HomeMy WebLinkAbout162 - 12/05/2023 - ADOPTING THE EAST MULBERRY PLAN AS AN UPDATE OF THE 2002 EAST MULBERRY CORRIDOR PLANORDINANCE NO.162,2023
OF THE COUNCIL OF THE CITY OF FORT COLLINS
ADOPTING THE EAST MULBERRY PLAN AS AN UPDATE
OF THE 2002 EAST MULBERRY CORRIDOR PLAN
WHEREAS,in 2002,City Council adopted the East Mulberry Corridor Plan as an element
of City Plan to guide development and annexation within the area covered by the plan,a large
portion of which was and still is located outside of City limits but within the City’s Growth
Management Area;and
WHEREAS,since 2002,conditions have changed within the area addressed by the East
Mulberry Corridor Plan and across the City including the formation of the East Mulberry Enclave
in 2018,updating of key City policy documents including the City’s Comprehensive Plan (“City
Plan”),substantial development activity,and changing market conditions;and
WHEREAS,such changes necessitated an update of the East Mulberry Corridor Plan to
provide updated guidance for the City,Larimer County,and the community members living and
working within the area;and
WHEREAS,the updated plan has been renamed as the East Mulberry Plan;and
WHEREAS,in drafting the East Mulberry Plan,City staff has coordinated with Larimer
County and conducted extensive outreach with residents and business owners within the area
covered by the plan;and
WHEREAS,on November 16,2023,the Planning and Zoning Commission on a vote of
five (5)to zero (0),with two commissioners absent,recommended that City Council adopt the East
Mulberry Plan;and
WHEREAS,City Council finds that the East Mulberry Corridor Plan adopted in 2002 is in
need of updating in light of changed circumstances and that the East Mulberry Plan promotes the
pubJic welfare and is consistent with City Plan.
NOW,THEREFORE,BE IT ORDAINED BY THE COUNCIL OF THE CITY OF FORT
COLLINS as follows:
Section 1.That the City Council hereby makes and adopts the determinations and
findings contained in the recitals set forth above.
Section 2.That the East Mulberry Plan,attached hereto as Exhibit “A”and
incorporated herein by this reference,is hereby adopted as an element of City Plan and shall update
and replace the East Mulberry Corridor Plan adopted in 2002.
Section 3.That the East Mulberry Plan is advisory only and is not intended to establish
development standards or requirements applied through the Land Use Code to any development
within the City unless a provision of the Land Use Code,other than a provision of Article 1,
explicitly applies all or a portion of this plan as a development standard or requirement.
Introduced,considered favorably on first reading and ordered published this 21st day of
November,2023,and to be presented for final passage day of ~-cember,2023.
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Passed and adopted on final reading this 5th day of1~ember,2023.
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East
Mulberry
Plan
EXHIBIT A TO ORDINANCE NO. 162, 2023
Acknowledgments
City Council
Jeni Arndt, Mayor
Emily Francis, Mayor Pro Tem, District 6
Susan Gutowsky, District 1
Julie Pignataro, District 2
Tricia Canonico, District 3
Shirley Peel, District 4
Kelly Ohlson, District 5
Planning and Zoning Commission
Michelle Haefele
David Katz (Chair)
Adam Sass
Ted Shepard
Julie Stackhouse (Vice Chair)
Samantha Stegner
York
City Leadership
Kelly DiMartino, City Manager
Tyler Marr, Deputy City Manager
Travis Storin, Chief Financial Officer
Caryn Champine, Director of PDT
Paul Sizemore, Director of CDNS
Boards and Commissions
Planning and Zoning Commission
Larimer County Board of County Commissioners
Transportation Board
Economic Advisory Board
Members of the Public
Many property owners, residents, and members of the
public participated in this planning effort. Thank you
to all who contributed to the Plan.
Community Advisory Group
The Community Advisory Group was comprised of
residents and business owners from within the East
Mulberry Plan Area.
Staff Project Management Team
Megan Keith, Senior Planner
Ryan Mounce, City Planner
Sylvia Tatman-Burruss, Senior Policy Manager
Shawna Van Zee, City Planner
Janelle Guidarelli, Associate Planner
Staff Core Team Working Group
Drew Brooks, Deputy Director of PDT
Michael Bussman, Lead Business Specialist
Caryn Champine, Director of PDT
Clay Frickey, Interim Planning Manager
Rebecca Everette, Larimer County Community
Development Director
SeonAh Kendall, Director of Economic Sustainability
Amanda King, Communications Director
David Lenz, Director of Financial Planning & Analysis
Paul Sizemore, Director of CDNS
Travis Storin, Chief Financial Officer
Greg Yeager, Deputy Chief of Police
Plan Team Working Group
Phillip Amaya
Kraig Bader
Dave Betley
Dashiell Bubar-Hall
Maren Bzdek
Heidi Hansen
Business Community Participants
Fort Collins Area Chamber of Commerce, Local
Legislative Affairs Committee.
Consultant Team
Metta Urban Design
Economic and Planning Systems
Institute for the Built Environment
Kirk Longstein
Seth Lorson
Cody Snowdon
Brad Yatabe
Marcy Yoder
EXHIBIT A TO ORDINANCE NO. 162, 2023
This policy plan is advisory only, and it is not intended to establish development
standards applied through the Land Use Code to any development within the City of
Fort Collins unless a provision of the Land Use Code, other than a provision set forth in
Article 1, explicitly applies all or a portion of this plan as a development standard.
EXHIBIT A TO ORDINANCE NO. 162, 2023
Introduction to Character Areas
Frontage
Airpark
I-25 Interchange
Transitional / Mixed-Use
Northern Residential (Mixed)
Southern Residential (Estate)
How to Navigate this Section
Plan on a Page
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
About this Document
About East Mulberry
Planning for East Mulberry
Why Update, Why Now?
i. Existing & Changed Conditions
ii. Community Priorities & What We Heard
iii. East Mulberry Enclave & Annexation
Table of Contents
Section 1: Introduction
Section 3: Goals & Strategies
Section 2: Character Areas
7
28
43
8
30
44
10
32
46
11
34
51
12
36
56
22
38
65
78
24
40
72
87
East Mulberry Plan Update
EXHIBIT A TO ORDINANCE NO. 162, 2023
Implementation Introduction
Place Type Framework
Transportation Framework
Development Review Framework
Appendix A: Community Engagement Reports
Appendix B: Mulberry Corridor Financial Considerations (Phased Annexation Approach)
Appendix C: Mulberry Corridor Financial Impact Analysis
Appendix D: Role of Subarea Plans
Section 4: Implementation
Appendices
94
94
101
105
Approach to Annexation
Annexation Thresholds Approach
Ongoing Management of East Mulberry Plan
Section 5: Annexation Thresholds
110
113
121
EXHIBIT A TO ORDINANCE NO. 162, 2023
1 Introduction
About this Document
Introduction to East Mulberry
Planning for East Mulberry
Why Update, Why Now?
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
7EAST MULBERRY PLAN
East Mulberry Plan Update
About this Document
PURPOSE & INTENT
PLAN ORGANIZATION
How to Use this Document
The Plan is organized into the following sections:
The 2023 East Mulberry Plan serves as an update to the previously adopted 2002 East Mulberry Corridor Plan.
The Plan incorporates new goals, the Plan policy direction and action items for the next 10-20 years based on
extensive business-owner and resident feedback within the area and internal policy discussions amongst City
staff. Much like the previously adopted plan, the East Mulberry Plan will continue to be a guidance document
for Larimer County staff prior to annexation and a policy document for future areas potentially annexed into
Fort Collins. The Plan incorporates recently completed planning efforts and studies, including the City Plan, the
Transportation Master Plan, the Active Modes Plan, the Parks and Recreation Master Plan, and other relevant work
related to utilities and small business support services.
In addition to the five sections and appendices of the
East Mulberry Plan Document, you will see the gray
call-out boxes like this one indicating terminology or
more detailed information on supporting plan items.
When you see this ‘Information’ icon it either indicates a
definition of terms or additional information on a subject.
When you see this icon, funding sources for
implementation of the goals and strategies are addressed.
2. CHARACTER AREAS This section introduces Character Areas and describes the unique characteristics
of each easily identified area within the East Mulberry Plan Area.
i
$
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.
• About this Document
• Introduction to East Mulberry
• Planning for East Mulberry
• Why Update, Why Now?
3. GOALS & STRATEGIES 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.
• Plan on a Page
• Goals & Strategies
4. IMPLEMENTATION This section provides guidance related to plan implementation, including
the place type framework plan that envisions the future place types
within the East Mulberry Plan Area, the transportation framework plan,
and the development review framework plan.
• Place Types Framework
• Transportation Framework
• Development Review Framework
5. ANNEXATION
This section includes a discussion of the annexation thresholds strategy. • Annexation Thresholds Framework
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
8EAST MULBERRY PLAN
Introduction to East Mulberry
The East Mulberry Plan Area is located in the
Northeastern section of Fort Collins, at the
gateway of Interstate I-25 to the east, East Vine
Drive to the north, Lemay Avenue to the west
and the Poudre River to the South.
East Mulberry began to develop as an industrial and
agricultural area in the 1950s, separated from the core of
Fort Collins. Residential neighborhoods to the south were
predominantly developed in the 1960s, as a combination of
large lots and traditional suburban block patterns. As Fort
Collins grew geographically, the East Mulberry area became
surrounded by commercial and residential development.
East Mulberry remains an important gateway into the City
of Fort Collins and connects downtown and Colorado State
University campus to I-25. It is also a Scenic Byway and
gateway to the Poudre Canyon. The East Mulberry “enclave” -
an area of unincorporated Larimer County surrounded by the
City of Fort Collins, was established in 2018 and encompasses
roughly 2,500 acres of land to the east of Downtown Fort
Collins. The area is now comprised of over 400 businesses,
serving customers both locally and internationally.
RESIDENTS
5141
SQ. MILES
4.6
ACRES
2500+
BUSINESSES
400
THE AREA IS UNIQUE IN
SEVERAL WAYS:
It is the largest concentration of
independent and industrial
businesses in Northern Colorado.
It is a mixed-use area of industrial,
commercial/retail, and residential uses.
It is a gateway to Downtown, the
Poudre Canyon, and is the start of the
designated Highway 14 Scenic Byway.
It is a unique confluence of natural
areas, floodways, and waterways
with multiple jurisdictions and
agencies providing services.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
8 9EAST MULBERRY PLAN
Introduction to East Mulberry
History of East Mulberry
State Highway (SH) 14 began as a dirt road surrounded by farms and ranches,
stretching from Fort Collins east beyond Ault and west to the Poudre Canyon.
The highway later became East Lincoln Avenue.
As Fort Collins began to grow more rapidly in the 1960s and 1970s,
staff and elected officials from Larimer County and the City of Fort
Collins began to discuss a formal service-area agreement for the East
Mulberry area, which would also set the stage for a potential future
annexation.
East Mulberry Corridor Plan Adopted
East Mulberry Plan Update
Discussions regarding the future of East Mulberry became more
detailed in 1997 when the City of Fort Collins identified this area of land
as a priority for planning in anticipation of potential future annexation.
Fort Collins and Larimer County establish an Intergovernmental
Agreement to set Fort Collins’ Growth Management Area, which
includes the Mulberry Corridor.
East Mulberry began to develop as an industrial and agricultural area in the
1950s, separated by the Poudre River from the city core of Fort Collins.
Much of the development in this area occurred under County jurisdiction in
the 1950s and 1960s. As Fort Collins grew geographically, the East Mulberry
area became surrounded by commercial and residential development.
The SH 14 Bypass was created in the 1950s and soon became more traveled than the
older East Lincoln Avenue. By 1957 it was no longer a bypass but relabeled as SH14.
The Greeley Water Transmission Line that ran diagonal northwest to southeast
along East Lincoln Avenue/Summit View Drive helped to shape the area. Many of
the early businesses and homes were built on this diagonal to tap into the line for a
steady water supply. Only later did the City of Fort Collins and other utility companies
provide water to developing areas east of city limits.
Residential neighborhoods to the south were predominantly developed in the
1960s, some as large lots and others with more traditional suburban block patterns.
The Fort Collins Downtown Airport (originally named “Airpark” and now “Airport”)
was constructed during the spring and summer of 1966 and opened the following fall
with a 2,700ft runway and ten “T” hangars, housing about 25-30 planes. The thirty
stockholders who financed the airport also built the industrial park to the southwest.
The East Mulberry “enclave” was established in 2018 and
encompasses roughly 2,500 acres of land to the east of Downtown
Fort Collins. The area is now comprised of over 400 businesses,
serving customers both locally and internationally.
1960s
1950s
1970s
1980s
1990s
2000s
2010s
2023
AIRPARK
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
10EAST MULBERRY PLAN
i
Planning for East Mulberry
Updating the 2002 East Mulberry Corridor Plan
East Mulberry Plan Area
In 2002, the development of the East Mulberry Corridor Plan (EMCP) was
led by staff at the City of Fort Collins and was jointly adopted by Fort Collins
City Council and the Larimer County Board of County Commissioners.
Objectives outlined in the EMCP include provision and maintenance of public
facilities and services, annexation, costs of improvements, redevelopment,
and streetscape design. The EMCP acknowledged that continued growth
and change may impact current conditions, including the robust industrial
business mix and the rural feel of the residential neighborhoods.
• Goals for the future of the area
• Allowed land uses
• Look & feel of the area
• Public transportation needs
• Bicycle & pedestrian
infrastructure
While some of the objectives from the 2002 plan will carry over into the new plan, the
new plan will address concepts and services that have changed since 2002 and update
policies and objectives to align with various plans that have been adopted since, including
City Plan, the Transportation Master Plan, the Active Modes Plan, and the Parks and
Recreation Master Plan, among others.
The East Mulberry Plan Area is
the area of focus for both the
2002 East Mulberry Corridor
Plan and this newly updated
plan document. The plan area
is different than the enclave
area, but largely overlaps. Plan
area boundaries are typically
established based on other
adjacent City of Fort Collins
subarea plans. It is important that
subarea plan boundaries do not
largely overlap so that guidance
for each area can remain clear.
The East Mulberry Plan Area is
adjacent to the Mountain Vista
Subarea Plan, the Downtown Plan,
the I-25 Subarea Plan, and the
Northside Neighborhoods Plan.
Refer to Page 24 for more
information on Annexation
and Enclave terminology
2002 EAST MULBERRY PLAN
TOPICS INCLUDE:
East Mulberry Plan Area
THE PLAN BOUNDARY FOR THE UPDATED 2023 EAST MULBERRY PLAN WAS
ADJUSTED FROM THE 2002 EMCP BOUNDARY IN SOME LOCATIONS TO INCLUDE
MORE OF THE AREAS CONTAINED WITHIN THE EAST MULBERRY ENCLAVE.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
10 11EAST MULBERRY PLAN
Why Update, Why Now?
In the ever-evolving landscape of the East Mulberry Plan Area, it’s important to recognize
the dynamic nature of the built environment and the impact of changes in growth
patterns, social structures, community goals, business trends, technology, and more.
Twenty years after adoption of the 2002 East Mulberry Corridor Plan, these changes warrant a
reevaluation of existing goals and strategies for today’s issues and tomorrow’s opportunities.
Through a comprehensive understanding of existing and changed conditions, reflection of past
and present stakeholder input and priorities, and context from the history and formation of the
East Mulberry Enclave, this plan seeks to address new and emerging issues and shape a vision and
framework for the future of the East Mulberry Plan Area.
Planning history of the East Mulberry Enclave and a reexamination
of how future annexation for this area could occur.
I. EXISTING & CHANGED CONDITIONS
II. COMMUNITY PRIORITIES & WHAT WE HEARD
III. EAST MULBERRY ENCLAVE & ANNEXATION
Existing & Changed Conditions in the plan area since the EMCP in
2002, including infrastructure, growth, and development.
Priorities have shifted since the 2002 EMCP; we’re also hearing
about new goals from a new generation of residents and
businesses in the corridor.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
12EAST MULBERRY PLAN
• STREETS & SIDEWALKS pg. 13
• STORMWATER pg. 14
• ELECTRIC GRID pg. 14
• BICYCLE & MULTIMODAL pg. 15
• TRANSIT pg. 15
• OPPORTUNITY, EQUITY, &
ACCESSIBILITY pg. 16
• FIRE & SAFETY pg. 17
• NATURAL AREAS & FEATURES pg. 17
• PARKS & RECREATION pg. 17
• HOUSING & AFFORDABILITY pg. 18
• DEVELOPMENT & GROWTH pg. 19
• LAND USE pg. 20
• EMPLOYMENT & INDUSTRY pg. 21
I. EXISTING & CHANGED CONDITIONS
Why Update, Why Now?
At the highest level, the Mulberry Corridor looks and functions much as it had twenty years ago in 2002 when
the first East Mulberry Corridor Plan was adopted. It’s a primary entrance to the community, an important
commercial and industrial hub, and an area where one can best experience both the benefits and drawbacks
of urban-level County development. Many of the same concerns that have long been associated with the
corridor persist – street maintenance and traffic congestion, a lack of access to certain amenities, and
uncertainty about the impacts and timing of potential annexation into the City of Fort Collins.
Dig deeper and changes in growth patterns, new development, and the application of recent community-
wide goals and strategies present new opportunities and challenges. Many of the original 2002 EMCP
strategies and implementation actions have also been completed or may no longer be relevant and invite
further study of what elements of the original corridor plan should be continued forward.
Development in the plan area spans more than seven decades across multiple
jurisdictions and features an environment constructed to varying development
standards, a patchwork of urban-level infrastructure, and an assortment of street
maintenance quality. Compared with the broader community, one of the most
recognizable characteristics of the corridor is its lack of certain infrastructure
such as curb & gutter, sidewalks, and on-site stormwater detention.
Transportation & Infrastructure
Community Services & Infrastructure
While many policy goals for the community and plan area remain the same
today as in 2002, there are also several policy areas where the community
has established new goals and plans that will need to be contextualized to
the East Mulberry Plan Area. Key among these changes is the importance of
Community Services & Infrastructure; including housing, recreation, equity
and opportunity, and accessibility.
Changing Growth & Development Patterns
Over the past twenty years, new development in the East Mulberry Plan Area
has been modest when compared to the broader community and region,
and slower than originally anticipated by the market study completed for the
2002 EMCP. However, since 2020, over 2,400 new residential units have
been constructed or approved as part of future phased developments, which
would represent almost a doubling of the housing in the plan area over the
next 10-20 years.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
12 13EAST MULBERRY PLAN
STREETS & SIDEWALKS
15%34%50%of streets have
sidewalks
of streets have
Curb & Gutter
have markings (travel and bike lanes, shoulder demarcation)
$The City of Fort Collins streets and maintenance are paid for through a combination of a dedicated 1/4-cent tax for street maintenance plus
general fund dollars and are spread across the entire City. Some streets are maintained by the Colorado Department of Transportation (CDOT)
including East Mulberry outside of City limits. Some streets within the East Mulberry area are maintained through Special Improvement Districts
whereby business owners or residents’ tax themselves and the money is managed and applied to the specified tax district. These are expected to
remain in place through any future annexation activity.
i. Existing & Changed ConditionsWhy Update, Why Now?
Transportation & Infrastructure
Surface condition is only one
component of what the City calls,
“Complete Streets” which include
sidewalks, curb and gutter, bike lanes,
and proper markings, among other
details depending on the street type.
47% - GOOD/SATISFACTORY
37% - FAIR/POOR
16 % - VERY POOR/FAILING
47%
37%
16%Good asphalt surface condition, including few major cracks or potholes
Larger cracks and may have chips that have become potholes over time
Large cracks and potholes. Generally, these streets must be completely
rebuilt to be considered functional
SURFACE CONDITIONS OF ROADS MAPPavement Condition Data collected by the City of Fort Collins in 2021.
Mulberry Enclave Street Surface Conditions
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
14EAST MULBERRY PLAN
Stormwater map source from ‘Floodways’ City of Fort Collins (2018) data, and FEMA (2023) data.
STORMWATER
ELECTRIC GRID
i. Existing & Changed Conditions
Much of the East Mulberry area is currently served by Poudre Valley REA and Xcel Energy. Most of this infrastructure is
above ground, including poles and wiring. The majority of the electrical infrastructure within Fort Collins city limits is
undergrounded or planned to be undergrounded in coming years. Upon annexation into city limits, existing infrastructure is
purchased by City of Fort Collins Light & Power. When areas are developed or redeveloped, the development supports most
of the cost of installing underground infrastructure to serve it. Other areas that are already developed do not have the same
funding to support undergrounding, therefore the mechanism for undergrounding these areas is dependent on available
budget and electric infrastructure priorities across the community.
Why Update, Why Now?
Transportation & Infrastructure
Stormwater infrastructure is comprised of several components, including street gutters, storm drains, open channels,
underground culverts, regional and on-site detention areas, among others. Unlike streets, the stormwater system
within the East Mulberry area has not yet been inspected or evaluated. A few known issues include:
• Stagnant water and flooding are significant concerns.
• Public stormwater infrastructure within the area is currently not being maintained.
• For the existing stormwater system to be evaluated, it will need to be flushed of sediment and debris and
inspected. Once an inspection of the system has been conducted, a more thorough analysis can be done to
understand what improvements need to be made to create a more functional stormwater system in the area.
• A capital improvement project is planned within the area to channel the Dry Creek floodway. This project would
only be added to the capital improvement project list upon annexation of the area.
FLOODWAY MAP
Stormwater infrastructure is built using several funding mechanisms, including Capital Projects funds, private funding through
development projects and sometimes State and Federal funding. $
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
14 15EAST MULBERRY PLAN
BICYCLE & MULTIMODAL
Why Update, Why Now?i. Existing & Changed Conditions
Transportation & Infrastructure
TRAILS, BICYCLE, & TRANSIT MAP
The existing and most contiguous bicycle facilities in the East Mulberry Plan Area include the facilities on Vine Drive,
Timberline Road, Lemay Avenue, Lincoln Avenue, and the Poudre Trail (these facilities are shown as bike routes on the map
below). There are other shorter segments of bicycle facilities, but overall, this area has relatively few high-comfort bicycle or
multimodal facilities. Vine Drive provides a continuous east-west bicycle facility, but it is classified as low comfort. Timberline
Road is a north-south connection between Mountain Vista Drive and the neighborhoods in north Fort Collins, through the
East Mulberry Plan Area, continuing all the way to south Fort Collins. However, like Vine Drive, the entire extent of Timberline
Road is classified also as a low-comfort facility. Lincoln Avenue is the most direct east-west connection for bicycle traffic
from Downtown Fort Collins into the East Mulberry Plan Area. There are conventional bike lanes on Lincoln Avenue until
around 12th Street. Continuing east on Lincoln, bicycles use the road shoulder. Lincoln Avenue is also considered a low-
comfort facility for bicycle travel.
The Poudre Trail parallels the flow of the Poudre River and passes through portions of the East Mulberry Plan Area. This
multi-use trail provides a high-comfort pathway for walking and biking. The East Poudre Trail continues southwest to nearby
the Running Deer Natural Area and northwest through Laporte to Bellvue.
TRANSIT
The Transfort Route 14 bus serves the East Mulberry area.
The route runs from the Downtown Transit Center largely
on Lincoln Avenue, John Deere, Vine, and Timberline.
*Source of the proposed multiuse trails comes from the City’s Paved Recreational Trail Master
Plan and the Planned Transit Routes come from the City’s Transportation Master Plan.
*
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
16EAST MULBERRY PLAN
Why Update, Why Now?i. Existing & Changed Conditions
OPPORTUNITY, EQUITY, & ACCESSIBILITY
Located at the edge of the community, many parts of the East Mulberry Plan Area lack
quick and convenient access to amenities such as parks, schools, grocers, and neighborhood
supportive retail. Health and equity indicators also show that some census tracts within
the plan area contain more vulnerable populations such as seniors, lower income residents,
racial and ethnic minority groups, or those suffering from poor physical and mental health.
This results in areas of the plan area that could be prone to forms of gentrification and
displacement in the future. Incorporating new policies and goals while promoting equity into
the Plan is essential for fostering a more inclusive and equitable environment.
Community Services & Infrastructure
AMENITIES MAP
Equityi
Equity is the process by
which policies, programs
and tools are developed
to ensure the elimination
of existing disparities
and includes inclusive
engagement that leverages
diversity. It becomes an
outcome once a person's
identity or identities no
longer impacts their ability
to experience equality and
access to services.
Major nearby amenities were determined by an aerial assessment of the area. The amenities shown are not an exhaustive
list and focus on displaying large individual amenities under 3 miles from the center of the Plan Boundary Area.
15-Minute Cityi
Fort Collins has a vision to become a 15-minute city where everyone can walk, bike, or roll within
15-minutes of their home to their daily needs and services. Although 15 minutes is the metric used
to illustrate this concept, the broader vision of 15-minute cities is about strengthening underserved
communities and increasing quality of life by making basic needs and services more accessible to
all, regardless of the precise duration. The 15-minute city analysis uses average speed for typical
walking, biking, and other micromobility options. Based on each modes’ speed, the defined
15-minute network range was three miles for those biking or using micromobility and 3/4-mile for
those walking or rolling. The East Mulberry Plan Area will continue to balance a diversity of uses into
the future, including as an industrial hub for Fort Collins. However, the City will utilize the goals of
the 15-minute city concept for residential and commercial parts of the East Mulberry Plan Area so
residents can have more inclusive and equitable access to community amenities and daily needs.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
16 17EAST MULBERRY PLAN
NATURAL RESOURCES & PARKS MAP
i. Existing & Changed ConditionsWhy Update, Why Now?
This area is served primarily by Poudre Fire Authority (PFA) Station 6
and Station 1. The Larimer County Sheriff’s Office (LCSO) provides law
enforcement services for the area contained within the East Mulberry
Plan Area. LCSO breaks down their law enforcement jurisdiction into
seven areas across Larimer County. The plan area currently falls into
the service area designated by LCSO as ‘Area 1’. Fire service provision
is not anticipated to change based on either this plan or annexation,
however the intergovernmental agreement with PFA stipulates funding
adjustments for the differential between City Property Tax and Poudre
Valley Fire Protection Property Tax.
FIRE & SAFETY
There are no existing parks or public recreational
facilities within the East Mulberry Plan Area. The
Fort Collins Parks and Recreation Master Plan
identifies a proposed park to be included within
the Mosaic neighborhood, located inside the East
Mulberry Plan boundary. However, at the time of
this document’s publication, this park is yet to be
constructed. New neighborhood parks called Iron
Horse Park and Traverse Park in the Waterfield
and Trailhead neighborhoods respectively are
north of Vine Drive, outside of the East Mulberry
Plan Area.
• Future private and public parks could be
associated with future development
• Upcoming Strategic Trails Plan in 2024 that
may identify opportunities for trails and trail
connections within the area to connect with
existing parks and the regional trail system.
• Potential to improve access to the Poudre Trail
along the plan area’s southwestern boundary.
PARKS & RECREATION
Short segments of the Poudre River and accompanying Poudre River
Trail pass through the East Mulberry Plan Area. The northern portions of
the Kingfisher Point Natural Area and the Springer Natural Area also fall
within the East Mulberry Plan Area boundary. Dry Creek runs through
the industrial and Airpark area and often causes flooding issues during
rain events. The Cooper Slough runs in a generally north-south direction
on the eastern portion of the East Mulberry Enclave. There is currently a
natural buffer agreement between the City of Fort Collins and Larimer
County to protect this natural feature when development occurs.
NATURAL AREAS & FEATURES
Community Services & Infrastructure
Natural Resources & Parks map data source from ‘Natural Resources’, City of Fort Collins (2018)
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
18EAST MULBERRY PLAN
Community Services & Infrastructure
Shifts in the types of housing developed over the past two decades, changing
family sizes and social structures, and large increases in home prices have
catapulted housing attainability and affordability to the forefront of resident
and policy maker priorities.
Existing housing in the East Mulberry Plan Area tends to be both older, more
varied, and affordable than housing in Fort Collins as a whole. One such
example of this includes the existing manufactured housing communities.
There are three such communities, including the Nueva Vida Mobile Home
Park, Collins Aire Mobile Home Park, and the Villas. There is growing
recognition that these existing homes provide an important source of naturally
occurring attainable/affordable housing that could be at risk of gentrification
and resident displacement without appropriate policies and neighborhood
support. The East Mulberry Plan Area also contains older, established
neighborhoods with larger lot sizes that impart a rural character to these
areas. Some of the residents with large lots keep small livestock or horses.
Existing attainable housing options in the plan area also house more
vulnerable populations such as seniors, young children, persons of color, non-
native English speakers, or lower-income wage earners. These populations
tend to have reduced access to educational opportunities, nature, healthcare,
and other amenities, often resulting in poorer health and economic outcomes.
HOUSING & AFFORDABILITY
• The East Mulberry Plan Area captures an increasing share of Fort Collins’ new housing and population as
growth in the community shifts towards the northeast.
• Housing types and price points along Mulberry are also more diverse than the community as a whole with
a greater percentage of manufactured and missing-middle housing options.
• Housing growth is anticipated to continue with new developments proposed near the Vine and Lemay
overpass and north of Mulberry and Greenfields.
*2020 US Census
i. Existing & Changed ConditionsWhy Update, Why Now?
RESIDENTS*
HOUSING UNITS*
5141
2268
Missing-Middle Housing
This term refers to housing that
accommodates more people than a
single-family home but is smaller than a
large apartment building. Typically, this
term encompasses housing types such
as accessory dwelling units, duplexes,
townhomes, and small apartment buildings
that are designed to blend into and be
compatible with a residential neighborhood
dominated by single-family homes. It is
called “missing” middle because many
communities do not have much of this sort
of mid-range housing.
Attainable Housing
The term “attainability” implies that housing
is within reach or achievable for individuals
or families with moderate incomes, who
may find it challenging to afford market
rate housing or qualify for subsidized low-
income housing.
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1: INTRODUCTION
18 19EAST MULBERRY PLAN
NEW/APPROVED
HOUSING UNITS*
2470
i. Existing & Changed ConditionsWhy Update, Why Now?
REMAINING VACANT/
BUILD ABLE LANDS*
418
*2021 City of Fort Collins
Changes in Growth & Development
When the 2002 EMCP was adopted, new growth in Fort Collins was largely focused south
of Harmony Road, but development patterns are now shifting to the northeast quadrant
of the community where the largest source of vacant and developable land remains.
Alongside growth in surrounding communities like Wellington, Timnath, Windsor, and
Severance, recent and projected growth in the region now surrounds the East Mulberry Plan
Area from the north to the southeast.
Within the plan area, new growth has also recently accelerated with residential
development near the new Vine Drive and Lemay Avenue overpass and the vacant land
between Timberline Road and Greenfield Court.
Residential growth within and surrounding the plan area is also likely to generate additional
commercial and retail development, with active proposals for office and retail space near
Mulberry Street and Greenfield Court as originally envisioned in the 2002 EMCP. With
approximately 420 acres of vacant land left in the plan area, much of which is impacted
by floodplains or will be used to support buffering around sensitive natural features, the
remaining areas for commercial development remain a critical resource for future services
and amenities to serve the area’s existing and growing residential population.
DEVELOPMENT & GROWTH
DEVELOPMENT & GROWTH MAPThis map depicts place type designations from City Plan’s Structure Plan map. The Structure Plan map illustrates
how the community may grow and change over time, setting a basic framework for future land use decisions.
acres
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1: INTRODUCTION
20EAST MULBERRY PLAN
LAND USE
The Mulberry Corridor features a mix of
land uses with a particular emphasis on
industrial and commercial operations serving
the broader region. Existing residential
neighborhoods can be found south of
Mulberry Street and newer neighborhoods
and residential development proposals are
clustered north of Mulberry Street.
While vacant and agricultural uses remain
in portions of the corridor, many of these
properties may transition to new greenfield
development in the short and mid-term as
overall growth in the community continues
to favor areas northeast of Downtown.
i. Existing & Changed ConditionsWhy Update, Why Now?
Changes in Growth & Development
INDUSTRIAL COMMERCIAL
PUBLIC
VACANT
AGRICULTURAL
RESIDENTIAL
EXISTING LAND USE MAPLand Use map source data from ‘Larimer County Assessor Property Records’ data, City of Fort Collins (2023)
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
20 21EAST MULBERRY PLAN
EMPLOYMENT & INDUSTRY
The East Mulberry Plan Area is home to one of the largest concentration
of small businesses in Fort Collins and is one of the largest employment
centers in Fort Collins alongside Downtown, Colorado State University, and
the Harmony Corridor. As a large hub for industrial and business support
firms, the Mulberry Corridor is an important location for industrial and
manufacturing businesses that support Fort Collins and the broader region.
Mulberry
Enclave
Mulberry
Enclave
General
Commercial District
(Midtown)
General
Commercial District
(Midtown)
Harmony Corridor
Harmony Corridor
Downtown
Downtown
NUMBER OF ESTABLISHMENTS*
NUMBER OF EMPLOYEES*
MANUFACTURING
TOP INDUSTRY CATEGORIES**
CONSTRUCTION WHOLESALE TRADE
19%17%11%
419
423
6,098 # OF EMPLOYEES*
# OF EMPLOYERS*
# OF BUSINESSES*
i. Existing & Changed ConditionsWhy Update, Why Now?
Changes in Growth & Development
0
100
200
300
400
500
600
700
800
423
6,098 6,649
447
609
13,097
Mulberry
Enclave
General
Commercial District
(Midtown)
Harmony CorridorDowntown
NUMBER OF EMPLOYERS*
0
100
200
300
400
500
600
700
800
419 439
577
701
691
13,618
Of the total 423 businesses
within East Mulberry:
61% have under 10 employees**
95% have under 50 employees**
0
3000
6000
9000
12000
15000
**2022 QCEW data
Data Sources. *2020 Bureau Labor Statistics **2022 QCEW
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
22EAST MULBERRY PLAN
The creation of the goals for this Plan were driven by extensive community input,
ensuring that the Plan reflects the needs and aspirations of local businesses and
residents. The following is a summary of the community input collected as part of this
Plan update. In some instances, community sentiment varied quite extensively on some
of these topics. This Plan tries to recognize that there are inherent tensions about the
future of the Plan area and strives to reflect and respond to these diverse perspectives.
Amenities & Services
• Community members expressed a desire for improving
access to essential amenities and services, such as
parks, schools, and grocery stores.
• There was acknowledgment that this area has not
received the level of service that is typical in a more
urban area and has struggled with issues related to
vandalism, drug use, and homelessness, especially
near the I-25 interchange. Housing & Gentrification
• Residents stressed the importance of preserving
the affordability of the area in hopes of preventing
gentrification.
Corridor Character & Uses
• The community expressed a desire to maintain the
diversity of uses in the corridor, including the range of
job opportunities offered, and desire for the City to help
preserve small businesses and industries.
• Business owners emphasized the importance of
preserving the industrial and agricultural service
function and character of the area.
Infrastructure & Development
• Flooding and its impact on the community were major
concerns raised by residents and business owners.
• The community emphasized the need for a big
picture plan to manage stormwater for large areas
rather than site by site.
• Residents advocated for an integrated transportation
system connecting neighborhoods to the surrounding
area, that accommodates various modes of travel,
including walking, biking, public transit, and driving.
• Safety and accessibility were key considerations
in the community’s input, with a focus on creating
infrastructure that maintains usability for businesses
and reduces traffic congestion.
• Community members expressed a desire for
sustainable development practices that prioritize
green spaces and protect natural corridors.
Gateway & Entry Aesthetic
• Many participants identified East Mulberry as a
prominent entry point into the City that could benefit
from aesthetic improvements However, many voiced
concerns about related costs for businesses.
• The community is seeking a more visually appealing
gateway that reflects the character of Fort Collins
and the history of this corridor, creating a positive first
impression for visitors and residents alike.
• This community values their unique identity and ability
to support many small businesses and industrial uses.
There is a clear need for improved infrastructure. Altering
the existing built environment to accommodate new
infrastructure could be met with some resistance, as this
community fears compromising affordability and losing
its unique character. However, many support modernizing
infrastructure for improved services and interconnectivity.
Why Update, Why Now?
WHAT WE HEARD FROM THE COMMUNITY
ii. Community Priorities & What We Heard
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22 23EAST MULBERRY PLAN
APRIL 2021 Community Q&A Sessions - approx. 60 participants
City staff hosted two virtual Q&A sessions for businesses and residents of the East Mulberry Plan Area to
address questions about the update to the East Mulberry Plan and potential annexation.
SUMMER 2021 Visioning Sessions - 6 Meetings
Over a series of six meetings in June, July, and August of 2021, City staff presented key themes from the Existing
Conditions document and gathered input from community members on the future vision of the East Mulberry Plan
Area. See Appendix A-1 for more information.
FALL 2021 Online Survey - 43 Survey Responses
The East Mulberry Online Visioning Survey received 43 completed surveys. The invitation to participate in the East
Mulberry online survey was sent out in a mailer to those in the plan area and via email to everyone who subscribed to
the newsletter. See Appendix A-2 for more information.
OCTOBER 2021-
FEBRUARY 2023
Community Advisory Group - 14 members, 6 meetings
A community advisory group was formed to better understand the needs, concerns and desires of both
businesses and community members in the East Mulberry Plan Area to provide in-depth feedback and input at
each critical stage of the planning process. See Appendix A-3 for more information.
JANUARY &
FEBRUARY 2022
Business & Community Workshops - 4 Workshops
These four virtual workshops covered a range of topics including: look and safety of streets, new sidewalks,
bike lanes, and connections to the Poudre River Trail, improvements to Internet speed and ways to address
flooding, community priorities for businesses and housing. See Appendix A-4 for more information.
FEBRUARY &
MARCH 2023
Annexation Q&A Sessions - 133 Community Participants
This series of four public meetings were hosted to share information as well as proposed ideas and policies
impacting the East Mulberry Plan Area. Four meetings were held with both virtual and in-person options. A
presentation covered strategies related to a potential annexation approach and the latest information about the
East Mulberry Plan Area update. See Appendix A-5 for more information.
FEBRUARY 2023 Online Comment Form
In tandem with the Annexation Q&A Sessions, staff released an online comment and question form for anyone
with questions or concerns to be able to reach out with staff directly to have their questions answered or
request follow-up phone or in-person meetings. Staff had multiple one-on-one meetings with community
members asking to share additional thoughts or ask questions to staff about their specific properties.
MAY 2023 Nueva Vida Resource Fair
Planning staff attended the Nueva Vida Resource Fair (a Mobile Home Park community within the East Mulberry
Plan Area) to share information with Nueva Vida residents about the update to the East Mulberry Plan and potential
annexation. An FAQ document translated into Spanish was distributed to those interested.
MAY & JUNE 2023 Business Information Sessions - Ongoing Collaboration with Chamber of Commerce
Staff hosted individual and group informational sessions with business owners from the Mulberry Plan area to
address their specific concerns and hear feedback on the plan and annexation thresholds strategy.
Staff visitations to
businesses to get
involved in planning
Business
Canvassing
200+ Businesses
Why Update, Why Now?
