annexation of properties with
potential for new industrial and commercial development that would
generate income for the local economy.
• Effort to identify which areas will maximize business potential while
meeting the multimodal requirements.
4. Residential Enhancement Emphasizes connectivity, utilities, and
other social priorities.
• Focuses on residential / resident priorities.
• Prioritizes annexation of subareas 2, 3, and 5, which have existing
residential neighborhoods
• Conversation around affordable housing in this area.
5. The Gateway Community Emphasizes functional and aesthetic
improvements along the Mulberry corridor.
• Aesthetic and functional improvements in partnership with CDOT.
• Prioritizes Subarea 3 and central portion of Subarea 1
Sylvia clarified that staff would present financial numbers to council on April
26th. These lenses are meant to help inform council’s thinking about an
annexation approach based on different priorities.
Questions from the Advisory Group
• Have any numbers for cost and benefit been put together yet? What is
the bare minimum for cost and funding? Seems like there is a huge gap
in this presentation about this.
Round numbers will be presented from the financial analyst in the
next council meeting on April 26th. We currently have a general idea,
but it is up to Council to decide what to do including looking
annexation from staffing, services, maintenance, and capital
perspectives.
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Phasing Lenses
Conversation
QUESTION FOR THE GROUP
Which area would you suggest annexing first and why? If you had to rank
them, or put them in an order, which order would you choose? Why?
• Focusing on the Gateway Lens should be prioritized to address the
issues of public safety and transportation. If this was the starting point,
there is potential that the improvements would spill over into the other
Subareas.
• The Gateway seems to be the most palatable choice because it would
have the greatest positive impact on the most people and the whole
town of Fort Collins, versus improvements to other subareas would only
be a help to the people who interact with those areas more exclusively.
• Even though this would be the most beneficial lens to take on, it is
equally probably the most difficult subarea to address.
• There are many overlapping issues characteristic to this area (i.e.,
stormwater infrastructure/flooding, traffic safety issues), that might
make this phasing plan not the most pragmatic solution. It would be
difficult to compartmentalize the improvements to one specific
subarea.
• To clarify, the Gateway Lens is not just a notion for beautification.
• Policing by the interstate is needed. Is there any data to provide to City
Council that addressing this area would be a crime reduction effort,
which would reduce the urgent need for police services?
The data is available in call volumes to the area. It shows that police
are needed in this area, which could help the case for the Gateway
area being pushed forward.
• It seems Council is struggling with the justifying the cost to cover
policing, but that cost isn’t supported by the current revenue/budget,
making it a barrier for the city to annex this area.
• Being short in resources doesn’t mean we shouldn’t be doing anything.
What would you most like council and staff to understand about your
thoughts on annexation?
• The financial implications and concerns should not get in the way
for the betterment of the community.
• It is short-term thinking to hesitate making improvements to this
area. Feels like a short-sided perspective to think that investing in
this area won’t be worth it. Would like to see the City be more
optimistic in this effort.
• It would be challenging to employ a phasing approach for the
improvements that need to be done in this area. It seems like it
should either be annexed or not annexed, which might make this
whole plan less confusing to our benefit. If we don’t annex this, the
City does not need to worry about having a plan, which is currently
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something that the City is expending so many hours and resources
to wait on decisions.
• Lack of vision by the City. Does the City want a cohesive feel on this
side of town? At this point it does not seem like they are convinced
it is worth to invest in.
Closing Remarks +
Next Steps
The civic process only works because of the engagement from the
community. Our commitment is to continue facilitating opportunities that
will elevate the voices in the community.
This is far more than just a financial decision, but rather a whole city
decision. Despite the interesting turn in the road for all of us in this process,
all the progress made today is helpful for the City to gain clarity for this
complex decision.
The Council work session on April 26th is focused on the Annexation Plan,
which will include the lenses we discussed today, accompanied by the round
financial numbers. There is currently no deadline for council to decide by.
The work session on the 26th will not lead to any decisions, but the hope is to
get enough done to create guiding direction that will lead to a decision.
Regarding the East Mulberry Plan, it has the most impact is when single
properties and new development occurs. New developments will be subject
to the plan guidance whether the annexation happens or not. At the very
least, the impact will happen, but at a smaller scale (developers, builders,
private businesses) with the creation of this plan document.
Josie thanked everyone for their time and encouraged the group to keep
learning, keep staying involved, and to watch and participate in the council
work sessions and hearings accordingly.
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EAST MULBERRY ADVISORY GROUP: ANNEXATION & PLAN UPDATES
Date: February 2, 2023
Location: Zoom (virtual)
Participants:
Megan Keith (City of Fort Collins), Sylvia Tatman-Burruss (City of Fort Collins),
Shawna Van Zee (City of Fort Collins), Josie Plaut (IBE), Elicia Ratajczyk (IBE), Brown
Abrams, Stan McGarvey, Amy Young, Cindy Freeman, Nathan Randall (City of Fort
Collins),
ACTION ITEMS
• We should move the voluntary annexation by landowner petition example to a different spot in
the slide deck, it was a little awkward.
• Shawna to share the Q&A document and information about the upcoming timeline with
everyone via email.
KEY MESSAGES FROM ADVISORY GROUP MEMBERS
• There is still general support and interest in annexation and improvements in the East Mulberry
Enclave.
• They would like to be kept informed and are concerned about the uncertainty of both the
timeline for annexation and clarity around what it would mean for different types of properties
including how it would affect property taxes, values, access to businesses and amenities.
• They would like additional clarity about what this is going to look like and help in envisioning
how the process will unfold.
• They would like to be notified as improvement projects (whether from CDOT, the City, or the
County) are planned and information on how they can be involved in the process.
Objective/Topic Notes
Introductory Remarks
+ Meeting Kick-off
Welcome & Introductions. Brief overview of the agenda.
The meeting was recorded via Zoom.
Review: What is the
East Mulberry Plan &
how does it relate to
Annexation
Difference between Annexation Plan and East Mulberry Plan
What has happened
since our last Advisory
Group meetings
Moving away from phased approach and character areas
General Perspectives:
What we heard
• Desire for greater connectivity, continuity, and safety for all modes of
transportation
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• Maintaining mix of current uses, beautify Mulberry corridor,
accommodate light industrial uses
• General support for annexation
• Some concern and surprise that annexation was in question by City
Council
How this connects to
your feedback
• Your input has gone into the East Mulberry Plan
• You will have a chance to see and comment on that plan before it is
ratified next summer
How the Annexation
Conversation has
unfolded
• Timeline of events that have occurred over the last year
• March Council Session – Council asked for a pause and time to address
some of their concerns
• Worked through some issues and most recently met with Council in
December
• Introduction of the Thresholds/Tipping Points approach:
o Maintain logical boundaries (e.g. voluntary annexation of
individual parcels)
o Proactive Resource Protection (e.g. Cooper Slough)
o Redevelopment Risk (e.g. mobile home parks)
o External Funding (e.g. CDOT improvements at I-25)
Does CDOT have any current plans to improve the
interchange? Yes, there is a plan but no clear indicator
on the timing of when they will pursue that.
How would you be
informed of future
annexation (when
thresholds are met)?
• Outreach to community
• Initiating resolution of City Council, recommendations from Planning &
Zoning commission, two ordinance readings of City Council (over 4-6
months)
• Each touchpoint will have opportunities for community members to
become engaged
What does it look like
moving forward?
• It may take a significant amount of time to reach annexation.
Group Conversation • How is this landing for you?
• What are your thoughts & questions?
• Is this a reasonable approach from your point-of-view?
Brown Abrams: I’m only tangentially involved because I own a vacant lot
behind American Furn. Warehouse, I’m just wondering about what
annexation means and how it will impact property taxes and values.
Megan: One of our goals is to clearly communicate what the changes will be
in going from the county to annexation into the City. We hope that you
could help to distribute some of that information as we move forward and
we will follow up after the meeting with some of those resources.
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Josie: There has been opportunities for individual property owners to talk
with the City’s planning staff and will that still be available to property
owners?
Megan: Yes, we will certainly continue to do that as we move forward.
Brown Abrams: I’m glad to see its finally coming together, as property
owners we were happy to not pay City taxes but we did need the roads
fixed so we got together and raised the money for a special improvement
district to do that.
Josie: This will still be a long and slow process and its important to set
expectations that this will happen very slowly. There is the voluntary
annexation approach that is available if you do not want to wait for the
thresholds to trigger potential annexation.
Brown Abrams: Do you know why these areas of the City weren’t originally
part of the City?
Josie: This area has traditionally been on the edge of the growth
management area and has functioned as the buffer between the urban and
rural areas.
Stan: I’m excited about the improvements along Mulberry with the
landscaping and everything. I’m only concerned about access into my
business. Will the frontage road be eliminated and make that more
difficult? I’ve seen some things on some of the previous plans that could
affect my property but overall I’m excited about some of the improvements
that could aesthetically improve the area.
Megan: We would definitely be in communication with you and our goals
are to minimize the negative impacts and disruptions to businesses.
