HomeMy WebLinkAboutMemo - Mail Packet - 8/8/2023 - Memorandum From Megan Keith And Sylvia Tatman-Burruss Re: East Mulberry Plan Draft Release: Sections 3 & 4
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Planning, Development & Transportation
281 N. College Ave
PO Box 580
Fort Collins, CO 80522
www.fcgov.com
MEMORANDUM
DATE: August 3, 2023
TO: Mayor and City Councilmembers
THRU: Kelly DiMartino, City Manager
Tyler Marr, Deputy City Manager
Travis Storin, Chief Financial Officer
Caryn Champine, Director, Planning, Development & Transportation
Paul Sizemore, Director, Community Development & Neighborhood Services
Clay Frickey, Interim Planning Manager, Community Development &
Neighborhood Services
FROM: Megan Keith, Senior Planner
Sylvia Tatman-Burruss, Senior Policy & Project Manager
RE: East Mulberry Plan Draft Release: Sections 3 & 4
The purpose of this memorandum is to summarize key themes, structure, and proposed
implementation steps in Sections 3 & 4 of the East Mulberry Plan (the plan) and share next
steps in the East Mulberry Project.
Bottom Line: The entire draft East Mulberry Plan is now out for public review and staff is
actively seeking public comment, especially from those who have been engaged throughout the
plan-making process. Sections 1 & 2 were released and shared with you in your packets on July
20th with an accompanying memorandum. This memorandum accompanies Sections 3 & 4 of
the plan. Section 3 covers the Character Areas and how the Big Ideas and Implementation
Action Steps apply to different parts of the East Mulberry area, and Section 4 covers a potential
Annexation approach, known as the Thresholds Approach.
Background
The existing East Mulberry Corridor Plan (EMCP) was jointly adopted in 2002 by City Council
and the Larimer County Board of County Commissioners. The EMCP focused on several key
issues, including provision and maintenance of public facilities and services, contemplated
annexation, discussed cost of improving deteriorating infrastructure, offered guidance on
redevelopment, and provided future streetscape design of key areas and corridors.
City staff has been actively engaging community members and business owners within the East
Mulberry Area since the enclave was formed in 2018. Since that time, staff has conducted many
public engagement meetings, met several times with Council at various Work Sessions,
engaged with Larimer County staff, and made presentations to the Larimer County Board of
County Commissioners.
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Previous Council Direction
• Council wants to move slowly and deliberately
• Reflect on lessons learned from Southwest Enclave annexation
• Requests for additional analysis (costs, opportunities, tradeoffs)
• Landed on a strategy around thresholds for annexation (aka tipping points) which was
shared with Council at the December 13th, 2022, work session
Purpose of the Plan
The 2023 East Mulberry Plan serves as an update to the previously adopted 2002 East
Mulberry Corridor Plan. The plan incorporates new goals, 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 City Plan, the
Transportation Master Plan, the Active Modes Plan, and other relevant work related to Utilities
and small business support services.
Draft East Mulberry Plan Sections
The following sections will be included in the plan. The plan had originally been proposed to
contain 3 sections, however upon further review and conversations with the project team, it
became clear that Section 3 should be broken into two distinct sections, where Section 3 covers
specific Big Idea and Action Item application within each of the Character Areas within East
Mulberry, and Section 4 is focused specifically on the proposed Threshold Annexation strategy.
1. Section 1: Introduction
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.
2. Section 2: Big Ideas
The Big Ideas 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.
a. 7 Plan Goals (Including Strategies and Action Items):
i. Goal 1: Commercial/Industrial Hub (industrial/ag uses)
ii. Goal 2: Stormwater infrastructure
iii. Goal 3: Multimodal (mobility, streets)
iv. Goal 4: Community Access (amenities & services)
v. Goal 5: Housing Affordability
vi. Goal 6: Historic, Cultural, Natural Features (ecological health)
vii. Goal 7: Gateway Aesthetic
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3. Section 3: Character Areas
This section of the plan is intended to balance flexibility for the long-term realization of
annexation thresholds and offer sufficient structure such that residents and business owners
within the East Mulberry Plan Area can understand what to expect upon annexation and what
priorities apply to their neighborhood. This section of the East Mulberry Plan offers character
area-specific descriptions and implementation action items by character area.
East Mulberry Character Areas:
Airpark
Transitional
Residential (Estate)
Frontage
Residential (Mixed)
I-25 Gateway
4. Section 4: 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 Framework Plan map that depicts future land uses, a Transportation
Framework Plan map that explores a potential transportation network, a development review
framework to guide future development activity in the East Mulberry Plan Area, as well as a
more in-depth explanation and long-term management plan of Annexation Thresholds. This
section is meant to be a guidance document should Council decide to Annex portions of the
East Mulberry Enclave in the future. Some topics contemplated in this section include:
Land Use and Transportation Framework Plans
Development Framework
Annexation Thresholds Framework
Next Steps:
The full draft plan is currently out for public review. Staff anticipates at least one draft
revision to occur to respond to any feedback received during this round of review.
A Work Session is tentatively scheduled for October 10th, 2023. Staff will be prepared to
present all sections of the Draft Plan, receive feedback, and answer any questions.
Attachments:
1. East Mulberry Plan Draft: Sections 3 & 4
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Sec�on 3: Character Areas
Introduc�on
As was explored in Sec�on 2 of the Plan, many aspects of the goals and implementa�on ac�on items
recommended through the Plan are dependent on annexa�on to be fully realized. Accompanying each
strategy is a statement on fulfillment of that strategy, along with any measures that can be achieved
prior to annexa�on. The City will con�nue to partner with Larimer County on the management of the
East Mulberry Plan Area, but investments of City resources and jurisdic�on over this area will not occur
un�l areas are brought into City Limits over �me through threshold annexa�ons. The Plan strives to be
realis�c and transparent with se�ng expecta�ons, but also proac�vely pu�ng in place a framework so
that when areas do annex into the City, the goals and ac�ons recommended in the Plan can be
implemented expedi�ously.