HOW WE GOT THE WORD OUT
HOW WE HEARD FROM THE COMMUNITY
II. COMMUNITY PRIORITIES
• Meeting Noticing for
Community Visioning
• Community Updates &
Feedback Engagement
2 Mailers
2,200+
Postcards Video on overview
of East Mulberry
Plan and Intro
to Annexation
Thresholds
YouTube Video
265+ views
Information
on Annexation
Q&A Sessions,
encouragement for
community participation
Press Release
PRESS
• Project Updates
• 2 Webpages on
East Mulberry
Information &
Resources
Project Newsletter
475+ Subscribers & Website
EXHIBIT A TO ORDINANCE NO. 162, 2023
1: INTRODUCTION
24EAST MULBERRY PLAN
An ‘Enclave’ refers to unincorporated Larimer County properties
surrounded by the City of Fort Collins due to urban growth.
‘Annexation’, on the other hand, brings urbanized areas into the
City’s jurisdiction. The ‘Growth Management Area’ (GMA) helps
guide growth and development, ensuring efficiency, contiguity,
and consistent standards within the City.
In the 1960s and 1970s, as Fort Collins experienced rapid
growth, discussions began between Larimer County and the
City of Fort Collins regarding the East Mulberry area. They
aimed to establish a formal service-area agreement and explore
potential future annexation. This led to the formation of an
Intergovernmental Agreement (IGA) in 1980, creating the
Growth Management Area (GMA) that defined urban and rural
areas. Areas within the GMA are considered more urban, or
expected to become more urban in the future as Fort Collins
continues to grow in an orderly and responsible way within the
GMA boundaries.
By 2018, the East Mulberry Area was completely surrounded by
the city limits, forming an enclave of unincorporated Larimer
County along Mulberry Street. According to the City-County
IGA, the City agreed to pursue annexation of enclaves as they
became eligible under state law. The formation of the East
Mulberry Enclave was intentional on the part of City Council,
and since that time City Staff have planned for annexation of
the enclave in the future consistent with the adopted IGA with
Larimer County. The creation of the enclave and its eligibility
for annexation occurred after the adoption of the 2002 Plan
(enclave created in 2018 and became eligible in 2021).
1980
Growth Management Area
(GMA) established
2000-2002
East Mulberry Corridor Plan
development and adoption
2018
East Mulberry Enclave created
through City Council action
2021
East Mulberry Enclave
eligible for annexation
ENCLAVE & ANNEXATION BACKGROUND
Why Update, Why Now?
iii. East Mulberry Enclave & Annexation
Enclave: An enclave is a property, or group
of properties, that are in unincorporated
Larimer County but, due to urban growth and
development are now surrounded by the City
of Fort Collins municipal boundary. An enclave
is unincorporated County territory that is
surrounded by a municipality. The State Statute
gives a municipality the authority to annex an
enclave without property owners’ consent at such
time that the enclave has been surrounded by the
municipality for three or more years.
Annexation is used to bring urbanized areas
into the urban service jurisdiction of the City
of Fort Collins. Annexation can happen both
reactively in response to development activity and
proactively in response to identified needs, goals
and plans .
Growth Management Area (GMA): The Fort
Collins Growth Management Area, created in 1980,
defines “urban” vs. “rural” areas in and around the
City of Fort Collins. It has been an effective tool
for intentional, orderly, and responsible growth.
The GMA creates a more consistent design vision
for future development and serves to help protect
rural and agricultural lands outside of urban
development areas . Planning within the GMA
helps ensure efficiency and contiguity of City
programs, services, infrastructure and utilities.
It provides consistency for signage, lighting,
site design, building code, and natural feature
protection to align with community goals.
i
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1: INTRODUCTION
24 25EAST MULBERRY PLAN
ANNEXATION AREAS & THE EAST MULBERRY PLAN
The East Mulberry Plan Area overlaps with the enclave and guides future development and policy decisions.
Why Update, Why Now?
• Clear delineation between service provisions of “urban” vs. “rural” standards.
• Allows for the application of a consistent vision for future growth and development.
• Ensure efficiency and contiguity of City programs, services, infrastructure and utilities.
• Allows for regulatory control over signage, lighting, site design, building code, and natural
feature protection to align with community goals.
• Allows for responsible growth, protecting rural and agricultural lands outside of urban
development areas.
• Ensures service levels match expectations in City Plan and other adopted plans.
Purpose of Annexations:
III. ENCLAVE & ANNEXATION
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1: INTRODUCTION
26EAST MULBERRY PLAN
What Changes in Annexations?What doesn’t change
upon Annexation?As annexation thresholds are met and portions of the
East Mulberry area become annexed, some service
providers would change quickly upon annexation, and
some would happen over time. Some service providers
would remain the same, regardless of annexation.
• In annexing areas, law enforcement would transfer
from the Larimer County Sheriff’s Office to City of
Fort Collins Police Services
• Electric service would transfer from Poudre Valley
REA or Xcel Energy (depending on location) to
City of Fort Collins Utilities as infrastructure can be
built out to support it
• Storm Drainage would transfer from Larimer
County to City of Fort Collins stormwater Utility
• Road Maintenance* (in some cases) would transfer
from Larimer County Road and Bridge to City of
Fort Collins Transportation Services
• Water and Wastewater services will still be
provided by Eastern Larimer County Water
District (ELCO) and the Boxelder Sanitation
District
• Fire Protection will still be provided by the
Poudre Fire Authority
• Health and Human Services will still be
provided by Larimer County
• Animal Control Services will still be provided
by the Humane Society
*Note: Annexing streets are accepted for
maintenance by the City of Fort Collins at the
same level that Larimer County has maintained it.
Private streets would remain private and current
maintenance responsibilities would continue.
An annexation thresholds approach bases future annexation decisions
on when certain conditions are met within the East Mulberry Enclave.
Rather than a phased approach that commits to certain timeframes
and geographic boundaries, thresholds provide more flexibility in the
size and timing of the areas brought forward for annexation. This can
help ensure that the City can adequately serve these areas before
annexation occurs. Annexation thresholds fall into various categories.
A full description of the thresholds approach and management is
contained in Section 5 of this document.
ANNEXATION THRESHOLDS
Why Update, Why Now?III. ENCLAVE & ANNEXATION
Annexation thresholds are a set of conditions
that when reached, may represent an opportune
time to consider annexation. Annexation thresholds
could relate to maintaining logical boundaries and
areas of City or County jurisdiction, advancing
important policy goals for an area, or ensuring
coordination of similar properties and land for
upcoming infrastructure projects.
i
Perspectives on Annexations: Conversations about potential annexation with community members and businesses owners
highlighted many differing perspectives. While some residents and business owners favor annexation for the potential benefits, some
community members and business owners in the East Mulberry area oppose it due to perceived drawbacks. Proponents voiced that
it could improve access to essential services and long-term infrastructure improvements. Conversely, opponents expressed concerns
that annexation might lead to increased taxes and fees, causing financial strain, especially on small businesses.
The tension between these perspectives underscores the complexity of annexation’s impact.
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2 : CHARACTER AREAS
27EAST MULBERRY PLAN26
CharacterAreas2Introduction to Character Areas
Frontage
Airpark
I-25 Interchange
Transitional / Mixed-Use
Northern Residential (Mixed)
Southern Residential (Estate)
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
28EAST MULBERRY PLAN
Introduction to Character Areas
• Frontage
• Airpark
• I-25 Interchange
• Transitional /
Mixed-Use
• Northern Residential
(Mixed)
• Southern Residential
(Estate)
At the mention of East Mulberry, several locations or landmarks may
come to mind. Some may picture Mulberry Street itself, or possibly
the interchange at Mulberry and I-25 and its function as a gateway
into Fort Collins. Just beyond the commercial borders of Mulberry
Street itself are many more districts and neighborhoods that have
their own varied and complex character. For example, there are
several areas made up predominantly of industrial businesses that
have unique characteristics and needs that are distinct from those
within the residential neighborhoods. Even the characteristics of
the residential neighborhoods north of Mulberry Street are quite
different from those located south of Mulberry Street. This diversity
of land uses is one of the components that makes the East Mulberry
Plan Area unique, though it also poses challenges for how to plan in
such a way that respects the distinct context of each area.
Considerations for defining character area boundaries included
land uses, the built form, transportation system factors, and
other defining aspects within each area. Under the description
of each character area in the following sections is a notation of
‘Predominant Place Types’. Place types are land use categories
from City Plan. While character areas and place types designations
are used for different purposes within this document, they both
serve to guide the future land uses and character of the East
Mulberry Plan Area. These notations are meant to correlate
what place types tend to fit into each character area. For more
information on place types, please see Section 4 of this document.
Staff formulated character area boundaries with the help and
review of the Community Advisory Group as well as other
residents and business owners within the plan area. These
defining characteristics influence planning for what is important
to preserve, where and what kinds of change and development
should be supported, and what kinds of public improvements and
maintenance should be prioritized as each area continues to change
and grow. These character areas are not intended to create hard
edges and boundaries. They are intended to generally define and
strengthen their unique or distinct qualities, while simultaneously
weaving them into the broader character of the East Mulberry Plan
Area and the community of Fort Collins.
To incorporate this complexity
and plan comprehensively for the
entire East Mulberry Plan Area, six
character areas were identified.
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
29EAST MULBERRY PLAN
Ch
a
r
a
c
t
e
r
A
r
e
a
M
a
p
/
M
i
x
e
d
-
U
s
e
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
30EAST MULBERRY PLAN
Frontage
The Mulberry Frontage character area (Frontage) generally hugs the
Mulberry Street alignment, beginning at Lemay Avenue on the west side and
continuing east until between Sherry Drive and Canal Drive. Originally rural
in character with farm and open lands, the area has been transformed into
a commercial corridor with a diverse array of service providers, retail stores,
and restaurants as the community has grown.
EXISTING CHARACTER
The Frontage serves as a vital hub for both residents and businesses,
offering a range of services and products for the corridor and the entire
community. The area reflects a mix of building ages and a wide assortment of
architectural styles. Many properties are configured with surface parking lots,
outdoor storage, and product displays facing or visible from Mulberry Street.
Another prominent feature of the Frontage includes a number of billboards
and older, highway-oriented, pole-mounted signage that may appear out of
place when compared to sign standards found elsewhere in the community.
SPECIALTY AUTOBODY
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
31EAST MULBERRY PLAN
Frontage
FORT FUN
YOUNG’S LIQUOR
SUNDANCE STEAKHOUSE & SALOON
AMISH SHOWROOM
FUTURE CHARACTER
The Frontage is likely to remain primarily commercial
in nature. The visibility and accessibility along
Mulberry Street will continue to provide commercial
support and retail that serves both the immediate
plan area and the broader community. Mulberry
Street itself should continue to function as a primary
entrance to the community and business/truck
route, while its expansive right-of-way, including
the adjacent Frontage Roads, may lend themselves
to unique opportunities to begin to introduce
multimodal infrastructure set further away from
traffic. Over time, the aesthetics of the frontage may
be improved through the application of modern sign
standards and the screening of outdoor storage/
parking areas as individual properties redevelop or
through a more comprehensive capital project for
Mulberry Street itself.
Predominant Place Type:
Suburban Mixed-Use District
MULBERRY AND TIMBERLINE
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2 : CHARACTER AREAS
32EAST MULBERRY PLAN
Airpark
The Airpark character area is located on the west side of the East Mulberry Plan Area, centered around the
intersection of Link Lane and Lincoln Avenue. This area includes a large concentration of industrial and commercial
businesses that developed around the former Fort Collins Airpark / Downtown Fort Collins Airport. The
Airpark character area has maintained its industrial character for decades and is home to numerous small, local
businesses. While many ‘back of house’ industrial businesses operate in the area, there are numerous other land
uses, including gyms, breweries, studios, and pockets of residential, including the Nueva Vida Mobile Home Park.
EXISTING CHARACTER
Serving as an industrial hub developed primarily during the mid-20th-century, the design character of the area
tends towards simpler, metal buildings. The area generally lacks infrastructure for bicycles, pedestrians, and
stormwater management, but the lower traffic volumes, roadway ditches, and wide rights-of-way along local
streets can create more comfortable opportunities for walking or biking along the side of the road. The Airpark
contains what could be considered two ‘main streets’ along Link Lane and Lincoln Avenue. Link Lane south of
Lincoln Avenue tends to contain more retail and service-oriented businesses serving nearby employees and
visitors, while Lincoln is a primary connection into and out of the Airpark and features the only transit route
serving the Mulberry Corridor.
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2 : CHARACTER AREAS
33EAST MULBERRY PLAN
Airpark
SANDBOX SOLAR
HIGH PLAINS DOOR & MILLWORK
THE GENESIS PROJECT
HORSE & DRAGON BREWING COMPANY
GENESIS HEALTH CLUBS
FUTURE CHARACTER
While rooted in industrial land uses, the area is likely to
continue to see an increase in other service-oriented
and start-up businesses, which has been a growing
trend in recent years and may continue as businesses
continue to seek out the smaller footprints and
relatively cheaper rents found in the area. Addressing
multimodal infrastructure needs along Link and Lincoln
will be a transportation priority to better serve and
support the role of these streets as key transit and
connecting corridors. A future stormwater plan for
the area could also better address water pooling
often experienced in the area by identifying broader
stormwater network and outfall opportunities rather
than the piecemeal approach currently employed
as individual sites redevelop. Finally, there may be
additional opportunities from a transportation and
urban design perspective to further explore the
role of Link Lane south of Lincoln as a main street
that continues to serve the needs of businesses and
employees in the vicinity.
Predominant Place Type: Industrial District
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2 : CHARACTER AREAS
34EAST MULBERRY PLAN
I-25 Interchange
The I-25 Interchange character area is centered around the I-25 and Mulberry Interchange. This area serves as a
significant regional commercial and industrial hub with clusters of lodging establishments, agriculture service and
retail businesses, and furniture retail. These clusters of businesses benefit from the visibility and accessibility of
being located adjacent to the interstate and proximity to the regional transportation network.
EXISTING CHARACTER
The area does not feature an established design theme due to the mix of land uses and the span of time over
which sites have been developed. New construction and redevelopment are an ongoing process in this character
area, as some of the remaining vacant lots in the industrial and business parks surrounding the interchange
continue developing. Like many other areas of the East Mulberry Plan Area, this character area does not possess
strong multimodal and stormwater infrastructure. Adjacent to the interchange, this character area also features
the most prominent nonconforming signage in the corridor with tall, pole-mounted signs. Many corridor
stakeholders and nearby businesses also frequently express concern about drug and safety issues related to
homelessness/transient populations near the interchange. Users of the interchange itself also remark about the
inefficient design of the interstate ramps and interaction of the frontage roads with Mulberry Street that decrease
travel safety and efficiency.
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2 : CHARACTER AREAS
35EAST MULBERRY PLAN
I-25 Interchange
QUALITY INN & SUITES MAVERIK GAS STATION
EDWARD’S STONE SUPPLIERCENTENNIAL LIVESTOCK AUCTIONS
FUTURE CHARACTER
In the mid-term, it is anticipated the interchange itself
will be redesigned and reconstructed, which may
catalyze additional development and redevelopment in
this character area. Simultaneously, this could present
opportunities to establish a more consistent design
and landscaping palette for the area as well as improve
multimodal infrastructure and transportation safety.
Both elements could contribute towards goals to
establish the interchange area as a more aesthetically
pleasing gateway into the community.
Land uses around the interchange are expected to
remain largely the same with a focus on existing
agricultural services and other lodging and regional
commercial/retail establishments. Upon annexation,
Fort Collins Police Services would take over policing
responsibilities for the area and may be better
positioned to respond to ongoing safety concerns
through the application of established urban-oriented
safety and homelessness programs.
Predominant Place Types:
Industrial District, Suburban Mixed-Use District
AMERICAN FURNITURE WAREHOUSE
LOOKING WEST ON MULBERRY STREET
I-25 & MULBERRY
INTERCHANGE
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
36EAST MULBERRY PLAN
Transitional / Mixed-Use
The Transitional / Mixed-Use character area primarily represents
the undeveloped lands situated between the Airpark and the
residential neighborhoods south of Vine Drive. This area features
prominent natural features and habitat corridors such as the Lake
Canal and Dry Creek, and, as a natural low spot in the corridor,
many properties are impacted by floodways and floodplains.
EXISTING CHARACTER
Owing to the established natural features and floodplains, the
western half of this character area remains undeveloped, while
the eastern half features a mix of commercial and industrial
businesses, primarily clustered along or near the Timberline Road
frontage. Compared with other portions of the plan area, these
businesses tend to feature a greater mix of office employment
and institutional users and generally features newer buildings or
site development.
INTERNATIONAL BLVD.
POUDRE FIRE AUTHORITY, STATION 6
/ Mixed-Use
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
37EAST MULBERRY PLAN
Transitional / Mixed-Use
BARKER CONSTRUCTION
S TIMBERLINE RD.
3 SQUARE ART STUDIOS
AIRSTRIP
FUTURE CHARACTER
In the short term, new development, especially north
of the Airpark, is likely to be limited due to floodway
restrictions and the protection of sensitive natural
features. Outside established floodplains, this character
area could play host to a variety of mixed land uses that
support the retail needs of both nearby industrial and
residential users, or new types of business and industry
that can demonstrate compatibility with established
residential neighborhoods.
The City may play an important role in this character
area in the future through a combination of future
capital projects and master planning efforts. The Master
Street Plan identifies an extension of International
Boulevard to Cordova Road and upcoming studies
seek to understand the opportunities and challenges
of future trail corridors and stormwater/floodplain
improvements in the area.
Predominant Place Type:
Research & Development Flex District
HERITAGE CHRISTIAN ACADEMY
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
38EAST MULBERRY PLAN
Northern Residential (Mixed)
The Northern Residential character area features a mix of both established and newly developing neighborhoods
north of Mulberry Street, many of which have already been annexed and/or were recently developed or approved
under the City’s development standards.
EXISTING CHARACTER
Many of the neighborhoods in this character area look and feel like other neighborhoods throughout Fort Collins,
owing to their more recent development under City standards, and internally, tend to feature a more consistent
local street network with developed stormwater and multimodal infrastructure. Residents in this character area
have expressed a desire for better connectivity with the broader corridor and community through nearby street
and trail connections, and to address ongoing plan area-wide issues such as undergrounding utilities, addressing
flooding and stormwater issues, and encouraging additional neighborhood amenities in the plan area.
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
39EAST MULBERRY PLAN
Northern Residential (Mixed)
MOSAIC NEIGHBORHOOD
COLLINS AIRE
THE COTTAGES OF FORT COLLINS
TIMBERVINE
FUTURE CHARACTER
A large majority of the remaining vacant land in this
character area has recently been developed or has
an approved development plan which is likely to
add an additional 1,500 units to the area. As these
neighborhoods continue their buildout, the character
established in the near and mid-term is likely to remain
for the foreseeable future. Both the City and residents
should work to improve connectivity to this area
and work to advance City preservation and livability
support to the Collins Aire Mobile Home Park.
Predominant Place Type: Mixed Neighborhood
EXHIBIT A TO ORDINANCE NO. 162, 2023
2 : CHARACTER AREAS
40EAST MULBERRY PLAN
The southern residential character area features established
neighborhoods south of Mulberry Street, generally around
Summit View Drive and Greenfields Court. Many of these
neighborhoods have existed for decades as the plan area and
broader community have grown up to or surround them.
EXISTING CHARACTER
Nearly all land in this character area has already been
developed and features a mix of neighborhoods with single-
family dwellings and smaller plexes. The residential areas
along Summit View Drive near Prospect Road have a more
rural character and feature larger estate lots, some with
horses or other farm animals. These rural neighborhoods also
generally lack streets with curb and gutter, sidewalks, or other
types of more urban-level multimodal infrastructure.
Southern Residential (Estate)
BOXELDER ESTATES
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2 : CHARACTER AREAS
41EAST MULBERRY PLAN
Southern Residential (Estate)
COUNTRYSIDE ESTATES
COUNTRYSIDE ESTATES
SUNRISE ACRESSUNRISE ACRES
FUTURE CHARACTER
As an established set of neighborhoods, the future
character of this area should remain similar to its
existing character, while addressing plan area-wide
opportunities and deficiencies. This could mean
future augmentation to major streets, such as Summit
View Drive, to implement some level of multimodal
infrastructure while keeping the more rural streetscape
in other locations with gravel shoulders. The City
should also provide flexibility to help maintain the
longstanding ability for the keeping of horses and farm
animals on appropriately-sized lots. Upon annexation,
the City should also work with neighbors to identify
ongoing street maintenance options for some of the
neighborhood streets in the character area that are
currently failing.
Finally, as little new development is anticipated in
this character area, annexation initiated either by the
existing Fort Collins-Larimer County Intergovernmental
Agreement or a thresholds annexation approach
suggest this may be one of the last areas of the
corridor to be considered for annexation into the City.
Predominant Place Types: Mixed Neighborhood,
Suburban Neighborhood, Rural Neighborhood
EXHIBIT A TO ORDINANCE NO. 162, 2023
Goals & Strategies3How to Navigate this Section
Plan on a Page
Goals & Strategies:
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
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3 : GOALS & STRATEGIES
43EAST MULBERRY PLAN
Goals & Strategies
Goal 1: Commercial & Industrial Hub
Goal 2: Stormwater
Goal 3: Transportation
Goal 4: Community Amenities & Services
Goal 5: Housing
Goal 6: Historic, Cultural, & Natural Features
Goal 7: Mulberry Gateway
The updated East Mulberry Plan has seven goals to guide the future of the East Mulberry Plan Area. The
seven goals cover a wide breadth of topics and have been crafted using feedback from the community
and stakeholders to reflect continued and future priorities. The following list includes the numbered goal
and the topic of each goal. Full goal text appears on the following pages.
HOW TO NAVIGATE THIS SECTION
GOAL INTENT
& PURPOSE
WHAT WE HEARD
NOTE ON FULFILLMENT
OF STRATEGY
PRIOR TO ANNEXATION
Under each of the seven goals, there is a short explanation of the goal’s intent and purpose.
This section provides more context on why this goal statement appears in this plan and
reflects on how the existing conditions within the East Mulberry Plan area have resulted in
these goals. All of the goals strive to strike a balance between preservation of the important
characteristics that make this area unique and should continue into the future, while also
envisioning how the quality of life in this area could be improved for residents and businesses.
Each ‘What We Heard’ section captures statements synthesized from community
and stakeholder engagement that relate to the plan goals. One aspect motivating
this plan update is to ensure that the most recent feedback and sentiments collected
during conversations with the community are reflected in how goals, strategies, and
implementation actions were formulated.
STRATEGIES &
IMPLEMENTATION
ACTION ITEMS
Below each of the seven plan goals are strategies and implementation action items.
Strategies are action-oriented statements that support achievement of the goal. The
implementation action items are more specific than the strategy statements and provide
more detailed methods for how the strategies may be achieved.
Because annexation of the East Mulberry Enclave under a thresholds approach may
take a long time, the sections called ‘Note on Fulfillment of this Strategy’ acknowledge
that implementation of these strategies and implementation action items are mostly
dependent on when the areas are brought under City jurisdiction. Ongoing coordination and
collaboration with Larimer County will continue throughout a threshold annexation strategy.
As mentioned, implementation of most strategies are dependent on when different areas of
the East Mulberry Enclave may annex in the future. However, in some cases, there are actions
that the City could pursue to prepare to implement these strategies in the future. Some of
these may be strengthening or continuing the existing partnerships the City has with Larimer
County and other agencies that serve the East Mulberry area. If there are any actions to be
completed prior to annexation, those are captured on the ‘Prior to Annexation’ section.
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
44EAST MULBERRY PLAN
Plan on a Page
Master plan, construct and maintain stormwater
infrastructure to provide safe conveyance of
stormwater flows and reduce flood risk.
Foster a healthy and prosperous commercial and
industrial hub for the City, while remaining viable
for small businesses and industry.
Goal 2
Goal 1
STORMWATER
COMMERCIAL & INDUSTRIAL HUB
Goal 3 Plan and support safe and comfortable
infrastructure for multi-modal transportation.
TRANSPORTATION
The updated East Mulberry Plan has seven goals to guide the future of
the East Mulberry Plan Area. The seven goals cover a wide breadth of
topics and have been crafted using feedback from the community and
stakeholders to reflect continued and future priorities.
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3 : GOALS & STRATEGIES
45EAST MULBERRY PLAN
Goal 5 Explore mechanisms to maintain housing
affordability and existing character of residential
neighborhoods.
HOUSING
Goal 6 Protect and promote natural, historic, and cultural
resources that support a cohesive and resilient
community using nature-based solutions.
HISTORIC, CULTURAL, & NATURAL FEATURES
Goal 7 Improve the function and visual appearance of
the Mulberry & I-25 interchange and Mulberry
Street frontage as a gateway into Fort Collins.
MULBERRY GATEWAY
Goal 4 Increase access for residents and businesses to
community amenities & services.
COMMUNITY AMENITIES & SERVICES
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3 : GOALS & STRATEGIES
46EAST MULBERRY PLAN
GOAL INTENT AND PURPOSE:WHAT WE HEARD
East Mulberry has traditionally been an Industrial
area with a wide variety of spaces for warehousing,
distribution, small office support, engine/vehicle
repair, fabrication and many other uses. Many of
these businesses serve the Northern Colorado
region, while many other businesses are significant
nationally and internationally as well. Policies
should support the continued operation of such
businesses into the future.
→Business owners want to be
able to continue operating their
businesses and are concerned
that new, adjacent uses would
not be compatible.
→Some business owners are
concerned that City standards
may be too high regarding
“Change of Use” applications and
may inhibit business expansion.
Foster a healthy and prosperous commercial
and industrial hub for the City, while remaining
viable for small businesses and industry.
Goal 1 COMMERCIAL & INDUSTRIAL HUB
COMMERCIAL BUSINESSES IN AIRPARK
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3 : GOALS & STRATEGIES
47EAST MULBERRY PLAN
WHAT WE HEARD
Note on Fulfillment of this Strategy: Because
much of the East Mulberry area was developed
during the 1950s and 1960s and has had limited
redevelopment since, many existing streets and lot
configurations would not be developed the same
today. Therefore, some flexibility in standards will
be needed depending on the site and the proposed
improvement/expansion.
Prior to Annexation: Larimer County will continue
to manage development review applications and
refer those within the East Mulberry enclave to City
staff for review and comments. Larimer County will
continue to have decision-making authority on most
projects within the enclave unless they are eligible for
immediate annexation.
Land Use Code Standards:
Existing development standards allow staff and decision makers
to waive or defer certain upgrades for sites undergoing a change
of uses. Examples of deferments could be elements like interior
parking lot landscaping, trash/recycling enclosures, or enclosed
bicycle parking. Critical life/safety upgrades cannot be deferred.
Customize approach to infill development and business improvements.
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
1.1.1 Where possible, work with City staff to prioritize
site improvements based on project size and other
site-specific constraints.
STRATEGY 1
Implementation Action Item:
See Section 4 of the East Mulberry Plan document for the
Development Review Framework.
UNDEVELOPED LAND NORTH OF MULBERRY STREET
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3 : GOALS & STRATEGIES
48EAST MULBERRY PLAN
1.2.1 Market studies have documented the East Mulberry
Plan Area as a significant component of the larger Fort
Collins business community. Existing businesses, including
agricultural and industrial, should be encouraged to remain
and expand. Specific tools to explore to achieve this strategy
should include examination of allowable uses in existing
zone districts and a consideration of possible changes or
additions to zone districts to accommodate a larger number
of industrial and agricultural businesses.
1.2.2 Agricultural-related business uses, such as livestock
auctions, cooperatives, veterinary supply, implement
dealerships and stockyard activities, located within the East
Mulberry Plan Area, will be allowed to continue as part of the
industrial land use designation and zoning.
1.2.3 Staff from the Economic Health Office and the Planning
Department will continue to work with businesses in the
area to understand changing needs and concerns, especially
when the area is being examined as a potential threshold
for annexation. Staff will continue to communicate with
businesses in the area regarding tools available to them and
any requirements of them upon annexation should that occur.
1.2.4 Foster innovation and entrepreneurship for commercial
and industrial uses by allowing for business incubation and
start-up spaces.
1.2.5 As properties redevelop, billboards will generally be
required to be removed and nonconforming or outdated
signage should be updated to be brought into compliance
with City standards. Prior to redevelopment, the City should
explore financial incentives for voluntary consolidation
or removal of billboards in the corridor, especially those
located along ditch corridors where removal through the
development review process is unlikely to occur.
Note on Fulfillment of this Strategy:
Fort Collins does not currently have a major
industrial area within city limits. Therefore, some of
the zone districts that support industrial operations
may need to be altered to better foster a thriving
industrial area if the area were to be annexed in the
future.
Prior to Annexation: Larimer County will continue
to manage development review applications and
refer those within the East Mulberry enclave to City
staff for review and comments. Larimer County
will continue to have decision-making authority on
most projects within the enclave unless they are
eligible for immediate annexation.
Support the retention of existing industrial and agricultural
business uses and their future expansion.
Implementation Action Items:
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
STRATEGY 2
Please reference Section 4 of this document to view the Place
Type Framework map and further discussion of land uses.
See also Goal 7.
MOUNTAIN VET SUPPLY
4 RIVERS EQUIPMENT
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3 : GOALS & STRATEGIES
49EAST MULBERRY PLAN
Note on Fulfillment of this Strategy: The unique
nature of industrial businesses, especially those
related to manufacturing, warehousing, and shipping
often require safe and efficient truck access. This is
especially important for access along East Mulberry
Street and out to I-25. Safe access to and from I-25 is
currently impeded by substandard turning lanes and
dangerous circulation patterns near the I-25 and East
Mulberry interchange. Ultimately, as future annexed
areas become served with the City’s Light & Power
system, businesses will have reliable and efficient
service.
Prior to Annexation: The Colorado Department of
Transportation (CDOT) will continue to manage
and will retain decision-making authority regarding
improvements of East Mulberry Street from Lemay
to I-25 as well as the I-25 interchange. Larimer
County will continue to manage development review
applications and refer those within the East Mulberry
enclave to City staff for review and comments. City
staff will focus on creating recommendations to
support connectivity for reference by County staff
prior to annexation.
Recognize interconnectivity of infrastructure and business.
1.3.1 Continue to support East Mulberry Street as a
primary travel and freight corridor for travel-related
businesses, shopping and employment.
1.3.2 Focus on safe truck access that also
accommodates bicycle and pedestrian traffic within
and between areas of the enclave.
1.3.3 Bring highly reliable and efficient energy through
Fort Collins Light & Power’s underground system.
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
STRATEGY 3
Implementation Action Items:
FUNKWERKS BREWERY INDUSTRIAL EQUIPMENT
IN THE MULBERRY
CORRIDOR
NOCO SELF STORAGE
ATLAS MEAT COMPANY
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
50EAST MULBERRY PLAN
1.A - Airpark
1.A.1 Support the preservation of industrial businesses and functions within the Airpark.
1.A.2 Maintain current land uses through zoning upon annexing into the City of Fort Collins and other land use guidance.
1.F - Frontage
1.F.1 Maintain East Mulberry Street as a travel corridor to support efficient freight access for industrial and commercial functions.
1.F.2 Preserve the East Mulberry Frontage character area as commercial through land use guidance and
zoning when areas annex into the City of Fort Collins.
1.N - I-25 Interchange
1.N.1 Preserve existing agricultural and industrial businesses through land use guidance and zoning upon
annexing into the City of Fort Collins. See Section 4 of the Plan for more specific recommendations
related to existing agricultural and industrial businesses around the I-25 Interchange.
1. E - Southern Residential (Estate)
Goal 1 pertains primarily to existing commercial and industrial areas within the East Mulberry Plan Area.
Neighborhoods within the Southern Residential (Estate) Character Area are intended to be preserved as
lower intensity residential zones.
1. M - Northern Residential (Mixed)
Goal 1 pertains primarily to existing commercial and industrial areas within the East Mulberry Plan Area,
however, neighborhood centers supporting smaller commercial amenities could be incorporated where
appropriate.
1. T - Transitional / Mixed-Use
1.T.1 Maintain flexibility for future land uses that act as a buffer between industrial and residential areas,
thereby supporting the continued viability of industrial and commercial areas.
1.T.2 Explore the creation of a green infrastructure corridor along Dry Creek. One of the multiple benefits
of a green infrastructure corridor could be reduced on-site stormwater burden for industrial and
commercial businesses surrounding the Transitional character area.
Goal 1 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 1: COMMERCIAL & INDUSTRIAL HUB
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3 : GOALS & STRATEGIES
51EAST MULBERRY PLAN
Master plan, construct and maintain stormwater
infrastructure to provide safe conveyance of
stormwater flows and reduce flood risk.
GOAL INTENT AND PURPOSE:
There are longstanding stormwater drainage and
floodplain issues in the East Mulberry Enclave,
and it will take a coordinated effort to begin to
identify, plan, and prioritize necessary repairs,
improvements, and maintenance. Enhancements
to the stormwater system will be generational
in nature and long-term master planning should
begin even before annexation fully occurs so public
and private stakeholders can begin to understand
needs and funding requirements.
WHAT WE HEARD:
→Community members want to see
improvements to ongoing flooding
issues in the area.
→Some businesses are worried about
flooding from local creeks that overflow
near business centers in the area.
Goal 2 STORMWATER
RUNWAYS AT THE OLD AIRPARK
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3 : GOALS & STRATEGIES
52EAST MULBERRY PLAN
Note on Fulfillment of this Strategy:
Waterways, floodplains, and stormwater conveyance
ignore property and jurisdictional boundaries and
there is a need to understand deficiencies and
opportunities on a plan area-wide scale. While future
stormwater improvements and maintenance are not
likely to occur until annexation into the City, master
planning needs to begin sooner to understand needs
and identify and prioritize funding mechanisms and
opportunities.
Prior to Annexation: The City should engage with
Larimer County and other stakeholders to lay the
groundwork for a joint stormwater master plan for the
plan area, including consideration of funding to begin
the study even before large areas of the plan area
have been annexed.
Dedicate funding to prepare an East Mulberry Enclave
stormwater master plan.
2.1.1 Explore joint master planning of the East Mulberry Plan
Area with Larimer County to manage future improvements
and maintenance while areas of the plan area remain
under split jurisdiction and to reconcile different regulatory
approaches to Poudre River floodplain requirements.
2.1.2 Coordinate with Larimer County and private property
owners to inspect and clean existing stormwater system
infrastructure and identify repairs and improvements in the
stormwater master plan.
2.1.3 The stormwater master plan should identify storm
drainage improvements to Dry Creek, Cooper Slough, and
Boxelder Creek to better manage the area’s flood flows and
adjacent local drainage and prepare funding estimates for
future capital project planning and prioritization.
2.1.4 The stormwater master plan should coordinate
with Larimer County and other services providers for
the provision of urban level drainage infrastructure,
maintenance, and the timing of future public improvements.
GOAL 2: STORMWATER
STRATEGY 1
Implementation Action Items:
STORMWATER DRAINAGE ON LINCOLN AVENUE
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3 : GOALS & STRATEGIES
53EAST MULBERRY PLAN
Note on Fulfillment of this Strategy: Older
development in the East Mulberry Plan Area
lacks modern stormwater conveyance features
that can lead to flooding and safety issues. As
sites redevelop, they will generally be required
to install or incrementally upgrade stormwater
infrastructure and begin the long-term process
of developing plan area-wide stormwater
infrastructure.
Prior to Annexation: City staff will continue
collaborating with Larimer County and provide
referral comments on stormwater upgrades and
floodplain requirements when sites undergo
redevelopment through Larimer County’s
development review process.
Protect people, property and the environment through
floodplain and stormwater regulations.
2.2.1 Reduce flood risk and floodplain encumbrances
on public and private property with improved drainage
infrastructure.
2.2.2 Development and redevelopment will be required to
follow the City’s stormwater regulations for protection of
the project site and neighboring properties by improving
localized and substandard stormwater conveyances.
2.2.3 Development and re-development activity within the
Poudre River corridor shall comply with existing floodplain
regulations.
2.2.4 Storm drainage improvements along and adjacent to
Dry Creek, Cooper Slough and Boxelder Creek should be
designed using nature-based solutions and constructed
wetlands to balance flood protection, environmental
enhancement, and natural habitat buffering.
GOAL 2: STORMWATER
STRATEGY 2
Implementation Action Items:
COOPER SLOUGH POUDRE RIVER TRAIL
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3 : GOALS & STRATEGIES
54EAST MULBERRY PLAN
Note on Fulfillment of this Strategy: Larger
stormwater and floodplain enhancements in the plan
area should seek to collocate alongside other planned
environmental and transportation improvements
identified in the plan area to achieve design and
funding efficiencies. Many of the waterways in the
East Mulberry Plan Area have been identified for
additional environmental protection and possible trail
or multimodal corridors that could benefit from joint
project planning.
Incorporate or collocate stormwater and floodplain enhancements
alongside other East Mulberry Plan Area environmental protection
and transportation enhancements.
2.3.1 Future transportation and storm drainage projects
should be coordinated to assess design opportunities,
funding assessments, and impacts to adjacent
properties.
2.3.2 Stormwater and floodplain enhancements should
incorporate natural features while improving drainage
infrastructure by creating/improving natural areas,
wetlands, and wildlife corridors.
2.3.3 Storm drainage improvements to Dry Creek,
Cooper Slough and Boxelder Creek, will be designed
using nature-based solutions and constructed wetlands
to balance flood protection and environmental
enhancement of Nature Habitat buffering.
GOAL 2: STORMWATER
STRATEGY 3
Implementation Action Item:
STORMWATER DRAINAGE ALONG DRY CREEK BED STORMWATER
DRAINAGE ON LINCOLN AVE LINCOLN AVENUE
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3 : GOALS & STRATEGIES
55EAST MULBERRY PLAN
GOAL 2: STORMWATER
2.N - I-25 Interchange
2.N.1 Accommodate improvements identified through stormwater master planning in new developments
in the area.
2.N.2 Construct future improvements to reduce flooding along Cooper Slough.
2.E - Residential Estate
2.E.1 Implement improvements identified through stormwater master planning to mitigate flooding in
the area.
2.E.2 Prioritize the study of localized drainage issues caused by the lack of stormwater infrastructure
and incorporate them into the City’s overall project prioritization list.
2.E.3 Add existing stormwater infrastructure within this character area to the maintenance schedule.
2.M - Residential Mixed
2.M.1 Ensure new residential areas have sufficient stormwater infrastructure. Coordinate with Larimer
County to determine when maintenance of public infrastructure should be transferred.
2.M.2 Implement improvements through stormwater master planning to mitigate flooding in the area.
2.T - Transitional / Mixed-Use
2.T.1 Implement recommendations identified in stormwater master planning efforts to reduce flooding in
the adjacent Airpark character area.
2.T.2 Develop a green infrastructure corridor through the the Transitional / Mixed-Use character area
along Dry Creek that can serve partially as a flood channel corridor.
2.T.3 Protect and improve the Lake Canal corridor.
Goal 2 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
2.A - Airpark
2.A.1 Address the lack of stormwater infrastructure available for redevelopment by conducting an
inventory, adding it to the maintenance schedule, and planning improvements based on the Citywide
prioritization list.
2.F - Frontage
2.F.1 Coordinate with CDOT to improve and maintain stormwater infrastructure between Mulberry Street
and the frontage roads.
2.F.2 Reduce flooding along Mulberry Street through future improvements identified through joint
stormwater master planning efforts.