Josie: The East Mulberry Plan includes pretty broad brush strokes and when
the improvements begin to take place there would be a lot of community
engagement and input as we get to the levels of detail needed and you and
others in the area would be invited to really engage and provide input on
the specifics there.
Amy: I’m still having trouble envisioning when and how this is going to be
implemented and its pretty different than what we were talking about a
year ago. I’m just struggling to visualize when, how, and where
improvements would take place.
Josie: One of the lessons I’ve learned from the Southwest enclave
annexation is that annexation doesn’t really lead to immediate capital
improvements. The services like policing and things happen immediately but
the changes to streets takes time and the transition to different rules and
taxes also takes some times so people have both input and time to get used
to what that will look like. While the threshold approach is a little more
uncertain
Amy: If an area is annexed, like let's say Roselawn, if that were to be the
next annexed area, how would that impact the community there? Would
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that then give you the license to improve East Mulberry along that area, for
example?
Megan: Yes, if that were to happen, planning and zoning would start
looking at what makes sense and come up with a plan that makes sense as
to what annexation would look like. The transfer of services to those areas
would be determined in more detail.
Amy: Have you really determined what makes a threshold?
Megan: Yes, some of the examples are some of the things that we are
considering, but there are some other things as well, such as continuity and
how we build some of the City’s goals into these thresholds and logically
sequence things including all of these factors.
Josie: Existing residential areas will probably be the slowest to be annexed
as opposed to some of the areas that are still developing. The transfer of
services and improvements to things like storm sewer would begin to be put
into the que (for the whole City) but all of those things would take time.
Amy: So as far as East Mulberry and the frontage road, etc. could be
developed kindof piece meal then, depending on thresholds?
Megan: So, that is part of what we’re trying to address. So in your example,
we would be actively trying to keep from creating that patchwork, or
choppy sections approach, and so we would be annexing it in one or two
longer segments, if not the whole thing at one time, trying to do what
makes sense.
Cindy Freeman: So in looking at this map and our discussion, it seems like
the Gateway at I-25, the Mulberry Corridor, and then maybe Lincoln are the
priorities?
Megan: Yes, that sounds like how we are starting to think about this and
where we are anticipating that we will reach these thresholds first, and
residential communities won’t experience the thresholds in the same way
and so those will likely take longer to get through annexation.
Cindy Freeman: Have you been in communication with CDOT about how
improvements will take place as they improve the highway and
interchanges? How do we improve connectivity and the safety at some of
the intersections along Mulberry?
Megan: We anticipate a lot of on-going coordination with CDOT as we move
through both the Mulberry Plan and Annexation and while there hasn’t
been a lot of interaction lately, there will be more in the future as we move
forward.
Josie: Again, things will move really slowly until they don’t but as specific
projects begin to happen we will provide information and engage the
community as they become imminent on the horizon.
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Megan: Yes, we think that sharing things that are in progress or in the
pipeline will be great and we would be able to provide this group with
information and a mailing list of things that are coming up.
Cindy Freeman: How would the stormwater situation relate to Countryside,
where I live, if Mulberry and the commercial properties along there were
annexed and improved? How can something like stormwater be done piece
meal?
Megan: Yes, good question. We have been thinking a lot about that and we
are hyper aware of those issues and that will be something that will be key
in creating the thresholds and looking at how things may take shape.
Closing Remarks +
Next Steps
Shawna: We will be hosting four public meetings, two virtual meetings at
the end of February, and two in-person meetings in March. We will send out
mailings prior to the meetings. One of the virtual meetings will be recorded
and posted online. The in-person meetings will be held at the Genesis
Project.
Reach out to Megan or myself (Shawna) if you would like to have an
information session or discussion in your community.
W
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Item 3.
Appendix A:
Community Engagement Reports
Business & Community Workshops
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Item 3.
1
EAST MULBERRY PLAN
COMMUNITY ENGAGEMENT REPORT
February 18, 2022
COMMUNITY ENGAGEMENT OVERVIEW
Between October 2021 and February 2022, the Institute for the Built Environment (IBE) at Colorado
State University facilitated a series of engagement activities to solicit input from the East Mulberry Plan
Area residents and owners of commercial/industrial businesses. Engagement activities included a
community advisory group, virtual workshops, and an online questionnaire.
Advisory Group
Members of the Advisory Group have consistently engaged with the East Mulberry Plan project team to
share their knowledge, concerns, and hopes for the outcomes of the multi-stage planning and
annexation process. They have played an important role in holding the project team accountable for
maintaining the project’s vision and spreading the word about engagement opportunities through their
personal networks. The advisory group included renters and homeowners of several East Mulberry
neighborhoods, including Boxelder Estates, Countryside Park, and Mosaic, along with businesses of
various sectors, including Charco Broiler Restaurant, Fort Collins Nursery, Western State Bank, Mountain
Pet Supply, and more. Four advisory group meetings were held October of 2021, and their involvement
in future engagement opportunities and review processes will be key for the project’s future success.
The draft plan goals were shared at an Advisory Group meeting on February 4th, 2022. The community
perspectives expressed through the workshops both confirmed and refined language for the goals.
Virtual Workshops
The most recent series of community engagement workshops gathered input on aesthetic and
functional priorities for streets and roads, bike and pedestrian infrastructure and trail connectivity,
utility improvements, and future land use priorities for the East Mulberry plan area. The perspectives
and lived experiences of the diverse stakeholders who live, work, shop, and play here are helping the
city develop the vision and priorities for the plan area while honoring the areas unique characteristics.
In the most recent phase of community engagement, the City of Fort Collins and IBE worked together to
host a series of public engagement workshops that provided an opportunity for Spanish and English-
speaking, and commercial/industrial businesses to share their perspectives and priorities. Outreach
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Item 3.
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efforts targeted a broad range of populations and organizations so that the plan reflects the values and
aspirations of diverse community members.
Online Questionnaire
An online questionnaire, available in English and Spanish, was open from January 21 through February
15. The questionnaire was not promoted heavily, but rather as an option for those who could not attend
one of the community workshops. A total of 13 people completed the questionnaire. Half of
respondents were residents north of Mulberry while the other half represented residents south of
Mulberry, property owners, employees in area businesses, patrons of area businesses, and a business
owner.
KEY THEMES OVERALL
The overall community sentiment reflects a desire for a complete and diverse community that includes
existing and future industrial and commercial uses, while adding more basic services (e.g., restaurants,
parks, grocery stores, etc.) and preserving existing housing and overall affordability. In addition to the
overall sentiments, the community expressed interest in stormwater infrastructure to reduce flooding,
safe and functional transportation infrastructure including improved multi-modal access to community
amenities and services, and improved connectivity to natural spaces.
The community engagement included three distinct populations who share some priorities, while
maintaining diverse perspectives on some topics: Hispanic residents, non-Hispanic residents, and
business owners. All groups shared concerns with traffic connectivity, function, and safety for all modes
of transportation. There is a shared preference among most participants for prioritizing parks and
natural spaces, restaurants and hospitality establishments, and basic amenities to improve the livability
in the area, while maintaining its affordability and unique industrial landscape. Members of all three
groups expressed concerns about increased costs and fees associated with the annexation and the
source of funds to pay for improvements and projects. The community requested that the City continue
to be transparent about funding sources and timelines as they develop.
In some instances, the three groups expressed distinct concerns and priorities. Preservation of
industrial uses, both current and future, is the highest priority business stakeholders. Residents
generally favored maintaining existing industrial uses, while Hispanic residents expressed the greatest
concern around new industrial uses. Priorities for intersection improvements and connectivity to other
locations in Fort Collins contrasted significantly between the Spanish-speaking and English-speaking
stakeholders (see below for additional detail). In general residents were more concerned with topics
around livability (basic services, pedestrian and bicycle connectivity, internet service), while the business
community was most interested in preserving industrial and commercial uses and minimizing financial
impacts related to City regulations and development requirements.
COMMUNITY ENGAGEMENT OUTCOMES
IBE gathered input on the community’s preferences and priorities for aesthetics, transportation and
connectivity, public infrastructure, and future development/land use. The community expressed a range
of concerns, desires, and ideas regarding the East Mulberry plan area, including similarities and
differences across stakeholder groups.
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Item 3.
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Community feedback is summarized by stakeholder group below.
Topic Hispanic
Residents
Non-Hispanic
Residents
Business
Community
Look & feel of
East Mulberry
corridor
Highest preference given
to neighborhood and
traffic safety, lighting,
and aesthetics. With a
desire to see
improvements in
landscaping & vegetation.
Aesthetic improvements
would be appreciated to
give this scenic byway
greater appeal, although
aesthetic improvements
do not seem to be a
priority compared to
other categories for
improvement.
The primary use of
Mulberry should be
upheld, which is to serve
as a corridor into Fort
Collins and transport
supplies for businesses.
Some beautification
efforts would be
desirable to elevate the
appearance of the entry
into Fort Collins, with
some concerns that
landscaping would limit
visibility of businesses
and potential high cost.
Intersections &
frontage road
improvements
The highest priority
intersection for the
Hispanic community was
Lemay, likely because
they frequently pass
through the intersection
for work and access to
basic amenities.