Sec�on 3 of the Plan is intended to balance flexibility for the long-term realiza�on of annexa�on
thresholds, but also offer sufficient structure such that residents and business owners within the East
Mulberry Plan Area can understand what to expect upon annexa�on and what priori�es apply to their
neighborhood. This sec�on of the East Mulberry Plan offers character area-specific descrip�ons and
implementa�on ac�on items by character area.
Character Areas
At the men�on of East Mulberry, several loca�ons or landmarks may come to mind. Some may picture
Mulberry Street itself, or possibly the interchange at Mulberry and I-25 and its func�on 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 characteris�cs and needs dis�nct from
those within the residen�al neighborhoods. Even the characteris�cs of the residen�al 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. To
incorporate this complexity and plan comprehensively for the en�re East Mulberry Plan Area, six
character areas were iden�fied.
Considera�ons for defining character area boundaries included land uses, the built form, transporta�on
system factors, and other defining aspects within each area. 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 characteris�cs 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 priori�zed as each area con�nues 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 dis�nct quali�es, while simultaneously weaving them
into the broader character of the East Mulberry Plan Area and the community of Fort Collins.
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Airpark Park Character Area
The Airpark Character Area is on the western side of the East Mulberry Plan Area, located around the
intersec�on of Link Lane and Lincoln Avenue. This area includes the runways that were formerly part of
the Fort Collins Downtown Airport. The Airpark Character Area has maintained its industrial character for
decades and is home to numerous small, local businesses. This area is generally considered “back of
house” where industrial businesses operate efficiently. However, there are also several small residen�al
areas, including the Nueva Vida Mobile Home Park. Since this area func�ons as an industrial hub,
exis�ng infrastructure is primarily vehicular. This area generally lacks dedicated infrastructure for
bicycles, pedestrians, and stormwater management. In the last decade, this character area has seen an
increase in service businesses such as breweries and health clubs that atract a new and different
clientele to this area. This clientele may be more likely to use different modes of transporta�on to visit
these businesses.
Lincoln Avenue, which runs through this character area from east to west, connects directly to
Downtown. The Route 14 Transfort Bus runs along Lincoln Avenue. Link Lane runs through this character
area from north to south and poses many redevelopment challenges. Along Link Lane, there is generally
no dis�nc�on in grade between parking areas surrounding buildings and the nearby street. To someday
introduce a curb and guter with stormwater drainage infrastructure and limited right-of-way would be
very difficult to implement in a piecemeal way as individual proper�es develop or redevelop.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Preserve exis�ng businesses and protect industrial func�ons and uses.
b. Maintain current land designa�ons.
2. Stormwater Infrastructure Priori�es:
a. Implement improvements outlined in the Dry Creek Master Plan to reduce flooding in the
industrial park.
b. Address the lack of stormwater infrastructure available for redevelopment by conduc�ng an
inventory, adding it to the maintenance schedule, and planning improvements based on the
Citywide priori�za�on list.
3. Transporta�on Priori�es:
a. Plan for safe pedestrian and bicycle infrastructure in an area that con�nues to cater to
industrial and commercial vehicles.
b. Connect the Airpark Character Area with the rest of the community by priori�zing 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 priori�ze connec�ons within the character area
and to surrounding areas.
4. Ameni�es & Services Priori�es:
a. Maintain the diversity of businesses and services along Link Lane to con�nue serving as an
ac�vity center.
b. Address and mi�gate the burden of flooding on individual property owners.
5. Housing Priori�es:
a. Support the exis�ng Nueva Vida mobile home community in pursuing necessary upgrades and
services.
6. Historic, Cultural, Natural Features Priori�es:
a. Incorporate naturalized stormwater features that align with the spirit of protec�ng natural
habitats as specified in the Land Use Code.
b. Promote nature-based solu�ons 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.
7. Design & Aesthe�c Priori�es:
a. Priori�ze pedestrian-friendly infrastructure, such as landscaping, trees, and sidewalks, along
Link Lane and Lincoln Avenue.
b. Support and incen�vize urban design elements that create a cohesive character iden�ty based
on the history of the Airpark area.
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Mulberry Frontage Character Area
The Mulberry Frontage character area generally hugs the path of Mulberry Street, beginning at Lemay
Avenue on the west side and con�nuing east un�l between Sherry Drive and Canal Drive. Originally, this
area was primarily rural, with farms and open lands stretching along the road. Over the years as Fort
Collins has grown, East Mulberry Street gradually transformed into a bustling commercial corridor. Today,
it is lined with a diverse array of businesses, including restaurants, retail stores, and service providers.
The street reflects a mix of architectural styles, with some older buildings da�ng back several decades.
Most proper�es are configured with surface parking lots facing or visible from Mulberry Street. The
Mulberry Street corridor serves as a vital hub for both residents and businesses owners, offering a range
of services and business types that contribute to the overall vibrancy of Fort Collins. In the future, this
character area is likely to remain commercial in nature. As most of this area was developed decades ago,
the infrastructure is car dominated and lacks safe travel routes for pedestrians and bicyclists. The
intersec�on of East Mulberry and Timberline Road/Summit View Drive is configured in such a way that
creates challenging vehicular movements and lacks safe pedestrian and bicycle infrastructure. Access to
and from the Frontage Roads can also be dangerous because of their proximity to East Mulberry Street,
making traffic movement tricky with sharp turns and unpredictable movement.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Maintain accessibility for vehicles and large trucks to support businesses.
b. Preserve exis�ng businesses and protect commercial func�ons.