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3 : GOALS & STRATEGIES
56EAST MULBERRY PLAN
Goal 3 Plan and support safe and comfortable multi-
modal transportation infrastructure.
TRANSPORTATION
GOAL INTENT AND PURPOSE:
Transportation infrastructure in the East Mulberry
Plan Area will support walking, rolling, bicycling,
driving, and commercial activities. The connections
will focus on safety and comfort, especially for the
most vulnerable road users. Infrastructure design will
recognize business needs and utilize creative design
elements to ensure both efficient and safe travel for all
modes.
WHAT WE HEARD:
→Residents who rely on frontage roads know
that they are unsafe but worry the city will get
rid of the frontage roads entirely.
→Some business owners want to preserve access
to key business and manufacturing corridors,
like Lincoln Avenue.
→Some business owners are interested in
improved connectivity along East Mulberry
between I-25 and downtown Fort Collins.
→Transportation related infrastructure is needed
for all modes, especially pedestrian and bicycle
infrastructure, including improvements at key
intersections.
→Many residents voiced a desire for improved
bicycle and pedestrian connectivity to nature
trails, open green space, and downtown as
a priority. Some residents would like to see
neighborhood access for cars prioritized over
pedestrian and bike access routes. When considering future improvements to Lincoln Avenue,
consult design alternatives and concepts developed as part of
the Lincoln Corridor Plan (such as the graphic below).
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
57EAST MULBERRY PLAN
Augment existing streets to create multi-modal connections that
support safe and comfortable mobility and traffic calming prior to
improving streets to Larimer County Urban Area Street Standards
(LCUASS).
Note on Fulfillment of this Strategy: According
to standards adopted by City of Fort Collins and
Larimer County, improvements to many streets
upon annexation either require resident financial
involvement or the street will be added to a long
capital improvement list with a several-year wait.
However, much of the area currently lacks sidewalks
and bike lanes – necessary implements for safe travel.
Strategies will be explored to create safe infrastructure
by augmenting existing streets with improvements that
do not necessarily comply with LCUASS standards.
Also, traffic-calming techniques will be explored for
streets leading to existing and future neighborhoods
used by larger vehicles traveling from commercial
and industrial land uses, reducing encroachment of
heavy truck traffic and other related traffic through
residential neighborhoods.
Prior to Annexation: Identify deficiencies on
all streets in the annexation area and prioritize
opportunities to augment with safe infrastructure and
traffic calming.
GOAL 3: TRANSPORTATION
WEST VINE STREET
NORTH LEMAY AVENUE
Protected
multi-use path
Attached multi-use path with permeable curb
3.1.1 There are many State and Federal grants that focus
on bicycle and pedestrian safety that will be explored to
augment currently deficient streets in the East Mulberry
Plan Area.
STRATEGY 1
Implementation Action Items:
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
58EAST MULBERRY PLAN
Note on Fulfillment of this Strategy:
State Highway 14 (Mulberry Street) is a wide 4-lane
arterial street that serves as a CDOT designated trucking
route (Denver to Laramie) with frontage roads for
business access. Presently there are no sidewalks or
bike lanes along this stretch of road. The frontage roads
offer an opportunity for bicycle and pedestrian access
with creative design solutions on relatively low-speed
streets. And the generous size of Mulberry provides
opportunities for dedicated transit lanes.
Prior to Annexation:
Coordinate with CDOT about design options and
schedule for the next maintenance or resurfacing project
for Highway 14.
Collaborate with CDOT, adjacent business owners and other
community stakeholders on the re-design or augmentation of Highway
14 (East Mulberry) and frontage roads for multi-modal transportation.
3.2.1 Coordinate with CDOT to evaluate the existing plan
to expand Mulberry to six travel lanes as identified in the
Access Management Report and the Master Street Plan.
3.2.2 The US 287/SH 14 Access Management Report shall
be updated to reflect the goals and strategies in the East
Mulberry Plan Area.
3.2.3 Continue to support East Mulberry Street as a primary
travel and freight corridor for businesses, shopping and
employment.
3.2.4 The Active Modes Plan calls for side paths (shared-
use for bicycles and pedestrians) along East Mulberry.
This infrastructure would support bicycle and pedestrian
travel on the frontage roads as well. Coordinate with
the Active Modes implementation team on design and
implementation of side paths on East Mulberry.
GOAL 3: TRANSPORTATION
STRATEGY 2
Implementation Action Items:
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
59EAST MULBERRY PLAN
Note on Fulfillment of this Strategy:
Annexation of the East Mulberry Plan Area will
likely happen in pieces and phases. However, the
timeline and extent are unknown. This uncertainty
introduces a challenge to creating a transportation
plan and its implementation details prior to
annexation.
Prior to Annexation: Communicate this intent
with decision-makers as they determine schedule
and extent of annexation.
Create a transportation-specific plan for the East Mulberry Plan
Area, analyzing transportation needs – focusing on multi-modal
travel, opportunities, and defining strategies for implementation.
GOAL 3: TRANSPORTATION
Note on Fulfillment of this Strategy: The
importance of this strategy is to be transparent with
all stakeholders being annexed into the City of Fort
Collins with levels of maintenance they can expect.
An inter-governmental agreement between Larimer
County and the City of Fort Collins generally says
that streets need to be built and maintained to City
standards upon annexation for the City to perform
more than minor maintenance. Some neighborhoods
have created Special Improvement Districts to fund
the improvement of their streets.
(See following page for more details.)
Prior to Annexation: The City of Fort Collins will
work with CDOT and Larimer County to evaluate
existing streets and understand existing maintenance
activities.
Plan and identify strategies, costs, funding, and timelines for City
acceptance of public streets for maintenance. This includes CDOT
right-of-way, existing and future improvement districts, and all
street classifications.
3.4.1 Identify funding and resources for a
transportation plan prior to annexation.
3.3.1 Identify funding and resources for a transportation
plan prior to annexation.
3.3.2 Encourage future City transportation plans and
studies to incorporate the East Mulberry Plan Area into
plan boundaries and evaluation criteria prior to annexation
to begin building data capacity and funding/prioritization
needs.
STRATEGY 4
STRATEGY 3
Implementation Action Item:
Implementation Action Item:
Infrastructure Standards
Developed land, or areas seeking voluntary annexation, must
have their infrastructure improved (e.g., streets, utilities and storm
drainage systems) to City standards, or must have a mechanism
(e.g. a special improvement district, capital improvements
program or other type project) in place to upgrade such services
and facilities to City standards before the City will assume full
responsibility for future maintenance.
*Larimer County Urban Area Street Standards (LCUASS): Appendix G
i
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
60EAST MULBERRY PLAN
GOAL 3: TRANSPORTATION
Mechanism of Public Improvements
Ongoing deterioration, maintenance, and repair of infrastructure has been a critical topic for the plan area since before the
2002 East Mulberry Plan was adopted. Timing for updates to aging infrastructure, maintenance responsibility, and what
changes with annexation often raises questions for residents and business owners.
One solution for adding clarity around these issues is the implementation of Improvement Districts. There are various
improvement districts that can be explored and established within the City: Special Improvement Districts (SID), Business
Improvement Districts (BID), General Improvement Districts (GID), and Metropolitan Districts (Metro Districts).
Special Improvement Districts
A Special Improvement District (SIDs) is used for one-time projects that will serve a particular area. The City Council can establish
SIDs on its own initiative without the affected property owners’ consent. However, their participation encouraging the City Council
to establish the SID is advisable. The cost to build the improvements are funded with “special assessments” imposed on the adjacent
properties that are expected to increase in value by the proposed improvement rather than funded with property taxes. SID special
assessments can therefore be imposed by the Council without a TABOR election. SIDs do not have a maintenance aspect, so the
expectation is that once the improvement is built, such as a street, the City accepts the improvement for future maintenance, repair
and replacement. SIDs should be initiated only when the adjacent properties are sufficiently developed to support the property
owners’ payment of the special assessments. Also, if the improvement is to be oversized to serve more than just the adjacent
properties, such as oversizing a street, this may require the City to separately fund the oversized portion.
i
General Improvement Districts (GIDs) can be set up to not only construct public improvements, but also to operate and
maintain them. GIDs can construct pretty much any public improvement the City can construct. A GID can only be established
if a significant percentage of the property owners within the boundaries of the proposed GID have signed a petition requesting
creation of the GID and then the creation must be approved in an election approved by the GID’s voters. Also, any taxes imposed
by the GID to fund its projects must be approved by the GID’s voters in a TABOR election. The Council is the governing board of the
GID. GIDs can include residential, commercial and industrial zoned properties.
i
Metro Districts are not established by the City, but typically by the developers of large developments and used by them to
help fund the public infrastructure for those developments. Metro Districts have a separate governing body, and their powers are
governed by a Service Plan that must be approved by the City Council. Service Plans approved by the Council typically limit the
Metro District’s authority and define the scope of its operation. A Metro District’s improvements are usually funded with a property
tax imposed on the properties and future development within the District. Some Metro Districts are dissolved after construction
of the public infrastructure has been completed and all related debt has been paid. However, some have a perpetual existence if
needed to fund the future operation, maintenance, or replacement of such infrastructure.
i
Business Improvement Districts (BIDs) are organized in a similar manner as GIDs, and they can impose property taxes
after a TABOR election. They can also impose special assessments without an election. BIDs can construct, maintain and operate
its public improvements like a GID can. However, BIDS are intended to be used for public improvements to serve commercial
business areas, so the boundaries of BIDs cannot include residentially zoned properties. The governing board of BIDs can either
be the Council or the Council can appoint electors from the BID to serve on the board, which are usually owners of commercial
properties within the BID.
i
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
61EAST MULBERRY PLAN
Note on Fulfillment of this Strategy: This
plan provides a high-level view of intended
multi-modal transportation connections. A more
detailed transportation plan will provide specific
infrastructure and funding recommendations.
Prior to Annexation: The City will identify
opportunities for improvements consistent
with jurisdictional boundaries such as transit
improvements, new development improvements,
and land owned by the City of Fort Collins such as
parks and natural areas.
Establish safe and direct multimodal connections between
destinations/character areas within the East Mulberry Plan Area,
as well as primary travel corridors and to adjoining areas within
the City of Fort Collins such as Downtown, natural areas, and the
Mulberry & Lemay Crossings commercial area.
3.5.1 Prioritize capital improvement for Lincoln Avenue to
Timberline Street consistent with improvements west of
Lemay to serve as a multimodal connection between the
core of East Mulberry and the heart of Downtown.
3.5.2 Incorporate the existing and proposed bikeway and
pedestrian networks, as part of the transportation system,
along roadways as well as multi-use trails (off-street) just
outside of the natural habitat and features buffers along
Cooper Slough, Lake Canal, and other ditches.
3.5.3 Plan and design multi-use trails to function as both
recreational and transportation facilities for all skill and
user types, with well-connected trail access points to
surrounding developments, such as the adjacent Mountain
Vista and Poudre River areas.
3.5.4 Review and update the city’s Master Street Plan
consistent with the goals of this plan, City Plan, and newly
established development patterns.
3.5.5 Land use development will provide and allow for
a well-connected direct pedestrian / sidewalk system
and bike network from points of origin to destinations,
including transit stops along East Mulberry Street.
3.5.6 Eliminate crashes between various transportation
modes by reducing points of conflict by utilizing grade
separated crossings at major roadways such as the multi-
use trail underpasses of East Mulberry Street and by
utilizing access management techniques. Update the City’s
Trails Strategic Plan accordingly.
3.5.7 Utilize the Active Modes Plan and the 2024 Strategic
Trails Plan as a guide for all new walking and biking
infrastructure in the East Mulberry Plan Area.
GOAL 3: TRANSPORTATION
STRATEGY 5
Implementation Action Items:
S LEMAY AVE
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
62EAST MULBERRY PLAN
GOAL 3: TRANSPORTATION
Transportation Framework Map
Full description and discussion of the Transportation Framework Map can be found in Section 4 of the Plan.
EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
63EAST MULBERRY PLAN
Note on Fulfillment of this Strategy: Transfort
already serves this area with Route 14 at 1 hour
increments. The Transit Master Plan calls for
30-minute local service on East Mulberry. However,
the plan area represents an opportunity for regional
commuters to either park their vehicles or transfer
from regional transit to local service bringing them
to and from Downtown and other employment
destinations.
Please note that the implementation of transit
service is typically based on demand which is
created from housing and jobs. The Transit Master
Plan outlines densities needed to provide various
levels of service. However, this is not always the
case when it comes to park-n-rides and regional
service so commuting patterns and opportunities
to provide service to commuters will continue to be
monitored.
Prior to Annexation: Transfort will continue to
evaluate opportunities to implement the Transit
Master Plan as it relates to East Mulberry.
Improve transit service to the East Mulberry Plan Area
consistent with goals in the Transit Master Plan.
3.6.1 A mobility hub with a park-n-ride should be located
near the I-25/SH 14 Interchange and should be integrated
with transit service connections.
3.6.2 Improve existing bus stops to ensure safe ADA access.
3.6.3 Include transit planning in the transportation-specific
plan for the East Mulberry Plan Area. Consider opportunities
for high-frequency/BRT service and bus-only lanes.
GOAL 3 - TRANSPORTATION
Future Transit Network
STRATEGY 6
Implementation Action Items:
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EXHIBIT A TO ORDINANCE NO. 162, 2023
3 : GOALS & STRATEGIES
64EAST MULBERRY PLAN
3.A - Airpark
3.A.1 Plan for safe pedestrian and bicycle infrastructure in an area that continues to cater to
industrial and commercial vehicles.
3.A.2 Connect the Airpark character area with the rest of the community by prioritizing capital
improvements on Lincoln Avenue, following the design model of Lincoln Avenue east of Lemay
Avenue.
3.A.3 Evaluate and amend the Master Street Plan to prioritize connections within this character area
and to surrounding areas.
3.A.4 Prioritize pedestrian-friendly infrastructure such as landscaping, trees, and sidewalks, along
Link Lane and Lincoln Avenue.
3.F - Frontage
3.F.1 Identify opportunities to enhance Mulberry Street and its frontage roads for safe bicycle and
pedestrian infrastructure.
3.F.2 Plan for future enhanced transit service in the corridor, including potential bus-only lanes for
Bus Rapid Transit (BRT) service.
3.N - I-25 Interchange
3.N.1 Collaborate with CDOT to redesign and reconstruct the I-25 & Mulberry interchange,
incorporating design enhancements that align with Fort Collins’ character.
3.N.2 Improve safety, multimodal options, and efficiency for accessing and crossing I-25.
3.N.3 Establish a Park & Ride / Mobility Hub for regional services at the I-25 & Mulberry interchange.
3. E - Residential Estate
3.E.1 Ensure safe, comfortable, and convenient connections for pedestrians, cyclists, and other
modes of transportation between residential areas, commercial areas, and natural areas.
3.N.2 Enhance or expand multimodal options along Summit View Drive.
3.N.3 Evaluate and work with neighborhoods on desired frontage improvements (sidewalks, curb &
gutter) along rural residential streets.
3. M - Residential Mixed
3.M.1 Ensure safe, comfortable, and convenient multimodal connections between residential areas,
commercial areas, and natural areas.
3.M.2 Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and continuing north, in
alignment with the future Strategic Trails Plan in 2024.
3. T - Transitional / Mixed-Use
3.T.1 Extend International Boulevard to Cordova Road.
3.T.2 Extend Airpark Drive to International Boulevard and amend the Master Street Plan accordingly.
3.T.3 Establish a trail corridor along Dry Creek or Lake Canal to Vine Drive and continuing north, in
alignment with the future Strategic Trails Plan in 2024.
Goal 3 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 3: TRANSPORTATION
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Goal 4 Increase access for residents and businesses to
community amenities and services.
COMMUNITY AMENITIES & SERVICES
GOAL INTENT AND PURPOSE:
There is a need for increased availability and access to
amenities and services within the East Mulberry Area.
This includes access to daily needs such as a grocery
store, but also the types of services that can assist in
making this area safer and more connected to the rest
of Fort Collins.
WHAT WE HEARD:
→Many residents want a closer grocery store
and access to more community amenities
such as parks, schools, and trails.
→There are safety concerns with drug
use, vandalism, and some instances of
homelessness.
→Some residents are interested in having
more options for affordable and stable
internet connectivity including broadband.
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Increase community policing resources and safety within the
East Mulberry Enclave.
Note on Fulfillment of this Strategy:
When any portions of the East Mulberry Enclave
annex into the City of Fort Collins, they may be
immediately served by Fort Collins Police Services,
or depending on the size and anticipated call
volume of the potential annexation area, may require
a transition over time. Therefore, fulfillment of this
strategy depends on annexation and potential
agreements with other law enforcement agencies.
This is explored further in the Implementation Action
Items for this strategy. The City’s policing programs
such as the Patrol, Traffic Unit, detectives, Homeless
Outreach and Proactive Engagement Team (HOPE),
Neighborhood Engagement Team (NET), and Mental
Health Response Team (MHRT) can be deployed
to help address safety issues in this area once new
personnel are hired and trained.
Prior to Annexation: Fort Collins Police Services
(FCPS) will continue to partner with the Larimer
County Sheriff’s Department (LCSO) and the
Colorado State Patrol (CSP) to understand the
safety concerns and response needs of this area.
GOAL 4: COMMUNITY AMENITIES & SERVICES
4.1.1 To prepare for annexation, ideally Fort Collins Police
Services (FCPS) will have 18 to 24 months of lead time
to hire and train officers to adequately cover the newly
annexed area. As soon as the geographic area of a potential
annexation is determined, FCPS analysts will determine the
number of officers needed to serve the area. It has been
determined that full annexation of the entire East Mulberry
Enclave would lead to a 10% increase in calls for service
(2022 data). That increase will require 23 police officers
supported by 12 varied professional staff members.
Hiring processes take six (6) months with an additional
twelve (12) months of training. Therefore, a full annexation
of the entire East Mulberry Enclave would require FCPS
to have authorization for 35 employees. As previously
stated, FCPS requires 18 to 24 months from the moment an
annexation is certified until officers can be in place to serve
a newly annexed area. This timeframe is also influenced by
alignment with basic training academy cycles.
4.1.2 The staffing needs of a threshold annexation must
be evaluated by the call data in the areas/zones proposed
for annexation. Staffing increases will be based upon that
percentage increase.
4.1.3 Annexation (full or phased in threshold annexations)
may be supported by later introduction of police services if
FCPS is able to enter into mutually beneficial agreements
with Larimer County Sheriff’s Office (LCSO) and Colorado
State Patrol (CSP) for their continued corridor responsibility
during FCPS’ hiring and training of new personnel. However,
no funding exists to pay such contracts and would need to
be added to the FCPS budget in addition to the funding
for the personnel. That “contract” funding would expire as
the new FCPS personnel took over responsibility for any
annexed area/zone.
Implementation Action Items:
STRATEGY 1
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Implementation Action Item:
Prior to Annexation: The 2021 Fort Collins Parks and
Recreation Master Plan identified a potential park
site within the Mosaic neighborhood. The Parks and
Recreation Master Plan discusses that subarea plans are
able to provide finer grain land use and policy detail for
these geographic areas of the City. Many subarea plans
identify opportunities for new parks and public spaces.
As further development and redevelopment occur, these
spaces should be reconsidered in context of the Parks
and Recreation Master Plan. As additional parts of the
East Mulberry Enclave are annexed over time, it will be
important to continue identifying ways to introduce
recreational and public amenities aligned with our parks
and recreation master planning.
Increase access and availability of public amenities that contribute to
the wellbeing and quality of life for individuals and neighborhoods,
including but not limited to green spaces, recreational parks, schools,
pedestrian and bike trails, and natural areas.
4.2.1 Incorporate the East Mulberry Enclave into future
parks, recreation, and trails planning and encourage
Poudre School District and new developments to
incorporate schools and other amenities that are
accessible to plan area residents.
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 2
In the Mosaic Neighborhood, future parks have been identified to facilitate amenities for the local neighborhood
Note on Fulfillment of this Strategy:
While future City parks require annexation prior
to development, proactive strategic planning and
identification of potential locations will continue before
annexation occurs as City policy plans are updated.
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Note on Fulfillment of this Strategy:
When portions of the East Mulberry Enclave
annex into the City, a zoning district will be
assigned to annexing parcels. The Framework
Plan within this document (Section 4 of this
document) outlines a series of place types that
will preserve existing commercial uses and
ensure future commercial uses, such as a grocery
store, can be accommodated.
Prior to Annexation: The Framework Plan will
be used by both the City and Larimer County
to influence referral comments and land use
decisions regarding development in Larimer
County that do not yet trigger annexation into
the City.
The East Mulberry Area will designate areas for commercial
development that serve both the broader community and region
and support the daily needs of residents and businesses.
GOAL 4: COMMUNITY AMENITIES & SERVICES
4.3.1 When annexation of an area is planned, the zoning
designation in the County will generally match the zone district
applied upon annexation into the City. Existing businesses
within the enclave will generally be able to continue to operate
no matter the zoning designation applied upon annexation.
4.3.2 The City will continue to support Neighborhood
Commercial (NC) zoning near the Mulberry and Greenfields
intersection to encourage a central location in the corridor for
a grocery store. Staff and decision-makers should also look
favorably upon other non-residential areas of the East Mulberry
Plan Area for opportunities for grocery stores, pharmacies, and
other neighborhood supporting retail.
4.3.3 Prior to any annexation, staff will communicate regularly
with affected businesses and residents within and surrounding
the area to offer ample time to discuss any effects of
annexation. Staff can also be available to discuss any potential
changes prior to any annexation decisions to allow businesses
to plan for changes that may affect them upon annexation.
The annexation threshold process, including communication
strategies in advance of any potential annexations, are
described in Section 5 of this document.
Implementation Action Item:
STRATEGY 3
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Provide residents and businesses with upgraded levels of service
over time and as annexation occurs.
Note on Fulfillment of this Strategy:
Like other strategies contained within this plan,
fulfillment is dependent on annexation into the
City of Fort Collins. Specifically related to this
strategy, it is important to distinguish between
new development occurring within newly
annexed areas and existing, established areas.
Newly developing areas, or areas where a site will
be totally redeveloped will be required to meet
full development standards required by the City,
including constructing/reconstructing roadways
that meet full LCUASS (Larimer County Urban
Area Street Standards) establishing other electric
and stormwater infrastructure that meets City
standards at the time of development. The areas
of the East Mulberry Enclave impacted by new
development or total site redevelopment will
receive upgraded levels of service through the
development process. Existing neighborhoods
and other areas where new development or
redevelopment may not occur will take longer to
receive upgraded levels of service as those areas
are annexed into City Limits.
4.4.1 On public roads, the City of Fort Collins will maintain
roadways at the same level they are maintained by Larimer
County at the time of annexation. That means there may be
roads that receive very minimal improvements. For these areas,
Special Improvement Districts may be formed proactively
by property owners or required by the City or County to
reconstruct failing streets. The primary goal of an improvement
district would be to improve existing streets to Larimer County
Urban Area Street Standards, at which point the City would
begin and continue to provide full street maintenance.
4.4.2 Implement Light & Power infrastructure and service in
newly annexed areas as expeditiously as feasible. When areas
are identified for potential annexation, the land use composition
and potential service requirements of the area will be evaluated
to determine service needs. Each potential annexation area
will be evaluated based on proximity to existing Light & Power
Infrastructure within City Limits and if there is the ability to tie
into existing infrastructure or if build-out of new infrastructure is
required.
The time required to assess service needs of a potential
annexation area can be completed during the analysis period
after an annexation threshold has been identified. Once an area
or zone has been established for annexation and service needs
are understood, a detailed assessment of the area will require
at least six months to develop a plan for infrastructure layout
and installation. Coordination of infrastructure with Platte River
Power Authority (PRPA), the public power utility that serves Fort
Collins, may require additional time before service can begin.
The coordination required with PRPA and any implications on
the timeline will be discovered and explored during the analysis
period when infrastructure needs are under study. Coordination
with external agencies such as PRPA may require between 2 to 4
years to assure coordination of electric transmission facilities.
Evaluation of new infrastructure needs will ensure that any
newly served areas meet Light & Power service standards at the
time service begins.
Implementation Action Items:
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 4
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Implementation Action Items:
4.4.2 (continued) Once the evaluation of infrastructure needs
assessment is complete, it may take several years before
service is transferred to Fort Collins Light & Power. With a
plan developed, an associated budget must be approved
as part of the normal two-year financial cycle for necessary
capital projects. For service lines that are above ground,
moving these lines underground may take additional time
after service is transferred.
When an area is set to be annexed and following study of
infrastructure service requirements and timelines, staff will
update residents and businesses impacted by annexation with
an estimate of when their property will be served by Light &
Power. This communication will be important in establishing
realistic expectations for when service can be provided.
4.4.3 Expand Connexion broadband services to the East
Mulberry Area as annexation occurs and infrastructure
connections are possible.
4.4.4 Reduce flood risk and other floodplain encumbrances
on both public and private property through improved
drainage infrastructure. Future storm drainage projects
that minimize ongoing flooding issues within the East
Mulberry Area will reduce impacts to property and over
time can provide an increase in service compared to current
conditions. (See Goal 2)
GOAL 4: COMMUNITY AMENITIES & SERVICES
STRATEGY 4
CONTINUED
DETENTION AREA LOCATED AT
THE LINCOLN AVE & CORDOVA RD
ROUNDABOUT.
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GOAL 4: COMMUNITY AMENITIES & SERVICES
4.A - Airpark
4.A.1 Maintain the diversity of businesses and services along Link Lane to continue serving as an
activity center.
4.A.2 Address and work to mitigate floodplain encumbrances on individual property owners.
4.F - Frontage
4.F.1 Encourage grocery stores or other neighborhood-serving retail to locate in the East Mulberry
Plan Area, supporting daily needs of residents and businesses.
4.F.2 Implement principles of 15-minute cities along this corridor.
4.N - I-25 Interchange
4.N.1 Increase availability of specialized and general police services to enhance safety, improve
response times, and provide proactive and community-based law enforcement services.
4.E - Residential Estate
4.E.1 Improve the quality of services over time, including street infrastructure, utilities, and
broadband availability.
4.E.2 Provide education on Code Compliance and City incentive programs to the community.
4.E.3 Increase access to existing natural areas, trails, schools, and other nearby amenities, while also
encouraging new amenities where contextually appropriate.
4.M - Residential Mixed
4.M.1 Improve the quality of services over time, including street infrastructure, utilities, and
broadband availability.
4.M.2 Provide education and resources to neighborhoods about Code Compliance and City
incentive programs.
4.M.3 Increase access to existing natural areas, trails, schools, and other surrounding amenities
while also encouraging new amenities where contextually appropriate.
4.T - Transitional / Mixed-Use
4.T.1 Continue engaging community members to help formulate the vision for this area, including
the possibility of event/convention spaces, based on feedback received during staff outreach
efforts.
4.T.2 Explore the potential for institutional services and amenities, such as trails, roadway
connections, utilities, natural areas, and gathering spaces, along the Dry Creek corridor.
Goal 4 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
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Goal 5 Explore mechanisms to maintain housing
affordability and existing character of
residential neighborhoods.
HOUSING
GOAL INTENT AND PURPOSE:
The East Mulberry Plan Area features a diverse assortment
of housing with varying styles, ages, and price points.
From areas with a mix of single-family homes, duplexes,
and triplexes, to manufactured housing communities,
apartment complexes, and large acreages with farm
animals, the plan area is home to a wide variety of
neighborhoods.
As new development, infrastructure investment, and
potential annexation occurs within the East Mulberry Plan
Area, it is important to establish strategies to promote
livability and the unique characteristics that originally
drew residents to live in the plan area, whether due to
its relative affordability, opportunity for a more rural or
relaxed county lifestyle, or the proximity to employment
opportunities and other nearby City amenities.
WHAT WE HEARD:
→Many residents moved to the plan area
for a more relaxed feel and rural lifestyle
and feel annexation and City rules &
enforcement may jeopardize this lifestyle.
→Residents in manufactured housing
communities are interested in the City’s
mobile home parking zoning to discourage
redevelopment and displacement of their
mobile home parks.
→Neighbors are simultaneously concerned
about deteriorating infrastructure and road
maintenance in certain neighborhoods as
well as the costs to fix these issues.
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Note on Fulfillment of this Strategy:
For established Larimer County neighborhoods, this
strategy is contingent upon annexation into the City.
In the interim, land use regulations, code enforcement
responsibilities, and infrastructure and streetscape
requirements are determined by Larimer County.
While small changes and natural neighborhood
evolution over time is expected, large changes to
intensity or appearance of established neighborhoods
should be minimized.
Prior to Annexation: Work proactively with Larimer
County to provide input and referral comments that
would limit larger changes to the look and feel of
existing neighborhoods.
GOAL 5: HOUSING
Implementation Action Items:
5.1.1 Upon annexation, designate City zone districts and
land uses that closely resemble development patterns
originally established in Larimer County. Staff and
decision makers should be especially mindful to maintain
similar intensity and character in neighborhoods with an
established rural setting.
5.1.2 Staff and decision-makers should favorably consider
additional flexibility to maintain or compatibly expand
the keeping of farm animals in neighborhoods with a rural
setting or demonstrated livestock history.
5.1.3 Unless otherwise required for safety and accessibility,
frontage improvements such as tree lawns, curb and
gutter, and sidewalks should not be required in more rural
neighborhoods along low traffic roadways to maintain the
established streetscape.
Implementation Action Items:
5.2.1 Upon annexation, zone existing mobile home parks
into the Manufactured Housing zone district to discourage
redevelopment and the displacement of residents.
5.2.2 Connect and educate park owners and residents
to City resources such as neighborhood mini-grants and
the City’s mobile home park liaison that can help address
infrastructure and livability needs.
Preserve and enhance existing mobile home parks.
Note on Fulfillment of this Strategy:
City land use controls and certain City mobile home
park program and grant funding are only available
after annexation occurs.
Prior to Annexation: Continue to partner with
Larimer County and community organizations to
extend grant opportunities, neighborhood programs,
and infrastructure planning to mobile home park
owners and residents.
Utilize character area designations to maintain similar land use
and streetscape character in established neighborhoods.
STRATEGY 2
STRATEGY 1
MOSAIC ENTRANCE TO THE PARK ALONG
COLLINS AIRE LN
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Mobile Home Park Resources: Beyond preservation,
the City of Fort Collins’ Neighborhood Services department
provides support for enhanced livability and support for park
or individual unit upgrades through grant opportunities. Visit
the Neighborhood Services website to learn more about:
• Mobile Home Park Residents’ Handbook
• Dispute & Complaint Resolution Services
• Neighborhood Mini-Grant Opportunities
• Training & Legal Advice from Partner Agencies
i
COLLINS AIRE MOBILE HOME PARKVILLAS MOBILE HOME PARK
GOAL 5: HOUSING
Manufactured Housing Preservation
Manufactured or mobile homes feature many of the
benefits of stick-built single unit dwellings such as first
floor living and entries, the privacy of an individual
unit, and smaller semi-private yards and garden areas.
In addition, manufactured housing communities are
often considered a natural source of affordable housing
with comparable costs to deed-restricted affordable
housing units.
While manufactured housing communities feature
many benefits, they can also create uncertainty for
residents who may own their units but lease the
land underneath, which could result in displacement
if a mobile home park unexpectedly closes or is
redeveloped.
The City of Fort Collins supports and encourages
the retention of existing mobile home parks to help
preserve this unique and limited form of housing and
as a strategy to support naturally occurring affordable
housing in the community. Local efforts include grant
support and resident organizing/training through the
City’s Neighborhood Services department and land use
controls through zoning.
Manufactured Housing (MH) Zoning
The City’s Manufactured Housing (MH) zone district
was developed to discourage redevelopment
of existing parks by limiting opportunities for
redevelopment into other competing land uses, such as
commercial or multifamily development. Manufactured
housing communities are the primary land use
permitted in the MH zone district and sends a strong
policy signal to current and future landowners and
residents that the City encourages this type of land use.
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Implementation Action Items:
5.3.1 Perform outreach prior to and after annexation to
educate residents and neighborhoods about Neighborhood
Services programs and services such as mediation,
neighborhood mini-grants, Adopt-A-Neighbor, and more.
Educate and promote City services, programs, and code
enforcement expectations to neighbors.
Note on Fulfillment of this Strategy:
The City has many different programs, grants, and
neighborhood resources as well as code enforcement
opportunities which are generally only available or
enforced upon annexation.
Prior to Annexation: Before annexation occurs,
the City can begin to educate neighbors on upcoming
services and code enforcement expectations. For
programs, grants, and other services that are available to
the Growth Management Area, greater promotion should
be directed towards the East Mulberry Plan Area.
GOAL 5: HOUSING
Periodically evaluate mitigation and redevelopment strategies
for existing sources of attainable and affordable housing.
Note on Fulfillment of this Strategy:
Many neighborhoods in the East Mulberry Plan Area
feature a range of affordable and attainable housing
options, from mobile home parks to deed-restricted
rental options in developing neighborhoods. Over time
and as residential areas are annexed into the City, a
periodic review of housing options and price points
should take place to better understand and evaluate
the full spectrum of housing options, prices, and
redevelopment and displacement risk in the plan area.
The specific application of any strategies may only be
possible once an area is annexed into the City.
Prior to Annexation: Continue to include the East
Mulberry Plan Area into relevant City housing data
monitoring and policy updates.
Implementation Action Items:
5.4.1 Periodically update the ‘Equity and Opportunity
Analysis’ with East Mulberry Plan Area data to evaluate
gentrification and redevelopment risks.
5.4.2 Use a data-driven approach to apply counter-
displacement strategies, as appropriate, after annexation
of vulnerable neighborhoods. Counter-displacement
strategies could include strategies such as preservation of
mobile home parks and other naturally-occurring sources
of affordable housing.
STRATEGY 3
STRATEGY 4
5.3.2 Educate and promote City code enforcement
standards with residents and neighbors prior to beginning
proactive and graduated enforcement activities.
Improvement Districts: As part of educating neighbors prior to and after annexation, the City and Larimer County can work
proactively with neighborhoods to educate and/or promote Improvement Districts as a potential long-term maintenance structure
for neighborhood infrastructure and amenities. See information about various types of Improvement Districts under Goal 3.
i
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Note on Fulfillment of this Strategy:
As new development occurs in the East Mulberry
Plan Area there will be opportunities to promote
strategic locations for neighborhood services
such as grocery stores and childcare or to create
and enhance transportation connections to
existing amenities. Fulfillment of this strategy
will partially depend upon annexation and
development/redevelopment opportunities in the
plan area.
Prior to Annexation: Staff should provide
referral comments to Larimer County when new
development is proposed outside city limits so as
to achieve connectivity and amenity-driven goals.
GOAL 5: HOUSING
5.5.1 As community-wide policy plans are updated, identify
locations in the East Mulberry Plan Area for public and
institutional amenities such as recreation facilities and
satellite government offices/services.
5.5.2 Preserve supportive land use opportunities in the
plan area that allow for mixed-use and retail development
near existing and future neighborhoods. Maintain a focus
on opportunities for a grocer to locate within the plan area.
5.5.3 Utilize the plan area’s existing and future public lands
(parks, regional stormwater detention, natural areas, etc.)
to promote greater multimodal connectivity and access to
amenities and destinations internal to the plan area and
externally to the remainder of the community.
Implementation Action Items:
Implement 15-Minute City strategies to promote complete
neighborhoods with improved access to neighborhood
supporting amenities and destinations.
15-Minute Cities Graphic from 15-Minute City Analysis
E-Micromobility refers to electric transportation like scooters or bikes.
STRATEGY 5
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5.A - Airpark
5.A.1 Preserve the existing Nueva Vida mobile home park through land use guidance and zoning
upon annexation into the City.
5.A.2 Support the existing Nueva Vida mobile home community in pursuing necessary upgrades and
services.
5.F - Frontage
Not applicable.
5.N - I-25 Interchange
Not applicable.
5.E - Residential Estate
5.E.1 Maintain the Southern Residential (Estate) character area as neighborhoods with lower
development intensity and a rural look and character.
5.E.2 Preserve the existing Villas mobile home park through land use guidance and zoning upon
annexation into the City.
5.M - Residential Mixed
5.M.1 Preserve the “missing middle” housing that already exists in this area and encourage inclusion
of diverse housing types in new developments.
5.M.2 Preserve the existing Collins Aire mobile home park through land use guidance and zoning
upon annexation into the City.
5.T - Transitional / Mixed-Use
Not applicable.
Goal 5 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 5: HOUSING
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GOAL INTENT AND PURPOSE:
Fort Collins has a long history of protecting and
enhancing existing natural and cultural resources, and
the community’s leadership continues to reinforce
environmental stewardship and conservation as core
values. From areas with natural habitat characteristics,
and cultural assets, these areas can be found throughout
the East Mulberry Plan Area, including, along the Cooper
Slough, the Poudre River watershed, as well as adjacent
ditches, wetlands, and undeveloped greenfield.
As new development, infrastructure investment, and
potential annexation occurs within the East Mulberry Plan
Area, it is important to establish strategies that support
Fort Collins’ commitment to natural and cultural resources
conservation. Recognizing that the East Mulberry Plan
Area’s long history of development has had unintended
impacts to existing natural resources, the Plan’s strategies
seek solutions that utilize nature-based solutions and
protection of existing natural and cultural assets.
Goal 6 Protect and promote natural, historic, and cultural
resources that support a cohesive and resilient
community using nature-based solutions.
HISTORIC, CULTURAL, & NATURAL FEATURES
WHAT WE HEARD:
→Residents would like to preserve natural
space and promote outdoor recreation.
→The community has a concern about loss
of natural resources and cultural spaces to
development.
COOPER SLOUGH
Nature-Based Solutionsi
Refer to actions that incorporate natural
features or processes into the built environment.
Nature-based solutions can be implemented
within design, planning, and environmental
management practices to improve resilience and
achieve other benefits such as reducing flood
risk, restoring wetlands, creating new recreational
spaces, improving water quality, and more.
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GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Protect and enhance existing natural habitats and features
(including the Poudre River, Dry Creek, Cooper Slough, and
Boxelder Creek) and significant historic and cultural resources
through buffer standards and nature-based design.
Implementation Action Items:
6.1.1 Protect and enhance existing wetlands, naturalized
stormwater features, and associated natural habitat buffers
zones using nature-based solutions and green infrastructure
design principles that build community resilience to climate
change. Proposed development must not negatively impact
the integrity of these existing features.
6.1.2 Improve water quality and reduce flooding by restoring,
enhancing, and protecting the ecological function of natural
habitats and features within the East Mulberry Plan Area to
the maximum extent feasible.
6.1.3 Where a multi-use trail underpass is identified, the
design of the facility should also consider such underpass
to be a potential wildlife movement corridor and should be
designed to accommodate such habitat value.
Note on Fulfillment of this Strategy:
This strategy aligns with existing Land Use
Code sections, and contingent upon annexation,
staff will establish predictable linkages with
stormwater goals/strategies to clearly define
nature-based design strategies.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments that would limit larger changes and
impacts to existing natural resources and open
spaces.
STRATEGY 1
POUDRE RIVER TRAILPOUDRE RIVER
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Implementation Action Items:
6.2.1 Enhance existing drainageways and natural areas
to create an interconnected system of open lands and
Greenways.
