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HomeMy WebLinkAboutCOUNCIL - AGENDA ITEM - 09/24/2019 - NORTHEAST FORT COLLINS PLANNING DISCUSSIONDATE: STAFF: September 24, 2019 Rebecca Everette, Development Review Manager Dean Klingner, Transfort and Parking Interim General Manager Theresa Connor, Water Engineering Field Operations Mrg WORK SESSION ITEM City Council SUBJECT FOR DISCUSSION Northeast Fort Collins Planning Discussion. EXECUTIVE SUMMARY The purpose of this item is to discuss planning considerations and policy guidance in northeast Fort Collins (north of Vine Drive, east of Lemay Avenue and generally encompassed in the Mountain Vista Subarea). As the largest area of mostly vacant, agricultural land in the Growth Management Area, significant development is anticipated over the coming decades. Multiple development applications have been approved in recent years or are currently undergoing development review. As development occurs, amendments to various City plans may be requested, including the Mountain Vista Subarea Plan, Master Street Plan, and Parks and Recreation Master Plan. New and proposed development in the area has necessitated a holistic analysis of utility provision, the transportation network and community amenities in northeast Fort Collins, which pose both opportunities and constraints for the City. City Council may be involved in various decisions related to planning and development in this area of the community, including plan amendments, development plans, annexation and zoning decisions, utility service agreements, metro districts, and funding for capital projects. Staff seeks to provide background information for Council and to understand Council’s expectations for new development in northeast Fort Collins. GENERAL DIRECTION SOUGHT AND SPECIFIC QUESTIONS TO BE ANSWERED What questions or guidance does Council have related to planning and development in northeast Fort Collins? BACKGROUND / DISCUSSION Mountain Vista Subarea Plan The Mountain Vista Subarea Plan was adopted in 2009 and provides land use and policy guidance for the northeast quadrant of the city. The plan describes the vision for this subarea as: “…an area of Fort Collins known for its impressive views of the mountains and recognized for its successful and innovative community design. This subarea will be distinct and attractive with a comfortable, town-like atmosphere that residents and businesses identify with and take pride in. Neighborhoods, parks, schools, shopping district and business centers within this subarea will be connected and served by a variety of travel choices including vehicle, transit, bicycle, and pedestrian modes…” Other key elements of the subarea plan’s vision and policies include: • Mixed-use neighborhoods composed of a variety of housing types and prices ranges • Commercial centers and amenities in close proximity to neighborhoods • A new community commercial district with a small town-like pattern of streets and blocks and an emphasis on pedestrian use • A network of streets and trails that are attractive, safe and pedestrian-oriented September 24, 2019 Page 2 • A range of job opportunities for the area, community and region on industrial and employment lands • Access, mobility and connectivity for all travel modes, with strategically located transit hubs • Preservation and enhancement of existing natural features, historic resources, and scenic views • Schools, parks and recreation opportunities linked by a greenway network • Well designed and attractive landscaping, signage and lighting with high-quality and innovative building design In 2016, City Council revisited the vision and framework plan for the Mountain Vista subarea. In their work session discussions, Council reinforced their support for a land use framework that integrates open lands, including agricultural production, parks, natural habitat, and stormwater areas with new residential neighborhoods, public facilities and employment areas - with particular focus on agri-urban development, affordable housing, and implementation of Nature in the City goals. Any amendments to the Mountain Vista Subarea Plan would require City Council approval. Master Street Plan and Transportation Projects The Master Street Plan establishes the overall street network for the community, including the layout and classification of roads, intersections and other infrastructure. The last major update to the Master Street Plan was in 2011, though the recent City Plan Update involved significant analysis and community input related to the plan. A number of amendments to the Master Street Plan are currently in review. Some potential amendments were identified through the City Plan process, and others have been requested in conjunction with development projects in northeast Fort Collins. The proposed amendments include a combination of realignments, additions, deletions or reclassifications of various roadways. The most significant proposed changes are the realignment of Timberline and Mountain Vista and the addition of Turnberry and Giddings connections (south of Mountain Vista). The proposed realignment of Timberline and Mountain Vista would keep the existing road alignments and remove a future curve of Timberline through private property. The proposed Turnberry and Giddings connections would provide an additional 4 lanes of north/south capacity feeding to Suniga. The remainder of requested changes are minor realignments or additions that primarily impact the Montava development and would be tied to the approval of the Montava PUD application. In addition to Master Street Plan amendments, major transportation projects planned in northeast