This priority was notably
different than English-
speaking community
members intersection
improvement priorities.
Priorities in order:
Timberline & Lincoln,
Summit View, Link Lane,
Frontage Roads and
Lemay.
Existing conditions are
dangerous for
pedestrians and bikers
due to wide roads and
short amount of crossing
time (esp. Summit View).
Design and wayfinding
improvements (e.g.,
diagonal angle of turn on
Summit View &
Mulberry) to make
intersections less
confusing and reduce
frequency of accidents.
Highest priority
intersections were
Frontage roads, Summit
View, Link Lane, and
Timberline & Lincoln
were the top priorities.
and the as many
businesses use these
roads daily for
transportation of supplies
and for customer access.
Summit View traffic light
is too short for cars and
pedestrians/cyclists to
cross Mulberry and
confusing angles.
Improvements to Link
Lane would help the flow
of traffic in this area.
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Item 3.
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Priorities for
bicycle &
pedestrian
connectivity
Greater interest for
bicycle and pedestrian
infrastructure that will
connect to commercial
destinations, including
Vine Drive, which was
unique to the Hispanic
community. Additionally,
connectivity to
businesses along E.
Mulberry and to the
medical area on Lemay
Medical were priorities.
Access to Old Town and
the University were not
listed as top priorities.
Connectivity to trails and
downtown Fort Collins
was less of a priority for
Hispanic residents.
Expressed greatest
interest in crime
prevention.
Highest priority for
connecting to commercial
and entertainment areas
(e.g., Old Town, Lemay &
Mulberry commercial
area, and natural areas
including the Poudre
River Trail.
Vine Drive and Lemay
medical area were not
identified as top
priorities, contrasting
with the Hispanic
community.
Overall, the business
community expressed
less concern about
bicycle and pedestrian
connectivity in the area
than residents.
Future land use Highest preference for
new parks and natural
areas, restaurants and
eating establishments,
attractions and
entertainment spaces,
and community facilities.
Lowest preference for
new light industrial, high-
tech businesses, new
commercial and retail
and four-story buildings.
Prefer to preserve
current land uses,
especially the commercial
and residential areas.
Highest preference for
more restaurants, parks
and natural areas, basic
services, new businesses
(including attractions and
entertainment, and arts
and creative spaces), and
community facilities.
Lowest preference for
four-story buildings, new
light industrial. Mixed
perspectives about new
high-tech businesses.
Some residents shared
that they moved to Fort
Collins as relief from
higher density urban
environments.
Affordability should be
maintained regardless of
Strong preference to
maintain current
industrial land uses and
affordable housing.
Interested in
development that would
bring more people and
activity to the area (e.g.,
restaurants, basic
amenities, retail, and
entertainment).
Mixed perspectives about
high-tech industry and
higher density
development. Some see
opportunity while others
see a threat to the unique
industrial landscape and
businesses.
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Item 3.
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changes to future land
use.
Infrastructure
improvement
priorities
Highest preference for
broadband services,
followed by
improvements to public
infrastructure (i.e., road
& intersection
improvements,
stormwater
infrastructure).
Highest preference for
pedestrian infrastructure
at key corridors, closely
followed by key
intersection
improvements.
Interested in having more
options for affordable
and stable internet
connectivity including
broadband.
Most interested in
infrastructure that would
enhance public safety.
Mixed interest in
broadband service.
Fee and cost increases
are a concern, and some
do not feel the need to
pay more for
infrastructure
improvements to help
their business.
Overall
priorities Solutions for safety-
related issues are highest
priority including lighting
improvements and
addressing crime and
traffic issues, and
improved bicycle and
pedestrian connectivity
to businesses on
Mulberry, Lemay
commercial and medical
areas, and public green
spaces.
Would like to see an area
specifically designated for
Hispanic and
international products.
Prefer to preserve the
current land uses,
possibly connected to a
sense of vulnerability in
regard to job security and
housing affordability.
Would like more public
engagement
opportunities to provide
input on East Mulberry
and to stay updated on
project progress.
Transportation related
infrastructure for all
modes, especially
pedestrian and bicycle
infrastructure, and
improvements at key
intersections.
Traffic safety-related
issues concerning all
modes of transportation
was highest priority for
this group.
Improved bicycle and
pedestrian connectivity
to nature trails, open
green space, and
downtown are a priority
for many in this group.
Prioritize infrastructure
improvements that are
necessary and avoid
adding unnecessary costs
to running a business.
Transparency in project
funding and potential
fees such as property
taxes, sales tax, signage
changes, stormwater
fees, etc.
Traffic-related projects
should be prioritized to
alleviate barriers and
safety concerns for
drivers, pedestrians, and
cyclists.
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Item 3.
6
NEXT STEPS
The Advisory Group and the general community will be invited to review the draft East Mulberry Plan
and the draft annexation plan before the draft plans are presented to City Council, currently planned for
the second quarter 2022.
Page 354
Item 3.
Appendix A:
Community Engagement Reports
Annexation Q&A Sessions
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Item 3.
1
EAST MULBERRY PLAN &
ANNEXATION THRESHOLDS
COMMUNITY ENGAGEMENT OUTREACH
REPORT
March 20, 2023
Prepared by
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Item 3.
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ENAGEMENT OVERVIEW
Purpose of this Report
The report below summarizes the community engagement activities and results from February and
March 2023 focused on the East Mulberry annexation approach.
Project Overview
As part of the East Mulberry Plan revision and the corresponding approach to annexation of the East
Mulberry enclave, City staff worked with Colorado State University’s Institute for the Built Environment
to design and deliver a series of community engagement events. The purpose of the events was to
introduce community members to the "thresholds” annexation approach, to provide opportunities for
public comments and questions, and to address community member’s questions and concerns regarding
potential future annexation.
Community Engagement Activities
Five community engagement activities were held in February and March of 2023. The first was with the
community advisory group and the other four were open to public comment. In advance of the public
meetings the city sent direct mail invitations as well as conducted a door-to-door campaign to raise
awareness for the events. In total, about 140 community members participated in the advisory group
and public meetings. The February and March 2023 public engagement efforts focused primarily on the
approach to annexation vs. the broader East Mulberry Plan update, which had been the focus of the
2021 community engagement efforts. The report summarizing the Summer 2021 East Mulberry
Community Engagement effort can be viewed at the following link:
https://www.fcgov.com/planning/files/ibe-synthesis-east-mulberry-engagement-summer-
2021.pdf?1629409952
Advisory Group Meeting
The East Mulberry Advisory Group was formed in 2022 and met several times. The group includes
residents and business owners who meet with city staff periodically to discuss their vision for the area.
On February 2, 2023, the group convened online to learn about the thresholds approach toward
annexation in the enclave and share their initial impressions. Facilitators from the Institute for the Built
Environment helped to guide the conversation. Advisory group members asked questions about the
annexation timeline, implications for their properties and communities, and how the thresholds
approach would work to prompt annexation.
Public Community Engagement Meetings
The City of Fort Collins hosted a series of public meetings to connect community members with staff to
answer their questions about the East Mulberry Plan and annexation. City staff from Community
Development & Neighborhood Services, City Manager’s Office, Economic Health, Civil Engineering,
Transportation, Sales Tax & Revenue, and Code Compliance departments were present to answer
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Item 3.
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questions. Each session included a 45-minute presentation followed by a 45-minute Q&A session and
was facilitated by staff from the Institute for the Built Environment. Meetings were scheduled to
accommodate community member’s needs, preferences, and schedules including online and in-person
meetings, daytime and evening events, and live Spanish interpretation. The list below details when and
how each meeting was held.
Online meetings with live Spanish interpretation:
• Monday February 28, 5:30 to 7:00pm, 32 community members
• Tuesday February 29, 10:00-11:30am, 35 community members
In person meetings at The Genesis Project on Link Lane:
• Tuesday March 7, 10:00-11:30am, 40 community members
• Thursday March 9, 6:30-8:00pm, 28 community members
Participants included East Mulberry residents, business owners, and property owners primarily from the
plan area. Community members who attended the sessions learned about the city’s planned approach
to annexation and received access to additional information and resources regarding annexation
impacts for individual properties. The community sessions helped city staff to further understand the
community’s questions and concerns about the annexation process.
During the in-person community sessions, participants were encouraged to fill out comment cards with
specific questions to be addressed during the meetings. Residents and business owners were invited to
request one-on-one meetings with city staff to respond to individual questions and concerns. Staff
received eight paper comment cards after the in-person meetings on March 7th and 9th and 13 follow-up
inquiries submitted through the online form on the project website. Meeting participants were also
invited to email staff directly, so some additional follow-up occurred in that form.
KEY THEMES & DISCUSSION TOPICS
The comments, questions, and concerns from community members regarding annexation focused
primarily on how annexation would impact them in six key issue areas: taxes, costs, and regulations;
stormwater management; roads and intersections; policing; local character; and timeline and process.
Perspectives varied among community members regarding the favorability of annexation, with some
who are supportive of annexation, some who are opposed to annexation, and others who hold a mixed
or neutral position.