6.2.2 Enhance linkages to existing natural features and
manmade infrastructure providing a comprehensive system
for drainage, habitat, transportation and recreational
purposes.
6.2.3 Based on both the current travel demand modeling
results and existing natural resources within the Cooper
Slough drainageway, Weicker Drive will not extend across
the Cooper Slough from the industrial park to the east, to
the planned extension of Greenfields Court to the west.
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Preserve, enhance, and improve connections of the existing
natural and manmade open lands system to provide a
comprehensive system for drainage, habitat, transportation,
and recreational purposes.
Greenways are corridors of protected open space
managed for both conservation and recreation.
Greenways often follow rivers or other natural
features. They link habitats and provide networks of
open space for people to explore and enjoy.
Stormwater parks are recreational spaces that
are designed to flood during extreme events and
to withstand flooding. By storing and treating
floodwaters, stormwater parks can reduce flooding
elsewhere and improve water quality.
Note on Fulfillment of this Strategy:
Spending time outdoors can contribute to
improved physical health, emotional well-being,
and cognitive function. By enhancing natural
and manmade open areas the Plan aims to
create habitats for biodiversity, providing not
only buffering in-between development but also
places where people can feel a sense of wonder.
The City will be able to apply best practice
strategies to the resources within the East
Mulberry Plan Area as future annexations occur.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments that would limit larger changes and
impacts to existing natural resources and open
spaces.
STRATEGY 2
POUDRE RIVER WHITEWATER PARK
(DOWNTOWN)
POUDRE RIVER
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3 : GOALS & STRATEGIES
81EAST MULBERRY PLAN
Provide a vital connection to the Poudre River and regional
trail system, while protecting the recognized sensitive natural
areas by maintaining responsible public access.
Implementation Action Items:
6.3.1 Continue to involve property owners, ditch companies
and railroads in the planning of park and trail facilities.
6.3.2 The interface, between the Poudre River riparian
habitat and development along East Mulberry Street, should
be coordinated to retain environmental quality, encourage
wildlife habitat and, where impacts can be appropriately
buffered, provide access to recreation.
STRATEGY 3
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Note on Fulfillment of this Strategy:
Preserving and enhancing equitable access
to the Poudre River recognizes the essential
role that Poudre River has in creating and
maintaining a thriving and healthy community.
Prior to additional portions of the Poudre River
annexing into the City of Fort Collins, continue
to collaborate with stakeholders to manage this
resource.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments to prevent any decrease in access to
the Poudre River beyond the existing conditions.
“The Interface”
EAST MULBERRY
DEVELOPMENT
POUDRE RIVER
RIPARIAN HABITAT
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3 : GOALS & STRATEGIES
82EAST MULBERRY PLAN
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Improve and increase appropriate public access to open spaces
and natural features.
Identify new areas for natural areas to purchase and explore future
opportunities to incorporate parks and recreational facilities within
the plan area.
Implementation Action Items:
6.4.1 Continue to provide environmental, recreational and
transportation benefits to the community through the
existing system of open lands.
6.4.2 Proposed parks and trails should continue to be
integrated with the Citywide system, including facilities in
the adjacent Mountain Vista and Poudre River areas.
Implementation Action Items:
6.5.1 Prioritize land conservation as a way of preserving
and improving interconnected systems of open space that
sustain healthy communities. As an example, the Cooper
Slough’s natural drainageways, wetlands, and wildlife
habitat will be preserved and protected.
6.5.2 The East Mulberry Plan Area will be served by parks,
multi-use trails, and other recreational facilities to support
existing and planned neighborhoods, and to integrate
with other facilities within the community.
STRATEGY 4
STRATEGY 5
Note on Fulfillment of this Strategy:
Preserving and enhancing appropriate and
equitable access to open spaces and natural features
recognizes the essential role that natural habitat buffers
have in creating and maintaining thriving communities.
Like other strategies in the Plan, fulfillment depends upon
annexation to apply the City’s preferred management
strategies.
Prior to Annexation: Work proactively with Larimer
County to provide input and referral comments to prevent
any decrease in access to the open spaces and natural
features beyond the existing conditions.
Note on Fulfillment of this Strategy:
Urban natural areas help to meet the need for increasing
everyone’s access to nature. Urban natural areas provide
islands of habitat in the urban environment that benefit
wildlife as well as people seeking a close-to-home
connection with nature. All urban natural areas serve
a stormwater function to reduce flooding in nearby
neighborhoods. Full realization of this strategy depends on
annexation.
Prior to Annexation: Time, location, and cost were
the three greatest barriers to increasing access to nature
identified in the “Plug in to Nature Study,” conducted in
Larimer County (Design Workshop 2012).
POUDRE RIVER TRAIL
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3 : GOALS & STRATEGIES
83EAST MULBERRY PLAN
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Increase urban tree canopy.
Implementation Action Items:
6.6.1 Protect and preserve trees wherever possible and
mitigate and/or plant trees beyond the minimum requirements
stipulated by the Fort Collins Municipal Land Use Codes
and Larimer County Street Standards to create healthy and
resilient people and tree populations.
STRATEGY 6
Note on Fulfillment of this Strategy:
Although the City can continue to work
proactively with Larimer County on referral
comments for projects within the East Mulberry
Plan Area, full implementation of this strategy
depends on when areas are annexed and under
City jurisdiction to implement them.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments that would limit larger changes to the
quantity and quality of the existing urban tree
canopy.
Trees as Community Infrastructure - Trees are essential
ecological, cultural and socioeconomic resources for the City,
its residents and visitors. The benefits provided by a diversified
and abundant community forest are many and include:
• Releasing oxygen and capturing air pollutants and carbon
dioxide;
• Maintaining slope stability and preventing erosion;
• Filtering stormwater and reducing stormwater runoff;
• Reducing energy demand and the urban heat island effect
through shading of buildings and impervious areas;
• Providing visual screening and buffering from wind, light,
and noise;
• Sustaining habitat for birds and other wildlife;
• Providing a source of food for wildlife and people;
• Maintaining property values; and
• Contributing to the community health, appeal, beauty,
character, and heritage of the City.
i
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3 : GOALS & STRATEGIES
84EAST MULBERRY PLAN
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
Support the persistence, visibility, and physical integrity of significant
historic places and cultural features that maintain a continuous sense
of place throughout the ongoing evolution of the plan area.
Implementation Action Items:
6.7.1 Existing man-made irrigation ditches and canals,
should be enhanced to provide multi-use trails where
feasible; including preservation of existing native vegetation,
addition of new native landscaping and trails, and utilization
of other site amenities to create an open lands system.
6.7.2 Identify historic resources of primary importance
and anticipate strategies for adaptive reuse while working
closely with and using input from community members to
identify cultural resources for preservation.
STRATEGY 7
ROSELAWN CEMETERY
SUPERMARKET LIQUORS
CHARCO BROILER
Note on Fulfillment of this Strategy:
Application of the City’s Municipal Code, Land
Use Code, and Design Standards and Guidelines
pertaining to historic buildings and structures is
dependent on areas being under City jurisdiction.
Prior to Annexation: Work proactively with
Larimer County to provide input and referral
comments that would limit larger changes to the
look and feel of existing neighborhoods as well as
impacts to historic resources.
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3 : GOALS & STRATEGIES
85EAST MULBERRY PLAN
6.A - Airpark
6.A.1 Incorporate naturalized stormwater features that align with the spirit of protecting natural
habitats as specified in the Land Use Code.
6.A.2 Promote nature-based solutions at the neighborhood level, including along parkways, trail
systems, and common areas.
6.A.3 Celebrate and enhance the history of the Airpark and its significance in the development of
Northern Colorado by recognizing and preserving remaining historic resources.
6.A.4 Support and incentivize urban design elements that create a cohesive character identity based
on the history of the Airpark area.
6.F - Frontage
6.F.1 Enhance the urban tree canopy and establish tree buffer zones along I-25 to mitigate noise and
improve aesthetics.
6.F.2 Promote the use of green infrastructure approaches, such as bioswales, rain gardens, and
urban forests, in public and private development projects.
6.F.3 Preserve recognizable historic buildings, site features, and signage of legacy businesses that
have contributed to the corridor’s commercial success.
6.N - I-25 Interchange
6.N.1 Maintain the existing 300-foot Natural Habitat Buffer Zone (NHBZ) along Cooper Slough.
6.N.2 Consider aligning future Urban Area Zones and stormwater master plans with the Natural
Areas department.
6.N.3 Enhance the urban tree canopy and establish tree buffer zones to reduce noise and enhance
aesthetic features.
6.N.4 Promote nature-based solutions at the neighborhood level along parkways, trail systems, and
common areas.
6.N.5 Use interpretive signage to recognize the agricultural, industrial, and commercial history of
the corridor as travelers enter from the highway.
Goal 6 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
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86EAST MULBERRY PLAN
6.E - Residential Estate
6.E.1 Ensure equitable access to natural areas in the western extent of this character area.
6.E.2. Continue to protect and buffer the remaining pockets of habitat features along the Cooper
Slough.
6.E.3 Enhance the tree canopy in this character area.
6.M - Residential Mixed
6.M.1 Continue to buffer and enhance Natural Habitat Buffer Zones in new development.
6.M.2 Promote nature-based solutions at the neighborhood level, such as along parkways, trail
systems, and common areas.
6.M.3 Ensure equitable access to natural areas along Cooper Slough.
6.T - Transitional / Mixed-Use
6.T.1 Incorporate nature-based solutions, such as greenways or stormwater features, with
naturalized and nature-based designs. Explore the creation of a green infrastructure corridor
along Dry Creek.
6.T.2 Consider equitable access to natural features and improve connectivity of trails.
6.T.3 Preserve and enhance natural habitat corridors along ditches and adjacent wetland features
to promote wildlife connectivity throughout this character area.
Goal 6 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 6: HISTORIC, CULTURAL, & NATURAL FEATURES
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87EAST MULBERRY PLAN
Goal 7 Improve the function and visual appearance of
the Mulberry & I-25 interchange and Mulberry
Street frontage as a gateway into Fort Collins.
MULBERRY GATEWAY
GOAL INTENT AND PURPOSE:
As a prominent entrance to the community and a
primary route to Downtown, Colorado State University,
and the Poudre Canyon many stakeholders expressed
a desire to create a better first impression for the plan
area and broader community – one that is visually
attractive, functional, and safe. The current I-25 &
Mulberry Interchange and the surrounding area features
a mix of jurisdictional authority between the City,
County, and Colorado Department of Transportation
that could benefit from a broader vision and standards
to promote aesthetic, transportation, and safety
improvements.
WHAT WE HEARD:
→Residents and businesses inside and
outside the East Mulberry Plan Area voiced
a desire for aesthetic improvements to the
gateway area around I-25 and along the
Mulberry Street frontage. A lack of formal
landscaping, sign clutter, and material
stockpiling and outdoor storage were
often cited as conditions that lowered
visual quality.
→Businesses want to ensure Mulberry Street
remains functional as a logistics and supply
route for businesses.
→Some residents and businesses share
concerns about the safety and efficiency
of navigating the corridor and the
interchange at I-25. Safety and ease-of-
use of the frontage roads and interchange
ramps should be improved or redesigned.
MULBERRY STREET
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3 : GOALS & STRATEGIES
88EAST MULBERRY PLAN
Implementation Action Items:
7.1.1 Develop an urban design and streetscape program to
provide design standards and guidance for future enhancements
within the Mulberry Street right-of-way and for improvements
along private property frontages abutting Mulberry Street and
the I-25 interchange.
7.1.2 Actively partner with CDOT, Larimer County, and other
stakeholders on the redesign of the I-25/Mulberry interchange.
Similar to other gateway interchanges, safety, multimodal
connectivity, and aesthetic/design enhancements should be
emphasized in preliminary design.
As a baseline, draw upon input provided by the community
regarding future gateway design elements. Based on 2019
community workshops on gateways, the future gateway design
elements should consider the design priorities described on the
following page.
7.1.3 In coordination with CDOT and the National Scenic Byway
program, enhance wayfinding and signage along the corridor to
identify important destinations such as Downtown, the Poudre
Canyon, and important local delivery routes serving Mulberry
businesses.
7.1.4 New development abutting the I-25/Mulberry interchange
will be required to meet the land use, transportation, and design
standards adopted as part of the I-25 Subarea Plan and the
Mulberry Activity Center.
GOAL 7: MULBERRY GATEWAY
Develop design standards and funding strategies for enhancements to
emphasize the I-25 interchange and Mulberry Street corridor frontage.
Note on Fulfillment of this Strategy:
While the City recently annexed the I-25 right
of way, the majority of Mulberry Street remains
outside Fort Collins jurisdiction which will
limit the application of City-specific goals and
standards.
Prior to Annexation: Prior to full annexation,
the City should begin to identify and budget
resources for design work, ongoing maintenance,
and key aesthetic enhancements to the
interchange and Mulberry Street frontage for
anticipated future reconstruction and capital
projects.
STRATEGY 1
See the Gateway Character Area in Section 2 for further guidance on
priority gateway design characteristics.
MOUNTAIN OPENINGS PUBLIC ART
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GOAL 7: MULBERRY GATEWAY
One of the largest opportunities for the I-25 Gateway will be the future reconstruction of the
Mulberry & I-25 interchange. Similar to other major gateways into the community, the City
should participate alongside CDOT and other corridor stakeholders to enhance the design of
the transportation infrastructure and surrounding streetscapes and landscapes. Based on 2019
community workshops on gateways, the future gateway design elements should consider the
following characteristics:
• Naturalized grading – Community members expressed a strong preference to prioritize naturalistic
qualities over more structural components, e.g., berming versus retaining walls. Where structural
elements are required, they should use natural materials such as stone.
• Landscaping – The gateway design and surrounding streetscapes should rely primarily on landscaping
elements to create a positive impression. Native landscaping and green edges of the right-of-way with
the potential for more formal plantings near interchange and street infrastructure, reminiscent of the
planters and flowers installed at the Mulberry Street bridge over the Poudre River.
• Welcome Signage – Community members voiced a preference for muted welcome signage similar to
what was constructed at the I-25/CO392 interchange that complements rather that competes with other
landscaping and design elements.
• Artwork & Sculpture – Artwork, patterns, and sculpture all received positive mentions by community
members as appropriate localized features within a gateway design.
• Themes – Additional outreach should be completed at the time the future interchange design is
underway. While naturalistic qualities are desired on a community-wide basis, there may be additional
opportunities to reflect Mulberry’s unique cultural and economic history as a center for industry,
aviation, agriculture, or the gateway to the Poudre Canyon as a scenic byway.
Design Priorities
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90EAST MULBERRY PLAN
GOAL 7: MULBERRY GATEWAY
Implement interim enhancements to improve the attractiveness
of the gateway and Mulberry Street frontage.
Note on Fulfillment of this Strategy:
A functional and attractive gateway will be the
result of actions taken on by both private property
owners and businesses, and the public sector and in
the public right-of-way. Incremental enhancements
are likely to occur over a number of years as private
properties develop and redevelop, while larger
functional changes to roadways and interchanges
are likely to require catalyst capital projects, such
as rebuilding the Mulberry and I-25 interchange.
Enhancements in the right-of-way such as
landscaping, street furniture, urban design elements,
and public art may require annexation into the City
or special funding partnerships with overseeing
jurisdictions prior to annexation.
Prior to Annexation: The City should continue
advocating and partnering with Larimer County
and CDOT to align site, building, and landscaping
requirements towards City standards along Mulberry
Street and the I-25 gateway prior to annexation.
Implementation Action Items:
7.2.1 When minor redevelopment and changes of use occur
along the interchange or Mulberry Street frontages, staff
should prioritize and emphasize aesthetic improvements as
part of the review process and site upgrade requirements.
The most impactful site enhancements will typically include
new/replacement canopy trees, replacing nonconforming
signage, and relocating or screening low visual quality site
areas like outdoor storage.
7.2.2 Replace or modify nonconforming or outdated signage
in the plan area to ensure compliance with City standards
and reduce visual clutter. Strictly enforce the City’s 7-year
sign amortization period after annexations occurs to
transition nonconforming signage to City standards.
7.2.3 As properties redevelop, billboards will generally
be required to be removed. Prior to redevelopment, the
City should explore financial incentives for voluntary
consolidation or removal of billboards in the corridor,
especially those located along ditch corridors where removal
through the development review process is unlikely to occur.
7.2.4 Expand the offering of City landscaping and
beautification programs to businesses and properties along
the Mulberry frontage prior to annexation. Programs such
as free mulch and the community canopy program provide
free resources to property owners to enhance on-site
landscaping and improve tree canopies.
7.2.5 When new development or catalyst projects occur
along the Mulberry Street frontage, encourage high quality
building and site design to set an enhanced style for future
development. New developments should focus on frontage
landscaping design, implementing an appropriate tree
canopy in an industrial/commercial context and building/
roof design variation and other design standards articulated
in the I-25 Subarea Plan for the Mulberry Activity Center.
STRATEGY 2
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91EAST MULBERRY PLAN
GOAL 7: MULBERRY GATEWAY
Balance desires for aesthetic improvements with the ongoing
role of the East Mulberry Plan Area as an industrial and
commercial hub with unique business needs and requirements.
Note on Fulfillment of this Strategy:
Areas within the East Mulberry Plan Area feature
a variety of industrial businesses that may include
outdoor storage yards, material stockpiling, and other
less attractive lower quality visual but otherwise vital
functions that support the entire community. Aesthetics
are just one important component of an overall gateway
strategy and should be provided with enough flexibility
so as not to compromise the plan area’s role for
industrial and commercial development.
Prior to Annexation: City and County staff and
decision makers should consider flexibility in adapting
community-wide development standards and
requirements to the context of the East Mulberry Plan
Area and its industrial and commercial businesses and
development history.
Implementation Action Item:
7.3.1 In new or redeveloping properties, shift lower quality
aesthetic site functions such as outdoor storage to the back
of properties when possible. In lieu of relocation, ensure
screening of lower quality visual areas on the front, public-
facing half of properties.
STRATEGY 3
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3 : GOALS & STRATEGIES
92EAST MULBERRY PLAN
7.A - Airpark
Not Applicable
7.F - Frontage
7.F.1 Create and establish a healthy tree canopy and improve other landscaping.
7.F.2 Consider providing incentives for the removal of billboards on private property.
7.F.3 To achieve goals related to aesthetic improvements for the Mulberry Street frontage, consider
enhanced screening for uses that involve outdoor storage.
7.F.4 Implement wayfinding to improve navigation.
7.N - I-25 Interchange
7.N.1 Improve wayfinding, signage, and landscaping to indicate the entrance to Fort Collins.
7.N.2 Remove pole signs.
7.N.3 Enhance the safety, aesthetics, and functionality of the I-25 interchange.
7.N.4 Create a healthy tree canopy and improve other landscaping.
7.N.5 Provide incentives for the removal of billboards on private property.
7.N.6 To achieve goals related to aesthetic improvements for the I-25 Gateway, consider enhanced
screening for uses that involve outdoor storage.
7. E - Residential Estate
Not Applicable
7. M - Residential Mixed
Not Applicable
7. T - Transitional / Mixed-Use
Not Applicable
Goal 7 SPECIFIC IMPLEMENTATION ACTION
ITEMS BY CHARACTER AREA
GOAL 7: MULBERRY GATEWAY
EXHIBIT A TO ORDINANCE NO. 162, 2023
Implementation4
Place Type Framework
Transportation Framework
Development Review Framework
EXHIBIT A TO ORDINANCE NO. 162, 2023
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EAST MULBERRY PLAN 94
PLACE TYPES IN THE EAST MULBERRY PLAN AREA
This section describes the recommended composition
of place types throughout the East Mulberry Plan Area.
Overall, the plan area is comprised of many place
types, again reflecting the diversity of land uses found
within this area. The residential neighborhoods north of
Mulberry, including Mosaic, Dry Creek, Buffalo Run, and
others are designated as Mixed Neighborhood. Mixed
Neighborhoods have principal land uses of single-
The Implementation Section explores more practically how the goals, strategies, and implementation action
items recommended within this plan could be accomplished. Within this section, there is a Place Type
Framework map that depicts future land uses, a Transportation Framework map that explores a potential
transportation network, a Development Review Spectrum to guide future development activity in the East
Mulberry Plan Area.
Implementation Introduction
The Place Type Framework will help guide land use
and development/redevelopment activity within the
East Mulberry Plan Area. The Place Type Framework
depicts place types for the entire plan area. Place types
are land use categories that are designated in the City
Plan, Fort Collins’ comprehensive plan. These place
types provide a framework for the ultimate buildout of
Fort Collins and help guide future land use decisions,
such as initial zoning when areas of the East Mulberry
Enclave are annexed. Place types are not zoning
districts but instead broader categories that focus on
the types of land uses and development intensities to
encourage.
However, place types can be correlated to City zoning
districts. The table within this section called “Current
City Zoning Districts and Corresponding Structure Plan
Place Types” further depicts the alignment between
Fort Collins zoning districts and City Plan Place Types.
Place Type Framework
The 2002 EMCP includes a Framework Plan that is
based primarily on zone districts that exist under
City zoning. Though this map has served well in
guiding land use decisions for the plan area, place
type designations can offer additional flexibility with
an annexation thresholds strategy where the timing
of annexation is unknown. In most cases, place types
closely align with existing land uses and, in some cases,
may better align with existing uses. When areas are
annexed in the future, upon annexation they will be
assigned one of the City’s zoning district designations.
Staff will consider both the underlying Larimer County
zoning designation as well as the place type guidance
to apply a City zoning designation.
In general, the key land use philosophies for the East
Mulberry Plan Area remain largely the same as they
are both in the 2002 EMCP as well as the 2019 City
Plan. This includes retaining the Mulberry commercial
frontage, preserving areas of industrial use, and
highlighting buffers that protect natural resources.
family homes, duplexes, triplexes, and townhomes in
a compact neighborhood setting. The three existing
Mobile Home Parks within the plan area (Nueva Vida,
Collins Aire, and the Villas) are included under the
Mixed Neighborhoods place type. Note that it is a
recommendation of this plan to designate Nueva Vida
as the Mixed Neighborhoods place type, as previously
stated.
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EAST MULBERRY PLAN 95
Place Type Framework
Suburban Neighborhood and Rural Neighborhood
The majority of the neighborhoods south of Mulberry
Street are designated as either Suburban Neighborhood
or Rural Neighborhood place types. The Pleasant
Acres and Boxelder Estates neighborhoods fall within
the Rural Neighborhoods place type. Note that it is
a recommendation of this plan to reassign Pleasant
Acres and Boxelder Estates to the Rural Neighborhoods
place type. Rural Neighborhoods have a principal land
use of single-family homes and agricultural uses. This
place type supports opportunities for rural lifestyles
and connectivity to open spaces. Use of this place
type supports and aligns with feedback collected from
residents within these neighborhoods who shared
that they most value the existing rural character of
their communities. The Suburban place type also has a
principal land use of single-family homes, but supports
suburban intensity levels as well as additional amenities
such as parks, recreational facilities and schools.
Suburban and Neighborhood Mixed-Use
Preservation of the commercial frontage along
Mulberry Street is a key element of the Place Type
Framework map. On the Place Type Framework map,
the areas along and immediately surrounding Mulberry
Street are designated as the Suburban Mixed-Use
place type. This place type primarily supports retail,
restaurants, and commercial services. The Suburban
Mixed-Use place type can include lower-intensity, auto-
oriented uses, which is the case for much of Mulberry
Street frontage. However, as infill/redevelopment
occurs in the long-term future of Mulberry Street,
this place type is also supportive of transit-oriented
development pattern if a high-frequency transit service
were to be implemented along Mulberry Street. Of note
is a small area near Mulberry Street and Greenfield
Court designated as the Neighborhood Mixed-Use
District place type. This place type principal land uses
include grocery stores, supermarkets, or other types of
retail like drug stores and neighborhood-serving uses.
The 2002 EMCP had also designated a Neighborhood
Commercial land use around this area, with the aim
of attracting a grocery store or other neighborhood-
serving retail function in this location. As described in
other sections of this plan, the plan area lacks retail
options that serve the daily needs of residents. By
designating this area as a Neighborhood Mixed-Use
District, it is still the intent of this plan to encourage
and attract retail uses such as a grocery store to serve
the growing residential population in the plan area.
TIMBERVINEBOXELDER ESTATES
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 96
Place Type Framework
Industrial and Research & Development (R&D) Flex
Other key place types that comprise the East Mulberry
Plan Area include the Industrial and Research &
Development (R&D) Flex Districts. As shown on the
Place Type Framework map, the Industrial District is
applied to the Airpark area as well as surrounding the
Mulberry and I-25 Interchange. The R&D Flex place
type is applied to the area northeast of the Airpark,
including the former runway/taxiways and the areas
near Timberline and International Boulevard. The
Industrial District place type supports land uses such
as manufacturing, assembly plants, warehouses,
outdoor storage yards, distribution facilities, as well as
flex space for smaller, local start-ups. Transportation
facilities in the Industrial District should promote the
efficient movement of commercial truck traffic that
supports and facilitates industrial function.
The R&D Flex District is one of the most flexible place
type designations and supports a wide range of light
industrial, employment, and commercial/retail land
uses. Application of the R&D place type is supportive
of Plan goals to remain a viable place for business
and industry and promote additional neighborhood
services and retail. This is particularly relevant for large
portions of the Transitional / Mixed-Use Character Area
which forms a bridge between established industrial
development and new residential neighborhoods. The
flexibility and range of uses within this place type make
it ideal to accommodate a variety of future functions
and land uses serving the needs of industrial and
residential users while applying more modern buffering
and compatibility development standards.
Parks and Natural/Protected Lands
The Parks and Natural/Protected Lands place type
is applied to many areas of the East Mulberry Plan
Area as shown on the Place Type Framework map.
This place type is used where the City has already
established ownership of land as an existing or
future park, natural area or green space, and in areas
bordering sensitive natural features and resources
where buffering standards in future development
will be required, such as along the Cooper Slough or
Poudre River. The principal land uses within this place
type as stated in City Plan include parks, open space,
greenways, natural areas, spaces for outdoor recreation,
agriculture, or community separators. South of Vine
Drive and northeast of the Airpark is Dry Creek. The
Airpark generally is located within the floodplain,
but the area surrounding Dry Creek is designated as
a high floodway. Designating the portion of the area
surrounding Dry Creek, as the Parks and Natural/
Protected Lands place type, is supportive of integrating
future stormwater/floodplain enhancements along
with environmental protection and transportation
enhancements. Multiple strategies in this plan speak
to incorporating natural features with floodplain
enhancement (See Goal 2).
RIVERBEND PONDSOUTDOOR STORAGE
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EAST MULBERRY PLAN 97
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EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 98
PLACE TYPES AND PLAN GOALS
Place type designations, as guided by City Plan, are intended to help realize the ultimate desired character and land
use for all areas within the Fort Collins Growth Management Area. The place types assigned to the East Mulberry
Plan Area closely align with the goals of this plan. Place type assignments are supportive of the strategies outlined in
Section 3 of this plan and collectively will serve in tandem to implement the vision of this plan.
Place Type Assignment or
Recommended Place Type Change
Alignment with Plan
Goals and Strategies
Reassign the areas north of the Kingfisher Point
Natural Area bordering Mulberry Street from
Suburban Mixed-Use District to Parks; Natural/
Protected Lands place type
Goal 6, Strategy 1 and 3
Protect and enhance existing natural habitats and features
like the Poudre River and the areas that surround it.
Assign the Nueva Vida Mobile Home Park to the
Mixed Neighborhoods place type
Goal 5, Strategy 2
Preserve and enhance existing mobile home parks.
Reassign the Pleasant Acres and Boxelder Estates
Neighborhoods from Suburban Neighborhood
place type to Rural Neighborhood place type
Goal 5, Strategy 1
Maintain similar land use and streetscape character in
established neighborhoods.
Apply the R&D Flex place type designation to
portions of the plan area near the Airpark
Goal 1, Strategy 2
Support the retention of existing industrial and agricultural
business uses.
Maintain the Neighborhood Mixed-Use District
place type near the Mulberry Street and Greenfield
Court intersection
Goal 4, Strategy 3
Designate areas for commercial development that support
the daily needs of residents and businesses.
Place Type Framework
RECOMMENDED PLACE TYPE CHANGES FROM CITY PLAN
The East Mulberry Plan is recommending several changes to place type designations within the plan area that will
require updates to the City Plan Structure Plan map. A recommended action item emerging from the adoption of
this plan is to update the Structure Plan map in City Plan to be consistent with these changes.
Most recommended changes to place types are minor and reflect changes such as:
• Project-specific rezonings or annexations occurring since the last Structure Plan Map update in 2019
• City-purchased properties for future natural areas
Other minor changes to place type designations include the following:
• Increase in commercial designations fronting the I-25 Interchange to better reflect existing uses in place. It is recommended
that these areas change from the Industrial place type designation to Suburban Mixed-Use District place type designation.
• Reassign the areas north of the Kingfisher Point Natural Area bordering Mulberry Street from Suburban Mixed-Use District
to Parks; Natural/Protected Lands.
• Assign the Nueva Vida Mobile Home Park to the Mixed Neighborhood place type (change from Suburban Mixed-Use
District).
• Reassign the Pleasant Acres and Boxelder Estates Neighborhoods from Suburban Neighborhood place type to Rural
Neighborhood place type to better reflect the established large lot residential character of these neighborhoods.
The most substantial change recommended as part of this plan update is to reassign a large portion of the area
surrounding the Airpark from the Industrial place type to the Research and Development/Flex District place type.
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 99
Place Type Framework
The table below illustrates the general alignment between current Fort Collins zoning districts and the place
types found in the City Plan Structure Plan Map. In some instances, there is a one-to-one relationship between
the current zoning districts and the corresponding Structure Plan place types (i.e., the Industrial zoning district
and the Industrial District place type). In other instances, there are multiple zoning districts that may correspond
with the purpose and intent of a particular Structure Plan place type (i.e., there are four zoning districts that
correspond to the Mixed-Neighborhood place type), or multiple place types that correspond with a zoning district.
Place types represent a broader approach to future land use guidance compared to zoning alone.
CURRENT CITY ZONING DISTRICTS CORRESPONDING STRUCTURE PLAN
PLACE TYPES
Residential
Rural Lands DIstrict (RUL)Rural NeighborhoodResidential Foothills District
Urban Estate District Rural Neighborhood or Suburban Neighborhood
depending on development context
Low Density Residential District (RL)Suburban Neighborhood
Low Density Mixed-Use Neighborhood (LMN)Suburban Neighborhood or Mixed- Neighborhood
depending on development context
Neighborhood Conservation, Low Density District (NCL)Suburban Neighborhood
Medium Density Mixed-Use Neighborhood District (MMN)
Mixed Neighborhood
Neighborhood Conservation, Medium Density District
(NCM)
Neighborhood Conservation, Buffer District (NCB)
High Density Mixed-Use Neighborhood District (HMN)
Commercial and Mixed Use
Downtown Downtown
Community Commercial District (CC)
Suburban Mixed-Use
Community Commercial District- North College District
(CCN)
Community Commercial District- Poudre River District
(CCR)
Service Commercial District (CS)
General Commercial District (CG)Urban Mixed-Use
Neighborhood Commercial District (NC)Neighborhood Mixed-Use
Limited Commercial District (CL)Downtown; Suburban Mixed-Use
Employment and Industrial
Employment and Industrial Mixed Employment; R&D FlexEmployment District (E)
Industrial District (I)Indistrial, R&D Flex
CURRENT CITY ZONING DISTRICTS AND CORRESPONDING STRUCTURE PLAN PLACE TYPES
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 100
Place Type Framework
PLACE TYPES AND UNIQUE USES WITHIN THE EAST MULBERRY PLAN AREA
As previously mentioned, this plan has assigned place
types rather than prescribing Fort Collins zone districts
to the East Mulberry Plan Area, namely because the
broader place type categories are better suited to
flexibly accommodate the diversity of unique land use
types that already exist in the plan area. Also, place
types can help guide general land use decisions as the
plan area grows and changes over time, particularly
for places where new development or redevelopment
is expected. In these areas that will evolve and change,
it does not make sense to assign a zone district until a
more concrete vision for land use is known.
It was also previously noted that as areas of the East
Mulberry Plan Area may be annexed through threshold
annexations, they will be assigned to a City zone
district upon annexation. It is anticipated that zone
districts will remain aligned with existing Larimer
County zoning and with a zone district consistent with
the assigned place type. This is particularly important in
meeting this plan’s goal to preserve existing industrial
areas by zoning them appropriately when they come
into the City through annexation. However, there are
some existing uses within the East Mulberry Plan
Area that are not currently allowed within the City’s
industrial zone district, or any other City zone district.
These include many of the long-standing agricultural
service businesses located around the Mulberry and
I-25 Interchange such as livestock auctions or livestock
meat processing. If these areas were to be annexed into
the City, they would receive a ‘lawful, non-conforming’
status.
Future Viability of the Agricultural Service Uses
The Fort Collins Land Use Code defines nonconforming
uses as a use which was lawful immediately before
annexation, but which does not conform to the use
regulations for the zone district in which such use is
located at the time of annexation. Nonconforming
uses have limitations as directed in the Land Use
Code, including that the expansion or enlargement
of existing buildings shall not add more than 25% of
new floor area. To preserve and support the future
viability of the agricultural service uses surrounding
the interchange that would be non-conforming, it
is the recommendation of this plan that additional
permitted uses be added to the City’s Industrial zone
designation. At the time that these areas surrounding
the interchange experience a threshold annexation, a
simultaneous amendment to the Land Use Code should
be put forward to add these uses within the Industrial
zone district, the zone designation that would likely be
applied to these areas.
Proximity Based Standards
It is recommended that this addition of uses to the
Industrial zone district be accompanied by proximity-
based standards. Proximity-based standards are a tool
that can be used to allow uses only in the industrially
zoned land within a certain specified geographic
area. In this case, these uses are concentrated in the
northwest quadrant of the interchange. Therefore, the
proximity-based standards could specify that certain
additional uses be allowed in the Industrial zone district
within a certain distance from the I-25 and Mulberry
Interchange. The exact uses to be added and the
appropriate distance determination should be evaluated
at the time of annexation. This can help ensure that
existing businesses offering meat processing, livestock
auctioning, and other agricultural service uses remain
in their current locations near the interchange without
a non-conforming status following annexation. The
proximity-based standards can also ensure that these
types of uses, which are appropriate in their current
context, but may not be appropriate in other areas, are
not allowed within other parcels across Fort Collins with
an Industrial zone designation.
AGRICULTURE SERVICE USES
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 101
Transportation Framework
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EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 102
Transportation Framework
Summit View Drive
Summit View Drive is an important connection between Prospect Road and Mulberry
Street. It is indicated on the Transportation Framework map as a potential area for
multimodal augmentation or enhancement from Prospect northwest across Mulberry
to Lincoln Avenue. Summit View Drive currently has no sidewalks or bike lanes.
Inclusion of some infrastructure that could safely accommodate other modes without
compromising the rural character of this street should be explored.
Link Lane (between Mulberry Street and Lincoln Avenue)
• The mix of uses, character, and development pattern along Link Lane is the most
reminiscent of a commercial “main street” atmosphere within the corridor. With
some infrastructure augmentation, this street could be more conducive as a
walkable or bikeable corridor, adding a north-south connection between Mulberry
Street north to Lincoln Avenue. Further study to determine appropriate types of
augmentation is needed.
The Transportation Framework map depicts connectivity needs, proposed streets for augmentation,
and areas that require future evaluation and improvement. Like other aspects of the Plan, the timing and
implementation of many of these proposed strategies are dependent on annexation and available resources at
that time. Because the existing streets in this area are deficient both in condition and multimodal infrastructure
(see the Surface Conditions of Roads Map in Section 1 of the Plan), the general philosophy of the Transportation
Framework is to address priority and interim needs. In the long-term, it is assumed that streets in the plan area
will meet Larimer County Urban Area Street Standards (LCUASS). To reach full LCUASS standards represents
a substantial investment of resources, therefore, many of the improvements captured on the Transportation
Framework map represent augmentation opportunities that may not meet full LCUASS standards but offer a way
to enhance streets with safe and convenient multimodal connections in a more interim capacity. This approach is
further described under Goal 3, Strategy 1. Some of the areas identified on the Transportation Framework map in
the “Multimodal Augmentation & Enhancements” category include:
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 103
Transportation Framework
Mulberry Frontage Roads
• One concept that requires further analysis and collaboration with CDOT and other
stakeholders would be to explore building shared use paths along the medians
between Mulberry Street and the adjacent frontage roads. If feasible, this concept
could offer a way to integrate multimodal infrastructure that is separated from the
fast-moving traffic of Mulberry Street. This concept is included in the Active Modes
Plan. See also Implementation Action Item 3.2.4 under Goal 3.
The Transportation Framework map also indicates
Future Capital Projects. Capital Projects in this case
would be larger scale infrastructure enhancements that
would be permanent changes to the characteristics
and function of these roadways. One potential future
Capital Project identified would be to continue the
same street cross section on Lincoln Avenue from
Lemay to Summit View. The City of Fort Collins
improved the Lincoln Avenue Corridor between
Riverside and Lemay, incorporating a buffered bike
lane, landscaped medians, improved sidewalks, and
integrated transit stops with bus pull-outs. These
conditions do not continue beyond the roundabout
near Cordova Road and there are no sidewalks or
designated bicycle infrastructure on Lincoln Avenue
through the remainder of the plan area. When
considering future improvements to Lincoln Avenue
east of Cordova Road, the design alternatives and
concepts explored in the Lincoln Corridor Plan should
be consulted so that continuous conditions from
Lincoln Avenue to the west can be maintained as
much as feasible. Future improvements to the segment
of Lincoln Avenue within the plan area as well as
other streets containing transit stops should consider
potential transit stop improvements or enhancements.
The continuation of International Boulevard is identified
on the Transportation Framework map as another
Future Capital Project. At the time of this plan’s
publication, International Boulevard currently exists
in a short segment between Timberline and Bannock/
Toronto Street in the Dry Creek neighborhood. From
the Dry Creek neighborhood, the ultimate alignment of
International Boulevard would connect with Cordova
Road at the most northwest corner of the Airpark
area. International Boulevard from Timberline Road
would then jog slightly north and continue eastwards
just below the Bloom and Mosaic neighborhoods.
A direct connection northeast from Airpark Drive
across the former runways/taxiways to International
Boulevard should be considered during future Master
Street Plan updates to improve connectivity to/from
the Airpark. The Dry Creek, Timbervine, and Collins
Aire neighborhoods have no access to the Airpark
without first traveling east to Timberline, then into the
Airpark via Lincoln Avenue. This potential connection
is indicated on the map as “Connectivity Needs” and
should be evaluated through further study.
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 104
Transportation Framework
Also overlaid on the Transportation Framework
map is a network of proposed trails. Many of the
proposed trails shown are consistent both with what
was previously depicted on the 2002 East Mulberry
Corridor Plan Framework Map, as well as with the City’s
2013 Paved Recreation Trail Master Plan. Following
publication of this plan, the City will be performing
an update to the Strategic Trails Plan. That plan will
include the East Mulberry Plan Area and should be
consulted for guidance on integration of future trails
within this area.