Fort Collins include: • The Vine Drive and Lemay Avenue overpass • The completion of various portions of Suniga Road • A new signal at Timberline Road and Vine Drive • A new signal at Turnberry Road and Country Club Drive • Vine Drive bridge over I-25 (CDOT) • A new signal at SH1 and Douglas Road Other improvements, including roadway widening consistent with the Master Street Plan and intersection projects, will be identified through individual development applications. The City will work closely with the County to accommodate the sensitive nature of Country Club Road, which is a collector in unincorporated Larimer County. Any amendments to the Master Street Plan would require City Council approval. Parks and Recreation Policy Plan Based on the 2008 Parks and Recreation Policy Plan, there are approximately eight neighborhood parks and one community park planned for northeast Fort Collins. The City recently completed construction of a neighborhood park in the Maple Hill neighborhood, now called Crescent Park. Sugar Beet Park, located near Vine Dr and 9th Street, is currently under construction and will be open before the end of 2019. Design efforts for September 24, 2019 Page 3 Trail Head Park are currently underway, with construction planned for 2020. A larger community park, currently referred to as the Northeast Community Park, is also planned for this part of the community. Multiple regional trail connections are planned as development occurs over time. A new recreation center is also planned for northeast Fort Collins as the population continues to grow. The Park Planning and Development Department has been coordinating with multiple developers to reserve parkland and secure easements for future paved recreational trails. Conversations with the Montava developer regarding a potential location for Northeast Community Park are ongoing. Any amendments to the Parks and Recreation Policy Plan would require City Council approval, and a comprehensive update to this plan is scheduled for 2019-2020. Schools and Libraries Poudre School District (PSD) has long had plans for developing additional schools to serve northeast Fort Collins, including elementary, middle, and high school sites. Schools would be sited and built as needed and as funding allows in response to population growth and development activity. PSD continues to partner with developers in northeast Fort Collins to secure potential school sites and ensure that the District’s long-term needs can be met. PSD has not indicated a timeline for the development of the schools. The 2019 Poudre River Public Library District Master Plan identifies the need for an additional library facility that is “accessible for the populations of and beyond north Fort Collins.” The new library would offer “diverse spaces for people and programming” and would serve as a key community amenity for residents in northeast Fort Collins. Utility Services Water Utilities The Mountain Vista Subarea is predominately within the East Larimer County Water District (ELCO), which provides water treatment and delivery services for existing and future customers. The only exception is that Fort Collins Utilities serves the Anheuser Busch facility near Richards Lake Road and I-25. ELCO requires new development to provide certain water rights to meet the water demands of the new development, and generally does not accept cash-in-lieu of those water rights. Some developers have expressed difficulty in acquiring these water rights (versus paying cash-in-lieu) and are concerned about their rising costs and the effect on the affordability of housing in the area, especially when compared to a lower cost for water supplies in the Fort Collins Utilities service area. Fort Collins Utilities and ELCO are exploring ways to jointly provide water services that might reduce the overall costs in the Mountain Vista area. However, this is difficult given the constraints of Colorado Water law related to sharing water supplies, which would present risks to either party relative to normal water requirements. Any water sharing arrangements between Fort Collins Utilities and ELCO would require City Council approval. Wastewater Utilities The Mountain Vista Subarea is predominately within the Boxelder Sanitation District (BSD) service area for wastewater conveyance, treatment and disposal. Like water service, Fort Collins Utilities serves the Anheuser Busch facility, even though it is within BSD’s service area. BSD has a treatment plant across the Poudre River from the Fort Collins Drake Water Reclamation Facility. BSD’s Plant Investment Fee (PIF) is much higher than Fort Collins Utilities’ PIF, approximately $12,000 compared to approximately $4,000, and they do not have separate PIF rates for multi-family and single-family units. Fort Collins Utilities has received feedback that this can be a substantial drawback to developing in this area. The average monthly bill for residents in BSD is around $80, versus close to $40 for Fort Collins Utilities. This can be a strain to households in the BSD service area, which impacts the overall affordability of housing in this area. BSD staff has indicated they are trying to develop policy solutions to address these challenges. September 24, 2019 Page 4 Stormwater Utility The Mountain Vista Subarea is in the Cooper Slough Drainage Basin, which drains to Boxelder Creek watershed and eventually the Poudre River. Fort Collins Utilities Stormwater Division has completed a Master Stormwater Plan, including a Selected Plan for improvements in the Cooper Slough Basin to address a lack of adequate stormwater infrastructure within the basin to meet the level of service as