One group of residents shared about their experience with voluntarily annexation and spoke about this
change in a positive light, commenting that it had reduced their taxes and utility costs overall.
The table below highlights the thematic areas of the questions and concerns that were expressed during
the community engagement efforts. The sentiments expressed reflect the range of perspectives and
opinions shared by community members. While fully capturing the diversity and nuance of the
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Item 3.
4
community perspectives is not possible, the synopsis below provides an overview of the perspectives
that were expressed during the meetings.
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Item 3.
5
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.
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p
a
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.
Page 360
Item 3.
6
To
p
i
c
Re
s
i
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n
t
C
o
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m
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n
i
t
y
Bu
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C
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Ci
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R
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St
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Ma
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p
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.
Page 361
Item 3.
7
To
p
i
c
Re
s
i
d
e
n
t
C
o
m
m
u
n
i
t
y
Bu
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.
Page 362
Item 3.
8
To
p
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c
Re
s
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C
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Page 363
Item 3.
9
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Page 364
Item 3.
10
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Page 365
Item 3.
Appendix B:
Mulberry Corridor Financial Impact
Analysis
Memorandum
Page 366
Item 3.
203030-FIA Methodology Memo_5-31-2023.docx
M EMORANDUM
To: Dave Lenz, City of Fort Collins
From: Dan Guimond and Matt Prosser; Economic & Planning
Systems
Subject: Mulberry Corridor Annexation Economic Analysis
Date: May 31, 2023
This memorandum provides an overview of the methodology
used to analyze the fiscal impacts to the City of Fort Collins of
the potential annexation of the unincorporated enclave along
East Mulberry Street in Larimer County. The purpose of this
memorandum is to document the approach and process
Economic & Planning Systems (EPS), along with City of Fort
Collins’ Finance and Planning Departments, took to determine
potential fiscal impacts on the City. The memorandum also
contains the major phasing and qualitative findings of the
analysis. Quantitative findings and outputs developed during the
process are provided in separate presentations and council
communications.
Project Background
Over a period of time, the City has annexed multiple properties
on the eastern edge of the city along the Mulberry Street corridor
extending to I-25 which has created a large enclave of
unincorporated Larimer County property. Per existing
intergovernmental agreements (IGAs) between the City of Fort
Collins and Larimer County, the creation of this enclave triggers
a requirement for the City of Fort Collins to eventually annex all
of the property in the enclave.
The requirement to undertake annexation prompted the City to
develop an updated land use plan subarea plan for the Mulberry
Corridor to provide guidance on land use and capital
improvements needed and desired for the area. To support this
effort and financial planning, the City retained EPS to create a
fiscal model to estimate fiscal impacts of annexation including
both one-time capital costs as well as ongoing operational costs.
Page 367
Item 3.
Memorandum: Mulberry Corridor Fiscal Impact Analysis
Page | 2
Fiscal Impact Analysis Methodology
Study Area Conditions and Inputs
The fiscal impact model was built to evaluate both existing properties and uses as well as
potential future development within the Mulberry Street enclave. The Enclave Area is
large and encompasses over 2,600 acres of private property on both sides of Mulberry
Street roughly between Lemay Avenue (on the west) and just beyond the I-25
interchange (on the east). To address the size and varied development context in the
enclave, the area was originally split into five subareas for the purpose of evaluating
fiscal impacts, as shown in Figure 1. A subsequent sixth subarea was defined to address
the formal annexation of a property (and related development) that was approved during
the plan process. This development, Subarea 6, was part of the larger Subarea 5.
Figure 1 Mulberry Enclave Subareas
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The annexation Enclave Area is currently home to a significant amount of residential,
commercia and industrial development. There are currently 1,114 housing units and 4.8
million square feet of non-residential buildings. The area’s population in 2020 was 3,557
people and contained 6,564 jobs within 508 businesses. The Enclave Area is split
between existing, developed properties and vacant/under-developed properties that can
support new buildings/uses. The area has 1,258 acres of private, developed acres and
1,409 acres of private, undeveloped acres, as shown in Table 1. The undeveloped
properties in the enclave are estimated to have the potential to support an additional
3,950 housing units and 2.0 million square feet of non-residential development based on
the future land use designations in CityPlan, the City's adopted comprehensive plan.
Table 1 Existing Conditions and Future Growth Estimates
Description Subarea 1 Subarea 2 Subarea 3 Subarea 4 Subarea 5 Subarea 6 Total
Demographics
Existing Conditions
Housing Units 2 683 90 5 334 0 1,114
Non-Residential Square Feet 1,352,185 46,007 1,223,267 2,184,963 8,232 0 4,814,654
Jobs 1,380 122 1,553 3,410 82 17 6,564
Businesses 72 22 144 256 13 1 508
Persons Served 1,385 1,830 1,778 3,423 917 17 9,349
Forecast New Development
Housing Units 236 383 136 382 2,036 773 3,946
Non-Residential Square Feet 1,179,065 13,988 219,509 360,723 0 225,031 1,998,316
Jobs 2,935 47 671 791 0 786 5,230
Businesses 227 4 52 61 0 61 405
Persons Served 3,525 1,004 1,012 1,745 5,090 2,719 15,094
Future Conditions Total
Housing Units 238 1,066 226 387 2,370 773 5,060
Non-Residential Square Feet 2,531,250 59,995 1,442,776 2,545,686 8,232 225,031 6,812,970
Jobs 4,315 169 2,224 4,201 82 803 11,794
Businesses 299 26 196 317 13 62 913
Persons Served 4,910 2,833 2,790 5,168 6,007 2,736 24,443
Streets (centerline miles)
Existing 5.5 15.1 12.2 13.5 0.0 0.0 46.3
New Roadway Estimate 0 0 0 0 10.2 3.9 14.0
Total 5.5 15.1 12.2 13.5 10.2 3.9 60.3
Acreage
Developed 135.7 200.5 323.3 281.9 317.4 0.0 1,258.7
Vacant or Redevelopment 381.3 198.5 241.3 283.3 228.0 76.9 1,409.3
Total 517.1 398.9 564.6 565.1 545.4 76.9 2,668.0
Source: Economic & Planning Systems
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The existing physical development and demographic conditions were estimated using a
variety of data sources to get an accurate representation of current conditions. ESRI
Business Analyst was used to determine demographic conditions, business counts, and
employment totals. Larimer County assessor data was used to determine inventories of
residential and non-residential buildings and existing assessed values of properties.
To estimate future development demand and related model inputs, EPS relied on its
analysis completed within the City of Fort Collins’ CityPlan process to estimate demand
for future jobs and households in the community and Study Area. Current market data
for the value of new development in Fort Collins using CoStar and other secondary data
sources.
Fiscal Model Methodology
Overview
A summary of the fiscal model developed for the effort is provided below in Figure 2.
The model estimates ongoing and capital expenditure impacts on the City’s operating
funds and utility services (Light and Power, Broadband, and Stormwater). The existing
and estimated future jobs and households in the enclave area are used as the primary
inputs to estimate costs and revenues. In the simplest terms, the estimated fiscal
revenues generated in the Enclave Area for the City of Fort Collins General Fund and
Utilities are compared to the estimated costs of service and capital expansion in the area.
The result is an annual, ongoing net fiscal impact on the City and an estimate of total
needed capital expenditures.
Figure 2 Mulberry FIA Model Overview
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Revenues
Revenues generated by the properties and uses in the enclave area were estimated for
the General Fund and Utilities Funds providing service in the area. Ongoing, annual
General Fund revenues include property tax, sales and use tax, and fees and charges for
services that are directly tied to uses in the Enclave Area. For the utilities that will be
provided in the area, the existing user rates and fees will be applied to the existing and
estimated future development uses. In addition to the ongoing revenues, the revenues
generated for capital improvements were estimated as well. The City of Fort Collins’
Community and Transportation Expansion Fees (CEF and TCEF) were estimated based on
forecast new development in the area. In addition, the City’s utility providers also charge
cost recovery fees to new developments that were estimated.
Expenditures
To estimate expenditures, the model organized General Fund expenditures by the City’s
defined service areas. The City has 11 service areas that organize the services provided
by the City under their General and Operating Funds.
The expenditures for service areas that have an indirect connection to the expansion of
the city (e.g., one new resident doesn’t equate to a proportional increase in cost for the
City) were estimated using nexus and variability factors. These services include Financial
Services, Community Services, Planning, Development and Transportation, Executive
Services, Judicial Services, Legal Services, Information and Employee Services, and
Sustainability Services.
Nexus Factors
Nexus factors are factors developed based on existing conditions in the City (e.g.,
number of residents) to estimate the cost of services from new jobs and residents. The
most common nexus factor used to estimate expenditures for these services was Person
Served. Persons Served is a summation of the total population and employees in the City
and/or Study Area. The persons served factor reduces the number of employees added to
the number of residents account for residents that both live and work in the city (and/or
Enclave Area of the county) as to not double count. For most services, the current cost of
providing the service was divided by the total persons served in the city to derive a per
person served cost factor that is applied to new jobs or residents in the annexation area.