Many of the concepts put forward on the
Transportation Framework map represent opportunities
and ideas to further augment the transportation
network of the East Mulberry Plan Area. These
concepts would represent substantial change and
would be accompanied by substantial costs to
implement. The depth and breadth of analysis required
to evaluate and explore these concepts cannot be
accomplished through just this plan. Therefore, a
key recommendation of the East Mulberry Plan is to
complete a transportation-specific plan for the East
Mulberry Plan Area to understand and address the full
set of needs. Part of this effort would be to identify
funding and resources for a transportation-focused
plan prior to when this area may be annexed in the
future. See Goal 3, Strategy 3.
Specific areas within the East Mulberry Plan Area that
will require additional evaluation are indicated on
the Transportation Framework map as “Evaluation
& Improvement Areas”. A few specifically identified
areas for further study include the intersection
around Mulberry Street, Lincoln Avenue, Timberline
Road, and Summit View Drive. The Mulberry and
I-25 Interchange is another area identified for further
study, including the evaluation of this area for a future
mobility hub. Mobility hubs are meant to provide a
seamless connection between transit and other modes
of transportation and are intentionally located in key
areas where the transit network intersects with other
components of the transportation system. Mobility
hubs can combine features like park-and-rides, bike
parking, microtransit such as scooters, and enhanced
transit shelters, amongst other elements.
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 105
The Mulberry Corridor’s built environment spans multiple jurisdictions and over 70 years of varying development
standards. The corridor still lacks a consistent pattern of development, and in many locations, basic health
and safety infrastructure such as sidewalks, curb and gutter, and drainage networks. While new greenfield
development in the plan area is expected to meet all modern development standards, as existing sites undergo
changes in business activity or partial redevelopment, challenges remain in determining and prioritizing site
upgrades. While the overarching goal is to bring properties closer to modern standards, this must be balanced
against both a proportionate level of change to the site and while being mindful of corridor goals to maintain
a unique and affordable location in the community for industrial and commercial businesses. With these goals
and challenges in mind, the Development Review Spectrum was developed to guide future development and
redevelopment activity for annexed properties within the plan area.
EXISTING CHALLENGES TO DEVELOPMENT
BILLBOARDS
NEIGHBORHOOD FLOODING
SIDEWALK DEVELOPMENT
Development Review Framework
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 106
The Development Review Spectrum highlights typical requirements and areas of flexibility for site upgrades
within the City of Fort Collins’ development review process. It is called a spectrum because it is organized
by the level of review for different configurations of site and building upgrades, from lowest level of
requirement to highest level of requirement. The purpose of the Development Review Spectrum (the
spectrum) is to provide a structured and strategic approach for revitalizing and improving properties over
time as they come through the City’s Development Review process. It serves as an informational guide
or roadmap for stakeholders involved in the redevelopment process, such as staff and decision-makers,
developers, community organizations, and residents. The intent of the spectrum is to respond to context-
specific needs by taking into account unique characteristics, challenges, and opportunities of the specific
area being developed. The spectrum should be used alongside Plan strategies and a site’s character area to
identify priorities and flexibility for incremental site upgrades when appropriate based on site context and
the proposed level of review.
Key objectives of the spectrum include:
1. Establish Priorities: It establishes clear goals for the redevelopment of the area, outlining what the
desired outcome and future state of the area should be.
2. Preserve Flexibility: The spectrum recognizes that different contexts may require different
implementation strategies. It outlines land use strategies that help shape the physical layout and
character of the redevelopment area. By utilizing the place types approach, the framework allows
for adjustments and adaptations as needed to ensure future annexation projects align with changing
conditions and can respond to current needs.
3. Respond to Context Specific Needs: The spectrum considers strategies and character area
priorities to identify priority enhancements in the corridor (e.g. parking, urban design, and aesthetic
improvements along the Mulberry Frontage or near the I-25 gateway).
4. Identify Infrastructure and Service Needs: The spectrum identifies the infrastructure and service
requirements that are specific to the area. It considers gaps, and potential requirements under interim
conditions to ensure infrastructure and services can meet immediate and long term goals of the plan
area.
By providing a structured framework, site improvements can be carried out in a coordinated and cohesive
manner, maximizing the positive impact on the area while addressing community needs and aspirations.
Development Review Framework
DEVELOPMENT REVIEW SPECTRUM
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 107
Development Review Framework
DEVELOPMENT REVIEW SPECTRUM
HIGHEST
REQUIREMENT
LOWEST
REQUIREMENT
Change of Use
(and/or Change of
Business)
Minor additions and site enhancements
(i.e. <1,500 (+/-) sf building addition,
changing parking lot)
Significant change in
character to site (i.e. building
addition or reconfiguration)
Greenfield
development, total site
redevelopment
STORMWATER, FLOODPLAIN, EROSION CONTROL
Adding or modifying 1,000
sf or more of impervious
surfaces requires meeting
stormwater detention, water
quality, and low impact
development standards.
• Additional requirements may be linked to
other site plan requirements or standards
(e.g. paving parking areas).
• If there is lack of an adequate outfall, the site
may need to over-detain.
Meets all Development Code
Standards for stormwater
quality, detention, erosion
control, and floodplain
management.
Meets all Development
Code Standards for
stormwater quality,
detention, erosion
control, and floodplain
management.
LANDSCAPING & FORESTRY
Inventory onsite trees • Replace any dead trees.
• Mitigation for any removed trees.
• Install new/missing trees in street parkways.
• Soil amendments and water conservation
considerations.
Full tree stocking throughout
the site.
Meets all Development
Code Standards
PARKING & WALKWAY CONFIGURATION
• Ensure required amount of
general, handicap parking
spaces.
• Add bicycle parking.
• Reconfigure and delineate parking areas.
• Augment parking lot landscaping and
screening.
• Ensure adequate covered bike parking.
• Create formal or informal on-site walkway
connections.
• Direct walkway connection from
building to the street.
• Interior and perimeter parking
lot landscaping standards met.
• May require moving parking
areas on site.
Meets all Development
Code Standards
ENVIRONMENTAL & HISTORIC RESOURCE PROTECTION
Survey onsite resources as pre-
submittal requirement, if data is
missing.
• New lighting fixtures meet lighting standards
(4 more fixtures requires full site lighting
review).
• Establish any required natural habitat buffer
zones and considerations for mitigation.
• New development abutting historic resources
meets design compatibility requirements.
• Enhance the natural ecological characteristics
of the site by focusing native seed mixes and
weed management plans based on site specific
conditions.
• Ecological Characterization
study.
• Replace/ensure all lighting
meets lighting standards.
• Onsite Historic Resources
comply with alternative
mitigation requirements if not
adaptively reused.
• Meets all Development
Code Standards
• Onsite Historic Resources
are adaptively reused,
and design compatibility
requirements met
TRANSPORTATION & FRONTAGE IMPROVEMENTS
Repair or replace damage to any
existing frontage improvements
(e.g. sidewalks)
• Dedicate any necessary right-of-way.
• Traffic Study or Memo may be required.
• Minor frontage improvements (Replacing
sidewalks, curb & gutter).
• Full frontage improvements:
curb & gutter, sidewalk,
parkway.
• Traffic Study or Memo may be
required.
Meets all Development
Code Standards
SITE DESIGN & AESTHETICS
• Replace nonconforming
signage.
• Replace dead landscaping.
• Screened trash/recycling
enclosure.
• Define/reconfigure parking areas.
• Parking paving may be required (front, publicly
visible, or high-use areas).
• Parking lot landscaping/screening.
• Building addition meets LUC building design
standards.
• Walkways out to public right
of way.
• Parking lot meets LUC
standards.
• New buildings/additions meets
LUC building standards.
Meets all Development
Code Standards
UTILITIES & DEDICATIONS
Utility easement behind side-
walk/street right-of-way may be
required.
• Additional utility easements may be required
for new utility installations.
• Ensure fire separation and emergency access
requirements met.
• Ensure proper utility separation requirements
met for newly installed utilities.
New tap or capital expansion fees
for additional utility services need-
ed (e.g. new dwelling units).
Meets all Development
Code Standards
Requirements are cumulative & incremental; e.g. ‘Highest Requirement’ includes all previous criteria.
EXHIBIT A TO ORDINANCE NO. 162, 2023
4 : IMPLEMENTATION
EAST MULBERRY PLAN 108
There are many types of development activity which may
prompt the development review process and potential
site upgrades. This spectrum of development intensity
spans from simple changes of use as one business moves
into a new space all the way to total site redevelopment
or new greenfield development. Between both ends
are more common types of proposals that may involve
site reconfiguration or building expansions. In these
middle scenarios there are often areas where staff and
decision-makers can apply flexibility and or alternative
prioritization of site upgrades that are more appropriate
to the context of the East Mulberry Plan Area or which
further Plan goals.
The table on the previous page highlights some of
the common site upgrades and enhancements that
may be required based on different levels of proposed
development or redevelopment intensity. Each site
and type of development proposal is unique, and the
spectrum is meant as a guide to help property and
business owners understand potential requirements when
a site enters the development review process. For staff
and decision-makers, both the spectrum and the priority
section for each character area include high priority
enhancements that are recommended based on a site’s
location within a specific Mulberry Character Area. Given
the plan area’s lack of consistent development patterns
and need to prioritize different site upgrades based
on character areas, this plan encourages future staff
and decision-makers to collaborate with property and
business owners on incremental site improvements that
help maintain the plan area’s unique and affordable role
in the community.
Development Review Framework
UNDERSTANDING POTENTIAL SITE UPGRADES AND ENHANCEMENTS
The Development Review Spectrum and the requirements
contained within would be applied when the City has
annexed an area into City jurisdiction and a property has
entered the City’s development review process. These
requirements would not apply to established sites that are
not making changes to their properties or performing any
of the types of activities contained in the Development
Review Spectrum.
The spectrum provides policy guidance for how
development review may be performed within the East
Mulberry Plan Area. In many cases, requirements must
meet existing code standards as prescribed in the Land
Use Code, but code changes that would assist in enacting
these standards should be considered following adoption
of this plan. City staff and decision makers should also
use the spectrum to support flexibility for redeveloping
sites in the plan area through prioritizing certain site
upgrades or deferments when allowed by the Land Use
Code or through modification or variance procedures
when it can be demonstrated the proposal advances
goals and strategies of this plan.
Sites within the East Mulberry Plan Area that develop
or redevelop in Larimer County and do not initiate an
annexation threshold will likely still be referred from the
County to the City for comment. City staff will continue to
coordinate review on development activity with Larimer
County staff.
EXHIBIT A TO ORDINANCE NO. 162, 2023
5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 109
Annexation
Thresholds5Approaches to Annexation
Annexation Threshold Approach
Ongoing Management of East
Mulberry Plan
EXHIBIT A TO ORDINANCE NO. 162, 2023
5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 110
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.
Intergovernmental Agreement with Larimer County:
In addition to the C.R.S., 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 City
and Larimer County will coordinate these agreements.
As previously described, 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. This is consistent with the third bullet,
‘Annexation of Enclaves’ below.
i
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.
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.
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.
Colorado Revised Statutes (C.R.S) Title 31
Approaches to Annexation
EXHIBIT A TO ORDINANCE NO. 162, 2023
5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 111
When the East Mulberry Enclave became eligible for
involuntary annexation in 2021, the City began to examine
various approaches for potential annexation. This included
robust study of the fiscal impacts of a potential annexation,
review of opportunities and tradeoffs associated with
potential annexation, and consideration of lessons learned
from the City’s previous annexations. With direction and
guidance from City Council over a series of work sessions,
staff iterated these potential approaches and requests
for additional analysis. This work culminated in bringing
forward a new approach called ‘annexation thresholds’.
→Annexation thresholds are a set of conditions
that when reached, may represent an opportune
time to consider annexation.
This map depicts the enclave and plan area. Under the
threshold approach, the enclave would be brought into city
limits incrementally in the approach described in this section.
Annexation Thresholds
In considering the approaches to potential
annexation, the City studied fiscal impacts
of annexing five subareas within the
East Mulberry Enclave. An Excel-based
scenario modeling tool was developed
to study the fiscal impacts of various
phasing, sequencing and funding options.
A more detailed overview of these
financial considerations is available
in Appendix B and the fiscal impact
evaluation and modeling tool prepared by
consultant Economic & Planning Systems
(EPS), is provided as Appendix C.
No specific financial scenarios have
been developed based on a threshold
annexation. However, the process and
approach previously utilized to study
fiscal impacts would be replicated when
analyzing annexation threshold scenarios.
Financial Evaluation Framework$
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EAST MULBERRY PLAN 112
Threshold Categories
Annexation Criteria & Readiness
Identifying Thresholds
Monitoring/Managing Thresholds Long-Term
Combining Thresholds
Annexation thresholds are a approach to annexation that has not previously been implemented by the
City. Implementation of the thresholds approach means that City Council will evaluate each potential
annexation threshold scenario individually as they arise. This creates a series of decision points for City
Council over an extended time horizon. This approach will require ongoing monitoring, management, and
consistent application of analysis techniques to be replicable over time. The following sections discuss
how thresholds may be categorized, identified, and monitored.
pg. 113
pg. 114
pg. 115
pg. 116
pg. 119
pg. 117
pg. 120
→& Threshold Alignment with Citywide Priority or Goal
Maintenance of Logical Boundaries
Achievement of Citywide Policy Priority
External Funding & Capital Project Alignment
Annexation Threshold Approach
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EAST MULBERRY PLAN 113
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.
CATEGORY:
The following factors could indicate a threshold has been reached:
• There are multiple, individual properties
under both City and Larimer County
jurisdiction in close proximity.
• Properties in one jurisdiction may
be partially or mostly surrounded by
properties in the other jurisdiction.
• Primary access to properties occurs
through/from the other jurisdiction.
• Isolated parcels in one jurisdiction occur
across logical demarcation points, such as
streets, ditches, and natural areas.
Threshold categories were formulated through study of
existing land use and 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.
It is essential that the approach to threshold annexations is in alignment with City of Fort Collins citywide
priorities and goals for consistency in managing growth. The table below 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.
→Alignment with Citywide Priority or Goal
Annexation Threshold Categories
→Alignment with
Citywide Priority
or Goal
• 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.
Maintenance of
Logical Boundaries
Achievement of Citywide
Policy Priority
External Funding & Capital
Project Alignment
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EAST MULBERRY PLAN 114
Achievement of Citywide Policy Priorities
• Proactive Resource Protection
• Redevelopment Risk
• Other Proactive/Strategic Goal Alignment
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.
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.
Examples may include:
• Applying the City’s zoning authority to
help preserve and protect manufactured
housing communities or other naturally
occurring affordable housing from
potential redevelopment and resident
displacement.
• Protecting sensitive natural features such
as the Poudre River or Cooper Slough by
applying the City’s buffering standards.
• Forming an urban renewal authority to
catalyze development and infrastructure.
• Purchasing property for City amenities
and services (e.g., parks, natural areas,
recreational facilities, stormwater
detention, and more).
→Alignment with Citywide Priority or Goal
Proactive Resource
Protection
• City Plan Principle LIV 9: Encourage development that reduces impacts on natural
ecosystems and promotes sustainability and resilience.
• City Plan Principle ENV 1: Conserve, create and enhance ecosystems and natural
spaces within Fort Collins, the GMA and the region.
• Strategic Plan Strategy 4.6: Sustain and improve health of the Cache la Poudre River
and all watersheds within Fort Collins.
Redevelopment Risk • City Plan Principle LIV 4: Enhance neighborhood livability.
• City Plan Principle LIV 5: Create more opportunities for housing choices.
• City Plan Principle LIV 6: Improve access to housing that meets the needs of
residents regardless of their race, ethnicity, income, age, ability or background.
• Strategic Plan Strategy 1.8: Preserve and enhance mobile home parks as a source of
affordable housing and create a safe and equitable environment for residents.
Other Proactive/
Strategic Goal
Alignment
• City Plan Principle EH 3: Support local, unique, and creative business.
• City Plan Principle EH 4: Ensure that an adequate and competitive supply of space
and/or land is available to support the needs of businesses and employers of all sizes.
• City Plan Principle T12: Build and maintain high-quality infrastructure that supports all
modes of travel.
• City Plan Principle T4: Pursue regional transportation solutions.
• City Plan Principle T9: Utilize the transportation system to support a healthy and
equitable community.
• City Plan Principle T10: Support and enhance safety for all modes.
• City Plan Principle LIV 10: Recognize, protect and enhance historic resources.
CATEGORY:
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5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 115
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. There could also
be Federal funding opportunities where the City could coordinate
or partner on a grant application with the County and agree to
annexation upon award or completion of the project depending on
the goals of each agency.
The East Mulberry area also falls within a “qualifying census tract”
that may exempt projects from requiring matching funds. This is an
important consideration for Capital Projects since that is often the
limiting factor in grant applications. Also, in cases where multiple
capital projects either within or directly impacting the East Mulberry
corridor are able to be consolidated into one logical geographic
annexation action.
Projects that might be eligible for funding opportunities may include:
• Transportation or pedestrian/
bicycle planning and infrastructure
improvements
• Stormwater infrastructure
improvements
→Alignment with
Citywide Priority
or Goal
• City Principle EH 5: Engage and help shape regional economic efforts.
• Strategic Plan Strategy 6.4: Support and invest in regional transportation
connections.
CATEGORY:
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5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 116
Thresholds may occur independently, or some thresholds may be logically combined together when
appropriate. For example, a voluntary annexation that occurs through development activity within the
enclave may contribute towards creating illogical jurisdictional boundaries that make provision of services and
enforcement responsibility challenging (Maintenance of Logical Boundaries Threshold). When examining that
threshold and the potential annexation area, it could be determined that a nearby property with sensitive natural
features could also be studied for inclusion in the annexation area. Inclusion of this sensitive natural feature would
advance City policy priorities for preservation and protection of natural features and their associated buffers
(Achievement of Citywide Policy Priorities Threshold). This hypothetical example of how multiple thresholds can
be combined to determine the potential annexation boundaries is depicted in the series of diagrams below.
Combining Annexation Thresholds
DIAGRAM KEY:
CITY LIMITS
ENCLAVE
WATERWAY
NATURAL
RESOURCE
BUFFER
DEVELOPMENT
PROPOSAL
BOUNDARY
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5 : ANNEXATION THRESHOLDS
EAST MULBERRY PLAN 117
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.
Creation of Annexation Transition Committee
(see following page for more details)
Other indicators of annexation readiness:
When examining annexation thresholds and determining potential annexation boundaries for
further study and evaluation, the following should also be considered:
Annexation Threshold Criteria and Readiness
Examination of these criteria can be further evaluated in ‘Strategies for Monitoring Annexation Thresholds’ on page 120.
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. Per
CRS, Annexation Transition Committee
is required in cases of enclaves in which
the population exceeds 100 persons and
contains more than 50 acres.
• 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.
There are criteria set forth in
Section 31-12-104, of the C.R.S. that
determine eligibility for annexation:
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EAST MULBERRY PLAN 118
An Annexation Transition Committee will be formed
each time the size of the potential annexation area
meets the criteria of having a population of more
than 100 persons and contains more than 50 acres.
Committee members representing those that live, work,
or own property within the potential annexation area
will serve on one committee and will be excused from
the committee upon completion of each annexation or
City Council decision to not pursue annexation.
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, regardless of the size of area to be potentially annexed and the
size of the population within this area. Following the first threshold annexation, the committee members representing the City of
Fort Collins and Larimer County should continue to serve on the committee, even if there are no immediate subsequent threshold
annexations. If any City or County staff representatives are no longer able to fulfill their committee role for subsequent annexations,
new staff representatives should be designated. Committee members representing those that live, work, or own property within the
potential annexation area will be excused from the committee upon completion and recording of each annexation.
It is recommended that future annexation thresholds that meet the specified parameters of 100 persons and containing more than 50
acres formulate annexation transition committees per annexation. Subsequent smaller threshold annexations in which the potential
annexation areas do not meet the parameters of 100 persons and 50 acres will not formulate committees that include the five
community members. However, the City and County committee members should continue to coordinate, particularly on appropriate
notification strategies to maintain communication with the residents and businesses within the potential annexation area.
As described in the Actions After a Threshold Has Been Identified section, a neighborhood meeting is still recommended to be held
with the residents and businesses within the potential annexation area in the case of every potential threshold annexation. This will
offer a means of communication for those impacted by smaller threshold annexations without an annexation transition committee.
Annexation
Transition
Committee
The Annexation Transition Committee (ATC)
shall be composed of nine members:
• 5 members represent residents, operate a
business, or own property within the enclave;
Representatives to be selected through via an
application process and collectively by the staff
representatives from the City of Fort Collins and
Larimer County. Representatives from other parts
of the East Mulberry Enclave could be invited
to participate if there is not sufficient interest in
serving on the committee from within the potential
annexation area.
• 2 members represent the City of Fort Collins;
Qualified staff representatives selected by the
director of the Community Development and
Neighborhood Services department.
• 2 members represent Larimer County
The Larimer County Community Development
Director should select two qualified staff
representatives from Larimer County.
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.
MORE DETAILS ...
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EAST MULBERRY PLAN 119
What happens when a
threshold has been identified?
Analysis shared with Decision Makers to identify timing options and whether to pursue annexation
Staff may initiate annexation proceedings immediately or delay effective date of annexation to align with budgeting and resource availability
Neighborhood meeting with residents and businesses within potential annexation area
Adjust Threshold
Annexation
boundaries as
needed based on
results of analysis
6 month period
• Financial analysis
• Evaluate condition and
existing maintenance
activities of streets and
other infrastructure
• Inform residents and
businesses of service
provider changes and
anticipated fees
• Staff to continue gathering
feedback
• Formulate Annexation
Transition Committee as
applicable
Staff identifies potential annexation boundaries based on the type of
threshold or thresholds that have been reached. Using these potential
annexation boundaries, staff conducts a neighborhood meeting with
nearby residents and businesses to share information about a potential
annexation and to collect initial input. Following the neighborhood
meeting, a six-month analysis period is initiated. During this period, the
following activities should occur:
→Staff performs financial analysis to understand impacts and resources
required for annexation. This financial analysis will utilize the same
framework that has been used in the evaluation work conducted so far.
Based on the financial analysis, adjustments to the potential annexation
boundaries are made as needed.
→When required, formulation of the annexation transition committee
should be initiated at the beginning of the six-month analysis
period so that committee members representing residents, business
representatives, or property owners can be recruited and onboarded
to the responsibilities of their role. This will allow adequate time for the
annexation transition committee to be prepared to serve their duties
as dictated in the C.R.S. if decision-makers decide to proceed with
annexation.
→Staff will also perform analysis on the condition and evaluate
the existing maintenance activities on streets within the potential
annexation boundaries, working closely with Larimer County. City staff
can perform additional outreach to inform stakeholders of options
related to the formation of SID’s, GID’s, BID’s and other mechanisms
for bringing streets up to LCUASS standards. One objective of this
additional outreach would be for staff to educate stakeholders about
how roadway maintenance is performed currently and how full ongoing
maintenance by the City could be achieved. This may help to more
appropriately set expectations.
→The waiting period will allow the City to continue informing residents
and businesses in the affected area about changes to service providers,
fees, and other changes to expect upon the date of effective annexation.
→Staff can continue to gather input from affected residents and
businesses related to the potential annexation and their concerns.
Staff analysis and stakeholder input is shared with City Council and
Planning & Zoning Committee members to identify if a threshold has
been reached, timing options, and 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.
Identifying Thresholds for Annexation
Staff identifies potential annexation boundaries
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EAST MULBERRY PLAN 120
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:
Strategies for Monitoring Annexation Thresholds
As described previously, even with a threshold approach 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 beginning of this Section,
the processes by which property owners or electors can petition for annexation of the enclave or an annexation election can still
occur. Successful pursuit of either of those two actions could result in the annexation of the entire enclave before the natural
progression of annexation thresholds occurs to completion.
Monitoring Reports
Every two years, compile information on the
enclave related to individual annexations,
upcoming capital or master planning projects,
redevelopment activity, research on existing
signs and billboards, 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.
i
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EAST MULBERRY PLAN 121
The updated East Mulberry Plan and the proposed threshold annexation structure represents a
new approach towards annexation and a slightly less traditional subarea plan document than some
of Fort Collins’ other subarea plans. Unlike other subarea plans, the East Mulberry Plan covers an
area largely outside of City Limits. Many of the implementation actions suggested through the Plan
are dependent upon these areas coming into City jurisdiction through potential future annexation.
For this reason, the goals and strategies contained within the Plan attempt to successfully balance
enough specificity to lay a foundation for the desired future of the East Mulberry Plan area, while
also remaining nimble and adaptable to the evolution of this area over time. Successful management
and implementation of this approach will require additional monitoring, updates, and evaluation
over time. As threshold annexations occur, updates to this plan may be required as efficiencies and
processes are established and conditions in the corridor continue to evolve.
City staff will bear responsibility to enact the process as covered in this plan, however, the
involvement of residents, business owners, property owners, Larimer County, CDOT, and other
stakeholders within the East Mulberry Plan Area will remain essential. The proposed thresholds
approach was designed to build in substantial communication and participation opportunities for
community members in the plan area (including the Annexation Transition Committee as well as
neighborhood meetings). The thresholds process and opportunities for community participation
should also be co-evaluated and adjusted as needed based on community feedback and experience
following the first annexations occurring through this process.
Ongoing Management of the East Mulberry Plan
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EAST MULBERRY PLAN 122
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendices
APPENDIX A:
Community Engagement Reports
APPENDIX B:
Mulberry Corridor Financial Considerations
(Phased Annexation Approach)
APPENDIX C:
Mulberry Corridor Financial Impact Analysis
APPENDIX D:
Role of Subarea Plans
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix A:
Community Engagement Reports
Online Survey
Community Advisory Group
Business & Community Workshops
Annexation Q&A Sessions
Visioning Sessions
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix A:
Community Engagement Reports
Visioning Sessions
EXHIBIT A TO ORDINANCE NO. 162, 2023
1
EAST MULBERRY PLAN
SUMMER 2021 COMMUNITY ENGAGEMENT SUMMARY
August 18, 2021
Engagement Process Summary
The East Mulberry Plan update process is intended to develop and implement a community-engaged
vision for the East Mulberry enclave, which is planned for annexation into the City of Fort Collins. In the
summer of 2021, the City hosted six public engagement meetings, two per month, in June, July, and
August. Residents and business community members were invited to attend the events to learn more
about the annexation process, to ask questions, and to share their concerns and aspirations around
future annexation efforts. Four meetings were conducted virtually and two were conducted in-person.
Meetings took place on the following occasions (in-person meetings marked with an asterisk*):
• June 29th : 12:00 – 1:30pm (business-focused) & 6:00 - 7:30pm (resident-focused)
• July 14th: 12:00 - 1:30pm* (business-focused) & 6:00 - 7:30pm (resident-focused)
• Aug. 4th: 12:00 – 1:30pm (business-focused) & 6:00 – 7:30pm* (resident-focused)
The City presented an overview of the annexation history and participants were invited to ask questions
and to respond to a series of questions from the City.
Key Concerns
Shared concerns were raised by residents and the business community. The most prominent of those
themes, roughly in order of their prevalence included the following:
• Loss of affordability and rising costs (including gentrification);
• Fear of increased restrictions and regulations;
• Loss of diversity, both in uses and demographics /reservation of the industrial and agricultural
character;
• Having a voice and involvement in the decision-making processes;
• Maintaining and improving flow of traffic, streets, and business access;
• Ongoing and increasing experiences of crime, homeless/transient population, flooding and
drainage; and
• Aesthetic appeal of the corridor.
Suggestions
Participants provided suggestions for the plan update process, as summarized below.
Ongoing involvement of the business community: The business community would like to have increased
opportunities to have input into the process, and a business association may be independently formed
for the area with the help of the Chamber of Commerce (no association for this area currently exists). In
EXHIBIT A TO ORDINANCE NO. 162, 2023
2
addition, they have requested that the City host more conversations with the business community
throughout the process and even into the phases of implementation.
Ongoing residential engagement: The residential community also requested increased involvement and
City staff has agreed to set up meetings with individual Home Owner’s Associations (HOAs) and
neighborhood groups to discuss the specifics of the plan for their neighborhoods.
Integrate with scenic byway efforts: Current effort to designate the Cache la Poudre Scenic Byway along
Colorado Highway 14 (Mulberry Street) may be an opportunity for collaboration, funding, and a way to
fulfill business, resident, and City desires to improve the aesthetic appeal of the East Mulberry corridor,
make it more appealing “gateway to the City.”
Community Responses to City Questions
The development of the themes above were derived from the following observations synthesized from
the community meetings. The following four tables synthesize and summarize the input provided by the
community at those meetings, as well as important overlaps between the business and residential
communities:
What is valued most by the community?
Business Community Shared Residential Community
Streets, flow of traffic to allow
big trucks
Low taxes Housing affordability
This area is where businesses
can “get dirty & make noise”
Diversity (of people, of uses, of
business types)
Culture of the community
Proximity to I-25 & ease for
customers & workers from
other areas of Larimer/Weld
counties
Affordability
Space for storage, fueling, etc. Character of place
What needs work in this community?
Business Community Shared Residential Community
It is difficult to know what’s
going on and be involved when
they are busy and involved in
their own businesses – need
good info and repeated contact
Homeless population Schools are too far away
Work to keep industrial and
agricultural businesses here
Crimes like theft and vandalism
and drug-use (needles, etc.)
No safe parks and/or bike
paths/sidewalks to get to parks
Traffic flow (confusing,
congested, dangerous for
pedestrians and bikes) –
improvements to frontage
roads
Streets
Flooding & drainage
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3
What are their fears/concerns?
Business Community Shared Residential Community
Tractor-trailer access will be
splintered, restricted or made
more difficult
Gentrification The time it will take to get the
annexation implemented
More restrictions on parking
and/or signage
Rising rent and other costs
Residential and/or retail will
push out the industrial
businesses
Higher taxes and/or restrictions
(e.g. building standards, code
compliance, etc.)
Unease in opening/closing
businesses because of
transients sleeping in building
entrances, etc.
Adjusting to the new
requirements imposed by the
City
Increased traffic volume,
difficulty “breaking in” to the
traffic stream on Mulberry
City will just overlay plans and
requirements on them that
aren’t right for their area
What do they hope for?
Business Community Shared Residential Community
Opportunities to provide
additional primary employment
More opportunities to be
involved and have a voice
(advisory board, working
groups, business association?)
Keep and/or provide more
attainable housing options
Keep the diversity of uses
allowed
Knowing what is going on as this
process unfolds
Keep the diversity of the
communities
Better aesthetic appeal of the
area
Help with improving &
maintaining roads
Better connectivity for bikes
and pedestrians, as well as
transit
That the City will really listen to
them and include them in the
planning and decision-making
Aesthetic improvements along
the Mulberry corridor,
especially at the interchange
with I-25. Opportunity to create
a gateway effect more like the
Harmony interchange.
Mulberry is the eastern
terminus of a scenic byway and
could be improved to honor/fit
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix A:
Community Engagement Reports
Online Survey
EXHIBIT A TO ORDINANCE NO. 162, 2023
East Mulberry Plan Area Visioning Summary
Introduction
The East Mulberry online visioning survey received 43 completed responses. Invitations to participate in
the survey were sent out in a mailer for residents within the study area, and in an email to those who
subscribed to the newsletter online.
The online survey rendered similar values, fears, and hopes about the East Mulberry Area that was
captured by the community engagement meetings hosted in the summer of 2021. Overall, the common
values identified by this survey include affordability for housing and property, conservation of natural
areas and open spaces, and a focus on infrastructure that provides accessibility for a safe cohesion of
travel between motorists, pedestrians, and bicyclists. Fears identified throughout the survey were
focused on rapid growth and overdevelopment that may lead to affordability issues and over
commercialization of the land, as well as a lack of safety around poor infrastructure and increasing
traffic. Respondents communicated their hopes of this area to include an enhancement in existing and
future traffic infrastructure, conserve and create access to natural areas/open spaces and look to create
opportunities for affordability and sustainable growth in the East Mulberry Area, while addressing some
of the social issues facing the area.
This Summary will walk through each survey question that was asked to residents and community
members, highlighting the key takeaways learned from each question focus. Sample responses from
each question are included in order to provide examples direct comments that were given from
community members. The responses were analyzed to identify the common phrases and ideas for each
question, which are highlighted in the bar graphs for each question.
Question 1:
The thing I value most in this area is…
“Easy access to both Old Town and I25; Affordability”
“The current existing natural preserves (ponds, river access, open spaces)”
“That it is an industrial area, with less rules and more affordability. Not Old Town,
Not Fort Collins. That the area gives small businesses a more affordable place to
start.”
“Affordability for small business owners.”
“That most city services are offered, although city water would be better than ELCO.
Connexion is awesome, for example.”
“Freedom from city oversight.”
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Question 1 intended to gauge what respondents currently value in the East Mulberry Area today. The
three main values that were identified by respondents were affordability, natural areas & open spaces,
and infrastructure for the purpose of accessibility. The respondents noted that having quick and direct
access to both Old Town and I-25, yet still having more affordable levels of housing and small business
venues, is a highly valued characteristic of the area. Furthermore, respondents also care highly about
the natural aesthetics of the area, including natural areas, parks, and the scenic views of the surrounding
mountains and farmland, as shown in the bar chart below.
There was a small portion of respondents (7%) that valued being outside of city limits. This small portion
of comments highlights the uncertainty some residents share about the idea of the area annexing into
the City of Fort Collins. These comments seemed beneficial to include because there is some uncertainty
among respondents on how and when the City of Fort Collins might annex the area in the future, as part
of the area remains under Larimer County’s jurisdiction. These concerns were also related to a lack of
clarity around the financial implications of annexation for businesses and uncertainty around how
needed services and infrastructure in the area would be managed by the City.
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Question 2:
The thing I would like to see change most is…
“The roads and intersections are the neighborhood unsafe…need lights with left turns
both on Prospect and intersection of Greenfield’s Ct and Mulberry”
“A real street. Currently our neighborhood dirt road is severely eroded.”
“Better bicycle access to downtown and connected bike paths. A path along Vine,
south of the Railroad tracks that makes Timberline to the Beet Park safe and easy
would be AMAZING”
“Sewage tie-in options for those currently on septic on Summit View Drive”
“More community programs to encourage neighbors getting together to help with
people who are less fortunate, trash pick up in the area or just to gather and get to
know one another”
“More connections to the city so we don't have to drive into town for everything.
Need bike paths, sidewalks, city bus connections, and even a supermarket in the
northeast of the city”
Question 2 asked respondents what changes they would like to see prioritized in the area. The most
common response was to add more bike lanes and to prioritize pedestrian connectivity to amenities,
open spaces, and various neighborhoods within the area. Methods for improvements mentioned
included safer traffic patterns, better public transportation, and improvements to roadway
infrastructure.
Respondents would also like to see solutions to social issues like homelessness, as well as lowering the
crime rate. Respondents suggested providing better access to city services to address some of these
concerns. Along with the changes to infrastructure and social issues, respondents would like to see
aesthetic changes, like more landscaping to soften the view of concrete islands and a general clean-up
of the area. Furthermore, adding more convivences to the area like grocery stores, restaurants, gas
stations, and other businesses would benefit residents and consumers. The chart below highlights the
most used phrases among the responses to this question. Note that the top three key phrases revolved
around connectivity and accessibility for multimodal transportation.
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Question 3:
What are your hopes for this area?
“To get more accessible grocery store and small communal spaces with breweries,
parks, coffee shops, restaurants, etc. and to change the current East Mulberry stigma
of being an impoverished, crime zone”
“That the area will remain a more affordable place for businesses that want to start
and grow in the area. And that the valuable space the businesses need for parking
etc. is not used for sidewalks, trees and bushes”
“Interconnectivity to everything the city offers. It would be nice to have more than
one egress in and out of Timbervine/Dry Creek. Last year’s spring snow, quite literally
trapped many of us in the neighborhood for a day”
“Restrictions on raising rents, help with housing inflation”
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“I hope that the community can be mindful of how important supporting small
businesses is; now that Target & Starbucks has moved in, the convenience of having
them so close can be devastating to the family-owned businesses”
“Walkability. You cannot visit this area for shopping or business without a car. Tree
planting and added landscape features/naturalization and preservation.”
Many of the hopes reported by community members addressed the changes that were reported in
Question 2. 55% of respondents commented on a hope to have an infrastructure that leads to better
multimodal connections between the City of Fort Collins and the East Mulberry Area. Common solutions
suggested for these connectivity and accessibility issues were safer trails/bike lanes, more lighting,
additional turning lanes, more crosswalks, and addressing potholes.
Community members also hope for the future development in the area to follow smart growth
principles. Reported smart growth suggestions included having affordable housing, avoiding suburban
sprawl, being small business-friendly, adding grocery stores and other amenities, preserving natural
areas, adding trails and public transportation, addressing homelessness, and preventing crime.
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Question 4:
What are your fears for the future?
“That current open spaces might be encroached on or that current hotels on East
Mulberry will continue to function as they are now, which is part of what attracts
increased substance use, crimes rates, etc. to that area”
“Underutilizing this space. In filling it with meaningless retail/commercial/big box
stores. Losing the opportunity for massive cultural advancement for the next century”
“That costs will increase, and space will decrease, making it less affordable. Look at
the vacancy rate in this area compared to the others in the Fort Collins area. The
draw for business in this area is not a nice sidewalk it is the Industrial affordability”
“I fear that the pace of housing/development growth will far surpass the
infrastructure growth, leading to continued traffic and safety issues”
“The land won’t be brought into the city limits before it’s developed, and terrible
industrial will fill the areas next to our houses. That something terrible will happen
before the city considers the safety of residents. Right now, we can’t walk from our
neighborhoods without almost getting hit!!”
“That the character will change with no architectural/design regulations. Homeless
population will continue to grow. Multifamily, apartment-style building. Housing
prices will continue to rise, making it only accessible to the wealthy.”
Fears for the East Mulberry Area involve poor planning, traffic infrastructure, and affordability. Many
respondents fear that without careful planning East Mulberry will succumb to overdevelopment and fast
growth. The fear of over-development and rapid growth includes the fear of losing natural areas, the
creation of high property values, continued crime, traffic congestion, infrastructure neglect, and a
decrease in cultural advancement.
Most respondents reflected hopes to see some of the successes of infrastructure that the City of Fort
Collins has (utilities, proximity to essential amenities, bikes lanes clean streets, etc.) but fearing that
these successes could hurt affordability and create challenges for local, small businesses. Residents want
to see improvements to the area without it losing its affordability or industrial businesses that have
thrived in the area for years.
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Question 5:
What are some obstacles for the hopes you have for this area?
“I worry about funding because some of the East Mulberry is under the City of FC
jurisdiction, and some is under County jurisdiction: it would be nice to see continued
collaboration between the two for this are specifically”
“The area around I-25 and Mulberry has a population that needs help but as it stands
now, it doesn’t always feel safe visiting the business in the area after dark.”
“Gentrification. Growth. Balance between homes and businesses. Costs.”
“That businesses will not have interest or financial ability to invest in improvement. I
don’t see a path forward. Traffic volume and speed is an enormous safety concern.”
“No resources to solve problems. The county says it’s a city issue/ the city says it’s a
county issue”
“Homeless population has to be addressed…safety for all, many not wanting to be
annexed into the city, affordable housing has to be addressed, and infrastructure
thought out first.”