2. Stormwater Infrastructure Priori�es:
a. Coordinate with CDOT to improve and maintain stormwater infrastructure between Mulberry
Street and the frontage roads.
b. Reduce flooding along Mulberry Street through improvements outlined in the Dry Creek and
Cooper Slough Master Plans.
3. Transporta�on Priori�es:
a. Iden�fy opportuni�es 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 poten�al bus-only lanes for
Bus Rapid Transit (BRT) service.
4. Ameni�es & Services Priori�es:
a. Encourage grocery stores or other neighborhood-serving retail to locate in the East Mulberry
Plan Area.
b. Consider implemen�ng principles of 15-minute ci�es along this corridor.
5. Housing Priori�es:
a. Not applicable.
6. Historic, Cultural, Natural Features Priori�es:
a. Enhance the urban tree canopy and establish tree buffer zones along I-25 to mi�gate noise
and improve aesthe�cs.
b. Promote the use of green infrastructure approaches, such as bioswales, rain gardens, and
urban forests, in public and private development projects.
c. Integrate nature-based solu�ons within neighborhoods to promote ecosystem health, improve
microclimates, and enhance environmental quality.
d. Preserve recognizable historic buildings, site features, and signage of legacy businesses that
have contributed to the corridor's commercial success.
7. Design & Aesthe�c Priori�es:
a. Create and establish a healthy tree canopy and improve other landscaping.
b. Consider providing incen�ves for the removal of billboards on private property.
c. To achieve goals related to aesthe�c improvements for the Mulberry Street frontage, consider
enhanced screening for uses that involve outdoor storage.
d. Implement wayfinding to improve naviga�on.
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I-25 Gateway Character Area
As the name suggests, the I-25 Gateway character area is focused around the I-25 and Mulberry
Interchange. This character area is a significant regional commercial hub with a focus on industrial-,
lodging-, and agriculture service-related businesses and it is an�cipated to remain focused on these uses.
This area has a number of deteriora�ng facili�es with non-compliant large pole signs which do not meet
City standards. The lack of sidewalks along the highway poses a significant danger for pedestrians,
bicyclists, and all modes of transporta�on. A comprehensive redesign, poten�ally through a capital
project, is essen�al to address the en�re Mulberry frontage and transform it into a visually invi�ng
gateway to Fort Collins from the interstate.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Preserve agricultural and industrial businesses through changes in zoning and land use
regula�ons.
2. Stormwater Infrastructure Priori�es:
a. Accommodate improvements outlined in the Cooper Slough Master Plan in new
developments in the area.
b. Construct future improvements to reduce flooding along Cooper Slough.
3. Transporta�on Priori�es:
a. Collaborate with CDOT to redesign and reconstruct the I-25 & Mulberry interchange,
incorpora�ng design enhancements that align with Fort Collins' character.
b. Improve safety, mul�modal op�ons, and efficiency for accessing and crossing I-25.
c. Establish a Park & Ride / Mobility Hub for regional services at the I-25 & Mulberry interchange.
4. Ameni�es & Services Priori�es:
a. Increase availability of specialized and general police services to enhance safety, improve
response �mes, and provide proac�ve and community-based law enforcement services.
5. Housing Priori�es:
a. Not applicable.
6. Historic, Cultural, Natural Features Priori�es:
a. Maintain the exis�ng 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
aesthe�c features.
d. Promote nature-based solu�ons at the neighborhood level along parkways, trail systems, and
common areas.
e. Use interpre�ve signage to recognize the agricultural, industrial, and commercial history of
the corridor as travelers enter from the highway.
7. Design & Aesthe�c Priori�es:
a. Improve wayfinding, signage, and landscaping to indicate the entrance to Fort Collins.
b. Remove pole signs.
c. Enhance the safety, aesthe�cs, and func�onality of the I-25 interchange.
d. Create a healthy tree canopy and improve other landscaping.
e. Provide incen�ves for the removal of billboards on private property.
f. To achieve goals related to aesthe�c improvements for the I-25 Gateway, consider enhanced
screening for uses that involve outdoor storage.
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Gateway Design Priori�es
One of the largest opportuni�es for the I-25 Gateway will be the future reconstruc�on of the Mulberry &
I-25 interchange. Similar to other major gateways into the community, the City should par�cipate
alongside CDOT and other corridor stakeholders to enhance the design of the transporta�on
infrastructure and surrounding streetscapes and landscapes. Based on 2019 community workshops on
gateways, the future gateway design elements should consider the following characteris�cs:
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.
Residen�al (Estate) Character Areas
The southern residen�al character area is expected to remain primarily unchanged in the near future.
The neighborhoods located south of Mulberry Street exhibit a more rural character, are older in nature,
and generally lack sidewalks and bicycle lanes. The housing in this character area primarily consists of
single-family homes, duplexes and mobile homes, with a number of small businesses along the edges of
the character area. Maintaining housing affordability and preserving the mobile home parks were among
the priori�es of the community members in this area. Neighborhoods in this character area are likely to
be among the last to undergo annexa�on. Community members in these neighborhoods expressed a
desire for infrastructure improvements to address flooding concerns as a number of roads in this area
are deteriora�ng and experience flooding issues.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Preserve these exis�ng neighborhoods as lower intensity residen�al zones.
2. Stormwater Infrastructure Priori�es:
a. Implement improvements as directed in the Cooper Slough Master Plan to mi�gate flooding in
the area.
b. Priori�ze the study of localized drainage issues caused by the lack of stormwater
infrastructure and incorporate them into the City's overall project priori�za�on list.
c. Add exis�ng stormwater infrastructure to the maintenance schedule.
3. Transporta�on Priori�es:
a. Ensure safe and convenient connec�ons for pedestrians, cyclists, and other modes of
transporta�on between residen�al areas, commercial areas, and natural areas.
b. Enhance or expand mul�modal op�ons along Summit View Drive.
a. c. Evaluate and work with neighborhoods on desired frontage improvements (sidewalks,
curb & gutter) along rural residential streets.