Variability Factors
A variability factor was then applied to each nexus factor to account for how directly a
new resident of the city impacts the cost of that service. A variability factor of 0 to 100%
was applied to each expenditure item in the City budget. Services that are directly
impacted by new residents or jobs added to the city have a 100% variability factor,
meaning the full cost of the service nexus factor is applied. Services that are indirectly
impacted by expansion of the city have a smaller factor applied, in most cases estimated
at 25%, which means only 25% of the service cost is applied to a new resident or job.
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Case Studies
Some of the service areas the City has require a “Case Study” to be developed to
estimate the impacts of annexing a new property to the City. These services are the most
impacted by new developments and have the most direct relationship between new
jobs/residents and increased cost of service. Case studies were developed for police
services, street maintenance, and parks within of the General Fund. Case studies were
also conducted for the utilities that will be provided in the annexation area including
stormwater, broadband, and light & power. Water and wastewater services are provided
by the City of Fort Collins water and wastewater utility and are therefore not estimated as
a City cost. Additionally, fire service is currently provided by the Poudre Valley Fire
Protection District (PVFPD). The impacts on fire service are primarily related to the
revenue generation approach, which is different for properties in the city versus
properties in the unincorporated portion of the county. A planning level estimate was
used to address the changes in revenue provided to PVFPD. A summary of the
methodology used for each case study is provided below.
Fiscal Model Inputs and Assumptions
The fiscal model utilizes several inputs and assumptions to estimate the impacts on the
City’s future fiscal health. These factors are used to estimate the rate and timing of new
development, service providers, and capital expenditures. The inputs also include
estimates for the types and value of new development. Lastly, the existing conditions
within the city are used to drive model factors. The types of inputs used fit into three
general categories: citywide conditions inputs, phasing and development timing
assumptions, and development value and density assumptions.
Citywide Conditions Inputs
Several citywide data points are used to derive model factors. A summary of the inputs
used in the model and their data sources are shown below in Table 2. These inputs are
based on actual conditions and would only change to reflect more current conditions, as
necessary.
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Table 2 Citywide Assumptions and Inputs
Development and Phasing Timing Assumptions
The fiscal model was built to dynamically model different scenarios for the timing of
development in the enclave, the year in which annexation to the city occurs, and timing
of when services and capital expenditures are needed in the area. These inputs and
assumptions are based on EPS market forecasts and other inputs provided by City staff.
These inputs, however, change based on the scenario being modeled and therefore are
not documented in this memo. Dynamic model assumptions that can be modified by
scenario include:
• Year of annexation,
• Year of construction of capital improvements,
• Adjustments to development fees, and
• Rate of new development (e.g., new units built per year)
Description Amount Source Link/Definition
Demographic Factors City of Fort Collins
Population 170,245 2019 American Community Survey 1-Year Estimates
Households 70,831 2019 American Community Survey 1-Year Estimates
Housing Units 72,603 2019 American Community Survey 1-Year Estimates
Avg. HH Size: Single-Family 2.44 2019 American Community Survey 1-Year Estimates
Avg. HH Size: Multifamily 2.09 2019 American Community Survey 1-Year Estimates
Single-Family Housing Units 40,257 2019 American Community Survey 1-Year Estimates
Attached Housing Units 12,135 2019 American Community Survey 1-Year Estimates
Multifamily Housing Units 19,067 2019 American Community Survey 1-Year Estimates
Employment Factors (Employment w/ Space)
Total Employment 86,212 ESRI Business Analyst, 2020
Retail/Restaurant Employment 20,294 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 44-45, 722
Office Employment 42,496 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 51, 52, 53, 54, 55, 56, 62, 81, 92
Industrial Employment 8,084 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 23,31-33, 42, 48-49,
Accommodation/Entertainment 3,635 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 71, 721
Education Employment 8,785 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 61
Multiple Job Holdings (% of Total)5.6%Bureau of Labor Statistics, 2015 https://www.bls.gov/opub/mlr/2017/article/multiple-jobholding-in-states-in-2015.htm
Resident Workforce (% of Total)44.6%U.S. Census Bureau LEHD, 2018 http://onthemap.ces.census.gov/
Property Tax Factors
Mill Levy: City of Fort Collins 3.184 Note Mill Levy reduced by 67.5% to reflect passthrough to PFA
Mill Levy: Poudre Valley Fire 10.639
Res. Assessed Value (% of Total)7.2%
Comm. Assessed Value (% of Total)29.0%
Rate per $___ of Assessed Value $1,000
Sales Tax Factors
General Fund 1.96%Note Base Rate reduced to reflect Passthrough to PFA
Pavement Maintenance 0.25%
Capital Projects 0.25%
Natural Areas 0.25%
Keep Fort Collins Great 0.76%Note Base Rate reduced to reflect Passthrough to PFA
Total 3.47%
Other Factors
Persons Served (PS)208,526 The total number of peak persons served (See Appendix for calculation)
Lane Miles 1,976 Lane Miles maintained by the City of Fort Collins
Source: Economic & Planning Systems
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Development Value and Density Inputs
The last group of inputs are specific to the estimated value and density of new
development that is forecast to occur. These inputs were derived based on research
conducted EPS and experience with estimating development capacity based on land use
categories. These factors include the estimated value of new homes and non-residential
buildings, the likely household size (i.e., people per housing unit) of new homes, the
likely number of employees located in a new non-residential development, and lastly the
density of new development (e.g., new units per acre or new non-residential
development square feet per acre).
Model Case Studies
The fiscal model contains seven case studies that estimate revenues and/or expenditures
from annexation in the Enclave Area for specific revenue streams by service area. This
section contains a summary of the approach taken to estimate impacts within each case
study and findings/considerations regarding the phasing of annexation.
Police Services
Existing and Future Conditions
Mulberry Street in the City of Fort Collins continues east to become State Highway 14
starting at Riverside Avenue. The Colorado State Patrol (CSP) is responsible for safety
and call responses related to activity on State Highway 14. The properties along SH 14
within the Enclave Area are provided public safety services by the Larimer County
Sheriff’s Office (LCSO). The LCSO currently assigns the equivalent of 6 full time officers
to the area to address the current incident volume.
The Larimer County Sheriff’s Office responded to 7,148 incidents in the Enclave Area in
FY 2019-2020 driven by 3,013 calls for service and 4,135 officer-initiated incidents (e.g.,
pulling over a car for speeding). In addition, the Colorado State Patrol responded to 121
automobile accident collisions in the Enclave Area in 2020.
After annexation, the City of Fort Collins would be responsible for patrol and response to
calls for service for the newly annexed areas. This new responsibility will also likely result
in response/service needs related to automobile activity along Mulberry Street. The City
of Fort Collins does not necessarily need to take control of Mulberry Street (from a street
maintenance perspective) and/or to assume public safety services along SH-14 as long as
it is still a state highway. However, it is possible the City may want to assume control of
both maintenance/operations and public safety.
Modeling Approach
The fiscal model originally operated on the assumption that the City will take over
responsibility of the public safety needs in the Enclave Area in concert with annexation.
To estimate costs, the current average cost per incident in the City of Fort Collins was
used to estimate the annual cost to serve the area based on the current incident levels
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along the roadway and the additional incidents generated by new development. The
average cost per incident for the City is $449, which was translated to a cost per new
resident of $319 annually.
Annexation Findings/Considerations
The provision of police services will have a substantial cost impact on the City once
annexation occurs. Below are the major considerations identified in the study:
• The level of service the City of Fort Collins (e.g., officers assigned to the area) will
likely be higher than what the Larimer County currently provides. Two levels of
service were estimated in the model to assess costs at the current level of service and
the City’s desired future level of service.
• Later in the study process, Fort Collins Police Services provided a detailed estimate of
staffing needs related to the annexation area for the effort. To mirror their likely
staffing requirements based on annexation of any single subarea, a tiered approach
to staffing requirements for officers was developed. The two assumptions used were
that subareas with lower calls for service will trigger the need for half the estimated
officer staffing requirements if annexed and areas with higher calls for service will
trigger the need for the total number of officers forecasted to be needed. The result is
that annexation of areas with high calls for services (Subareas 1 and 3) will trigger
the need for the total estimate of officers needed to service the area, even without
the annexation of the other subareas.
• The resulting demand for new officers and administrative staff is up to 35 new full-
time equivalent (FTE) workers. Increasing the number of officers is a time sensitive
endeavor. In order to service the area on Day 1 of annexation, the hiring of new
officers is needed up to 18 months in advance of deployment to account of training.
• Based on the complexities and estimated costs of public safety provision to the
enclave area currently and after annexation, it is likely that the City of Fort Collins will
need to develop a phased, partnership approach to assuming responsibility of the
area with the Larimer County Sheriff’s Office and the Colorado State Patrol.
Street Maintenance
Existing and Future Conditions
The operations and maintenance of roadways in the Enclave Area is complicated with
multiple parties involved similar to the Police Services Larimer County is currently
responsible for (excluding SH-14 covered by the CSP) There are currently 46.3 lane miles
of roadway in the enclave area in addition to State Highway 14. The condition and
current maintenance responsibility for roadways in the enclave area varies greatly
currently, which impacts the cost of service and the future level of service that can be
provided.