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Respondents identified various obstacles that the East Mulberry Area may face when working towards
their community hopes. The biggest obstacles surrounded resources, funding, and planning concerns.
Social obstacles included addressing homelessness, crime, and gentrification. Economic obstacles
included funding, affordability, and the potential for the area becoming unsustainable for small
businesses. Infrastructure obstacles included traffic, a lack of supportive resources for individuals in
need, and a lack of affordable housing. All obstacles mentioned came with a general uncertainty from
respondents on how the city plans to develop, fund, and address development in the East Mulberry
Area.
Question 6:
Additional Comments:
“I think the city of Fort Collins should look at what other cities have done as they have
annexed industrial areas. Instead of making the decision itself, the city should present
various scenarios to the businesses of this area with the trades offs to ensure buy in.”
“An Industrial area is nice if the roads are kept up, no potholes, swept / clean. Most
of the businesses are here because they wanted less overhead, more square footage
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inside as well as outside for less money. Don’t take away valuable space.”
“There are so many people in this area that want to help and be a part of the solution
and broader Fort Collins Community, but there is a great sense of disengagement. I
really appreciate this survey coming out and am very hopeful for the future of District
1.”
“I think building new homes adding to the types of businesses in the area will help
remedy the bad rap this area sometimes gets. I think the best way to help awaken
this area is to encourage new, fun, and exciting businesses to come to the northeast
part of town and build affordable housing to allow more people the opportunity to
own a home in our city. More stuff to do, eat, drink, and see with an efficient traffic
pattern within problematic areas are what we need!”
“Northern Fort Collins is an obvious choice for the city to expand with the
infrastructure already in place. Making an investment in the existing communities will
benefit the city for years to come. As someone who was drawn to Fort Collins with
the promise of it being one of the best cities for biking in the country, I have found
that to not be true if you live on the North side of the city. People are constantly
moving to this area for the outdoor recreation and Fort Collins should further
embrace that by providing safer options and more dedicated trails, not just bike lanes
on busy roads.”
“Farming north of Mulberry disappearing. Where will our food come from? Leave
land for community farming. Rooftop Farming”
The final question gave respondents an opportunity to leave any other thoughts that had not been
included in the previous questions. Ensuring that community members are heard and understood is a
vital part of the planning process, and respondents noted their appreciation for the opportunity to voice
their opinions on the East Mulberry Area Plan. Some comments stated they would like to continue to
see more collaboration and engagement options. Respondents also recapped the need for planning that
creates affordability and diversity of the East Mulberry Area, which could lead the area to feel more
appealing to future residents, consumers, and visitors.
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Appendix A:
Community Engagement Reports
Community Advisory Group
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ADVISORY GROUP MEETING 1
EAST MULBERRY PLAN
Date: October 18, 2021
Location: Zoom (virtual)
Participants:
Shawna Van Zee (City of Fort Collins), Jeffery McClure, Dave Marvin, Wayne Hunter,
Erika, Stan McGarvey, Carol Cochran, Brown Abrams, Cindy Freeman, Craig McKee,
Jesse Eastman, Josie Plaut (IBE), Susan Hsin (IBE)
MEETING MINTUES
Objective/Topic Notes
Introduction +
Meeting Kick-off
Shawna welcomed everyone from the Advisory Panel and handed off
facilitation to Josie. The group the introduced themselves.
Introductions
• Jeffrey McClure, co-owner of Fort Fun with wife Jan
• Bill Demos, owner of Mountain Pet Supply, been in the area since 1986
• Dave Marvin, residents of Boxelder Estates, been there 1990
• Mike Brown, Western States Bank, bank has been here since 2004
• Wayne Hunter, owners of Super Market Liquors, been the owner for
the past 5 years
• Erika, resident of Countryside Park, been here for almost 4 years
• Stan McGarvey, owner of Charco Broiler Restaurant, 3 generations
• Carol Cochran, owner of Horse and Dragon Brewery since 2014
• Brown Abrams, previous owner of Fiberlock, since 1992, doesn’t own it
anymore but still owns land next to it
• Cindy Freeman, resident of Countryside Park, lived in the area since
1994
• Craig McKee, owner of water quality company, decorative concrete
company, arts center, and distillery + brewery location too, been in Fort
Collins since 2003
• Jesse Eastman, owner of Fort Collins Nursery, been in business since
1932, been in this location since 1950, owner since 1976
Process Overview +
Advisory Group Roles
Shawna shared overview of the East Mulberry Plan, including a map
showing the plan area and the areas up for annexation
• Distinguished boundaries of plan area and annexation areas
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• Defined enclave – an area that is completely encircled by a properties
that are part of the city jurisdiction
• Agreement with the county that once an enclave forms, the City of Fort
Collins will annex the enclave
• Plan Purpose - develop a vision for East Mulberry that will guide public
and private investment in the future
• Existing plan from 2002 as a resource/reference
• Topics Under Consideration
1. Look and feel of the area
2. Types of uses and activities, desired improvements
3. Stormwater, streets, sidewalks, infrastructures
4. Health and Safety
• Reviewed overall plan development timeline (see Power Point)
Community Engagement Goals
• Engaging diverse group of stakeholders
• Utilizing equity and inclusion resources within the City
• Some engagement tailored to businesses/residents in East Mulberry
• Balance of local and broader community engagement
• Public Information Meetings Public Listening Sessions Community
Advisory Group (current phase) & additional Public Meetings
City Commitment to the community
• We will clearly capture and share advisory group perspectives with the
rest of the planning team back and forth communication between
planning team and advisory groups
• We recognize that we will not be able to integrate every idea in the
plan due to the nature of disagreement and limited time, but the goal is
to develop a plan that encompasses community needs and aspirations
• We encourage the participants to follow up with us if they have any
further questions that go unanswered in this session
Group Engagement Guidelines
• Listen with an open mind and seeking to hear and understand all voices
and perspectives
• Be respectful of others, even when you disagree
• Keep responses brief to make space for everyone to share and meeting
continues to flow
Shawna extended the offer to the group to have reach out with any
questions or set up private conversations as needed.
City Plan Core Values Livability
• Attainable housing and businesses hoping to address the growing
concern about how expensive it is to live and grow a business in Fort
Collins
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• Vibrant economy with good jobs
• Safety and stability provided by city services
Community
• Culture of open, honest, communication
• Commitment to equity, diversity, and inclusion
• Strong public and private social services
Sustainability
• Commitment to the Triple Bottom Line social, environmental,
economic
Vision & Guiding
Principles Activity
The advisory panel was invited to share their thoughts about the outlined
vision and guiding principles and to provide more specific input about their
ideas, opportunities, and concerns. In addition to conversation and the
Zoom chat, a Miro collaboration board was used as a means for further
engagement.
• Dave: there is a lot to absorb in a short amount of time in this space
o Josie clarified that there is no rush to get all ideas down during this
session and that it will be open afterwards
• Bill: what is the coordination between Fort Collins and CDOT to manage
HWY 14?
o Must be considered as the design is planned out because this
byway will have a significant impact on local businesses in the area,
for better or for worse
o Lots of industrial transportation
o Must consider the balance between industrial and residential traffic
o I-25 Interchange is a pinch point; residential traffic and truck traffic
are conflicting
o Unloading trucks can cause a
• Mike: expressed his concern about how large area this is, and that
there is currently only 1 description for the entire area; the total area
needs to be broken up to be more comprehensible subareas
o Josie: during the next meeting we will present proposed subareas
and get the advisory panel’s perspectives on how to create buffers
and smooth transitions between the subareas
o Everything will eventually be address in one master plan so that the
area does not become fragmented throughout the planning phase
• Mike: Maintain this area’s industrial character - a place where people
come to make noise and get dirty, and he does not want the city to
apply the same standards to this area compared to the rest of the city
o “We don’t need the city to come in and plant flowers along all the
sidewalks”
o The city has not yet annexed another area that is as developed as
East Mulberry, so the fear is that the city will come in and overlay
their standards and solutions not unique to this area
• Craig: He paid an impact fee for development/beautification on
Timberline north of Mulberry and supports that kind of improvements
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• Carol: Just because the businesses are classified as commercial does not
mean that these areas can all be addressed in the same way. For
example
o Difference between industrial and retail
o Traffic requirements for these areas differ drastically
• Bill: If Fort Collins wants to maintain affordability, then must support
the businesses and industrial properties in this area because these are
what pays the bills for amenities and services
• Erika: Fort Collins promotes the “15 Minute Neighborhood”, how can
they keep this up?
o 15 Minute Neighborhood is idea that all the needs of residents
(grocery stores, retail, work, schools) have should be bikeable or
walkable in 15 minutes; hope to reduce commute time
o Expressed appreciation for the businesses in this area, but she can
see how this would be obstacle to developing this area into a 15
minute Neighborhood
• Dave: Summit View is a racetrack right now, but one of the most
beautiful roadways in the city; this is where the residential areas pour
out onto the road before diverging to other roadways
o Boxelder Estates – the neighborhood appreciates the rural feel and
doesn’t want new city standards to take that away
o Maybe Summit View could be improved, to slow traffic and make
the corridor more of a boulevard.
• Jeffrey: agrees with Dave that beautification of Summit View should be
prioritized
• Jesse: how much influence does the City have over Highway 14 which is
a state highway?
Comments in the Chat
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1. Vision & Aspirations *comments from the Miro Board*
• For the existing neighborhoods, incorporate the concept of the 15-
minute neighborhood - an existing guiding principle of Fort Collins
development already
• Don’t overly design streets and impost too many requirements on
industrial development
• Continue to allow unique business use that was created out of
necessity when Fort Collins was not interesting in our businesses being
within city limits
• Movement of cars, trucks, and people need careful consideration
• Benefits to businesses in improving the look of Mulberry
• Beautification of the Mulberry corridor
• Building for today AND tomorrow - maintain industrial base
2. Map • *comments from the Miro Board*
• I-25 interchange is a pinch point where residential traffic and truck
traffic often clash - must consider this in roadway design
• Residents are coming down the frontage road, which is where some of
the conflicts between trucks and cars exist
• Mosaic needs safer sidewalks and bike lanes
• Impact fee for development/beautification of Timberline x Mulberry
• No need for flowers and medians - would take away from the industrial
feel and function; consider what makes sense for curb and gutter
• Summit View is currently a racetrack, but it’s a really beautiful roadway
- could be a parkway and an important part of the scenic byway
• Boxelder Estates - maintain the rural feel; no curb and gutter is OK for
many residents
• Cooper Slew Open Space
3. Equity Lens *comments from the Miro Board*
No comments were made in this section
Next Steps • The Miro board will stay open and editable through the end of the
week. Additional comments are welcome.
• We will NOT be meeting on November 1st, but will meet November 15th
and will begin reviewing subareas.
• We are hosing public meetings on October 27th and 28th – please invite
friends, coworkers and other interested parties to participate.
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ADVISORY GROUP MEETING 2
East Mulberry Plan
Date: November 15, 2021
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Shawna Van Zee (City of Fort Collins), Bill,
Stan McGarvey, Patty, Craig, Carol Cochran, Cindy Freeman, Dave Marvin, Erika Jan &
Jeffrey Jesse, M. Brown, Amy Young, Josie Plaut (IBE), Susan Hsin (IBE)
FOR NEXT TIME
• Next meeting on December 13th
• Finish subarea questions (Future development and Residential Subareas)
• Priorities for improved main corridor improvements
o Including pedestrian and bicycle connectivity
• Additional questions from internal City working groups
• Targeted outreach focused in subareas - advisory group members will be asked to help extend
invitations
Objective/Topic Notes
Introduction +
Meeting Kick-off
Sylvia welcomed everyone from the Advisory Panel and handed off
facilitation to Josie. Sylvia noted that she will be available for any questions
about the project and welcomed the opportunity to speak with any member
individually.
Overview of meeting agenda and focus on subareas, including the use of
Mentimeter as a technology to help in the online format.
Vision and Equity
Statement
Vision: Advancing citywide goals while honoring the uniqueness of the plan
area.
Equity Statement: Provide meaningful ongoing opportunities for
engagement and help assure equitable outcomes, especially for those most
impacted and those who are historically underrepresented.
Guiding Principles 1. Celebrate Uniqueness: Valuing the industrial area benefits. As this area
is annexed into the City of Fort Collins, we want to figure out how to
maintain its qualities that makes this area ideal for businesses and
residences, such as affordability.
2. Preserve Affordability & Economic Health: Affordability is a quality of
this area that is highly valued by residents and businesses of East
Mulberry. As discussion for changes for this area are being had, we
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need to keep this value in mind in order to prevent unintended
consequences and displacement of businesses and residents.
3. Improve Livability – summarized by the idea of a “15-minute
neighborhood” and improved mobility.
4. Enhance Relationship with Nature: Preservation, mitigation, and
improved connections to natural areas
Subarea Introductions
1. North & South Residential (in yellow)
o Mostly dedicated to residential.
2. Mulberry Corridor (in blue)
o Timberline and Lemay/Timberline and Mulberry intersections.
o Mostly commercial and retail uses along the road.
3. I-25 Area & Gateway (in purple)
o Mostly commercial and industrial uses.
o Primary functions are interchange of commerce, agricultural
related, exchange of supplies to neighboring states.
4. Industrial Park (in red)
o Industrial, retail, and commercial uses.
o Lots of service-related industries (automotive, landscape,
construction, fabrication etc.).
5. Future Development (in brown)
o Currently an “in-between” zone with uses that are not as defined
right now.
6. City Owned Natural Areas (in green)
o These areas will not be developed on, but the city will continue to
maintain.
o Includes the Cooper Slough Drainage Area.
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Advisory Group questions and Comments:
o What are the concentric circles in the I-25 gateway area? Outlines
the gateway area that the city is trying to define. The city has some
ideas for improvement for the interchange area in the future but is
inviting feedback from the Advisory Group and community because
this is not a final map of the subareas.
o Who owns it and what are the plans for development to the Airpark
Area?
It is currently owned by [NEED NAME] and had been proposed as a
technology center, but it was never developed. Greeley waterline
runs through this area, so parts of the area cannot be developed.
The city can control the zoning and plans for potential future uses
but cannot control what happens on the private lands.
Mulberry Corridor Introduction to subarea conversations and use of Mentimeter, an
engagement tool used for polling. Polling results and notes attached
and/or available by separate PDF.
Likely Future…
o Will remain commercial in nature.
o Improvements or changes of ownership for specific properties and
possibility an assemblage of properties.
o Lemay area shopping centers – can expect little to no change
because these are relatively new developments.
Polling questions and conversation:
1. How important is it to see aesthetic improvements in the median and
street landscaping, signage, and screening (making storage/activities
not visible to neighbors)?
There was some confusion and discussion around the polling set up and
especially around the signage question. Josie and Sylvia explained a bit
about the Fort Collins signage code and that the City is currently open to
feedback about how business signage should look in this area (i.e., how
cohesive or different it is compared to other areas in the City).
o Would the area West of Lemay be able to achieve landscaping
improvements like those implemented East of Lemay?
The collaboration of CDOT and the City is something that we would
like to see in hopes of creating something that is functional and
meeting a higher aesthetic standard.
2. Intersection improvements (function + aesthetics) on Lemay, Link Lane,
Timberline, Summit View, Greenfield?
o Even though Lincoln is not directly intersecting with Mulberry, the
intersection between Lincoln and Timberline is a “nightmare” and
needs to be addressed because it directly impacts the traffic that
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flows onto Mulberry. Carol makes a trip to this intersection every
day and it is “terrible”
o Are these questions directed specifically towards cars? Or should
the discussion include pedestrians and cyclists?
For now, this question is about vehicles. We will explore bicycle and
pedestrian connectivity in the next meeting.
3. How important are the AESTHETIC improvements to you at these key
intersections on the Mulberry corridor?
o How do we strike a balance between function and aesthetic when
making changes for the future? Feels like at no point should
aesthetic be prioritized over functionality and clarity.
4. What future uses are you open to seeing along the Mulberry Corridor?
Sylvia explained the distinction between industrial uses, commercial,
and mixed-use (service industries that don’t necessarily have a store-
front, but a facility is necessary for the business operations, commercial
uses are more related to retail and sales)
5. Are there any types of businesses that you would most like to see
added to the Mulberry Corridor?
6. Are there any types of businesses or uses that you DON’T want to see
on the Mulberry Corridor?
Additional Question for Future Discussions
Frontage road improvements?
o Several members stated concerns about the function of the
frontage roads including safety concerns when turning onto West
Bound Mulberry, no meaningful directional traffic signs in place, no
guard rail in place, and many accidents that end up in or near
businesses including Fort Collins Nursery.
I-25 Gateway Likely Future…
o Regional commercial and ag support businesses.
o Planned I-25 and Mulberry interchange improvements.
o Future proposals for additional commercial and industrial uses.
Polling Questions
1. How important are the following improvements to you at the I-25
interchange and Mulberry?
2. How important are these improvement in other parts of the I-25
subarea?
3. What future uses (commercial vs. industrial) are you open to seeing in
the 1-25 sub area?
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4. What traffic & connectivity improvements are important to you in the I-
25 subarea?
5. Are there any types of businesses that you most like to added to the I-
25 subarea?
6. Are there any types of businesses or uses that you DON’T want to see in
the I-25 subarea?
Industrial Park Likely Future…
o Industrial character and uses to remain.
o An area of interest for new uses and businesses.
o Individual properties to change ownership and use.
Polling Questions
1. How important is it to see improvements to landscaping, improved
intersections, signage, and screening?
2. What traffic and connectivity improvements are important to you?
3. How open are you to new industrial uses?
4. Are there businesses types you want to see?
5. Are there business types you don’t want to see?
Conclusion and Next
Steps
Josie provided a brief overview of next steps and plan for next meeting on
December 13th (action items are highlighted in the first section of notes).
Sylvia thanked everyone for their time and extended the invitation to reach
out with any questions that might come up in between this meeting and the
next, and if anyone wants to meet one-on-one to discuss something more
in-depth.
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EAST MULBERRY ADVISORY GROUP MEETING 3
Date: December 13, 2021
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Brown Abrams, Craig McKee, Stan
McGarvey, Dave Marvin, Amy Young, Erika, Carol Cochran, Cindy Freeman, Josie
Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Next Advisory Group Meeting will be in February 2022, exact date and time TBD.
• Sylvia to gather more information from the city’s utilities team about the possibility of increased
rates in response to Cindy’s question about costs associated with changing electrical meters.
• Follow up with Advisory Group members that offered to help with community outreach and
provide them with the necessary materials & information – Stan will reach out to business
owners in his network, Carol will reach out to her neighboring businesses, Amy will reach out to
Mosaic Neighborhood Facebook group chat.
Objective/Topic Notes
Introduction +
Meeting Kick-off
Josie welcomed the group and briefly explained the meeting agenda and
reviewed previous meeting discussion including the subarea map.
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Future Development
Area
Continuing the format from the previous meeting, the group discussed
options for the future development subarea.
Overview & Questions
• This is the subarea with most opportunity for change within the
next 5-15 years.
• Carol – is this area privately owned or can the city put in specific
recommendations for this area?
Sylvia - What can and cannot happen in any given area is primarily
determined by zoning, which is yet to be determined for this
subarea. The city is currently exploring ideas with input from the
community, including this group. Zoning and private party
investment will be the two most influential factors about what
happens here. The City can only do so much to determine what
happens on private land. In addition to zoning, the City has a limited
number of addental ways that they can help incentivize the
development of projects that meet community goals and needs.
• Amy – if a current private property goes up for sale, does that
provide the city an opportunity to rezone that area?
Yes, but this is a complex process and there are a lot of standards
and guidance that help shape what is possible. The City does not
usually do spot zoning, and rezones typically involve a significant
amount of land. The Subarea identified as “Future Development” is
currently being discussed because there is more of a chance that
this area could be rezoned. There is room for community input for
what this area will entail in the future.
• Cindy – if the zoning changes in 5-10 years you are affecting how
they can sell their existing business. Most businesses there were
established prior to the residential built up around it.
Sylvia – For the most part, upon annexation the City would apply
very similar zoning to what properties are currently zoned in the
county.
Josie invited the group to join this session’s Mentimeter engagement tool.
Polling results and notes attached and/or available by separate PDF.
https://www.menti.com/i1vxpojzad
Questions for the Group:
What kinds of uses might you like to see?
Options included the following, which have been ordered from
highest to lowest rank. The expressed desired future uses were
highly variable across the group with every answer having
participants who were strongly opposed or strongly in favor of each
idea. There were no clear winners or losers.
o Basic services (restaurants, grocery, banking, etc.)
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o Arts / creative spaces
o Commercial / retail
o Pharma / tech
o Additional Industrial
o Mixed use (residential and commercial)
o Attractions / entertainment
What do you think would add the greatest value to the area? To the Fort
Collins community at large?
• Several comments mentioned the need for improved connectivity,
especially for active modes of transportation, and the desire for
more parks and basic services.
• Some mentioned arts and entertainment.
• Some expressed concern that the area might be come increasingly
residential over time and push out businesses and industry.
Any additional thoughts & ideas for what add the greatest value here? To
Fort Collins at large?
• Input from the advisory group were captured in the Mentimeter
poll, but there were strong opinions about implementing safe and
integrated trails for bikes and pedestrians.
North & South
Residential
Likely future…
• Existing residential will largely be unchanged.
• Additional new residential is underway and is more likely.
• New residential will conform to current City standards.
Participants were asked to rank the following improvements in of priority
(most desired first). The results in order of priority were as follows:
1. Bike & Pedestrian Infrastructure
2. Improved Trail Connectivity
3. Broadband
4. Undergrounding utilities
5. Stormwater and flooding infrastructure
6. Fix potholes
• Cindy – How much will the cost be for changing out electrical
meters?
Sylvia will check on the answer to this question with her colleagues
in utilities. There will most likely be a slight change to the utilities
with meter changes, but these changes will look different for
different groups depending on their area and energy usage.
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• Craig – There seems to be a need for connectivity from all these
residential zones to adjacent areas.
• Erika – There is currently only one place to catch the bus from
where we live, and it is not the most comfortable for pedestrians to
get there. Hopes to see that students and residents in the area can
have more access to these public transit stations to transport
themselves to other resources in Fort Collins.
Corridor
Improvements
The Advisory Group was introduced to potential design concepts for each of
five roads:
1. Lincoln Ave.
2. Link Lane
3. Summit View
4. Racquette Dr.
5. Mulberry St. / HWY14
Overall Discussion
• Carol – Has a co-worker that is an avid biker, yet he is still scared to
bike a mile to work because he has to get onto Timberline, where
there is lack of bike infrastructure separate from the busy main
road.
• Dave – Intersection between Timberline and Lincoln is horrid.
• Cindy – Does not feel safe biking to work even though she lives
close.
• Amy – Reinforced the idea that she would love to bike to work, but
she does not feel safe doing so and feels worried for her son, who
loves to bike, every time he goes out for a ride.
• Dave – Recognizes that this is a long-term project but emphasized
that this issue needs to be resolved with urgency.
• Erika – Must sit at the Mulberry and Timberline intersection for at
least 4 cycles every morning when she enters Old Town for work.
Proposed Solutions for
Corridors
Lincoln Avenue
Possible Direction
• Capital Project (paid for by public funds)
• Currently a portion of Lincoln has no shoulder, sidewalk, or
protected bike lane.
• Option to extend pedestrian and bicycle pathways like the segment
of Lincoln that has already been upgraded, and to improve median
landscaping and stormwater infrastructure.
Discussion
• Carol – Appreciates the image shown of the stormwater ditch that
runs alongside Lincoln East of Lemay. There is extensive potential
there to make improvements. The bird life there is amazing,
although there is a lot of trash.
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• Generally, the group was favorable to this improvement as
described.
Link Lane
Possible Direction
• Mix of private and public funds.
• Improve pedestrian and bicycle pathways.
• Improve entry and exit options – make curbs possible.
• Would need to work with local business owners to encourage
defined entrances/exits as possible.
Discussion
• Carol – Feeling conflicted because her own property (Horse &
Dragon) had to undergo this rezoning process, but she does feel like
it was worth it because it made customers more comfortable.
Would love to see this enforced for her next-door neighbors.
• Generally, the group was favorable to improvements as described.
Josie – it may be helpful to consider the idea of “front-of-house” and “back-
of-house” regarding the corridors. The larger corridors can be considered
front-of-house and might like a higher-grade finish, but the back-of-house
areas may not need the same level of aesthetic care.
Summit View
Possible Direction
• Capital project paid for by public funds.
• Extend pedestrian and bicycle pathways by adding protected bike
and pedestrian infrastructure on one of road (similar to Vine Dr.)
Discussion
• Dave – Must consider the character of what is existing in the area in
the planning process. Although he appreciates what has been done
on West Lincoln, he feels like the sense of authentic character could
be taken away if we did this for Summit View. There is something
unique about Summit View that needs to be preserved.
• Erika – Echoes Dave’s comments that Summit View provides a great
view in her morning commute and hopes that the open spaces and
character can be preserved with the changes to the roadway in the
future. Hopes to keep the beauty of the natural area in a safer way
rather than the new “manicured” landscape.
• Craig – Implementing some curves and meandering pathways that
complement the beautiful natural views can help to reduce the
speed of drivers in this area in a more natural way. Maybe we could
try something besides the typical wide and straight roadway.
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• Erika – Is there a more aesthetically pleasing way to make the
protected bike and pedestrian lane instead of the concrete bollards
and concrete protective curbs?
• Carol – Would like to see comprehensive improvements for
pedestrian & bicycle safety – not just on Summit View but need
improvements on Timberline/Mulberry and/or Lincoln and also on
Prospect from I-25 to Riverside to make complete routes.
Racquette Dr.
• Likely to experience little change.
• Likely a light touch on safer bike and pedestrian movement.
• Looking at possible piecemeal improvements for one side of the
street adding a sidewalk and some street treats/landscaping.
• The stormwater department will evaluate further infrastructure
needs and budget through Dry Creek Master planning.
Mulberry
Street/HWY14
Mulberry corridor needs a significant dedicated planning effort.
• This corridor deserves its own thorough planning process due to its
sheer scale, and it involves cooperation with CDOT.
• Needs functional improvements on the frontage roads, key
intersections, and bicycle and pedestrian infrastructure.
• Many opportunities for aesthetic improvements on medians and
other street trees and landscaping.
Engagement Strategy The City needs help from the advisory group to invite additional input from
community members throughout the plan area. The area generally has less
formal social infrastructure hopes the advisory group members can help
drive participation in subarea workshops next year.
Josie asked the group:
• How might we best engage people from different areas?
• Who are 10 folks you know who should be involved in some way?
• Thinking of the folks you know, how should the city proceed with
gathering input (online surveys, in-person group conversations,
online group conversations, etc.)?
• Are you willing to extend a personal invitation to people you know?
Discussion
• Amy – There is a Facebook group for the Mosaic Neighborhood that
is relatively active, and she can make a post to get more folks
engaged.
• Craig - Having a survey that is accessible at different businesses
might be helpful. Leaving a QR code for the convenience of survey
participants might be impactful.
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• Dave – Must identify what kind of information the city is trying to
capture from the public, quantitative or qualitative. It might not be
worth it to do the “deep-dive” on a survey because the quality of
information might not be worth the effort for outreach in this
format.
• Carol – There is value in allowing people to feel like they are being
heard. Surprised that there has been minimal participation from
the community because there are many people who have
expressed strong opinions in the past yet are still not finding their
way to these important conversations.
• Josie – Suggested an idea to host subarea meetings/focus groups
where the public interest can be more geared towards specific
interests. There is still a barrier for community engagement since
these meetings must be hosted online.
• Carol – Happy to contact business folks she knows in the area for a
meeting at Horse & Dragon or online.
Conclusion and Next
Steps
Josie concluded the meeting with closing remarks and asked the group for
any final thoughts.
• Dave - Suggested gathering statistically significant data from the
community, understanding doing so can be very difficult to achieve.
So suggested bringing in the university or another 3rd party
organization to help with the survey questions.
Next meeting for the advisory group will be held in February. Josie
encouraged advisory group members to extend this conversation to others
and help invite more people to the subarea workshops.
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EAST MULBERRY ADVISORY GROUP MEETING 4
Date: February 7, 2022
Location: Zoom (virtual)
Participants:
Sylvia Tatman-Buruss (City of Fort Collins), Tayla Copeland (City of Fort Collins),
Shawna Van Zee (City of Fort Collins), Craig McKee, Erika, Cindy Freeman, Jesse
Eastman, Josie Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Refine and specify the language used in list of goals to make sure that the information
presented resonates with the community and the Council.
• If using Mentimeter results for council, adjust the scale of the graphic results to avoid confusion.
• Send out the draft plan for participants that are interested in staying involved, and maybe
planning a meeting with the City to go over the plan to gain common understanding.
• Possibly finding a new meeting time during the day that would work better for most.
Objective/Topic Notes
Introductory Remarks
+ Meeting Kick-off
Josie welcomed the group and briefly explained the meeting agenda.
Community
Workshops Update
Resident Workshops
• Two Resident workshops have happened so far, one in English and
one in Spanish.
• 12-14 people attended each workshop, which is a successful
turnout in the City and IBE’s experience.
Josie shared the results from the workshops (both Spanish and English) with
the Advisory Board.
• Results identified shared and mixed priorities from each group.
• Spanish-speaking group prioritized improvements to the
Lemay/Mulberry intersections, while the English-speaking group
prioritized the Summit View/Mulberry intersection.
• Residents are generally more oriented towards improving civic
infrastructure compared to the industry sector. Once the business
workshops happen, results will be analyzed and compared.
• Distinctions between Spanish-speaking community and English-
speaking community for connectivity to certain destinations. Access
to Vine Drive is a priority for Spanish-speaking community where as
the English-speaking community prioritized Downtown.
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• Spanish-speaking community was less interested in additions to
industrial, business, retail, and basic services than the English-
speaking community. They were also less inclined for large scale
changes overall.
• The causal drivers of these differences should be explored further.
• Interest from both groups for more natural areas + parks,
restaurants, arts & creative spaces, community & recreation
facilities, and attractions.
• Emphasis on mobility and making larger improvements to natural
areas are consistent themes that emerged.
• The only demographic information we asked for in the meetings
was the relationship to the area. This is also true for the
questionnaire that is available on the City of Fort Collins’ website.
Without a clear use for the demographic information, the team
decided to not ask more questions on demographics. Our focused
on the interaction and perspectives gained from the meetings.
Key Issues & Strategies
of Subareas
Josie provided a brief review of the different subareas in conversation for
the East Mulberry Plan. We will be looking for confirmation and questions
from the Advisory Board during this section.
Safety
• I-25 and East Mulberry consistently noted as an area where the
success of businesses is partially disrupted by safety issues not
adequately addressed by current law enforcement efforts.
Businesses in this area actively requested to be annexed to help
mitigate crime.
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Aesthetics & Transportation
• Aesthetic improvements along the E. Mulberry Frontage Road.
• The highway is currently dangerous to access by all modes of
transportation.
• Many intersections are currently unsafe for pedestrians and
cyclists.
Stormwater Improvements
• The service-area/industrial park southwest of the old airport and
directly east of Home Depot and Walmart is affected by poor
stormwater infrastructure and flooding.
Affordable Housing and Transit
• Mechanisms for affordable housing preservation are an option in
the plan area neighborhoods.
• Investments in transportation improvements can be planned for
Summit View. A bike and pedestrian lane on one side of Summit
View has been in discussion to improve safety for bikers and
pedestrians.
• There are opportunities for enhancing bicycle and pedestrian
connectivity for key corridors.
Plan Structure The following framework and information will be presented to Council. This
is a chance to make sure that this is accurately representing the work and
ideas that have come from the Advisory Board before the presentation to
Council. Josie reminded the group of the reasoning behind why we are doing
all of this in the first place.
• Commitment was made through an intergovernmental agreement
between the County and the City.
• The city is the urban service provider capable of providing more
services than the county.
• This area has urban needs that are not being met (police services,
stormwater mitigation, etc.).
• Disparities exist in access to amenities that will likely increase as
time goes on.
Goals for the East Mulberry Plan
• Dedicated and flexible space for industry.
• Safe and functional stormwater and transportation infrastructure.
• Integrate and connect to community amenities & services.
• Celebrate and enhance historic and natural features.
• Explore phases of annexation.
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The advisory board members expressed some concern that the language in
the goals was missing key ideas. (See discussion for more detail). An
overview of each goal area and strategies was presented to the group.
Dedicated and Flexible Space for Industry
• Make space for additional innovation and entrepreneurship in
commercial and industrial uses.
• Allow for context-specific and customized solutions related to in-fill
development, business expansions, and remodels.
Safe and Functional Stormwater & Transportation Infrastructure
• Collaborate with CDOT, adjacent business-owners and other
community stakeholders on the re-design of East Mulberry Street
(not the corridor as a whole) including multi-model transportation.
• Improve accessibility to greater Fort Collins community and
enhance safe travel and accessibility for all modes of
transportation.
• Improve stormwater infrastructure through capital improvements
and context-specific mitigation strategies, especially in the
industrial area.
• Explore potential funding mechanisms for addressing substandard
and missing infrastructure.
Integrate and Connect to Community Amenities & Services
• Increase safety through Fort Collins Police Service patrols and
community policing efforts.
• Explore ways to maintain housing affordability and existing
character of residential neighborhoods.
• A big challenge for the city, to deliver amenities improvements
without disrupting the affordability of living in this area. This reality
of these challenges is present in ongoing discussions, and planners
are currently trying to arrive at a balanced solution.
Protect and Promote Historic and Natural Features
• Protect existing natural habitats and features (including the Poudre
River, Dry Creek, Cooper Slough, and Boxelder Creek) through
thoughtful and appropriate development. Making this area more
productive and enjoyable from both an ecological and recreational
standpoint.
• Identity new areas for parks and natural areas.
• Increase access to existing parks and natural areas.
• Increase the urban tree canopy throughout the corridor.
Josie took a pause in her presentation to ask the group if they think this
information hits the mark.
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Comments from the Group
• Should aesthetic improvements and beatification be included more
explicitly on this list of goals based on our discussions? Mulberry
corridor being a gateway area into Fort Collins makes it high priority
for aesthetic improvements and good first impressions.
Sylvia’s Response – Much of these beautification initiatives will
occur as a byproduct of some infrastructural re-development. The
goal to enhance the historic and natural features is also related to
aesthetic improvements.
• Will the character of the residential neighborhoods and the smaller
homes in the area be preserved, or forced to change because other
investors are supporting the change? What about other ways to
address affordability, character, and improvements?
Sylvia’s Response – The plan is going to outline context-specific
strategies for different areas. These will be proportional to the
project that is happening (ex: travel corridor specific, building
specific). Residential building permits are usually separate from
commercial development. There are some strategies in place, such
as land-use code, that will serve as guidelines for how these areas
will change. Some of it can be controlled by the city, but some of it
is unpredictable and out of the City’s control.
• Regarding language in the overarching goals:
o Some of our key discussion points that don’t seem to have
as much emphasis in written form compared to what we
have heard consistently in our discussions.
o The titles seem vast and vague, which can leave a lot of
room for interpretation. Motives can be a little unclear with
the current format.
o Some goals do not seem to be reflected in the goal
statements, and some terms can be clarified to avoid
confusion.
• Which improvements are considered a necessity and what will be
the priorities for the City? For example, how do we define what an
amenity is, and which ones should be prioritized? This is currently
unclear due to a lack of hierarchy and refinement.
Sylvia’s Response - The City is aware of the many issues that could
be addressed, but resources are limited, especially with for
expensive capital improvement projects. The City doesn’t want to
over overcommit to promises that don’t have realistic funding
sources.
• Where would the priorities lie?
Sylvia & Josie’s Response - The planners are still in the process of
determining the highest priority needs and allocating capital
budgets. Priorities have not been finalized, but there has been
progress. Progress with the capital projects is happening
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concurrently as we are having discussions about how to move
initiatives along.
Next Steps & Closing
Remarks
Phases Annexation
• Careful and strategic analysis of pros and cons related to annexation.
• Phasing may allow for greater integration and implementation of
plan goals.
Sylvia clarified that the City Council has final say in how annexation happen.
This is an area of Fort Collins that is part of the community, but not currently
served by the City. There is a clear need for providing services and amenities
for this area to be brought in. The City planning group is drafting a phased
annexation plan and will share that back with the community, including this
group, for feedback.
Business Community Workshops
• Tuesday, Feb. 8 12-1:30PM and Wednesday, Feb. 9 6-7:30pm.
• Currently 20 participants registered.
• Josie encouraged everyone to continue sharing events to help drive
participation.
Upcoming Council Work Sessions
• March 8th – Review the plan framework (what was reviewed today)
• April 13th – Joint Council and county meeting
• April 26th - Draft plan for Council to review
• Annexation Phasing – tentative for April or May
• City Council Adoption Hearing – May or June
Josie clarified that the Council workshops are not interactive with the
community participants, but meetings will be streamed live and recorded for
those who wants to see how City Council is thinking.
The group expressed interest in having two more meetings to review the
draft plan and the annexation plan. They also expressed interest in a
daytime (noon?) meeting instead of evening, which is difficult for family
commitments.
Josie and Sylvia thanked the group for their generous participation and time
engaging in this process.
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EAST MULBERRY ADVISORY GROUP: ANNEXATION LENSES & PHASING
Date: April 1, 2022
Location: Zoom (virtual)
Participants: Sylvia Tatman-Burruss (City of Fort Collins), Shawna Van Zee (City of Fort Collins),
Mike Brown, Amy Young, Erika, Josie Plaut (IBE), Susan Hsin (IBE)
ACTION ITEMS
• Share recording of this meeting with other Advisory Group members.
• Share recording of Council’s most recent meeting to Advisory Group members.
• Joint City Council and County Commissioners meeting on April 13th
• City Council work session focused on annexation April 26th
• Complete draft of East Mulberry Plan – City will reach out in the coming months.
• Notify Advisory Group when the Council’s vote will take place in an updated newsletter.
KEY TAKAWAYS & PERSPECTIVES
• Support for annexation in hopes of eventually benefitting from increased resources and
attention toward transportation, policing, stormwater, and other topics
• Concerns and surprise that annexation was in question and group member expressed concerns
about perceived lack of leadership, follow through, and potentially damaging optics if the City
chooses to back down from annexation.
• Desire for greater connectivity, continuity, and safety for different modes of transportation.
• Preference to start with Mulberry Corridor and the I-25 Gateway.
KEY MESSAGES FROM ADVISORY GROUP MEMBERS
• The financial implications and concerns should not get in the way for the betterment of the
community.
• It is short-term thinking to hesitate making improvements to this area. Feels like a short-sighted
perspective to think that investing in this area won’t be worth it. I would like to see the council
be more optimistic in this effort.
• It would be challenging to employ a phased approach for the improvements. It seems like the
area should either be annexed or not annexed. If we don’t annex, then the City does not need to
worry about having a plan and can stop spending so many hours and resources to wait on
decisions.
• Lack of vision by the City. Does the City want a cohesive feel on this side of town? At this point it
does not seem like they are convinced it is worth investing in East Mulberry.