established by policy. Working with developers within the Cooper Slough Basin is an opportunity to partner to meet the requirements of the developer and make improvements identified to serve existing residents. The Stormwater Department generally works through Development Agreements as a way to partner on these projects. Metropolitan Districts Metropolitan Districts are special tax districts that provide municipal services such as sewer, water, parks, and amenities. Metropolitan Districts issue bonds to build and maintain this infrastructure. Properties within the Metropolitan District boundary pay a property tax to service the debt issued by the District. Formerly, the Metropolitan District tool was only available to developments comprising 90% commercial uses in Fort Collins. In 2018, Council updated the Metropolitan District policy and now allows residential development to use the tool. Residential development must provide additional public benefits to gain access to the Metropolitan District tool, per the City’s revised policies. To seek approval for a Metropolitan District, developers produce a service plan outlining the proposed mill levy, the improvements the bonds will fund, and the public benefits associated with the development. City Council is the decision maker for these service plans. Metropolitan Districts are also subject to a vote to comply with the Taxpayer’s Bill of Rights (TABOR). A few developments under review or under construction in northeast Fort Collins have applied for a Metropolitan District. These developments include: • Water’s Edge • Waterfield • Montava Public benefits associated with each Metropolitan District vary from using non-potable water for irrigation or improving energy efficiency to the provision of affordable housing. Council approved preliminary service plans multiple proposed Metropolitan Districts in 2018. Each development will need to seek final approval of their service plans and are subject to a vote in order to establish their Metropolitan Districts. Planning and Development Activity Multiple development projects are planned, under review or have been approved in recent years in northeast Fort Collins. Council’s role in relation to development projects varies based on the nature of the project. For projects that involve plan amendments, annexation, zoning or rezoning, metro districts, or Planned Unit Developments larger than 640 acres, Council is the decision-maker. For development projects that do not involve these actions, Planning and Zoning Board or an administrative hearing officer are the decision-makers, though Council may be involved in appeal proceedings. Development projects are required to comply with all applicable Land Use Code requirements and must conform to the policy guidance in City Plan, the Master Street Plan, and other adopted policies and plans. ATTACHMENTS 1. PowerPoint Presentation (PDF) September 24, 2019 Northeast Fort Collins Planning Discussion Planning, Development, Transportation & Utilities Staff ATTACHMENT 1 Purpose of this Item • Provide context and background on planning and development issues in northeast Fort Collins • Outline opportunities and constraints related to planning, transportation, parks and recreation, and utility services • Prepare Council for future discussions related to capital projects, plan amendments, and development projects 2 Area of Consideration 3 VINE LEMAY • North of Vine Drive, East of Lemay Avenue • Council District 1 • Majority of vacant land in Growth Management Area • Mountain Vista Subarea • Separate water and wastewater districts City Council Involvement • Council may be involved in various decisions related to planning and development in northeast Fort Collins, including: • Plan amendments (e.g., Master Street Plan) • Planned Unit Development (PUD) Master Plans for projects >640 acres • Annexation, zoning and rezoning decisions • Funding decisions for capital projects • Utility service agreements • Development projects on appeal • Metro district requests 4 5 Planning & Development Mountain Vista Subarea 6 Growth Management Area (GMA) Boundary Mountain Vista Subarea City Limits (Yellow) Zoning Acreage Low Density Mixed Use Neighborhood (LMN) 1,298 acres Medium Density Mixed Use Neighborhood (MMN) 144 acres Employment 660 acres Industrial 450 acres Open land, community park and school site 400 acres Community Commercial 30 acres Total 2,989 acres Mountain Vista Subarea Plan 7 1999 Framework Plan Adopted 2008-2009 Plan Update Update 2009 Plan Update Adopted 2015 Rural Scenario Assessment Direction from Council (2015) • Specific topics to be incorporated: • Nature in the City • Urban Agriculture • Housing Affordability • Investigate partnership opportunities for infrastructure improvements • Promote innovative design • Enhance livability and integrate agricultural and natural systems 8 L a k e C a n a l No. 8 Outlet Larimer a n d Weld Canal R i c h a r d ' s L a k e L o n g P o n d Lin d e n m e ier L a ke J a c k s o n D i t c h L a k e C a n a l No. 8 Outlet Larimer a n 10 Transportation Master Street Plan Turnberry Rd Mtn Vista Drive Timberline Rd Giddings Vine Drive Suniga Conifer Existing Master Street Plan Slide 11 Turnberry Rd Mtn Vista Drive Bar Harbor Dr. Giddings Timberline Rd Giddings Vine Drive Suniga Conifer Requested Amendments N Transportation Projects Turnberry Rd Mtn Vista Drive Timberline Vine Dr Giddings Suniga College Country Club Dr Lemay 11 11 Vine & Lemay Overpass Suniga (various sections) Timberline/Vine Signal 22 Current Projects (Funded/partially funded or underway) Future Projects (with Development) 77 Turnberry (various sections) Turnberry & Country Club