4. Ameni�es & Services Priori�es:
a. Improve the quality of services over �me, including street infrastructure, u�li�es, and
broadband availability.
b. Provide educa�on on Code Compliance and City incen�ve programs to the community.
c. Increase access to natural areas, trails, schools, and other nearby ameni�es.
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5. Housing Priori�es:
a. Maintain the existing rural look and character of neighborhoods.
b. Preserve the Villas mobile home park.
6. Historic, Cultural, Natural Features Priori�es:
a. Ensure equitable access to natural areas in the western extent/panhandle of the character
area.
b. Con�nue to protect and buffer the remaining pockets of habitat features along the Cooper
Slough.
c. Enhance the tree canopy in this area.
7. Design & Aesthe�c Priori�es:
a. Not applicable.
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Residen�al (Mixed) Character Areas
The northern residen�al character area has experienced more change in recent years and is con�nuing
to be developed. Most of the neighborhoods north of Mulberry Street were constructed according to
City standards, and any new development would be required to adhere to these standards. A significant
number of neighborhoods to the north have already been annexed into the City, with addi�onal
residen�al developments being developed currently. Community members in these neighborhoods
expressed a desire for undergrounded u�li�es, access to broadband internet, improved trail connec�vity,
and infrastructure improvements to address flooding concerns. Maintaining housing affordability and
preserving the mobile home parks were also priori�es of the community members in this area.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Incorporate neighborhood ameni�es like parks and neighborhood centers in new or
developing neighborhoods.
2. Stormwater Infrastructure Priori�es:
a. Ensure new residen�al areas have sufficient stormwater infrastructure. Coordinate with the
County to determine when maintenance of public infrastructure should be transferred.
b. Implement improvements outlined in the Cooper Slough Master Plan to mi�gate flooding in
the area.
3. Transporta�on Priori�es:
a. Ensure safe, comfortable, and convenient mul�modal connec�ons between residen�al areas,
commercial areas, and natural areas.
b. Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and con�nuing north, in
alignment with the future Strategic Trails Plan in 2024.
4. Ameni�es & Services Priori�es:
a. Improve the quality of services over �me, including streets, u�li�es, and broadband
availability.
b. Provide educa�on and resources to neighborhoods about Code Compliance and City incen�ve
programs.
c. Increase access to natural areas, trails, schools, and other surrounding ameni�es.
5. Housing Priori�es:
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 exis�ng Collins Aire mobile home park.
6. Historic, Cultural, Natural Features Priori�es:
a. Con�nue to buffer and enhance Natural Habitat Buffer Zones.
b. Promote nature-based solu�ons at the neighborhood level, such as along parkways, trail
systems, and common areas.
c. Ensure equitable access to natural areas along Cooper Slough.
7. Design & Aesthe�c Priori�es:
a. Not applicable.
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Transi�onal Character Area
This character area lacks the dis�nct or unique atributes of the others and is largely vacant. It is likely to
transform based on its surroundings unless a specific vision is developed. The primary obstacle to
redevelopment in this region is its vulnerability to flooding and inadequate stormwater infrastructure. As
a result, redevelopment is expected to be a lengthy process. Being one of the few remaining vacant
areas, it holds the poten�al for a unique vision. This area could have some interes�ng mixed-use
possibili�es that feel like a transi�on between the residen�al areas and the industrial makers space feel
of the airpark. Situated just north of the Airpark with its predominantly industrial businesses, the area
includes the former Fort Collins airport airstrip. The sec�on south of the Mosaic neighborhood is likely to
be developed for residen�al purposes, while proper�es along Timberline Road are an�cipated to
transi�on into commercial areas in the future. Addressing the stormwater issues in this area would likely
require a capital project.
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Priori�es and Implementa�on Ac�on Items by Character Area:
1. Land Use and Business Priori�es:
a. Maintain flexibility for future land uses that act as a buffer between industrial and residen�al
areas.
b. Explore the crea�on of a green infrastructure corridor along Dry Creek.
2. Stormwater Infrastructure Priori�es:
a. Implement recommenda�ons from the Dry Creek Master Plan to reduce flooding in the
industrial park.
b. Develop a green infrastructure corridor through the Airpark along Dry Creek that can serve
par�ally as a flood channel corridor.
c. Protect and improve the Lake Canal corridor.
3. Transporta�on Priori�es:
a. Extend Interna�onal Boulevard to Cordova Road.
b. Extend Airpark Drive to Interna�onal Boulevard and amend the Master Street Plan
accordingly.
c. Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and con�nuing north, in
alignment with the future Strategic Trails Plan in 2024.
4. Ameni�es & Services Priori�es:
a. Con�nue community discussions about poten�al place types, including the possibility of
event/conven�on spaces, based on feedback received during Staff outreach efforts.
b. Explore the poten�al for ins�tu�onal services and ameni�es, such as trails, roadway
connec�ons, u�li�es, natural areas, and gathering spaces, along the Dry Creek corridor.
5. Housing Priori�es:
a. Not applicable.
6. Historic, Cultural, Natural Features Priori�es:
a. Incorporate nature-based solu�ons, such as greenways or stormwater features, with
naturalized and nature-based designs. Explore the crea�on of a green infrastructure corridor
along Dry Creek.
b. Consider equitable access to natural features and improve connec�vity of trails.
c. Preserve and enhance natural habitat corridors along ditches and adjacent wetland features to
promote wildlife connec�vity throughout this character area.
7. Design & Aesthe�c Priori�es:
a. Not applicable.