Objective/Topic Notes
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Introductory Remarks
+ Meeting Kick-off
Brief overview of the agenda and conversation about the focus on the
difference between the Annexation Plan and the East Mulberry Plan.
The meeting was recorded via Zoom.
Community
Workshops Update
• Council asked staff to focus more on annexation phasing and options
• The East Mulberry Plan, while related, is on hold for a couple months.
• Council work session on April 26th will hopefully provide guidance for
how to move forward.
• The East Mulberry Plan can and does exist without annexation, but
annexation would provide greater accountability and resources focused
on implementation.
• Annexation is part of the longstanding agreements between the City
and the County, though it is not a given. Staff and consultants are
working to develop information and context to help inform council’s
decision-making process
Annexation Overview Difference between Annexation Plan and East Mulberry Plan
Annexation Plan
• There is an intergovernmental agreement that defines when an area
becomes an enclave, it will be annexed into the City and the City will
become the service provider in the area for policing, zoning, building
codes, stormwater infrastructure, and transportation. The current City
council has brought into question the annexation of the area.
East Mulberry Plan
• Existing plan from 2002 that addresses development in the area. It
works as a guiding document on whether this area will be jointly
adopted by the city or not. Recent efforts have focused on updating
the 2002 plan. The plan will be more robustly implemented if the area
is annexed than if it is not.
Questions/Comments from the Group
• We were under the impression that the annexation was going to
happen, and it was just a matter of time until it was finalized. Is that still
the case?
At this point, Council is asking for more information to make a more
informed decision about moving forward.
• Is the City waiting for more information or is there something else going
on behind the scenes?
The starting point was the agreement, but ultimately the decision is
up to Council, and they can choose whether to follow through with
annexation.
• What are the repercussions if Council decides to not annex this area?
This is something that the staff is still trying to understand as well. It
will largely depend on how the conversation goes on April 26th
before we have a better idea.
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• What happens to the East Mulberry Plan that we have been working on
over the past many months?
It was a surprise for everyone that the last Council work session
went the direction it did. They want to make sure that all the
community engagement work that has already been done is still
accounted for moving forward.
The annexation plan and East Mulberry Plan are related, but not
directly tied together. If Council does not decide to proceed with
annexation, the East Mulberry Plan can still be adopted. If the plan
is adopted without annexation, it is likely that it will serve as more
of a guiding document, rather than a plan.
• What was the purpose of updating the 2002 Plan?
Many City policies have changed since 2002, so the City wanted to
reevaluate the original plan in alignment with the current needs of
the community and changes the Fort Collins has experienced since
2002. This gives the City an opportunity to take more community
feedback into consideration as well.
• What factors influence what City Council is looking for in deciding on
annexation?
It’s a matter of having enough resources, the timeline of when to
start projects, and how to handle existing issues with roads and
infrastructure. They are looking for staff to outline these concerns
with more clarity to help make their choices more obvious.
• Has there been discussion about the increasing development and
population increase in this area? Genuine concern about public safety
due to the anticipation of many people moving to this area.
Because the policies of the City have changed to accommodate
multimodal transportation, the City, as an urban service provider,
requires this for new development. The requirements for the county,
which has more rural foundation, are much different. The
requirements and services from the City and the County do not
exactly line up, so the issue at hand is to figure out a solution that
will be a common ground for the differences between the two
jurisdictions.
The objective of today’s conversation is to be able to better
understand and articulate the community’s responses around
potential annexation by understanding different perspectives from
the community. We are trying to identify what the community
perceives as the benefits and drawbacks of annexation.
Suggestion to watch the recorded Council session to better
understand the shift in direction / the Council’s questions around
annexation. It’s important to note that Council works and decides
on issues and that City staff’s role is to provide information and
guidance to Council, but they are not one and the same.
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• Pedestrian, bike, and resident safety in this area is why an advisory
group member decided to join. The Mosaic Neighborhood, for example,
has great roads and infrastructure, but outside of the neighborhood,
that is no longer the case. No private builders and developers are going
to deal with the City’s infrastructural and connectivity issues.
Planning and resources from the City can begin with annexation,
but even if that is the case, it is very unlikely that any major changes
would happen in the next 5 years. It is a long process.
Phasing Overview The group moved into an annexation activity after being introduced to the
annexation subarea map (which is a little different from the East Mulberry
Plan Subarea Map). The group reviewed a summary of concerns and
opportunities by subarea.
There are no hard boundaries for the subareas on this map, but it is divided
up in a way to help us make sense of the area.
Why are we talking about phasing for annexation?
• Allows for the City to build up resources over time, rather than all
at once.
• Allows time for revenue generation ahead of other phases.
• Allows for better community engagement ahead of each phase.
Often, annexation areas are much smaller than what is to be the case for
East Mulberry, so the phasing plan helps annexation be more feasible.
Phasing lenses
Each lens focuses on one priority area. Other priority areas are still present
but might be delayed or resourced differently. The idea is to spark
conversation, rather than expect that the city will take on any one of these
lenses specifically. The options generally represent a time that would start in
couple of years and last 10 or more years.
1. Fiscal Health for City emphasizes fiscal impact to City of annexation,
including priorities, budges, risks, and timing.
EXHIBIT A TO ORDINANCE NO. 162, 2023
5
• Prioritizing revenue for the city through primarily through city
sales and some property taxes.
• Annexes commercial areas first with residential areas coming
later.
• Allows financial resources to be built up most quickly to help
offset additional costs (e.g., policing, capital improvements,
etc.)
2. Environmental & Hazard Protection Emphasizes annexation areas
that need improvements to address environmental and natural hazard
concerns (e.g., flooding).
• Recognizes that floods are a major concern in this area.
• Prioritizing subareas 1, 2, 4, which include Cooper Slough, Dry
Creek, and the Poudre River Trails.
• Might be a while until stormwater infrastructure improvements are
made, but this lens would get it on the list as a priority.
3. Economic Opportunity Prioritizes the annexation of properties with
potential for new industrial and commercial development that would
generate income for the local economy.
• Effort to identify which areas will maximize business potential while
meeting the multimodal requirements.
4. Residential Enhancement Emphasizes connectivity, utilities, and
other social priorities.
• Focuses on residential / resident priorities.
• Prioritizes annexation of subareas 2, 3, and 5, which have existing
residential neighborhoods
• Conversation around affordable housing in this area.
5. The Gateway Community Emphasizes functional and aesthetic
improvements along the Mulberry corridor.
• Aesthetic and functional improvements in partnership with CDOT.
• Prioritizes Subarea 3 and central portion of Subarea 1
Sylvia clarified that staff would present financial numbers to council on April
26th. These lenses are meant to help inform council’s thinking about an
annexation approach based on different priorities.
Questions from the Advisory Group
• Have any numbers for cost and benefit been put together yet? What is
the bare minimum for cost and funding? Seems like there is a huge gap
in this presentation about this.
Round numbers will be presented from the financial analyst in the
next council meeting on April 26th. We currently have a general idea,
but it is up to Council to decide what to do including looking
annexation from staffing, services, maintenance, and capital
perspectives.
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6
Phasing Lenses
Conversation
QUESTION FOR THE GROUP
Which area would you suggest annexing first and why? If you had to rank
them, or put them in an order, which order would you choose? Why?
• Focusing on the Gateway Lens should be prioritized to address the
issues of public safety and transportation. If this was the starting point,
there is potential that the improvements would spill over into the other
Subareas.
• The Gateway seems to be the most palatable choice because it would
have the greatest positive impact on the most people and the whole
town of Fort Collins, versus improvements to other subareas would only
be a help to the people who interact with those areas more exclusively.
• Even though this would be the most beneficial lens to take on, it is
equally probably the most difficult subarea to address.
• There are many overlapping issues characteristic to this area (i.e.,
stormwater infrastructure/flooding, traffic safety issues), that might
make this phasing plan not the most pragmatic solution. It would be
difficult to compartmentalize the improvements to one specific
subarea.
• To clarify, the Gateway Lens is not just a notion for beautification.
• Policing by the interstate is needed. Is there any data to provide to City
Council that addressing this area would be a crime reduction effort,
which would reduce the urgent need for police services?
The data is available in call volumes to the area. It shows that police
are needed in this area, which could help the case for the Gateway
area being pushed forward.
• It seems Council is struggling with the justifying the cost to cover
policing, but that cost isn’t supported by the current revenue/budget,
making it a barrier for the city to annex this area.
• Being short in resources doesn’t mean we shouldn’t be doing anything.
What would you most like council and staff to understand about your
thoughts on annexation?
• The financial implications and concerns should not get in the way
for the betterment of the community.
• It is short-term thinking to hesitate making improvements to this
area. Feels like a short-sided perspective to think that investing in
this area won’t be worth it. Would like to see the City be more
optimistic in this effort.
• It would be challenging to employ a phasing approach for the
improvements that need to be done in this area. It seems like it
should either be annexed or not annexed, which might make this
whole plan less confusing to our benefit. If we don’t annex this, the
City does not need to worry about having a plan, which is currently
EXHIBIT A TO ORDINANCE NO. 162, 2023
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something that the City is expending so many hours and resources
to wait on decisions.
• Lack of vision by the City. Does the City want a cohesive feel on this
side of town? At this point it does not seem like they are convinced
it is worth to invest in.
Closing Remarks +
Next Steps
The civic process only works because of the engagement from the
community. Our commitment is to continue facilitating opportunities that
will elevate the voices in the community.
This is far more than just a financial decision, but rather a whole city
decision. Despite the interesting turn in the road for all of us in this process,
all the progress made today is helpful for the City to gain clarity for this
complex decision.
The Council work session on April 26th is focused on the Annexation Plan,
which will include the lenses we discussed today, accompanied by the round
financial numbers. There is currently no deadline for council to decide by.
The work session on the 26th will not lead to any decisions, but the hope is to
get enough done to create guiding direction that will lead to a decision.
Regarding the East Mulberry Plan, it has the most impact is when single
properties and new development occurs. New developments will be subject
to the plan guidance whether the annexation happens or not. At the very
least, the impact will happen, but at a smaller scale (developers, builders,
private businesses) with the creation of this plan document.
Josie thanked everyone for their time and encouraged the group to keep
learning, keep staying involved, and to watch and participate in the council
work sessions and hearings accordingly.
EXHIBIT A TO ORDINANCE NO. 162, 2023
1
EAST MULBERRY ADVISORY GROUP: ANNEXATION & PLAN UPDATES
Date: February 2, 2023
Location: Zoom (virtual)
Participants:
Megan Keith (City of Fort Collins), Sylvia Tatman-Burruss (City of Fort Collins),
Shawna Van Zee (City of Fort Collins), Josie Plaut (IBE), Elicia Ratajczyk (IBE), Brown
Abrams, Stan McGarvey, Amy Young, Cindy Freeman, Nathan Randall (City of Fort
Collins),
ACTION ITEMS
• We should move the voluntary annexation by landowner petition example to a different spot in
the slide deck, it was a little awkward.
• Shawna to share the Q&A document and information about the upcoming timeline with
everyone via email.
KEY MESSAGES FROM ADVISORY GROUP MEMBERS
• There is still general support and interest in annexation and improvements in the East Mulberry
Enclave.
• They would like to be kept informed and are concerned about the uncertainty of both the
timeline for annexation and clarity around what it would mean for different types of properties
including how it would affect property taxes, values, access to businesses and amenities.
• They would like additional clarity about what this is going to look like and help in envisioning
how the process will unfold.
• They would like to be notified as improvement projects (whether from CDOT, the City, or the
County) are planned and information on how they can be involved in the process.
Objective/Topic Notes
Introductory Remarks
+ Meeting Kick-off
Welcome & Introductions. Brief overview of the agenda.
The meeting was recorded via Zoom.
Review: What is the
East Mulberry Plan &
how does it relate to
Annexation
Difference between Annexation Plan and East Mulberry Plan
What has happened
since our last Advisory
Group meetings
Moving away from phased approach and character areas
General Perspectives:
What we heard
• Desire for greater connectivity, continuity, and safety for all modes of
transportation
EXHIBIT A TO ORDINANCE NO. 162, 2023
2
• Maintaining mix of current uses, beautify Mulberry corridor,
accommodate light industrial uses
• General support for annexation
• Some concern and surprise that annexation was in question by City
Council
How this connects to
your feedback
• Your input has gone into the East Mulberry Plan
• You will have a chance to see and comment on that plan before it is
ratified next summer
How the Annexation
Conversation has
unfolded
• Timeline of events that have occurred over the last year
• March Council Session – Council asked for a pause and time to address
some of their concerns
• Worked through some issues and most recently met with Council in
December
• Introduction of the Thresholds/Tipping Points approach:
o Maintain logical boundaries (e.g. voluntary annexation of
individual parcels)
o Proactive Resource Protection (e.g. Cooper Slough)
o Redevelopment Risk (e.g. mobile home parks)
o External Funding (e.g. CDOT improvements at I-25)
Does CDOT have any current plans to improve the
interchange? Yes, there is a plan but no clear indicator
on the timing of when they will pursue that.
How would you be
informed of future
annexation (when
thresholds are met)?
• Outreach to community
• Initiating resolution of City Council, recommendations from Planning &
Zoning commission, two ordinance readings of City Council (over 4-6
months)
• Each touchpoint will have opportunities for community members to
become engaged
What does it look like
moving forward?
• It may take a significant amount of time to reach annexation.
Group Conversation • How is this landing for you?
• What are your thoughts & questions?
• Is this a reasonable approach from your point-of-view?
Brown Abrams: I’m only tangentially involved because I own a vacant lot
behind American Furn. Warehouse, I’m just wondering about what
annexation means and how it will impact property taxes and values.
Megan: One of our goals is to clearly communicate what the changes will be
in going from the county to annexation into the City. We hope that you
could help to distribute some of that information as we move forward and
we will follow up after the meeting with some of those resources.
EXHIBIT A TO ORDINANCE NO. 162, 2023
3
Josie: There has been opportunities for individual property owners to talk
with the City’s planning staff and will that still be available to property
owners?
Megan: Yes, we will certainly continue to do that as we move forward.
Brown Abrams: I’m glad to see its finally coming together, as property
owners we were happy to not pay City taxes but we did need the roads
fixed so we got together and raised the money for a special improvement
district to do that.
Josie: This will still be a long and slow process and its important to set
expectations that this will happen very slowly. There is the voluntary
annexation approach that is available if you do not want to wait for the
thresholds to trigger potential annexation.
Brown Abrams: Do you know why these areas of the City weren’t originally
part of the City?
Josie: This area has traditionally been on the edge of the growth
management area and has functioned as the buffer between the urban and
rural areas.
Stan: I’m excited about the improvements along Mulberry with the
landscaping and everything. I’m only concerned about access into my
business. Will the frontage road be eliminated and make that more
difficult? I’ve seen some things on some of the previous plans that could
affect my property but overall I’m excited about some of the improvements
that could aesthetically improve the area.
Megan: We would definitely be in communication with you and our goals
are to minimize the negative impacts and disruptions to businesses.
Josie: The East Mulberry Plan includes pretty broad brush strokes and when
the improvements begin to take place there would be a lot of community
engagement and input as we get to the levels of detail needed and you and
others in the area would be invited to really engage and provide input on
the specifics there.
Amy: I’m still having trouble envisioning when and how this is going to be
implemented and its pretty different than what we were talking about a
year ago. I’m just struggling to visualize when, how, and where
improvements would take place.
Josie: One of the lessons I’ve learned from the Southwest enclave
annexation is that annexation doesn’t really lead to immediate capital
improvements. The services like policing and things happen immediately but
the changes to streets takes time and the transition to different rules and
taxes also takes some times so people have both input and time to get used
to what that will look like. While the threshold approach is a little more
uncertain
Amy: If an area is annexed, like let's say Roselawn, if that were to be the
next annexed area, how would that impact the community there? Would
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that then give you the license to improve East Mulberry along that area, for
example?
Megan: Yes, if that were to happen, planning and zoning would start
looking at what makes sense and come up with a plan that makes sense as
to what annexation would look like. The transfer of services to those areas
would be determined in more detail.
Amy: Have you really determined what makes a threshold?
Megan: Yes, some of the examples are some of the things that we are
considering, but there are some other things as well, such as continuity and
how we build some of the City’s goals into these thresholds and logically
sequence things including all of these factors.
Josie: Existing residential areas will probably be the slowest to be annexed
as opposed to some of the areas that are still developing. The transfer of
services and improvements to things like storm sewer would begin to be put
into the que (for the whole City) but all of those things would take time.
Amy: So as far as East Mulberry and the frontage road, etc. could be
developed kindof piece meal then, depending on thresholds?
Megan: So, that is part of what we’re trying to address. So in your example,
we would be actively trying to keep from creating that patchwork, or
choppy sections approach, and so we would be annexing it in one or two
longer segments, if not the whole thing at one time, trying to do what
makes sense.
Cindy Freeman: So in looking at this map and our discussion, it seems like
the Gateway at I-25, the Mulberry Corridor, and then maybe Lincoln are the
priorities?
Megan: Yes, that sounds like how we are starting to think about this and
where we are anticipating that we will reach these thresholds first, and
residential communities won’t experience the thresholds in the same way
and so those will likely take longer to get through annexation.
Cindy Freeman: Have you been in communication with CDOT about how
improvements will take place as they improve the highway and
interchanges? How do we improve connectivity and the safety at some of
the intersections along Mulberry?
Megan: We anticipate a lot of on-going coordination with CDOT as we move
through both the Mulberry Plan and Annexation and while there hasn’t
been a lot of interaction lately, there will be more in the future as we move
forward.
Josie: Again, things will move really slowly until they don’t but as specific
projects begin to happen we will provide information and engage the
community as they become imminent on the horizon.
EXHIBIT A TO ORDINANCE NO. 162, 2023
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Megan: Yes, we think that sharing things that are in progress or in the
pipeline will be great and we would be able to provide this group with
information and a mailing list of things that are coming up.
Cindy Freeman: How would the stormwater situation relate to Countryside,
where I live, if Mulberry and the commercial properties along there were
annexed and improved? How can something like stormwater be done piece
meal?
Megan: Yes, good question. We have been thinking a lot about that and we
are hyper aware of those issues and that will be something that will be key
in creating the thresholds and looking at how things may take shape.
Closing Remarks +
Next Steps
Shawna: We will be hosting four public meetings, two virtual meetings at
the end of February, and two in-person meetings in March. We will send out
mailings prior to the meetings. One of the virtual meetings will be recorded
and posted online. The in-person meetings will be held at the Genesis
Project.
Reach out to Megan or myself (Shawna) if you would like to have an
information session or discussion in your community.
W
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix A:
Community Engagement Reports
Business & Community Workshops
EXHIBIT A TO ORDINANCE NO. 162, 2023
1
EAST MULBERRY PLAN
COMMUNITY ENGAGEMENT REPORT
February 18, 2022
COMMUNITY ENGAGEMENT OVERVIEW
Between October 2021 and February 2022, the Institute for the Built Environment (IBE) at Colorado
State University facilitated a series of engagement activities to solicit input from the East Mulberry Plan
Area residents and owners of commercial/industrial businesses. Engagement activities included a
community advisory group, virtual workshops, and an online questionnaire.
Advisory Group
Members of the Advisory Group have consistently engaged with the East Mulberry Plan project team to
share their knowledge, concerns, and hopes for the outcomes of the multi-stage planning and
annexation process. They have played an important role in holding the project team accountable for
maintaining the project’s vision and spreading the word about engagement opportunities through their
personal networks. The advisory group included renters and homeowners of several East Mulberry
neighborhoods, including Boxelder Estates, Countryside Park, and Mosaic, along with businesses of
various sectors, including Charco Broiler Restaurant, Fort Collins Nursery, Western State Bank, Mountain
Pet Supply, and more. Four advisory group meetings were held October of 2021, and their involvement
in future engagement opportunities and review processes will be key for the project’s future success.
The draft plan goals were shared at an Advisory Group meeting on February 4th, 2022. The community
perspectives expressed through the workshops both confirmed and refined language for the goals.
Virtual Workshops
The most recent series of community engagement workshops gathered input on aesthetic and
functional priorities for streets and roads, bike and pedestrian infrastructure and trail connectivity,
utility improvements, and future land use priorities for the East Mulberry plan area. The perspectives
and lived experiences of the diverse stakeholders who live, work, shop, and play here are helping the
city develop the vision and priorities for the plan area while honoring the areas unique characteristics.
In the most recent phase of community engagement, the City of Fort Collins and IBE worked together to
host a series of public engagement workshops that provided an opportunity for Spanish and English-
speaking, and commercial/industrial businesses to share their perspectives and priorities. Outreach
EXHIBIT A TO ORDINANCE NO. 162, 2023
2
efforts targeted a broad range of populations and organizations so that the plan reflects the values and
aspirations of diverse community members.
Online Questionnaire
An online questionnaire, available in English and Spanish, was open from January 21 through February
15. The questionnaire was not promoted heavily, but rather as an option for those who could not attend
one of the community workshops. A total of 13 people completed the questionnaire. Half of
respondents were residents north of Mulberry while the other half represented residents south of
Mulberry, property owners, employees in area businesses, patrons of area businesses, and a business
owner.
KEY THEMES OVERALL
The overall community sentiment reflects a desire for a complete and diverse community that includes
existing and future industrial and commercial uses, while adding more basic services (e.g., restaurants,
parks, grocery stores, etc.) and preserving existing housing and overall affordability. In addition to the
overall sentiments, the community expressed interest in stormwater infrastructure to reduce flooding,
safe and functional transportation infrastructure including improved multi-modal access to community
amenities and services, and improved connectivity to natural spaces.
The community engagement included three distinct populations who share some priorities, while
maintaining diverse perspectives on some topics: Hispanic residents, non-Hispanic residents, and
business owners. All groups shared concerns with traffic connectivity, function, and safety for all modes
of transportation. There is a shared preference among most participants for prioritizing parks and
natural spaces, restaurants and hospitality establishments, and basic amenities to improve the livability
in the area, while maintaining its affordability and unique industrial landscape. Members of all three
groups expressed concerns about increased costs and fees associated with the annexation and the
source of funds to pay for improvements and projects. The community requested that the City continue
to be transparent about funding sources and timelines as they develop.
In some instances, the three groups expressed distinct concerns and priorities. Preservation of
industrial uses, both current and future, is the highest priority business stakeholders. Residents
generally favored maintaining existing industrial uses, while Hispanic residents expressed the greatest
concern around new industrial uses. Priorities for intersection improvements and connectivity to other
locations in Fort Collins contrasted significantly between the Spanish-speaking and English-speaking
stakeholders (see below for additional detail). In general residents were more concerned with topics
around livability (basic services, pedestrian and bicycle connectivity, internet service), while the business
community was most interested in preserving industrial and commercial uses and minimizing financial
impacts related to City regulations and development requirements.
COMMUNITY ENGAGEMENT OUTCOMES
IBE gathered input on the community’s preferences and priorities for aesthetics, transportation and
connectivity, public infrastructure, and future development/land use. The community expressed a range
of concerns, desires, and ideas regarding the East Mulberry plan area, including similarities and
differences across stakeholder groups.
EXHIBIT A TO ORDINANCE NO. 162, 2023
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Community feedback is summarized by stakeholder group below.
Topic Hispanic
Residents
Non-Hispanic
Residents
Business
Community
Look & feel of
East Mulberry
corridor
Highest preference given
to neighborhood and
traffic safety, lighting,
and aesthetics. With a
desire to see
improvements in
landscaping & vegetation.
Aesthetic improvements
would be appreciated to
give this scenic byway
greater appeal, although
aesthetic improvements
do not seem to be a
priority compared to
other categories for
improvement.
The primary use of
Mulberry should be
upheld, which is to serve
as a corridor into Fort
Collins and transport
supplies for businesses.
Some beautification
efforts would be
desirable to elevate the
appearance of the entry
into Fort Collins, with
some concerns that
landscaping would limit
visibility of businesses
and potential high cost.
Intersections &
frontage road
improvements
The highest priority
intersection for the
Hispanic community was
Lemay, likely because
they frequently pass
through the intersection
for work and access to
basic amenities.
This priority was notably
different than English-
speaking community
members intersection
improvement priorities.
Priorities in order:
Timberline & Lincoln,
Summit View, Link Lane,
Frontage Roads and
Lemay.
Existing conditions are
dangerous for
pedestrians and bikers
due to wide roads and
short amount of crossing
time (esp. Summit View).
Design and wayfinding
improvements (e.g.,
diagonal angle of turn on
Summit View &
Mulberry) to make
intersections less
confusing and reduce
frequency of accidents.
Highest priority
intersections were
Frontage roads, Summit
View, Link Lane, and
Timberline & Lincoln
were the top priorities.
and the as many
businesses use these
roads daily for
transportation of supplies
and for customer access.
Summit View traffic light
is too short for cars and
pedestrians/cyclists to
cross Mulberry and
confusing angles.
Improvements to Link
Lane would help the flow
of traffic in this area.
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Priorities for
bicycle &
pedestrian
connectivity
Greater interest for
bicycle and pedestrian
infrastructure that will
connect to commercial
destinations, including
Vine Drive, which was
unique to the Hispanic
community. Additionally,
connectivity to
businesses along E.
Mulberry and to the
medical area on Lemay
Medical were priorities.
Access to Old Town and
the University were not
listed as top priorities.
Connectivity to trails and
downtown Fort Collins
was less of a priority for
Hispanic residents.
Expressed greatest
interest in crime
prevention.
Highest priority for
connecting to commercial
and entertainment areas
(e.g., Old Town, Lemay &
Mulberry commercial
area, and natural areas
including the Poudre
River Trail.
Vine Drive and Lemay
medical area were not
identified as top
priorities, contrasting
with the Hispanic
community.
Overall, the business
community expressed
less concern about
bicycle and pedestrian
connectivity in the area
than residents.
Future land use Highest preference for
new parks and natural
areas, restaurants and
eating establishments,
attractions and
entertainment spaces,
and community facilities.
Lowest preference for
new light industrial, high-
tech businesses, new
commercial and retail
and four-story buildings.
Prefer to preserve
current land uses,
especially the commercial
and residential areas.
Highest preference for
more restaurants, parks
and natural areas, basic
services, new businesses
(including attractions and
entertainment, and arts
and creative spaces), and
community facilities.
Lowest preference for
four-story buildings, new
light industrial. Mixed
perspectives about new
high-tech businesses.
Some residents shared
that they moved to Fort
Collins as relief from
higher density urban
environments.
Affordability should be
maintained regardless of
Strong preference to
maintain current
industrial land uses and
affordable housing.
Interested in
development that would
bring more people and
activity to the area (e.g.,
restaurants, basic
amenities, retail, and
entertainment).
Mixed perspectives about
high-tech industry and
higher density
development. Some see
opportunity while others
see a threat to the unique
industrial landscape and
businesses.
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changes to future land
use.
Infrastructure
improvement
priorities
Highest preference for
broadband services,
followed by
improvements to public
infrastructure (i.e., road
& intersection
improvements,
stormwater
infrastructure).
Highest preference for
pedestrian infrastructure
at key corridors, closely
followed by key
intersection
improvements.
Interested in having more
options for affordable
and stable internet
connectivity including
broadband.
Most interested in
infrastructure that would
enhance public safety.
Mixed interest in
broadband service.
Fee and cost increases
are a concern, and some
do not feel the need to
pay more for
infrastructure
improvements to help
their business.
Overall
priorities Solutions for safety-
related issues are highest
priority including lighting
improvements and
addressing crime and
traffic issues, and
improved bicycle and
pedestrian connectivity
to businesses on
Mulberry, Lemay
commercial and medical
areas, and public green
spaces.
Would like to see an area
specifically designated for
Hispanic and
international products.
Prefer to preserve the
current land uses,
possibly connected to a
sense of vulnerability in
regard to job security and
housing affordability.
Would like more public
engagement
opportunities to provide
input on East Mulberry
and to stay updated on
project progress.
Transportation related
infrastructure for all
modes, especially
pedestrian and bicycle
infrastructure, and
improvements at key
intersections.
Traffic safety-related
issues concerning all
modes of transportation
was highest priority for
this group.
Improved bicycle and
pedestrian connectivity
to nature trails, open
green space, and
downtown are a priority
for many in this group.
Prioritize infrastructure
improvements that are
necessary and avoid
adding unnecessary costs
to running a business.
Transparency in project
funding and potential
fees such as property
taxes, sales tax, signage
changes, stormwater
fees, etc.
Traffic-related projects
should be prioritized to
alleviate barriers and
safety concerns for
drivers, pedestrians, and
cyclists.
EXHIBIT A TO ORDINANCE NO. 162, 2023
6
NEXT STEPS
The Advisory Group and the general community will be invited to review the draft East Mulberry Plan
and the draft annexation plan before the draft plans are presented to City Council, currently planned for
the second quarter 2022.
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix A:
Community Engagement Reports
Annexation Q&A Sessions
EXHIBIT A TO ORDINANCE NO. 162, 2023
1
EAST MULBERRY PLAN &
ANNEXATION THRESHOLDS
COMMUNITY ENGAGEMENT OUTREACH
REPORT
March 20, 2023
Prepared by
EXHIBIT A TO ORDINANCE NO. 162, 2023
2
ENAGEMENT OVERVIEW
Purpose of this Report
The report below summarizes the community engagement activities and results from February and
March 2023 focused on the East Mulberry annexation approach.
Project Overview
As part of the East Mulberry Plan revision and the corresponding approach to annexation of the East
Mulberry enclave, City staff worked with Colorado State University’s Institute for the Built Environment
to design and deliver a series of community engagement events. The purpose of the events was to
introduce community members to the "thresholds” annexation approach, to provide opportunities for
public comments and questions, and to address community member’s questions and concerns regarding
potential future annexation.
Community Engagement Activities
Five community engagement activities were held in February and March of 2023. The first was with the
community advisory group and the other four were open to public comment. In advance of the public
meetings the city sent direct mail invitations as well as conducted a door-to-door campaign to raise
awareness for the events. In total, about 140 community members participated in the advisory group
and public meetings. The February and March 2023 public engagement efforts focused primarily on the
approach to annexation vs. the broader East Mulberry Plan update, which had been the focus of the
2021 community engagement efforts. The report summarizing the Summer 2021 East Mulberry
Community Engagement effort can be viewed at the following link:
https://www.fcgov.com/planning/files/ibe-synthesis-east-mulberry-engagement-summer-
2021.pdf?1629409952
Advisory Group Meeting
The East Mulberry Advisory Group was formed in 2022 and met several times. The group includes
residents and business owners who meet with city staff periodically to discuss their vision for the area.
On February 2, 2023, the group convened online to learn about the thresholds approach toward
annexation in the enclave and share their initial impressions. Facilitators from the Institute for the Built
Environment helped to guide the conversation. Advisory group members asked questions about the
annexation timeline, implications for their properties and communities, and how the thresholds
approach would work to prompt annexation.
Public Community Engagement Meetings
The City of Fort Collins hosted a series of public meetings to connect community members with staff to
answer their questions about the East Mulberry Plan and annexation. City staff from Community
Development & Neighborhood Services, City Manager’s Office, Economic Health, Civil Engineering,
Transportation, Sales Tax & Revenue, and Code Compliance departments were present to answer
EXHIBIT A TO ORDINANCE NO. 162, 2023
3
questions. Each session included a 45-minute presentation followed by a 45-minute Q&A session and
was facilitated by staff from the Institute for the Built Environment. Meetings were scheduled to
accommodate community member’s needs, preferences, and schedules including online and in-person
meetings, daytime and evening events, and live Spanish interpretation. The list below details when and
how each meeting was held.
Online meetings with live Spanish interpretation:
• Monday February 28, 5:30 to 7:00pm, 32 community members
• Tuesday February 29, 10:00-11:30am, 35 community members
In person meetings at The Genesis Project on Link Lane:
• Tuesday March 7, 10:00-11:30am, 40 community members
• Thursday March 9, 6:30-8:00pm, 28 community members
Participants included East Mulberry residents, business owners, and property owners primarily from the
plan area. Community members who attended the sessions learned about the city’s planned approach
to annexation and received access to additional information and resources regarding annexation
impacts for individual properties. The community sessions helped city staff to further understand the
community’s questions and concerns about the annexation process.
During the in-person community sessions, participants were encouraged to fill out comment cards with
specific questions to be addressed during the meetings. Residents and business owners were invited to
request one-on-one meetings with city staff to respond to individual questions and concerns. Staff
received eight paper comment cards after the in-person meetings on March 7th and 9th and 13 follow-up
inquiries submitted through the online form on the project website. Meeting participants were also
invited to email staff directly, so some additional follow-up occurred in that form.
KEY THEMES & DISCUSSION TOPICS
The comments, questions, and concerns from community members regarding annexation focused
primarily on how annexation would impact them in six key issue areas: taxes, costs, and regulations;
stormwater management; roads and intersections; policing; local character; and timeline and process.
Perspectives varied among community members regarding the favorability of annexation, with some
who are supportive of annexation, some who are opposed to annexation, and others who hold a mixed
or neutral position.
One group of residents shared about their experience with voluntarily annexation and spoke about this
change in a positive light, commenting that it had reduced their taxes and utility costs overall.
The table below highlights the thematic areas of the questions and concerns that were expressed during
the community engagement efforts. The sentiments expressed reflect the range of perspectives and
opinions shared by community members. While fully capturing the diversity and nuance of the
EXHIBIT A TO ORDINANCE NO. 162, 2023
4
community perspectives is not possible, the synopsis below provides an overview of the perspectives
that were expressed during the meetings.
EXHIBIT A TO ORDINANCE NO. 162, 2023
5
Topic Resident Community Business Community City Response & Resources
Taxes & Costs
& Regulations
• Concerned that property taxes for
family homes and land will rise
following annexation.
• Varied opinions regarding the
desirability of municipal vs. current
utility service providers (i.e.,
electricity, internet).
• Confusion about how time-of-day
electric rates will be assessed by
the city, compared to county
providers.
• Those who already pay HOA or
local improvement district fees
don’t want to pay fees to the city
as well.
• Questions about how city taxes
differ from county taxes (e.g., sales
tax, use tax, property tax, and
stormwater fees).
• Concern that adding city sales tax
will make businesses less
competitive in the region,
especially for small businesses.
• Concern for new taxes and fees
being unfair to large businesses,
which will be expected to pay
more according to size.
• Concerned about additional city
regulations in addition to existing
county regulations for businesses.
• Staff are anticipating
conducting additional
engagement with the business
community in the form of
individual follow-up meetings
as well as the opportunity to
help craft and review policy
related to business success
and preservation within the
area.
• Staff from the City’s Sales Tax
and Revenue department
were available at every
meeting for questions.
• Handouts pertaining to sales
and use tax information were
prepared and available as
physical handouts at in-person
events, and as links located on
the project webpage.
EXHIBIT A TO ORDINANCE NO. 162, 2023
6
Topic Resident Community Business Community City Response & Resources
Stormwater
Management
• Want to see improvements to
ongoing flooding issues in the area.
• Think that flooding control should
be a priority for city planners if the
area is annexed.
• Doubts about development in the
area, as the area is largely in the
floodplain.
• Worried about flooding from local
creeks that overflow near business
centers in the area.
• Concern over stormwater fees,
which many business owners
perceive as too high.
• Think that stormwater fees should
go directly toward infrastructural
projects in the area with clear
impact.
• Staff are very aware of existing
flooding issues within the area
and heard this sentiment
expressed again clearly during
each of our recent sessions.
• Staff attempted to convey that
although residents and
businesses would begin paying
a stormwater fee upon
annexation, fees collected
would ultimately contribute
towards infrastructure
improvements that could help
improve the flooding issues
within this area.
• The East Mulberry project
website as well as handouts
distributed at in-person events
included links where
estimated residential or
commercial stormwater fees
may be calculated. Staff are
working to include additional
information related to
stormwater fees on the
project website due to a high
level of interest in this topic.
EXHIBIT A TO ORDINANCE NO. 162, 2023
7
Topic Resident Community Business Community City Response & Resources
Roads &
Intersections
• Residents who rely on frontage
roads know that they are unsafe
but worry the city will get rid of
them entirely.
• Some would like to see
neighborhood access for cars
prioritized over pedestrian and
bike access routes.
• Specific questions about
problematic intersections
(Timberline & Mulberry and
Prospect & Summit View).
• Want to preserve access to key
business and manufacturing
corridors, like Lincoln Avenue.
• Interested in improved
connectivity along East Mulberry
between I-25 and downtown Fort
Collins.
• Concerned that costs for new
infrastructure, like sidewalks, will
be passed along to business
owners.
• Staff heard and documented
locations where residents
expressed safety concerns.
• Staff conveyed that East Mulberry
Street will remain a Colorado
Department of Transportation
(CDOT) facility, but that the
frontage roads would come under
the City’s purview upon
annexation. The update to the
East Mulberry Plan will further
explore how to preserve existing
access while also improving
connectivity for all modes.
• Through the update to the East
Mulberry Plan, staff are exploring
ways to apply development
standards appropriately, especially
for minor site/building
modifications.
EXHIBIT A TO ORDINANCE NO. 162, 2023
8
Topic Resident Community Business Community City Response & Resources
Policing • Concerned about crime in the
area, specifically related to drugs
and human trafficking.
• Residents have noticed an uptick in
the homeless population sleeping
in their neighborhoods.
• Some residents expressed
satisfaction with the County
Sherriff’s department and worry
that Fort Collins Police Services are
understaffed.
• Like residents, business owners
have noticed an uptick in crime
and wish their area could be safer.
• Noted several instances of
vandalism that hurt businesses and
are costly to clean up.
• Want to make sure the East
Mulberry Corridor is considered
safe for customers to travel
through.
• Staff received feedback both
about satisfaction with the County
Sheriff’s department as well as the
desire for more oversight in
certain parts of the area. Staff
shared that upon annexation, any
area coming into City Limits would
be serviced by City of Fort Collins
Police Services (FCPS). As the East
Mulberry Corridor has grown over
time, urban policing issues have
become more prevalent with
greater call volume and incident
complexity.
EXHIBIT A TO ORDINANCE NO. 162, 2023
9
Local Character • Want to preserve rural character,
especially for residents with large
plots of land and animals.
• Concern that city regulations might
dampen the rural-ness of East
Mulberry neighborhoods.
• Some residents chose to move to
this area because they wanted to
live in Larimer County, not within
the city.
• Doubtful that city re-zoning
policies will accurately reflect the
industrial functions that the area
serves.
• Interest in maintaining distance
between industrial areas and Fort
Collins city proper.
• Sense of pride in the area’s
industrial/rural feel, which some
worry could change under
annexation.
• Large plots of land including those
with farm animals would be
allowed to remain upon future
potential annexation activity.
Some other characteristics that
contribute to the rural feel of East
Mulberry neighborhoods would
remain.
• Although some may have located
here to be within Larimer County
as opposed to the City of Fort
Collins, the East Mulberry Enclave
is within the City’s Growth
Management Area (GMA) which
was created in 1980. The GMA
supports urban development and
services within the boundary and
more rural development and
community separators outside of
this boundary.
• The East Mulberry area serves an
important industrial and
commercial service function for
the greater Fort Collins
community. It is a priority to
preserve these functions into the
future.
• Through the update to the East
Mulberry Plan document, staff are
aiming to preserve and promote
EXHIBIT A TO ORDINANCE NO. 162, 2023
10
Topic Resident Community Business Community City Response & Resources
the industrial functions that exist
within the East Mulberry area.