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Modeling Approach
For the study purposes, four tiers of roadway types were developed based on the future
maintenance the City is likely to take after annexation.
• City Level of Service - There are roadways that are currently compliant or near
compliant with the City of Fort Collins’ street standards. An estimated 18.5 lane miles
fit within this category. These roadways are in good enough condition and match
street standards, which will allow the City to maintain and operate them like other
streets in the city. The annual cost per lane mile for these streets was estimated to
be $31,000.
• County Level of Service – There are an estimated 12 lane miles of roadways that do
not match the City’s standards and will likely be maintained to the County’s current
level of service after annexation. The County currently only provides surface
maintenance to these roadways. The annual cost per lane miles for these streets was
estimated to be $15,500.
• Special Improvement Districts – An estimated 4.51 lane miles of roadways are part of
existing special improvement districts that pay for maintenance of the roadways. The
special improvement districts were put in place to generate revenue to maintain
roadways beyond what the County is capable of currently. The properties and related
roadways in the districts are assessed an additional property tax mill levy to generate
funding for ongoing maintenance to a specified level of service. The assumption used
is that these districts will remain in place after annexation.
• Not Accepted Roadways – There are 11.33 lane miles of roads in the enclave area
that are currently that the City of Fort Collins will not accept responsibility primarily
due to the condition and quality of the pavement of the roadways. These roadways
are largely within existing county residential subdivisions in the area. These roadways
would require the City of Fort Collins to perform complete rebuilds of the roadway in
order to be able to maintain them long-term. The result is that these streets will not
receive regular maintenance and will continue to deteriorate.
Annexation Findings/Considerations
The following considerations were identified regarding street maintenance:
• The variable conditions of the roadways in the enclave area will result in a tiered
approach to street maintenance by the City after annexation. This will mean that
certain streets will receive a greater level of service than others in the area from the
City, which may create concerns and complaints about equitable service provision,
especially in relation to taxation, in the area.
• There are two options to consider for how the City address streets upon annexation,
“Existing Conditions” or “Improved Service”. The IGA for Larimer County related to
the enclave annexation stipulates that the City will take over county roads in the area
at their current level of service. There is a mixture of roads that are maintained at a
level comparable to the City’s standard, roads that are maintained to and designed at
County standards, and roads that don’t meet County standards and/or not maintained
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by the County. The Existing Conditions option assumes the roads will remain at their
status. The Improved Service option assumes that improvements will be made by the
City in certain areas to bring more roadways to an improved level of service and
design. These improvements are not defined yet.
• The other assumption option is specific to roads that are currently in too poor of
quality for the City to be able to maintain at the County standard. For these roads
there are two approaches to take upon annexation. The City can either pay for
improvements or convert these roads to gravel roads and maintain them that way
once they are in such a poor condition that this becomes necessary. A second
approach would be for the property owners served by these roads to be a part of
special improvement district that taxes them to bring the roads to the County or City
standard and the maintain them going forward.
• The prospect of not-accepting roadways serving homes and businesses in the city
after annexation also presents major equity issues and safety concerns. Creative
solutions are needed to address the current condition and ongoing maintenance of
these areas. Potential strategies identified in the study to address the issues above
include formation of additional special improvement districts for not accepted
roadways but would require property owner agreement. The existing SIDs could also
be consolidated into a large, single SID that serves a large amount of roadway in the
area, which may reduce overall costs for existing properties in SIDs, and any future
properties that would need to be added to the single SID.
Parks
Existing and Future Conditions
Currently there are no park facilities operated by the City or County within the study
area. The City of Fort Collins Parks Master Plan identifies three future parks that will
service residents in the Enclave Area. These parks are not currently fully designed, nor
has the land been secured for them, so the location of the parks is yet to be determined
and may fall outside of the Enclave Area but still be a part of the cost of serving the area.
Therefore, future developments will be required to comply with City park standards for
land dedication and/or community facility expansion fees.
Modeling Approach
The three parks planned to serve that area are assumed to be the responsibility of the
annexation area to pay for ongoing maintenance and capital costs. Each new park is
estimated to cost $8 million, and that capital cost is associated with the subarea that it is
in or closest to. In addition to the capital cost, the ongoing maintenance cost for the
parks is estimated as an annual cost within the net general fund fiscal impact. The cost is
estimated using a cost per acre maintenance factor ($20,000 per acre) informed by
current City budget for parks and the master plan.
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Annexation Findings/Considerations
The following considerations related to parks were identified:
• It is worth considering whether it is fair to assign the capital and/or ongoing
maintenance cost fully to the properties in the annexation area for the purposes of
the modeling exercise. The reality is that the parks will likely be built in concert with
new development projects and will serve other residents not living in the Enclave
Area.
• It is also not required that a park be built in conjunction with the annexation of any
portion of the Enclave Area. Annexation does not require the City to build any parks
and take on additional park-related costs. Also, creative partnerships and grant
opportunities may also be used to offset capital costs of construction of the parks,
which will reduce the overall capital expenditures needed to be paid for by the City.
Stormwater
Existing and Future Conditions
Annexation will trigger the expansion of services by the City’s stormwater utility. There
are three main areas in the enclave where stormwater improvements are needed to
address flooding risks, 1) the dry creek drainage that runs through Subarea 4, 2) the
Cooper Slough/Box Elder drainage that runs through Subarea 1 and 3, and 3) the Poudre
River area adjacent to Subarea 2. All three areas have identified capital improvements;
however, annexation does not necessarily trigger the requirement to fund the needed
capital improvements.
The City of Fort Collins would also assume control and management of existing
stormwater improvements in the subarea upon annexation. The condition and
unaddressed issues present in the current system are unknown. Upon annexation, the
City would need to perform a one-time stormwater system cleanout to assess conditions
to determine ongoing maintenance needs and any capital repairs that may be needed.
This cleanout will be the first part of a 10-year cycle of cleanouts for the subarea. The
cost of this one-time cleanout is estimated at $1.7 million. The cost per subarea of the
cleanout and the ongoing 10-year cycle costs are factored into the model.
Modeling Approach
The fiscal model assumes that upon annexation a property will begin paying the City’s
stormwater fee that is based on per land square feet and use. The model also accounts
for the one-time cleanout costs per subarea. There are 11 separate capital projects
identified in the three areas mentioned above. These 11 projects total approximately $38
million in cost. The fiscal model assumes these improvements will be made upon
annexation of each subarea. There is the ability to change assumptions related to the
number of years after annexation that the capital improvements in each subarea are
built.
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Annexation Findings/Considerations
The following considerations were identified for the stormwater system:
• The condition of the existing stormwater systems in the Enclave Area are largely
unknown, especially until they can be cleaned out and assessed. It is possible that
additional stormwater capital improvement needs would be needed.
• Stormwater capital projects in Subareas 1, 3 and 4 impact the development potential
in portions of those subareas. The improvements in Subarea 4 related to the Dry
Creek are needed to address existing flooding issues in the AirPark and impact the
development areas possible on the former airport land. The improvements in
Subareas 1 and 3 related to the Cooper Slough and Box Elder Creek are needed to
address flooding issues including flooding caused by State Highway 14. Addressing
the stormwater issues can help increase the developable land north of Mulberry
Street.
• Annexation of any property in the Enclave Area would not require the construction of
stormwater improvements, but ongoing flooding issues may create risks and greater
costs for the City if not addressed.
Light and Power
Existing and Future Conditions
There are currently two electrical providers serving the enclave area, Xcel Energy and
Poudre Valley Rural Electric Authority. Upon annexation, the City of Fort Collins’ utility will
begin providing service. The transition of service provision requires the City to purchase
and take on responsibility for the existing power infrastructure in the area. In some
cases, this infrastructure will need to be upgraded or replaced to meet the City’s
standards. The Light and Power Utility will issue debt to fund capital improvements
needed to take over service areas. The debt will be repaid by increases in user rates (that
would apply to all system customers, not just those in the Enclave Area) and through
public improvement fee agreements generated by new developments.
The Light and Power Utility estimates that it will cost $66 million to acquire existing
infrastructure from the existing providers and will require additional capital cost of $26
million to distribute power to the area, totally $92 million in capital costs.
Modeling Approach
The fiscal model assumes that existing and new residents and businesses will begin
paying service rates upon annexation in concert with the take over the system
infrastructure. The model assumes that the rate structure in place for ongoing service will
generate an annual net positive impact on the utility, meaning the rates charge will cover
the cost of service. The City’s Light and Power utility provided annual estimates for
service revenues and costs to incorporation into the model. The capital costs needed to
take over electric service detailed above are assumed to be phased in based on the
locations of annexation efforts by subarea.