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Sec�on 4: Implementa�on
The Implementa�on Sec�on explores more prac�cally how the goals, strategies, and implementa�on
ac�on items recommended within this plan could be accomplished. Within this sec�on, there is a
Framework Plan map that depicts future land uses, a Transporta�on Framework Plan map that explores
a poten�al transporta�on network, a development review framework to guide future development
ac�vity in the East Mulberry Plan Area, as well as a more in-depth explana�on and long-term
management plan of Annexa�on Thresholds.
Land Use and Transporta�on Framework Plans
Land Use Framework Plan
The Land Use Framework Plan (Framework Plan) will help guide land use and
development/redevelopment ac�vity within the East Mulberry Plan Area. The Framework Plan depicts
place types for the en�re plan area. Place types are land use categories that are designated in City Plan,
Fort Collins’ comprehensive plan, and appear on the Structure Plan map. These place types provide a
framework for the ul�mate buildout of Fort Collins and help guide future land use decisions, such as
ini�al 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 intensi�es to
encourage.
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
designa�ons can offer addi�onal flexibility with an annexa�on thresholds strategy where the �ming of
annexa�on is unknown. In most cases, place types closely align with exis�ng land uses and, in some
cases, may beter align with exis�ng uses. When areas are annexed in the future, upon annexa�on they
will be assigned one of the City’s zoning district designa�ons. Staff will consider both the underlying
Larimer County zoning designa�on as well as the place type guidance to apply a City zoning designa�on.
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 highligh�ng buffers that protect natural
resources.
[Updated Framework Plan Forthcoming]
Recommended Place Type Changes from City Plan
The East Mulberry Plan is recommending several changes to place type designa�ons within the plan area
that will require updates to the City Plan Structure Plan map. A recommended ac�on item emerging
from the adop�on 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
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Other minor changes to place type designa�ons 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 establish large lot residential
character of these neighborhoods.
The most substan�al change recommended as part of this plan update is to reassign a large por�on of
the area surrounding the Airpark from the Industrial place type to the Research and Development/Flex
District place type. This is discussed further in the subsequent sec�on, Place Types in the East Mulberry
Plan Area.
Place Types in the East Mulberry Plan Area
This sec�on describes the recommended composi�on of place types throughout the East Mulberry Plan
Area.
Overall, the plan area is comprised of many place types, again reflec�ng the diversity of land uses found
within this area. The residen�al 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-family homes, duplexes, triplexes, and townhomes in a compact neighborhood se�ng. The
three exis�ng 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 recommenda�on of this plan to
designate Nueva Vida as the Mixed Neighborhoods place type, as previously stated.
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 recommenda�on 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 opportuni�es for rural lifestyles and connec�vity 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 exis�ng rural character of their communi�es. The Suburban place type also has a
principal land use of single-family homes but supports suburban intensity levels as well as addi�onal
ameni�es such as parks, recrea�onal facili�es and schools.
Preserva�on of the commercial frontage along Mulberry Street is another key element of the Framework
Plan. On the Framework Plan 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
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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 suppor�ve of transit-oriented
development patern 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 atrac�ng a grocery
store or other neighborhood-serving retail func�on in this loca�on. As described in other sec�ons of this
plan, the plan area lacks retail op�ons that serve the daily needs of residents. By designa�ng this area as
a Neighborhood Mixed-Use District, it is s�ll the intent of this plan to encourage and atract retail uses
such as a grocery store to serve the growing residen�al popula�on in the plan area.
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 Framework Plan 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 Interna�onal Boulevard. The Industrial District place type supports land uses
such as manufacturing, assembly plants, warehouses, outdoor storage yards, distribu�on facili�es, as
well as flex space for smaller, local start-ups. Transporta�on facili�es in the Industrial District should
promote the efficient movement of commercial truck traffic that supports and facilitates industrial
func�on.
The R&D Flex District is one of the most flexible place type designa�ons and supports a wide assortment
of light industrial, employment, and commercial/retail land uses. Applica�on of the R&D place type is
suppor�ve of Plan goals to remain a viable place for business and industry and promote addi�onal
neighborhood services and retail. This is par�cularly relevant for large por�ons of the Transi�onal
Character Area which forms a bridge between established industrial development and newer residen�al
neighborhoods. The flexibility and breadth of uses within this place type make it ideal to accommodate a
variety of future func�ons and land uses serving the needs of industrial and residen�al users while
applying more modern buffering and compa�bility development standards.
The Parks; Natural/Protected Lands place type is applied to many areas of the East Mulberry Plan Area as
shown on the Framework Plan map. This place type is used where the City has already established
ownership of land as an exis�ng or future park, natural area or green space, and in areas bordering
sensi�ve 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 recrea�on,
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
high floodway. Designa�ng the por�on of the area surrounding Dry Creek as the Parks and
Natural/Protected Lands place type is suppor�ve of integra�ng future stormwater/floodplain
enhancements with environmental protec�on and transporta�on enhancement. Mul�ple strategies in
this plan speak to incorpora�ng natural features with floodplain enhancement (See Goal 2).
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Place Types and City Zoning Designa�ons
As previously men�oned, this plan has assigned place types rather than prescribing Fort Collins zone
districts to the East Mulberry Plan Area for a variety of reasons. Namely that the broader place type
categories are beter suited to flexibly accommodate the diversity of land use types that already exist in
the plan area. Also, that place types can help guide general land use decisions as the plan area grows and
changes over �me, par�cularly for places that new development or redevelopment is expected. In these
areas that will evolve and change, it does not make sense to assign a zone district un�l 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 annexa�ons, they will be assigned to a City zone district upon annexa�on. It is an�cipated that
zone districts will remain aligned with exis�ng Larimer County zoning and with a zone district consistent
with the assigned place type. This is par�cularly important in mee�ng this plan’s goal to preserve exis�ng
industrial areas by zoning them appropriately when they come into the City through annexa�on.
However, there are some exis�ng 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 auc�ons or livestock meat processing. If these areas were to be annexed into the City, they
would receive a ‘lawful, non-conforming’ status.