This can be accomplished by
providing land use and zoning
guidance that closely matches
current zoning designations under
Larimer County.
Timeline and
Process
• Desire for more clarity about when annexation will happen for specific areas
/ properties.
• Desire for clarity about timing for improvements upon annexation (e.g.,
stormwater infrastructure, intersection improvements, etc.).
• The update to the East Mulberry
Plan will further document the
Annexation Thresholds approach,
including how to monitor and
track thresholds as well as how to
proceed once a threshold has
been met. Staff will bring
thresholds forward for City Council
consideration. When decision
makers determine that official
annexation action is warranted,
property owners and business
owners will be informed about the
potential annexation and will have
the opportunity to offer feedback
throughout the process.
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix B:
Mulberry Corridor
Financial Consideration
Phased Annexation Approach
EXHIBIT A TO ORDINANCE NO. 162, 2023
The City partnered with consultant Economic &
Planning Systems (EPS) in 2020 to provide a fiscal
impact evaluation of the potential annexation of the
East Mulberry Enclave. EPS developed an Excel-based
scenario modeling tool to assist in measuring the fiscal
impacts resulting from alternative phasing, sequencing
and potential funding options related to annexation
of the enclave area. An overview of the EPS work is
included as Appendix C.
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 for projects
within Fort Collins utility service areas, 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.
Appendix B: Financial Considerations
Phased Annexation Approach
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix B: Financial Considerations
The range of estimates above includes both ongoing
revenue and expenses, as well as one-time capital
expenditures and impact fee revenues. Primary
expenditure drivers are highlighted below:
• Police Services: Analysis of existing activity in the
annexation area suggests that up to 35 additional
FTE (23 sworn officers; 12 professional support)
would be required at an annual cost in excess of $5
million.
• Streets / Traffic: The annexation area encompasses
nearly 46 miles of roadways, of which
approximately 30 miles would be envisioned to
come under City maintenance and upkeep. Annual
estimate of maintaining is around $750,000.
Potential additions of up to 14 miles of roadway w/
new developments would increase this figure.
Governmental: 20-Year View
($M)Range Avg. / Yr.
Revenue $80 - $210 $4 - $10
Expense ($115) - ($265)($6) - ($13)
Margin ($35) - ($55)($2) - ($3)
Utilities: 20-Year View
($M)Range Avg. / Yr.
Revenue $75 - $240 $4 - $12
Expense ($200) - ($365)($10) - ($16)
Margin ($85) - ($125)($4) - ($6)
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.
1. Economic Opportunity - Emphasizes economic
development and vitality in the area
2. Residential Enhancement - Emphasizes
connectivity, utilities, and other social priorities
3. Environment & Hazard Protection - Emphasizes
environmental buffers, flood mitigation
4. Fiscal Health for City - Emphasizes fiscal impact
to City of annexation, including existing priorities,
risks, and timing
5. Community Gateway - Emphasizes improvements
and reinvestment potential for the Mulberry
Corridor, including the highway and frontage roads
These five scenarios each depict a slightly different
emphasis of priority but all of them consider the City’s
Triple Bottom Line (TBL) approach to evaluations.
Sustainability advocates use the TBL in decision-
making to bring the global concept of sustainability
to action at the local level. Essentially, that means
projects are evaluated based on their social, economic
and environmental impacts. Rather than make
decisions solely on the basis of profit or the economic
bottom line, three bottom lines (social, economic, and
environmental) are considered. The City is able to use
TBL in both longer-term planning evaluations, as well
as in daily decision making.
These scenarios are theoretical and assume annexation
within given periods of time. They can be adjusted
by changing the underlying assumptions to produce
different results. None of these scenarios are meant to
be “staff recommendations” given the uncertain timing
and velocity of threshold annexation and are instead
a starting point for conversation and analysis. The
results of these modeling efforts were presented at the
August 1, 2022, Council Finance Committee meeting, as
well as summarized at the December 13, 2022 Council
Work session.
Phased Annexation Approach
EXHIBIT A TO ORDINANCE NO. 162, 2023
The analysis assumes existing city rates, fees and cost
structures will be applied to the potential annexation
areas. No new fees, increases in rates or inflationary
impacts are included in the base analysis. The timing
and need for services will be dependent on the types
of services provided (police services, for example,
would be required up front upon annexation; parks
maintenance needs would be ramped up with the
potential development of new facilities). On the
governmental side, new capital expansion fees and
grants could help offset the increased operating costs
needed for providing incremental services. Timing
and sequencing of potential annexation areas would
determine if additional funding sources would be
required. On the utility side, there is an expectation of
heavier infrastructure requirements up front (both to
acquire assets from existing providers and to build out
and connect to existing City systems). Offsets would
be available from new development fees and potential
rate adjustments to the customer base.
Additionally, the scenarios above were also evaluated
by accelerating or de-accelerating the potential
annexation timeframes. While the annual, average
bottom line impacts are not much different than the
above estimates, accelerating the timeframes does
increase risks by committing to larger expenditure
outlays upfront (police, street maintenance,
L&P infrastructure) with revenues dependent on
development activity and increased revenue (sales
tax) generation to come.
Appendix B: Financial Considerations
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 tradeoffs. In December 2022,
staff provided a framework for evaluation of the
enclave area centered on a “thresholds” concept.
As summarized in previous text, staff was initially
tasked with a financial analysis of a phased approach
whereby Council would consider adopting set years
for different phases of annexation. While the costs
and revenue projections are still relevant in some ways
for estimates within areas of the enclave, they will
not be fully applicable under a thresholds approach.
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. More information
about annexation thresholds is provided in Section 5:
Annexation Thresholds.
• 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.
Phased Annexation Approach
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix C:
Mulberry Corridor
Financial Impact Analysis
EXHIBIT A TO ORDINANCE NO. 162, 2023
203030-FIA Methodology Memo_5-31-2023.docx
M EMORANDUM
To: Dave Lenz, City of Fort Collins
From: Dan Guimond and Matt Prosser; Economic & Planning
Systems
Subject: Mulberry Corridor Annexation Economic Analysis
Date: May 31, 2023
This memorandum provides an overview of the methodology
used to analyze the fiscal impacts to the City of Fort Collins of
the potential annexation of the unincorporated enclave along
East Mulberry Street in Larimer County. The purpose of this
memorandum is to document the approach and process
Economic & Planning Systems (EPS), along with City of Fort
Collins’ Finance and Planning Departments, took to determine
potential fiscal impacts on the City. The memorandum also
contains the major phasing and qualitative findings of the
analysis. Quantitative findings and outputs developed during the
process are provided in separate presentations and council
communications.
Project Background
Over a period of time, the City has annexed multiple properties
on the eastern edge of the city along the Mulberry Street corridor
extending to I-25 which has created a large enclave of
unincorporated Larimer County property. Per existing
intergovernmental agreements (IGAs) between the City of Fort
Collins and Larimer County, the creation of this enclave triggers
a requirement for the City of Fort Collins to eventually annex all
of the property in the enclave.
The requirement to undertake annexation prompted the City to
develop an updated land use plan subarea plan for the Mulberry
Corridor to provide guidance on land use and capital
improvements needed and desired for the area. To support this
effort and financial planning, the City retained EPS to create a
fiscal model to estimate fiscal impacts of annexation including
both one-time capital costs as well as ongoing operational costs.
EXHIBIT A TO ORDINANCE NO. 162, 2023
Memorandum: Mulberry Corridor Fiscal Impact Analysis
Page | 2
Fiscal Impact Analysis Methodology
Study Area Conditions and Inputs
The fiscal impact model was built to evaluate both existing properties and uses as well as
potential future development within the Mulberry Street enclave. The Enclave Area is
large and encompasses over 2,600 acres of private property on both sides of Mulberry
Street roughly between Lemay Avenue (on the west) and just beyond the I-25
interchange (on the east). To address the size and varied development context in the
enclave, the area was originally split into five subareas for the purpose of evaluating
fiscal impacts, as shown in Figure 1. A subsequent sixth subarea was defined to address
the formal annexation of a property (and related development) that was approved during
the plan process. This development, Subarea 6, was part of the larger Subarea 5.
Figure 1 Mulberry Enclave Subareas
EXHIBIT A TO ORDINANCE NO. 162, 2023
Economic & Planning Systems, Inc.
Page | 3
The annexation Enclave Area is currently home to a significant amount of residential,
commercia and industrial development. There are currently 1,114 housing units and 4.8
million square feet of non-residential buildings. The area’s population in 2020 was 3,557
people and contained 6,564 jobs within 508 businesses. The Enclave Area is split
between existing, developed properties and vacant/under-developed properties that can
support new buildings/uses. The area has 1,258 acres of private, developed acres and
1,409 acres of private, undeveloped acres, as shown in Table 1. The undeveloped
properties in the enclave are estimated to have the potential to support an additional
3,950 housing units and 2.0 million square feet of non-residential development based on
the future land use designations in CityPlan, the City's adopted comprehensive plan.
Table 1 Existing Conditions and Future Growth Estimates
Description Subarea 1 Subarea 2 Subarea 3 Subarea 4 Subarea 5 Subarea 6 Total
Demographics
Existing Conditions
Housing Units 2 683 90 5 334 0 1,114
Non-Residential Square Feet 1,352,185 46,007 1,223,267 2,184,963 8,232 0 4,814,654
Jobs 1,380 122 1,553 3,410 82 17 6,564
Businesses 72 22 144 256 13 1 508
Persons Served 1,385 1,830 1,778 3,423 917 17 9,349
Forecast New Development
Housing Units 236 383 136 382 2,036 773 3,946
Non-Residential Square Feet 1,179,065 13,988 219,509 360,723 0 225,031 1,998,316
Jobs 2,935 47 671 791 0 786 5,230
Businesses 227 4 52 61 0 61 405
Persons Served 3,525 1,004 1,012 1,745 5,090 2,719 15,094
Future Conditions Total
Housing Units 238 1,066 226 387 2,370 773 5,060
Non-Residential Square Feet 2,531,250 59,995 1,442,776 2,545,686 8,232 225,031 6,812,970
Jobs 4,315 169 2,224 4,201 82 803 11,794
Businesses 299 26 196 317 13 62 913
Persons Served 4,910 2,833 2,790 5,168 6,007 2,736 24,443
Streets (centerline miles)
Existing 5.5 15.1 12.2 13.5 0.0 0.0 46.3
New Roadway Estimate 0 0 0 0 10.2 3.9 14.0
Total 5.5 15.1 12.2 13.5 10.2 3.9 60.3
Acreage
Developed 135.7 200.5 323.3 281.9 317.4 0.0 1,258.7
Vacant or Redevelopment 381.3 198.5 241.3 283.3 228.0 76.9 1,409.3
Total 517.1 398.9 564.6 565.1 545.4 76.9 2,668.0
Source: Economic & Planning Systems
EXHIBIT A TO ORDINANCE NO. 162, 2023
Memorandum: Mulberry Corridor Fiscal Impact Analysis
Page | 4
The existing physical development and demographic conditions were estimated using a
variety of data sources to get an accurate representation of current conditions. ESRI
Business Analyst was used to determine demographic conditions, business counts, and
employment totals. Larimer County assessor data was used to determine inventories of
residential and non-residential buildings and existing assessed values of properties.
To estimate future development demand and related model inputs, EPS relied on its
analysis completed within the City of Fort Collins’ CityPlan process to estimate demand
for future jobs and households in the community and Study Area. Current market data
for the value of new development in Fort Collins using CoStar and other secondary data
sources.
Fiscal Model Methodology
Overview
A summary of the fiscal model developed for the effort is provided below in Figure 2.
The model estimates ongoing and capital expenditure impacts on the City’s operating
funds and utility services (Light and Power, Broadband, and Stormwater). The existing
and estimated future jobs and households in the enclave area are used as the primary
inputs to estimate costs and revenues. In the simplest terms, the estimated fiscal
revenues generated in the Enclave Area for the City of Fort Collins General Fund and
Utilities are compared to the estimated costs of service and capital expansion in the area.
The result is an annual, ongoing net fiscal impact on the City and an estimate of total
needed capital expenditures.
Figure 2 Mulberry FIA Model Overview
EXHIBIT A TO ORDINANCE NO. 162, 2023
Economic & Planning Systems, Inc.
Page | 5
Revenues
Revenues generated by the properties and uses in the enclave area were estimated for
the General Fund and Utilities Funds providing service in the area. Ongoing, annual
General Fund revenues include property tax, sales and use tax, and fees and charges for
services that are directly tied to uses in the Enclave Area. For the utilities that will be
provided in the area, the existing user rates and fees will be applied to the existing and
estimated future development uses. In addition to the ongoing revenues, the revenues
generated for capital improvements were estimated as well. The City of Fort Collins’
Community and Transportation Expansion Fees (CEF and TCEF) were estimated based on
forecast new development in the area. In addition, the City’s utility providers also charge
cost recovery fees to new developments that were estimated.
Expenditures
To estimate expenditures, the model organized General Fund expenditures by the City’s
defined service areas. The City has 11 service areas that organize the services provided
by the City under their General and Operating Funds.
The expenditures for service areas that have an indirect connection to the expansion of
the city (e.g., one new resident doesn’t equate to a proportional increase in cost for the
City) were estimated using nexus and variability factors. These services include Financial
Services, Community Services, Planning, Development and Transportation, Executive
Services, Judicial Services, Legal Services, Information and Employee Services, and
Sustainability Services.
Nexus Factors
Nexus factors are factors developed based on existing conditions in the City (e.g.,
number of residents) to estimate the cost of services from new jobs and residents. The
most common nexus factor used to estimate expenditures for these services was Person
Served. Persons Served is a summation of the total population and employees in the City
and/or Study Area. The persons served factor reduces the number of employees added to
the number of residents account for residents that both live and work in the city (and/or
Enclave Area of the county) as to not double count. For most services, the current cost of
providing the service was divided by the total persons served in the city to derive a per
person served cost factor that is applied to new jobs or residents in the annexation area.
Variability Factors
A variability factor was then applied to each nexus factor to account for how directly a
new resident of the city impacts the cost of that service. A variability factor of 0 to 100%
was applied to each expenditure item in the City budget. Services that are directly
impacted by new residents or jobs added to the city have a 100% variability factor,
meaning the full cost of the service nexus factor is applied. Services that are indirectly
impacted by expansion of the city have a smaller factor applied, in most cases estimated
at 25%, which means only 25% of the service cost is applied to a new resident or job.
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Case Studies
Some of the service areas the City has require a “Case Study” to be developed to
estimate the impacts of annexing a new property to the City. These services are the most
impacted by new developments and have the most direct relationship between new
jobs/residents and increased cost of service. Case studies were developed for police
services, street maintenance, and parks within of the General Fund. Case studies were
also conducted for the utilities that will be provided in the annexation area including
stormwater, broadband, and light & power. Water and wastewater services are provided
by the City of Fort Collins water and wastewater utility and are therefore not estimated as
a City cost. Additionally, fire service is currently provided by the Poudre Valley Fire
Protection District (PVFPD). The impacts on fire service are primarily related to the
revenue generation approach, which is different for properties in the city versus
properties in the unincorporated portion of the county. A planning level estimate was
used to address the changes in revenue provided to PVFPD. A summary of the
methodology used for each case study is provided below.
Fiscal Model Inputs and Assumptions
The fiscal model utilizes several inputs and assumptions to estimate the impacts on the
City’s future fiscal health. These factors are used to estimate the rate and timing of new
development, service providers, and capital expenditures. The inputs also include
estimates for the types and value of new development. Lastly, the existing conditions
within the city are used to drive model factors. The types of inputs used fit into three
general categories: citywide conditions inputs, phasing and development timing
assumptions, and development value and density assumptions.
Citywide Conditions Inputs
Several citywide data points are used to derive model factors. A summary of the inputs
used in the model and their data sources are shown below in Table 2. These inputs are
based on actual conditions and would only change to reflect more current conditions, as
necessary.
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Table 2 Citywide Assumptions and Inputs
Development and Phasing Timing Assumptions
The fiscal model was built to dynamically model different scenarios for the timing of
development in the enclave, the year in which annexation to the city occurs, and timing
of when services and capital expenditures are needed in the area. These inputs and
assumptions are based on EPS market forecasts and other inputs provided by City staff.
These inputs, however, change based on the scenario being modeled and therefore are
not documented in this memo. Dynamic model assumptions that can be modified by
scenario include:
• Year of annexation,
• Year of construction of capital improvements,
• Adjustments to development fees, and
• Rate of new development (e.g., new units built per year)
Description Amount Source Link/Definition
Demographic Factors City of Fort Collins
Population 170,245 2019 American Community Survey 1-Year Estimates
Households 70,831 2019 American Community Survey 1-Year Estimates
Housing Units 72,603 2019 American Community Survey 1-Year Estimates
Avg. HH Size: Single-Family 2.44 2019 American Community Survey 1-Year Estimates
Avg. HH Size: Multifamily 2.09 2019 American Community Survey 1-Year Estimates
Single-Family Housing Units 40,257 2019 American Community Survey 1-Year Estimates
Attached Housing Units 12,135 2019 American Community Survey 1-Year Estimates
Multifamily Housing Units 19,067 2019 American Community Survey 1-Year Estimates
Employment Factors (Employment w/ Space)
Total Employment 86,212 ESRI Business Analyst, 2020
Retail/Restaurant Employment 20,294 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 44-45, 722
Office Employment 42,496 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 51, 52, 53, 54, 55, 56, 62, 81, 92
Industrial Employment 8,084 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 23,31-33, 42, 48-49,
Accommodation/Entertainment 3,635 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 71, 721
Education Employment 8,785 ESRI Business Analyst, 2020, EPS Estimate NAICS Codes 61
Multiple Job Holdings (% of Total)5.6%Bureau of Labor Statistics, 2015 https://www.bls.gov/opub/mlr/2017/article/multiple-jobholding-in-states-in-2015.htm
Resident Workforce (% of Total)44.6%U.S. Census Bureau LEHD, 2018 http://onthemap.ces.census.gov/
Property Tax Factors
Mill Levy: City of Fort Collins 3.184 Note Mill Levy reduced by 67.5% to reflect passthrough to PFA
Mill Levy: Poudre Valley Fire 10.639
Res. Assessed Value (% of Total)7.2%
Comm. Assessed Value (% of Total)29.0%
Rate per $___ of Assessed Value $1,000
Sales Tax Factors
General Fund 1.96%Note Base Rate reduced to reflect Passthrough to PFA
Pavement Maintenance 0.25%
Capital Projects 0.25%
Natural Areas 0.25%
Keep Fort Collins Great 0.76%Note Base Rate reduced to reflect Passthrough to PFA
Total 3.47%
Other Factors
Persons Served (PS)208,526 The total number of peak persons served (See Appendix for calculation)
Lane Miles 1,976 Lane Miles maintained by the City of Fort Collins
Source: Economic & Planning Systems
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Development Value and Density Inputs
The last group of inputs are specific to the estimated value and density of new
development that is forecast to occur. These inputs were derived based on research
conducted EPS and experience with estimating development capacity based on land use
categories. These factors include the estimated value of new homes and non-residential
buildings, the likely household size (i.e., people per housing unit) of new homes, the
likely number of employees located in a new non-residential development, and lastly the
density of new development (e.g., new units per acre or new non-residential
development square feet per acre).
Model Case Studies
The fiscal model contains seven case studies that estimate revenues and/or expenditures
from annexation in the Enclave Area for specific revenue streams by service area. This
section contains a summary of the approach taken to estimate impacts within each case
study and findings/considerations regarding the phasing of annexation.
Police Services
Existing and Future Conditions
Mulberry Street in the City of Fort Collins continues east to become State Highway 14
starting at Riverside Avenue. The Colorado State Patrol (CSP) is responsible for safety
and call responses related to activity on State Highway 14. The properties along SH 14
within the Enclave Area are provided public safety services by the Larimer County
Sheriff’s Office (LCSO). The LCSO currently assigns the equivalent of 6 full time officers
to the area to address the current incident volume.
The Larimer County Sheriff’s Office responded to 7,148 incidents in the Enclave Area in
FY 2019-2020 driven by 3,013 calls for service and 4,135 officer-initiated incidents (e.g.,
pulling over a car for speeding). In addition, the Colorado State Patrol responded to 121
automobile accident collisions in the Enclave Area in 2020.
After annexation, the City of Fort Collins would be responsible for patrol and response to
calls for service for the newly annexed areas. This new responsibility will also likely result
in response/service needs related to automobile activity along Mulberry Street. The City
of Fort Collins does not necessarily need to take control of Mulberry Street (from a street
maintenance perspective) and/or to assume public safety services along SH-14 as long as
it is still a state highway. However, it is possible the City may want to assume control of
both maintenance/operations and public safety.
Modeling Approach
The fiscal model originally operated on the assumption that the City will take over
responsibility of the public safety needs in the Enclave Area in concert with annexation.
To estimate costs, the current average cost per incident in the City of Fort Collins was
used to estimate the annual cost to serve the area based on the current incident levels
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along the roadway and the additional incidents generated by new development. The
average cost per incident for the City is $449, which was translated to a cost per new
resident of $319 annually.
Annexation Findings/Considerations
The provision of police services will have a substantial cost impact on the City once
annexation occurs. Below are the major considerations identified in the study:
• The level of service the City of Fort Collins (e.g., officers assigned to the area) will
likely be higher than what the Larimer County currently provides. Two levels of
service were estimated in the model to assess costs at the current level of service and
the City’s desired future level of service.
• Later in the study process, Fort Collins Police Services provided a detailed estimate of
staffing needs related to the annexation area for the effort. To mirror their likely
staffing requirements based on annexation of any single subarea, a tiered approach
to staffing requirements for officers was developed. The two assumptions used were
that subareas with lower calls for service will trigger the need for half the estimated
officer staffing requirements if annexed and areas with higher calls for service will
trigger the need for the total number of officers forecasted to be needed. The result is
that annexation of areas with high calls for services (Subareas 1 and 3) will trigger
the need for the total estimate of officers needed to service the area, even without
the annexation of the other subareas.
• The resulting demand for new officers and administrative staff is up to 35 new full-
time equivalent (FTE) workers. Increasing the number of officers is a time sensitive
endeavor. In order to service the area on Day 1 of annexation, the hiring of new
officers is needed up to 18 months in advance of deployment to account of training.
• Based on the complexities and estimated costs of public safety provision to the
enclave area currently and after annexation, it is likely that the City of Fort Collins will
need to develop a phased, partnership approach to assuming responsibility of the
area with the Larimer County Sheriff’s Office and the Colorado State Patrol.
Street Maintenance
Existing and Future Conditions
The operations and maintenance of roadways in the Enclave Area is complicated with
multiple parties involved similar to the Police Services Larimer County is currently
responsible for (excluding SH-14 covered by the CSP) There are currently 46.3 lane miles
of roadway in the enclave area in addition to State Highway 14. The condition and
current maintenance responsibility for roadways in the enclave area varies greatly
currently, which impacts the cost of service and the future level of service that can be
provided.
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Modeling Approach
For the study purposes, four tiers of roadway types were developed based on the future
maintenance the City is likely to take after annexation.
• City Level of Service - There are roadways that are currently compliant or near
compliant with the City of Fort Collins’ street standards. An estimated 18.5 lane miles
fit within this category. These roadways are in good enough condition and match
street standards, which will allow the City to maintain and operate them like other
streets in the city. The annual cost per lane mile for these streets was estimated to
be $31,000.
• County Level of Service – There are an estimated 12 lane miles of roadways that do
not match the City’s standards and will likely be maintained to the County’s current
level of service after annexation. The County currently only provides surface
maintenance to these roadways. The annual cost per lane miles for these streets was
estimated to be $15,500.
• Special Improvement Districts – An estimated 4.51 lane miles of roadways are part of
existing special improvement districts that pay for maintenance of the roadways. The
special improvement districts were put in place to generate revenue to maintain
roadways beyond what the County is capable of currently. The properties and related
roadways in the districts are assessed an additional property tax mill levy to generate
funding for ongoing maintenance to a specified level of service. The assumption used
is that these districts will remain in place after annexation.
• Not Accepted Roadways – There are 11.33 lane miles of roads in the enclave area
that are currently that the City of Fort Collins will not accept responsibility primarily
due to the condition and quality of the pavement of the roadways. These roadways
are largely within existing county residential subdivisions in the area. These roadways
would require the City of Fort Collins to perform complete rebuilds of the roadway in
order to be able to maintain them long-term. The result is that these streets will not
receive regular maintenance and will continue to deteriorate.
Annexation Findings/Considerations
The following considerations were identified regarding street maintenance:
• The variable conditions of the roadways in the enclave area will result in a tiered
approach to street maintenance by the City after annexation. This will mean that
certain streets will receive a greater level of service than others in the area from the
City, which may create concerns and complaints about equitable service provision,
especially in relation to taxation, in the area.
• There are two options to consider for how the City address streets upon annexation,
“Existing Conditions” or “Improved Service”. The IGA for Larimer County related to
the enclave annexation stipulates that the City will take over county roads in the area
at their current level of service. There is a mixture of roads that are maintained at a
level comparable to the City’s standard, roads that are maintained to and designed at
County standards, and roads that don’t meet County standards and/or not maintained
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by the County. The Existing Conditions option assumes the roads will remain at their
status. The Improved Service option assumes that improvements will be made by the
City in certain areas to bring more roadways to an improved level of service and
design. These improvements are not defined yet.
• The other assumption option is specific to roads that are currently in too poor of
quality for the City to be able to maintain at the County standard. For these roads
there are two approaches to take upon annexation. The City can either pay for
improvements or convert these roads to gravel roads and maintain them that way
once they are in such a poor condition that this becomes necessary. A second
approach would be for the property owners served by these roads to be a part of
special improvement district that taxes them to bring the roads to the County or City
standard and the maintain them going forward.
• The prospect of not-accepting roadways serving homes and businesses in the city
after annexation also presents major equity issues and safety concerns. Creative
solutions are needed to address the current condition and ongoing maintenance of
these areas. Potential strategies identified in the study to address the issues above
include formation of additional special improvement districts for not accepted
roadways but would require property owner agreement. The existing SIDs could also
be consolidated into a large, single SID that serves a large amount of roadway in the
area, which may reduce overall costs for existing properties in SIDs, and any future
properties that would need to be added to the single SID.
Parks
Existing and Future Conditions
Currently there are no park facilities operated by the City or County within the study
area. The City of Fort Collins Parks Master Plan identifies three future parks that will
service residents in the Enclave Area. These parks are not currently fully designed, nor
has the land been secured for them, so the location of the parks is yet to be determined
and may fall outside of the Enclave Area but still be a part of the cost of serving the area.
Therefore, future developments will be required to comply with City park standards for
land dedication and/or community facility expansion fees.
Modeling Approach
The three parks planned to serve that area are assumed to be the responsibility of the
annexation area to pay for ongoing maintenance and capital costs. Each new park is
estimated to cost $8 million, and that capital cost is associated with the subarea that it is
in or closest to. In addition to the capital cost, the ongoing maintenance cost for the
parks is estimated as an annual cost within the net general fund fiscal impact. The cost is
estimated using a cost per acre maintenance factor ($20,000 per acre) informed by
current City budget for parks and the master plan.
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Annexation Findings/Considerations
The following considerations related to parks were identified:
• It is worth considering whether it is fair to assign the capital and/or ongoing
maintenance cost fully to the properties in the annexation area for the purposes of
the modeling exercise. The reality is that the parks will likely be built in concert with
new development projects and will serve other residents not living in the Enclave
Area.
• It is also not required that a park be built in conjunction with the annexation of any
portion of the Enclave Area. Annexation does not require the City to build any parks
and take on additional park-related costs. Also, creative partnerships and grant
opportunities may also be used to offset capital costs of construction of the parks,
which will reduce the overall capital expenditures needed to be paid for by the City.
Stormwater
Existing and Future Conditions
Annexation will trigger the expansion of services by the City’s stormwater utility. There
are three main areas in the enclave where stormwater improvements are needed to
address flooding risks, 1) the dry creek drainage that runs through Subarea 4, 2) the
Cooper Slough/Box Elder drainage that runs through Subarea 1 and 3, and 3) the Poudre
River area adjacent to Subarea 2. All three areas have identified capital improvements;
however, annexation does not necessarily trigger the requirement to fund the needed
capital improvements.
The City of Fort Collins would also assume control and management of existing
stormwater improvements in the subarea upon annexation. The condition and
unaddressed issues present in the current system are unknown. Upon annexation, the
City would need to perform a one-time stormwater system cleanout to assess conditions
to determine ongoing maintenance needs and any capital repairs that may be needed.
This cleanout will be the first part of a 10-year cycle of cleanouts for the subarea. The
cost of this one-time cleanout is estimated at $1.7 million. The cost per subarea of the
cleanout and the ongoing 10-year cycle costs are factored into the model.
Modeling Approach
The fiscal model assumes that upon annexation a property will begin paying the City’s
stormwater fee that is based on per land square feet and use. The model also accounts
for the one-time cleanout costs per subarea. There are 11 separate capital projects
identified in the three areas mentioned above. These 11 projects total approximately $38
million in cost. The fiscal model assumes these improvements will be made upon
annexation of each subarea. There is the ability to change assumptions related to the
number of years after annexation that the capital improvements in each subarea are
built.
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Annexation Findings/Considerations
The following considerations were identified for the stormwater system:
• The condition of the existing stormwater systems in the Enclave Area are largely
unknown, especially until they can be cleaned out and assessed. It is possible that
additional stormwater capital improvement needs would be needed.
• Stormwater capital projects in Subareas 1, 3 and 4 impact the development potential
in portions of those subareas. The improvements in Subarea 4 related to the Dry
Creek are needed to address existing flooding issues in the AirPark and impact the
development areas possible on the former airport land. The improvements in
Subareas 1 and 3 related to the Cooper Slough and Box Elder Creek are needed to
address flooding issues including flooding caused by State Highway 14. Addressing
the stormwater issues can help increase the developable land north of Mulberry
Street.
• Annexation of any property in the Enclave Area would not require the construction of
stormwater improvements, but ongoing flooding issues may create risks and greater
costs for the City if not addressed.
Light and Power
Existing and Future Conditions
There are currently two electrical providers serving the enclave area, Xcel Energy and
Poudre Valley Rural Electric Authority. Upon annexation, the City of Fort Collins’ utility will
begin providing service. The transition of service provision requires the City to purchase
and take on responsibility for the existing power infrastructure in the area. In some
cases, this infrastructure will need to be upgraded or replaced to meet the City’s
standards. The Light and Power Utility will issue debt to fund capital improvements
needed to take over service areas. The debt will be repaid by increases in user rates (that
would apply to all system customers, not just those in the Enclave Area) and through
public improvement fee agreements generated by new developments.
The Light and Power Utility estimates that it will cost $66 million to acquire existing
infrastructure from the existing providers and will require additional capital cost of $26
million to distribute power to the area, totally $92 million in capital costs.
Modeling Approach
The fiscal model assumes that existing and new residents and businesses will begin
paying service rates upon annexation in concert with the take over the system
infrastructure. The model assumes that the rate structure in place for ongoing service will
generate an annual net positive impact on the utility, meaning the rates charge will cover
the cost of service. The City’s Light and Power utility provided annual estimates for
service revenues and costs to incorporation into the model. The capital costs needed to
take over electric service detailed above are assumed to be phased in based on the
locations of annexation efforts by subarea.
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The fiscal model was built to accommodate multiple approaches to building out the
system. During the testing of scenarios, there were three options for provision. The first
option was for L&P to develop a “proactive” program for capital expansion of the network
to serve the enclave starting in the near term which will ensure all future connections to
the system are subject to PIF agreements and is not necessarily tied to annexation
phasing. This option may also allow the program to align with efforts to serve areas to
the north (i.e., Montava). The second option was development of a capital expansion
program that aligns directly with the timing of annexation phasing (with annexation). The
last option was entitled “ad-hoc” where the network expansion programs will be
developed for each specific subarea as annexation is contemplated.
Annexation Findings/Considerations
The following Light and Power considerations were identified:
• The City of Fort Collins is already anticipating the need to expand infrastructure and
service on the city’s northeastern edges. The Montava development north of the
Enclave Area will generate the need for substantial expansion of the system. It is
assumed improvements to serve this area and other annexations north of the Enclave
Area will be made expanding the system from the south along Timberline Road. The
most efficient and cost-effective path for Light and Power to expand their system is to
move from west/southwest to east/northeast.
• It may be possible to serve new customers in portions of the enclave area without
building new infrastructure, specifically the western portion of the enclave.
• Light and Power would prefer for the City to annex larger development areas before
they develop to assess public improvement fees that can help repay capital costs.
Broadband
Existing and Future Conditions
The City of Fort Collins’ newly formed broadband utility is assumed to extend service to
the enclave area upon annexation.
Modeling Approach
The expansion of Broadband was modeled with two possible assumptions. The first is the
assumption that expansion of the network infrastructure is best done in connection with
L&P expansion and therefore is tied to the L&P assumptions for timing. The second option
is the “proactive” expansion of service to areas as they are annexed, which may or may
not align with L&P or other infrastructure projects.
The ongoing revenues from broadband services are based on the expansion to the area
to serve both new and future customers. Similar to Light and Power service, it is assumed
and modeled that user rates will cover both the cost of system buildout and initial
provisioning of service, as well as the ongoing cost of operations and maintenance of the
infrastructure. However, the estimates are sensitive to the timing of the capital outlays
and the speed at which customers are acquired. Costs and penetration take rates have
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been based on updated estimates of the existing Citywide rollout of broadband services.
The upfront capital expansion costs to serve the enclave area are estimated at
approximately $10 million.
Annexation Findings/Considerations
The following considerations for the broadband utility were identified:
• The cost capital expansion of broadband has the potential to be offset by proceeds
from competitive state and federal grants.
• It is assumed that expansion of the broadband network into the enclave area would
be done most efficiently in concert with expansion of the Light and Power
infrastructure into the area.
Fiscal Model Phasing Findings
The fiscal model analysis completed to date has generated a number of high-level
findings that may impact future annexation decisions and phasing strategies.
• The subareas with the greatest potential for capturing new development, which are
Subareas 1 and 5, produce the most benefit/least impact on ongoing City operations.
All subareas generate a net negative fiscal impact on the City annually in most, if not
all, scenarios. However, these areas have the lowest negative impact because new
development in the areas is expected to generate revenues that can offset the costs
of expansion of services to existing uses/properties.
• Major development projects that happen in the Enclave Area would likely create a
motivation to annex the proposed development parcels and create a motivation to
annex surrounding parcels. However, it may be more beneficial for the City to
proactively annex potential future development areas in advance to actively
encourage their development within the City and in conformance with CityPlan land
use recommendations.
• The subareas that are largely built out and where little new development is expected
(Subareas 2 and 4) tend to generate the greatest net negative fiscal impact. These
areas generally have lower average property values and lower densities, which
produce do not offset the operations costs to serve them. Also, the areas will not
benefit from the support of capital expansion fee revenues generated by new
development.
• It is generally more fiscally prudent and efficient for annexation and expansion of City
infrastructure and services to occur in a west to east path. This approach allows for a
more contiguous expansion of the city outward from the existing city limits towards
the further eastern reaches of the enclave.
• The use of public financing tools (metro districts, public improvement districts, urban
renewal) is likely needed to help fund and finance capital improvements in areas to
reduce the fiscal burden on the City and its existing residents. These tools can help to
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shift the cost of annexation onto the properties that will benefit from annexation
reducing the overall increased burden on existing city residents. The use of public
financing tools is most needed and appropriate where a substantial amount of
development is likely to occur.
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Appendix D:
Role of Subarea Plans
EXHIBIT A TO ORDINANCE NO. 162, 2023
Appendix D: Role of Subarea Plans
In this updated plan, it is not only the hope to find new strategies for this corridor, but also to
establish connectivity between the boundary and the existing subareas surrounding East Mulberry.
Below, information about the surrounding subareas is established as well as recommendations which
should be considered to provide a cohesive nature between East Mulberry and the surrounding areas.
The subareas focused on in this section are Mountain Vista, I-35, Downtown, Northside Neighborhood,
and Prospect Streetscape subarea plans.
Mountain Vista
Located North side of East Mulberry Boundary. Created September 15th,
2009. This plan reinvisioned the 1999 Mountain Vista plan. It looked to
improve the aesthetic of the area and improve connectivity for residents
and businesses. Furthermore, this plan looked to support different types of
transportation such as, walkways, bicycle lanes, transit, etc. In addition, there
was highlighted focus on preserving natural features as it overlooks the
mountains and has an aesthetically pleasing layout.
Key Recommendations:
Provide a balance of business and retail with supporting residential. Create
a complete transportation system. Enhance natural resources and drainage
corridors. Improved Timberline roadway which travels South into the East
Mulberry boundary.
I-25 Subarea Plan
Located East side of East Mulberry Boundary. The I-25 Subarea Plan seeked
to produce a well-planned and mixed-use corridor along I-25. The plan
looked to produce a subarea with respect to its open space that supports
a commercial area with well-integrated residential housing. For businesses’
within this area, the types look to mainly be commercial and employment
centers.
Key Recommendations:
Recommended roadway network. Proposed 6 lane arterial along Mulberry
St, Timberline Rd, and 4 lane arterials along Vine Dr and Prospect Rd.
Improved bike and transit networks along Mulberry St, Vine Dr, and
Timberline Rd.
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Downtown Plan
Located West side of East Mulberry Boundary. Created in 2017. The 2017
downtown plan seeked to improve a wide range of topics. Particularly
urban design, transportation and parking, economy, environment, as well as
management and maintenance.
Key Recommendations:
Along Mulberry St and Lemay Ave, low through high potential for infill/
redevelopment. Bicycle lane improvements along Mulberry to give more
accessibility to other types of transportation on a car-dominated road. Reduce
traffic congestion along busy intersections including Mulberry and college,
which could be carried over to other busy intersection in Mulberry (Ex. Mulberry
and Timberline).
Northside Neighborhood Plans
Located Northwest side outside of East Mulberry boundary. Created January
18th, 2005. Subareas adjacent to this plan were in development, however a plan
for this area was made due to significant developments around which served
as catalysts for this area’s improvements and planning. Improved stormwater
management, improved traffic conditions on Vine Dr and Lemay Ave, approved
uses for vacant land, provide better public services, protect natural and
historical areas here.
Key Recommendations:
Improved traffic and road conditions on Vine Drive and Lemay Avenue which
travel along East Mulberry’s boundary. Stormwater maintenance and flood
control along Poudre River and dry creek in this sub area which travels along
and through East Mulberry. Specific improvements like stormwater retention
ponds, ditches, etc.
Prospect Road Streetscape Plan
Located on Prospect Road, South of East Mulberry boundary. Created February
1993. This plan aimed to create future guidance for improvements to Prospect
Rd. The goals of this plan were to improve road conditions while maintaining
respect to the natural scenery along its path.
Key Recommendations:
This plan seeked to improve road conditions along Prospect as well as the
intersection between the road and Timberline. Since these roads both travel
through and along the corridor boundary, aligning with the conditions in the
document are important for interconnectivity. In addition, the plan outlines
improvements for bicycle and pedestrian ways along Prospect and the
intersections along it (Timberline and Riverside).
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