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The fiscal model was built to accommodate multiple approaches to building out the
system. During the testing of scenarios, there were three options for provision. The first
option was for L&P to develop a “proactive” program for capital expansion of the network
to serve the enclave starting in the near term which will ensure all future connections to
the system are subject to PIF agreements and is not necessarily tied to annexation
phasing. This option may also allow the program to align with efforts to serve areas to
the north (i.e., Montava). The second option was development of a capital expansion
program that aligns directly with the timing of annexation phasing (with annexation). The
last option was entitled “ad-hoc” where the network expansion programs will be
developed for each specific subarea as annexation is contemplated.
Annexation Findings/Considerations
The following Light and Power considerations were identified:
• The City of Fort Collins is already anticipating the need to expand infrastructure and
service on the city’s northeastern edges. The Montava development north of the
Enclave Area will generate the need for substantial expansion of the system. It is
assumed improvements to serve this area and other annexations north of the Enclave
Area will be made expanding the system from the south along Timberline Road. The
most efficient and cost-effective path for Light and Power to expand their system is to
move from west/southwest to east/northeast.
• It may be possible to serve new customers in portions of the enclave area without
building new infrastructure, specifically the western portion of the enclave.
• Light and Power would prefer for the City to annex larger development areas before
they develop to assess public improvement fees that can help repay capital costs.
Broadband
Existing and Future Conditions
The City of Fort Collins’ newly formed broadband utility is assumed to extend service to
the enclave area upon annexation.
Modeling Approach
The expansion of Broadband was modeled with two possible assumptions. The first is the
assumption that expansion of the network infrastructure is best done in connection with
L&P expansion and therefore is tied to the L&P assumptions for timing. The second option
is the “proactive” expansion of service to areas as they are annexed, which may or may
not align with L&P or other infrastructure projects.
The ongoing revenues from broadband services are based on the expansion to the area
to serve both new and future customers. Similar to Light and Power service, it is assumed
and modeled that user rates will cover both the cost of system buildout and initial
provisioning of service, as well as the ongoing cost of operations and maintenance of the
infrastructure. However, the estimates are sensitive to the timing of the capital outlays
and the speed at which customers are acquired. Costs and penetration take rates have
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been based on updated estimates of the existing Citywide rollout of broadband services.
The upfront capital expansion costs to serve the enclave area are estimated at
approximately $10 million.
Annexation Findings/Considerations
The following considerations for the broadband utility were identified:
• The cost capital expansion of broadband has the potential to be offset by proceeds
from competitive state and federal grants.
• It is assumed that expansion of the broadband network into the enclave area would
be done most efficiently in concert with expansion of the Light and Power
infrastructure into the area.
Fiscal Model Phasing Findings
The fiscal model analysis completed to date has generated a number of high-level
findings that may impact future annexation decisions and phasing strategies.
• The subareas with the greatest potential for capturing new development, which are
Subareas 1 and 5, produce the most benefit/least impact on ongoing City operations.
All subareas generate a net negative fiscal impact on the City annually in most, if not
all, scenarios. However, these areas have the lowest negative impact because new
development in the areas is expected to generate revenues that can offset the costs
of expansion of services to existing uses/properties.
• Major development projects that happen in the Enclave Area would likely create a
motivation to annex the proposed development parcels and create a motivation to
annex surrounding parcels. However, it may be more beneficial for the City to
proactively annex potential future development areas in advance to actively
encourage their development within the City and in conformance with CityPlan land
use recommendations.
• The subareas that are largely built out and where little new development is expected
(Subareas 2 and 4) tend to generate the greatest net negative fiscal impact. These
areas generally have lower average property values and lower densities, which
produce do not offset the operations costs to serve them. Also, the areas will not
benefit from the support of capital expansion fee revenues generated by new
development.
• It is generally more fiscally prudent and efficient for annexation and expansion of City
infrastructure and services to occur in a west to east path. This approach allows for a
more contiguous expansion of the city outward from the existing city limits towards
the further eastern reaches of the enclave.
• The use of public financing tools (metro districts, public improvement districts, urban
renewal) is likely needed to help fund and finance capital improvements in areas to
reduce the fiscal burden on the City and its existing residents. These tools can help to
Page 381
Item 3.
Memorandum: Mulberry Corridor Fiscal Impact Analysis
Page | 16
shift the cost of annexation onto the properties that will benefit from annexation
reducing the overall increased burden on existing city residents. The use of public
financing tools is most needed and appropriate where a substantial amount of
development is likely to occur.
Page 382
Item 3.
Appendix C: Role of Subarea Plans
The East Mulberry Plan area boundary borders other City of Fort Collins subarea plan boundaries,
including Mountain Vista Subarea Plan to the north, the I-25 Subarea to the east, Downtown Plan to
the west, and Northside Neighborhoods to the northwest. Subarea plan boundaries are established
based on adjacent subareas, typically not overlapping so that guidance for each area is clearly
delineated. Although this delineation is important, subarea plan guidance should be coordinated to
ensure consistency and promote cross-connectivity, particularly where subareas meet.
The updated East Mulberry Plan identifies new goals, policy direction, and action items for the East
Mulberry Plan Area. Goals contained within this plan include establishing improved connectivity
within the plan area, but also beyond the plan area as well. As a result, this plan should be used
cohesively with surrounding subarea plans. These plans are listed below, with key recommendations
highlighted to identify how their goals may overlap with the East Mulberry Plan.
Mountain Vista Subarea Plan
The Mountain Vista Subarea Plan was originally adopted in 1999, and
most recently updated in 2009. The Mountain Vista subarea is located
on the north side of the East Mulberry Plan Area. The plan outlines
goals to create mixed-use neighborhoods that have efficient street and
trail connectivity, support different modes of transportation such as
walkways, bike lanes, and access to transit, and to focus on preserving
the open lands through expanding park and recreation space and
protecting existing natural areas.
Key Recommendations: The Mountain Vista Subarea Plan seeks to
make improvements along Timberline Road, which passes through the
East Mulberry corridor. The plan also envisions a large business center
in northeast Fort Collins, which if realized, could impact employment
and transportation within the East Mulberry Plan Area.
I-25 Subarea Plan
The I-25 Subarea Plan was published in 2003. This subarea is
located along the eastern edge of the East Mulberry Plan Area. The
I-25 Subarea Plan outlines a vision to create a mixed-use corridor
along I-25 that reflects the area as a gateway into Fort Collins, with
planned commercial and employment centers providing a broad
range of employment opportunities. Goals include an interconnected
transportation network that allows easy access to I-25, as well as
connections independent of the interchange locations for local travel.
Key Recommendations: The I-25 Subarea Plan identifies activity
centers along I-25 at the Prospect Road and Mulberry Street
interchanges, with the intent of these areas having mixed-use
development. This plan also suggests improving Mulberry west of I-25
to a 6-lane major arterial roadway and improving Timberline Road
between Vine Drive and Harmony Road to a 6-lane major arterial
roadway. 4-lane arterial roadways are suggested for Vine Drive and
Prospect Road, with improved bike and transit networks along all major
roads near I-25. Page 383
Item 3.
Downtown Plan
The Downtown Plan was adopted by City Council in 2017. The
Downtown Plan area is to the west of the East Mulberry Plan Area. The
plan introduces a wide range of goals, as it covers a growing regional
market that serves as a hotspot for both residents and visitors of the
city. Some of the goals included are improving the urban design of
new construction, strengthening wayfinding and transit frequency,
increasing residential development, and improving affordability for
housing and commercial spaces.
Key Recommendations: The plan notes the potential for infill and
redevelopment along Mulberry and Lemay Avenue. Bicycle lane and
intersection improvements along Mulberry would allow for more
accessibility to the downtown area, as well as improvements could be
made for multi-modal transportation options to help reduce traffic
congestion and parking concerns. Improving intersections would
additionally help with congestion.
Northside Neighborhood Plans
The Northside Neighborhood Plan was created in 2005. The plan area
is located northwest of the East Mulberry Plan Area. With the plan area
immediately adjacent to the Poudre River, it highlights the conservation
of water and energy resources as a goal. Other goals identified
include fostering the growth of local businesses, providing livable and
affordable housing, and preserving the cultural and historical qualities
of the Northside Neighborhoods area.
Key Recommendations: The Plan outlines improved traffic and road
conditions on Vine Drive and Lemay Avenue, which travel along East
Mulberry’s boundary. Stormwater maintenance and flood control
along the Poudre River are also highlighted, which also travels through
the East Mulberry Plan Area. Specific improvements noted include
stormwater retention ponds and ditches.
Prospect Road Streetscape Program
The Prospect Road Streetscape Program was created in 1993 as an
element of the City of Fort Collins Comprehensive Plan. The goal of
the Program is to improve the appearance of the Prospect Road public
right-of-way and private street frontage, while respecting the natural
environment. Standards and guidelines are also provided with the
intent to be used as a design aid by developers proposing projects in
the Prospect Road Corridor.
Key Recommendations: The Program highlights improvements to
be made along Prospect, including the intersection of Prospect and
Timberline. Both Prospect and Timberline intersect the East Mulberry
Plan Area, providing the opportunity for design standards to align
together. Additionally, the Program outlines improvements for bicycle
and pedestrian ways along Prospect and all its intersections.
Page 384
Item 3.