The Fort Collins Land Use Code defines nonconforming uses as a use which was lawful immediately
before annexa�on, but which does not conform to the use regula�ons for the zone district in which such
use is located at the �me of annexa�on. Nonconforming uses have limita�ons as directed in the Land
Use Code, including that the expansion or enlargement of exis�ng 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 recommenda�on of this plan that
addi�onal permited uses be added to the City’s Industrial zone designa�on. At the �me that these areas
surrounding the interchange experience a threshold annexa�on, a simultaneous amendment to the Land
Use Code should be put forward to accommodate the addi�onal uses within the Industrial zone district,
the zone designa�on that would likely be applied to these areas. It is recommended that this addi�on of
uses to the Industrial zone district be accompanied by proximity-based standards to specify that the
newly permited uses within the Industrial zone district are limited to an appropriate distance from the
interchange. The specific uses to be added and the appropriate distance determina�on should be
evaluated at the �me of annexa�on.
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Place Types and Plan Goals
Place type designa�ons, as guided by City Plan, are intended to help realize the ul�mate 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 suppor�ve of the strategies outlined in Sec�on 2 of this plan and collec�vely 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 exis�ng 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 exis�ng 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 designa�on to
por�ons of the plan area near the Airpark
Goal 1, Strategy 2
Support the reten�on of exis�ng industrial and
agricultural business uses
Maintain the Neighborhood Mixed-Use District
place type near the Mulberry Street and
Greenfield Court intersec�on
Goal 4, Strategy 3
Designate areas for commercial development
that support the daily needs of residents and
businesses.
Tra nsporta�on Framework Plan
The Transporta�on Framework Plan map depicts connec�vity needs, proposed streets for augmenta�on,
and areas that require future evalua�on and improvement. Like other aspects of the Plan, the �ming and
implementa�on of many of these proposed strategies are dependent on annexa�on and available
resources at that �me. Because the exis�ng streets in this area are deficient both in condi�on and
mul�modal infrastructure (see the Surface Condi�ons of Roads Map in Sec�on One of the Plan), the
general philosophy of the Transporta�on Framework Plan 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 substan�al investment of resources,
therefore, many of the improvements captured on the Transporta�on Framework Plan represent
augmenta�on opportuni�es that may not meet full LCUASS standards but offer a way to enhance streets
with safe and convenient mul�modal connec�ons in a more interim capacity. This approach is further
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described under Goal 3, Strategy 1 within Sec�on Two of the Plan. Some of the areas iden�fied on the
Transporta�on Framework Plan map in the “Mul�modal Augmenta�on & Enhancements” category
include:
• Link Lane (between Mulberry Street and Lincoln Avenue)
o 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.
• Mulberry Frontage Roads
o 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.
• Summit View Drive
o Summit View Drive is an important connection between Prospect Road and Mulberry
Street. It is indicated on the Transportation Framework Plan 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.
The Transporta�on Framework Plan also indicates Future Capital Projects. Capital Projects in this case
would be larger scale infrastructure enhancements that would be permanent changes to the
characteris�cs and func�on of these roadways. One poten�al future Capital Project iden�fied would be
to con�nue the same street cross sec�on on Lincoln Avenue from Lemay to Summit View. The City of
Fort Collins improved the Lincoln Avenue Corridor between Riverside and Lemay, incorpora�ng a
buffered bike lane, landscaped medians, improved sidewalks, and integrated transit stops with bus pull-
outs. These condi�ons do not con�nue 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 alterna�ves
and concepts explored in the Lincoln Corridor Plan should be consulted so that con�nuous condi�ons
from Lincoln Avenue to the west can be maintained as much as feasible.
The con�nua�on of Interna�onal Boulevard is iden�fied on the Transporta�on Framework Map as
another Future Capital Project. At the �me of this plan’s publica�on, Interna�onal Boulevard currently
exists in a short segment between Timberline and Bannock/Toronto Street in the Dry Creek
neighborhood. From the Dry Creek neighborhood, the ul�mate alignment of Interna�onal Boulevard
would connect with Cordova Road at the most northwest corner of the Airpark area. Interna�onal
Boulevard from Timberline Road would then jog slightly north and con�nue eastwards just below the
Bloom and Mosaic neighborhoods. A direct connec�on northeast from Airpark Drive across the former
runways/taxiways to Interna�onal Boulevard should be considered during future Master Street Plan
updates to improve connec�vity to and from the Airpark. The Dry Creek, Timbervine, and Collins Aire
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neighborhoods have no access to the Airpark without first traveling east to Timberline, then into the
Airpark via Lincoln Avenue. This poten�al connec�on is indicated on the map as “Connec�vity Needs”
and should be evaluated through further study.
Also overlayed on the Transporta�on Framework Plan 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 publica�on 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 integra�on of future trails within this area.
Many of the concepts put forward on the Transporta�on Framework Plan map represent opportuni�es
and ideas to further augment the transporta�on network of the East Mulberry Plan Area. These
concepts would represent substan�al change and would be accompanied by substan�al 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 recommenda�on of the East Mulberry Plan is to
complete a transporta�on-specific plan for the East Mulberry Plan Area to understand and address the
full set of needs. Part of this effort would be to iden�fy funding and resources for a transporta�on-
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 addi�onal evalua�on are indicated on
the Transporta�on Framework Plan map as “Evalua�on & Improvement Areas”. A few specifically
iden�fied areas for further study include the intersec�on around Mulberry Street, Lincoln Avenue,
Timberline Road, and Summit View Drive. The Mulberry and I-25 Interchange is another area iden�fied
for further study, including the evalua�on of this area for a future mobility hub. Mobility hubs are meant
to provide a seamless connec�on between transit and other modes of transporta�on and are
inten�onally located in key areas where the transit network intersects with other components of the
transporta�on system. Mobility hubs can combine features like park-and-rides, bike parking, microtransit
such as scooters, and enhanced transit shelters, amongst other elements.