Signal 33 Timberline / Mtn Vista widening & intersection improvements 99 Mtn. Vista / I-25 Signal 44 Richards Lake Rd Douglas Rd SH 1 Vine Dr Bridge over I-25 (CDOT) 55 66 22 33 44 55 SH 1 / Douglas Rd Signal 88 99 N 12 77 66 88 13 Parks, Recreation & Schools 14 Parks & Recreation Policy Plan Park Site Identified or Acquired Park Constructed Park Planned Schools & Libraries • Proposed schools: • Elementary school • Middle school • High school • Future library identified for northeast Fort Collins 15 16 Utility Services Water Utilities • Primary provider: East Larimer County Water District (ELCO) • Requires water rights • Higher cost than Utilities • ELCO and Utilities exploring ways to jointly provide services • Water law challenges • Any arrangements require Council approval 17 Mountain Vista Subarea Wastewater Service Challenges 18 Wastewater Utilities • Primary provider: Boxelder Sanitation District (BSD) • Higher cost of Plant Investment Fee (PIF) and rates than Utilities • BSD has indicated they are seeking policies within their organization and is not interested in near term partnership with Utilities • BSD would consider long-term planning solutions Mountain Vista Subarea 19 Stormwater Utility • Fort Collins Utilities the stormwater provider in this area • Mountain Vista Subarea is in the Cooper Slough Drainage Basin • Any partnering on stormwater improvements would be incorporated into development agreements Cooper Slough Basin Development Opportunities & Challenges Opportunities • Largest undeveloped area of city • Potential for full range of housing options and mixed neighborhoods • Impact fees for infrastructure and amenities • Potential for new parks, schools, protected open space, and other community facilities 20 Challenges • High cost of development • Utility service constraints • High infrastructure needs to serve growing population Council Discussion • What questions or guidance does Council have related to planning and development in northeast Fort Collins? 21 22 PUD Process • Optional for development projects >50 acres • Projects 50-640 acres  Planning & Zoning Board • Projects 640+ acres  City Council • Two neighborhood meetings • Significant coordination among City departments and external agencies • Subsequent development phases follow standard development review process, reviewed for conformance with PUD Master Plan 23 PUD Master Plan Benefits of PUD: • Generates additional public benefit and high-quality design • Provides overall vision for long- term development • Ensures consistent, coordinated development over multiple phases • Extended vesting period Includes: • Uses, densities and development standards • Transportation network • Open space network • Preliminary utility information • Architectural concept plan • Phasing plan 24 Summary: Rural Scenario Assessment 25 Pros Cons Greater agricultural production within the City Housing Becomes Less Affordable Fewer collector streets constructed Increased VMT and congestion on City streets Fewer City services and programs needed Substantial Increase in Regional Green House Gas Emissions Greater potential to enhance natural habitat Loss of Street Oversizing Fees to cover costs of regionally-induced transportation impacts Insufficient density to support transit Stranded assets-arterial streets & school site Substantial Loss in Job Opportunities Vision 26 • Vision for the Mountain Vista Subarea: Provide a framework for successful and innovative community design. • One of the last remaining major growth areas in the City • Intended to have a new community center, enhanced multimodal travel corridors, industrial lands, employment areas, a new community park and open lands. • Fresh concepts for incorporating urban agriculture and natural spaces into future development to preserve rural character Plan Amendment Process The process for amendments to adopted subarea plans, including the Mountain Vista Subarea Plan, is outlined in City Plan and includes the following procedures: 1. Citizens and development applicants may submit requests for plan amendments, and such amendments may be processed concurrently with development applications 2. City Council is the decision-maker for plan amendments, with recommendations from the Planning and Zoning Board, staff, and any boards and commissions that have a legitimate interest in the proposed amendment 3. City Council must find that the plan is (1) in need of an amendment and (2) that the proposed amendment will promote the public welfare and will be consistent with the vision, goals, principles and policies of City Plan and its related elements 27 Plan Amendment Process The process for amendments to the Master Street Plan includes: 1. Technical analysis and review is conducted by various City departments, including travel demand modeling and consideration of relevant Transportation Master Plan and City Plan policies 2. City Council is the decision-maker for Master Street Plan amendments, with recommendations from the Transportation Board, Planning and Zoning Board, and staff 28 Master Street Plan Requested Amendments • 13 requested changes • Tied to approval of Montava PUD Key Highlights • Turnberry extension south of Mtn. Vista • Giddings / Suniga connection • Conifer extension N 29 d Weld Canal R i c h a r d ' s L a k e L o n g P o n d Lin d e n m e ier L a ke J a c k s o n D i t c h Recent Development Activity Turnberry Rd Mtn Vista Drive Timberline Vine Dr Giddings Suniga Country Club Dr Lemay 11 11 Montava* 22 Country Club Reserve 33 Water’s Edge* In Review Process 44 Waterfield* Richards Lake Rd Douglas Rd 22 33 44 Recently Approved * = Requested Metro District N 9 55 55 Northfield*