East Mulberry Plan
October 10, 2023
Council Presentation
Megan Keith | Sylvia Tatman-BurrussPage 385
Item 3.
2Councilmember Feedback
Questions:
•Do Councilmembers have feedback on the East Mulberry Plan?
•What additional information would Council require prior to adoption?
Page 386
Item 3.
3Mulberry Context
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Park
Sunflower
Kingfisher Point
Natural Area
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Andersonville
Nueva
Vida
Countryside
Estates Pleasant
Acres
The Villas
Boxelder
Estates
Waterglen
Trailhead
Boxelder
Creek
Page 387
Item 3.
2002 East Mulberry Plan 4
2002 East Mulberry Corridor Plan
•Jointly adopted by Fort Collins and Larimer County
•Primary plan objective was to implement the 1997 City
Plan for the East Mulberry Corridor. Plan acknowledges
that continued growth and change may impact quality
of life in the area
•Respond to changed conditions after 20 years
•Creation of the enclave and eligibility for annexation
occurred after the 2002 Plan was adopted
•Align with the 2017 City Plan update and other
comprehensive plan documents
•Major new and planned developments that may be
catalysts for other development in this area (Bloom and
Peakview)
Why Update? Why Now?
Page 388
Item 3.
East Mulberry Plan –Where
We’ve Been
Page 389
Item 3.
6History of East Mulberry Enclave
Urban Growth
Area Established,
East Mulberry
included in original
“UGA”
East Mulberry
Corridor Plan
Creation and
Adoption
Community Engagement
Survey Ahead of Enclave
Creation
July: Council
Action to create
the East Mulberry
Enclave
August:
Enclave eligible
for annexation
August:
Business-owner
Focus Groups
April: Annexation
Analysis & Plan
Update Kick-Off
April:
Joint City Council and
Board of County
Commissioners mtg
We are Here:
Plan Adoption
Winter -Fall:
Robust community
engagement regarding
area vision
Winter -Spring:
Community engagement
focused on thresholds
approach
202320222021202020192018201719802000-2002
Page 390
Item 3.
7
Direction from Council
•Council wants to move slowly and
deliberately
•Lessons learned from Southwest
Enclave annexation
•Requests for additional analysis (costs,
opportunities, tradeoffs)
•Landed on a strategy around
thresholds for annexation (aka tipping
points)
2022 Council Touchpoints
•March 8 Work Session
•April 13 Joint City Council/County
Commissioner Meeting
•April 26 Work Session
•May 10 Council Priority Check-in
•August 1 Council Finance Committee
•October 20 Council Finance
Committee
•December 13 Work Session
Page 391
Item 3.
East Mulberry Draft Plan
Content
Page 392
Item 3.
East Mulberry Draft Plan TOC 9
The Draft East Mulberry Plan has five sections:
1. Introduction
2. Character Areas
3. Goals & Strategies
4. Implementation
5. Annexation Thresholds
Page 393
Item 3.
10
1. Introduction
About this Document
An Introduction to East Mulberry
•History of East Mulberry
Planning for East Mulberry
•Updating the 2002 East Mulberry Corridor Plan
Why Update, Why Now?
•Existing & Changed Conditions
•Community Priorities & What We Heard
•East Mulberry Enclave: History of Policy Guidance
Page 394
Item 3.
Why Update, Why Now? Existing and Changed Conditions 11
Existing & Changed Conditions:
Existing and changed conditions in the plan area since the East Mulberry Corridor
Plan in 2002,including infrastructure,growth,and development.
Community Priorities & What We Heard
•Infrastructure & Development
•Gateway & Entry Aesthetic
•Corridor Character & Uses
•Amenities & Services
•Housing & Gentrification
East Mulberry Enclave: History of Policy Guidance
•Enclave & Annexation Background
•Purpose of Annexation
•Introduction to Annexation Thresholds
•What changes during annexation? What doesn’t change upon annexation?
Page 395
Item 3.
12
2. Character Areas
Airpark
Frontage
I-25 Interchange
Transitional
Northern Residential (Mixed)
Southern Residential (Estate)
Page 396
Item 3.
•Character Areas were
formulated to:
•Ensure plan
recommendations
respect the context
of each area
•Define and
strengthen each
area’s unique
qualities
13
Character Areas
Page 397
Item 3.
Goal 2: Stormwater
14
3. Goals & Strategies
Goal 1: Commercial & Industrial Hub
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
Page 398
Item 3.
15
4. Implementation
Place Type Framework Plan
Transportation Framework Plan
Development Review Framework
Page 399
Item 3.
•Place Types match land use guidance in
City Plan and can be more flexible than
a framework map based on zone
districts
16
Place Type Framework Map4. Implementation
•Depicts connectivity needs, proposed
streets for augmentation, and areas for
future evaluation and improvement
Transportation Framework Map
•Provides a structured and strategic
approach for revitalizing and improving
properties over time as they come
through the City’s development review
process
Development Review Spectrum
Page 400
Item 3.
17
5. Annexation Thresholds
What are Thresholds?
Identification of Thresholds
Thresholds Strategy Long-Term Management
Page 401
Item 3.
Threshold Categories
Threshold Categories
•Maintenance of Logical Boundaries
•Achievement of Citywide Policy Priorities
•Proactive Resource Protection
•Redevelopment Risk
•Other Proactive/Strategic Goal Alignment
•External Funding and Capital Project Alignment
Enclave
City Limits
‘Natural’ Annexations Occur
Island Formed
City Buffer
Standard
County Buffer
Standard
EnclaveCity Limits
What are thresholds?
A set of conditions that when reached, may represent an
opportune time to consider annexation of portions of the
enclave.
Page 402
Item 3.
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Vine Dr.
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Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Waterfield
Vine Dr.
Suniga Rd.
•This map depicts the northern
extent of the East Mulberry
Enclave as it exists now
Page 403
Item 3.
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Vine Dr.
Mulberry St.Li
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Cooper
SloughMosaic
Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Waterfield
Considerations & Sequencing:
•Development Activity:
•The City has received a
Preliminary Design Review
submittal for a property near
Vine Dr. and Timberline Rd.
•Development would require
annexation Vine Dr.
Suniga Rd.
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Page 404
Item 3.
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Cooper
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Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Waterfield
Vine Dr.
Suniga Rd.
Considerations & Sequencing:
•Potential Threshold met:
•Annexation of the parcels
near Vine and Timberline
create ‘islands’ of parcels
now physically disconnected
•Maintaining logical
boundaries threshold
+
•Proactive resource
protection/Achievement of
Citywide Policy Priority
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Page 405
Item 3.
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Cooper
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Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Waterfield
Vine Dr.
Suniga Rd.
Considerations & Sequencing:
•Potential Threshold:
•Proximity of the Collins Aire
Mobile Home Park may offer
an opportunity to bring this
community into City Limits
•Proactive resource
protection/Achievement of
Citywide Policy Priority
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Page 406
Item 3.
23
Vine Dr.
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Cooper
SloughMosaic
Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Waterfield
Vine Dr.
Suniga Rd.
Considerations & Sequencing:
•Potential Threshold met:
•The addition of the Collins
Aire Mobile Home Park for
annexation consideration
would create another ‘island’
along Vine Dr.
•Maintaining logical
boundaries threshold
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Page 407
Item 3.
24
Vine Dr.
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Cooper
SloughMosaic
Bloom
Collins
Aire
Timbervine
Dry Creek
Roselawn
Cemetery
Nueva
Vida
The Villas
Waterglen
Trailhead
Waterfield
Vine Dr.
Suniga Rd.
Considerations & Sequencing:
•In this case, multiple thresholds
are combined to establish
potential annexation boundaries
for further analysis and City
Council decision
Legend:
East Mulberry Enclave
Fort Collins City Limits N
Page 408
Item 3.
25
What happens when a threshold has been identified?
City Staff identifies
potential annexation
boundaries
Neighborhood meeting with
residents and businesses within
potential annexation area
6-month period
The following should occur:
•Financial analysis
•Evaluate condition and existing
maintenance activities of streets
and other infrastructure
•Ongoing community
engagement, including
informing residents and
businesses of service provider
changes and anticipated fees
•Formulate annexation transition
committee as applicable
Adjust Threshold Annexation boundaries
as needed based on results of analysis
Analysis shared with
Decision-Makers to
identify timing options
and whether to pursue
annexation Yes/No Pursue
Annexation
If Yes:
Staff may initiate
annexation proceedings
immediately or delay
effective date of
annexation to align with
budgeting/resource
availability
Long-Term and Ongoing Management:
•Monitoring Reports
•Individual Annexations
•Capital Projects
•Future Plan Updates
•External Factors
•Annexation Transition Committee
Page 409
Item 3.
Next Steps
Page 410
Item 3.
Next Steps
•Public Review Period ahead of Adoption
•First Reading of the East Mulberry Plan is
scheduled for November 21, 2023, at a
City Council Regular Meeting
Page 411
Item 3.
28Councilmember Feedback
Questions:
•Do Councilmembers have feedback on the East Mulberry Plan?
•What additional information would Council require prior to adoption?
Page 412
Item 3.
Page 413
Item 3.