Development Framework
The purpose of this development framework is to provide a structured and strategic approach for
revitalizing and improving proper�es over �me as they come through the Development Review process.
It serves as a comprehensive guide or roadmap for stakeholders involved in the redevelopment process,
such as local government authori�es, developers, community organiza�ons, and residents. The intent of
this development framework is to respond to context- specific needs by taking into account unique
characteris�cs, challenges, and opportuni�es of the specific area being developed.
Key objec�ves of this framework 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 development framework 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.
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3. Respond to Context Specific Needs: The framework considers factors such as the historical and
cultural heritage of the area, its architectural style, and the preferences of the community. This
ensures that the development responds to the unique identity and character of the place while
implementing desired improvements.
4. Identify Infrastructure and Service Needs: The framework identifies the infrastructure and
service requirements that are specific to the area. It considers gaps, transportation needs, utility
systems, and other essential services. By addressing these context- specific requirements, the
framework ensures that the infrastructure and services provided support the overall goals and
aspirations of the community.
By providing a structured framework, site improvements can be carried out in a coordinated and
cohesive manner, maximizing the posi�ve impact on the area while addressing community needs and
aspira�ons.
Exis�ng Challenges to Development
The Mulberry Corridor’s built environment spans mul�ple jurisdic�ons and over 70 years of varying
development standards. The corridor s�ll lacks a consistent patern of development, and in many
loca�ons, basic health and safety infrastructure such as sidewalks, curb and guter, and drainage
networks. While new greenfield development in the corridor is expected to meet all modern
development standards, as exis�ng sites undergo changes in business ac�vity or par�al redevelopment,
challenges remain in determining and priori�zing site upgrades. While the overarching goal is to bring
proper�es closer to modern standards, this must be balanced against both a propor�onate level of
change to the site and while being mindful of corridor goals to maintain a unique and affordable loca�on
in the community for industrial and commercial businesses.
There are many types of development ac�vity which may prompt the development review process and
poten�al 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
reconfigura�on or building expansions. In these middle scenarios there are o�en areas where staff and
decision-makers can apply flexibility and or alterna�ve priori�za�on of site upgrades that are more
appropriate to the context of the Mulberry Corridor or which further Plan goals.
The following table highlights some of the more common site upgrades and enhancements that may be
required based on different levels of proposed (re)development intensity. Each site and type of
development proposal is unique, and the table is meant as a guide to help property and business owners
understand poten�al requirements when a site enters the development review process. For staff and
decision-makers, both the table and the priority sec�on for each character area include high priority
enhancements that are recommended based on a site’s loca�on within a specific Mulberry Character
Area. Given the Corridor’s lack of consistent development paterns and need to priori�ze 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 Corridor’s
unique and affordable role in the community.
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<-Lowest Requirement
Development Review Spectrum
Highest Requirement ->
Change of Use
(and/or change of business)
Potential Applicable
Requirements:
Minor additions and site
enhancements (i.e., <1,500 sf
building addition, changing
parking lot)
Potential Applicable
Requirements:
Significant change in character to
site (i.e., building addition or
reconfiguration)
Potential Applicable
Requirements:
Greenfield development, total
site redevelopment
Potential Applicable
Requirements:
Stormwater, Floodplain, Erosion Control
• Adding or modifying 1,000 sf
or more of impervious
surfaces requires mee�ng
stormwater deten�on, water
quality, and low impact
development standards.
• Adding or modifying 1,000 sf
or more of impervious
surfaces requires mee�ng
stormwater deten�on, water
quality, and low impact
development standards.
• Addi�onal requirements may
be linked to other site plan
requirements or standards
(e.g., paving parking areas).
• If there is lack of an adequate
ou�all, 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.
• Reconfigure and delineate
parking areas.
• Direct walkway connection
from building to the street.
• Meets all Development Code
Standards
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• Add bicycle parking.
• Augment parking lot
landscaping and screening.
• Ensure adequate covered bike
parking.
• Create formal or informal on-
site walkway connec�ons.
• Interior and perimeter parking
lot landscaping standards met.
• May require moving parking
areas on site.
Environmental and 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 abu�ng
historic resources meets
design compa�bility
requirements.
• Enhance the natural ecological
characteristics of the site by
focusing native seed mixes
and weed management plans
based on site specific
conditions.
• Ecological Characteriza�on
study.
• Replace/ensure all ligh�ng
meets ligh�ng standards.
• Onsite Historic Resources
comply with alterna�ve
mi�ga�on requirements if not
adap�vely reused.
• Meets all Development Code
Standards
• Onsite Historic Resources are
adap�vely reused, and design
compa�bility requirements
met.
Transportation & Frontage Improvements
• Repair or replace damage to
any exis�ng frontage
improvements (e.g.,
sidewalks)
• Dedicate any necessary right-
of-way.
• Traffic Study or Memo may be
required.
• Minor frontage improvements
(Replacing sidewalks, curb &
guter).
• Full frontage improvements:
curb & guter, sidewalk,
parkway.
• Traffic Study or Memo may be
required.
• Meets all Development Code
Standards
Site Design & Aesthe�cs
• Replace nonconforming
signage.
• Replace dead landscaping.
• Define/reconfigure parking
areas.
• Walkways out to public right
of way.
• Parking lot meets LUC
standards.
• Meets all Development Code
Standards
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• Screened trash/recycling
enclosure.
• Parking paving may be
required (front, publicly
visible, or high-use areas).
• Parking lot
landscaping/screening.
• Building addition meets LUC
building design standards.
• New buildings/addi�ons meet
LUC building standards.
U�li�es & Dedica�ons
• Utility easement behind
sidewalk/street right-of-way
may be required.
• Addi�onal u�lity easements
may be required for new
u�lity installa�ons.
• Ensure fire separa�on and
emergency access
requirements met.
• Ensure proper utility
separation requirements met
for newly installed utilities.
• New tap or capital expansion
fees for addi�onal u�lity
services needed (e.g., new
dwelling units).
• Meets all Development Code
Standards
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The Development Review Spectrum and the requirements contained within would be applied when the
City has annexed an area into City jurisdic�on 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
proper�es or performing any of the types of ac�vi�es contained in the development review spectrum.
The development review spectrum provides policy guidance for how development review may be
performed within the East Mulberry Plan Area. In many cases, requirements must meet exis�ng code
standards as prescribed in the Land Use Code, but code changes that would assist in enac�ng these
standards should be considered following adop�on of this plan. City staff and decision makers should
also use the development review framework to support flexibility for redeveloping sites in the corridor
through priori�zing certain site upgrades or deferments when allowed by the Land Use Code or through
modifica�on 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 don’t ini�ate
an annexa�on threshold will likely s�ll be referred from the County to the City for comment. City staff
will con�nue to coordinate review on development ac�vity with Larimer County staff.
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Annexa�on Thresholds Framework
Introduc�on/Annexa�on Summary
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.
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 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 municipalities will coordinate these agreements.
The agreement states that it is the City’s intent to annex properties within the GMA as expeditiously as
possible consistent with the terms of this agreement. The City agrees to consider the annexation of any
parcel or parcels of land located within the GMA which are eligible for voluntary annexation pursuant to
the C.R.S.
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Approaches to Annexa�on - Financial Considera�ons
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 an appendix (Appendices under development)
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.
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:
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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 sequencing and timing of all five subareas but ultimately includes all land area within
the enclave. 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.
A. Economic Opportunity - Emphasizes economic development and vitality in the area.
B. Residential Enhancement - Emphasizes connectivity, utilities, and other social priorities.
C. Environment & Hazard Protection - Emphasizes environmental buffers, flood mitigation.
D. Fiscal Health for City - Emphasizes fiscal impact to City of annexation, including existing
priorities, risks, and timing.
E. Community Gateway - Emphasizes improvements and reinvestment potential for the Mulberry
Corridor, including the highway and frontage roads.
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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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) with a minimum two-year
hiring/training timeline 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.
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
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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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Thresholds Overview
• 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.
The table below describes the categories and types of thresholds that have been identified as part of the plan update. An accompanying diagram shows what physical conditions might look like for each threshold.
Threshold Category Rationale/Description Alignment with adopted Citywide Priority Threshold Type Diagram
Maintenance of Logical Boundaries
Maintain logical boundaries for
orderly and efficient provision
of services. This threshold may
arise when providing services
or enforcement responsibilities
becomes challenging when
jurisdictional boundaries
become complex.
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
A threshold related to
proactive resource protection
would offer the ability to apply
the City’s standards to a critical
natural resource or buffer.
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
Similar to the above, a
redevelopment risk threshold
represents the ability to
preserve mobile home parks
and other sources of naturally
occurring affordable housing.
City Plan Principle LIV 4: Enhance neighborhood livability.
City Plan Principle LIV 5: Create more opportunities for housing
choices.
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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
This threshold is intended to
capture other events or
conditions that represent the
ability to achieve other
strategic policy goals not
within either of the two above
categories.
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
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.
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)
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Criteria needed for annexa�on to proceed:
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 or 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. [City of Fort Collins and Larimer County committee representative selection
process still under review]. 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 or 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 committee role for subsequent annexations, new staff
representatives should be designated. Committee members representing those that live, work, or own
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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
or 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 or 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 annexa�on 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.
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• 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).
Iden�fica�on of Thresholds and Subsequent Ac�vi�es
This section identifies ways that thresholds may be identified and the subsequent steps that will occur
following identification.
• 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:
o There are multiple, individual properties under both City and Larimer County jurisdiction in close
proximity.
o Properties in one jurisdiction may be partially or mostly surrounded by properties in the other
jurisdiction.
o Primary access to properties occurs through/from the other jurisdiction.
o 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:
o 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.
o Protecting sensitive natural features such as the Poudre River or Cooper Slough by applying the
City’s buffering standards.
o Forming an urban renewal authority to catalyze development and infrastructure.
o 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.
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• 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.
Qualifying Census Tract: 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.
Ac�ons A�er a Threshold has been Iden�fied:
• Staff identifies potential annexation boundaries based on the type of threshold that has 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:
o 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.
o 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.
o 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.
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o 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.
o 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.
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Thresholds Strategy Long-Term Management
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
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annexation of the entire enclave before the natural progression of annexation thresholds occurs to
completion.
Ongoing Management of the East Mulberry Plan
The updated East Mulberry Plan and the proposed threshold annexa�on structure represents a new
approach towards annexa�on and a slightly less tradi�onal subarea plan document than some of Fort
Collins’ other subarea plans. The goals and strategies contained within the Plan atempt to successfully
balance enough specificity to lay a founda�on for the desired future of the East Mulberry Plan area,
while also remaining nimble and adaptable to the evolu�on of this area over �me. Successful
management and implementa�on of this approach will require addi�onal monitoring, updates, and
evalua�on over �me. As threshold annexa�ons occur, updates to this plan may be required as
efficiencies and processes are established and condi�ons in the corridor con�nue 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 essen�al. The proposed thresholds approach was designed to
build in substan�al communica�on and par�cipa�on opportuni�es for community members in the plan
area (including the Annexa�on Transi�on Commitee as well as neighborhood mee�ngs). The thresholds
process and opportuni�es for community par�cipa�on should also be co-evaluated and adjusted as
needed based on community feedback and experience following the first annexa�ons occurring through
this process.
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