HomeMy WebLinkAboutCITY STRUCTURE PLAN AMENDS TO GMA, FOSSIL CREEK COOP. PLAN. AREA - 19-04 - P&Z PACKET - RECOMMENDATION/REPORTCity Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 13
Staff response: The actual policy from City Plan and the Transportation
Master Plan is as follows:
Policy T-1.9 Interstate Interchange Improvements. The City will
encourage partnerships among the Colorado Department of
Transportation, Federal Highway Administration, and private interests
to build new and/or improve existing interchanges, overpasses, and/or
underpasses on 1-25 to increase mobility. (Note: this policy does not
commit the City to financial participation in the interchange
improvements.)
The above policy clearly states the City's role is to encourage partnerships
amongst interested parties to improve interstate interchanges. While the
"note" to the policy indicates the policy does not commit the City to
financial participation, the policy clearly does not prohibit City financial
participation.
D. The City of Fort Collins zoning designations would be more restrictive in
all cases that the current Larimer County Zoning.
Staff response: The area south of Carpenter Road is zoned in the AP,
Airport District in the County. This is a very misinterpreted, misunderstood
zoning district because in spite of its name, the only uses permitted by -
right in the district are residential uses. All other uses, including business,
commercial, and industrial uses, must be approved through the special
review process in the County's Land Use Code. The various land use
options have the area south of Carpenter Road designated in some
manner either commercial and/or employment which would be zoned in
the C, Commercial District and/or E, Employment District upon annexation
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 12
to provide mitigation to reduce all negative impacts of commercial development
on adjacent properties.
3. Property -Owner Comments:
Since the City started the process to incorporate the Fossil Creek CPA into the
GMA boundary and assess land use designations primarily west on I-
25/Carpenter road, most property -owners in the area have consistently
expressed concerns. Listed below are several of the key issues identified during
the public review process, along with a brief staff response.
A. The City of Fort Collins does not have a community of interest in the area.
Staff response: The City does have a community of interest in the area as
Carpenter Road is the major southern entryway into Fort Collins. In 1999,
a series of Intergovernmental Agreements involving the Cities of Fort
Collins and Loveland, the Town of Windsor, and Larimer County formally
created the Fossil Creek CPA and all parties agreed to recognize the CPA
as being a logical extension of the Fort Collins GMA boundary and leading
to eventual annexation of the area into Fort Collins. In addition, the City
and Larimer County have used open space sales tax revenues to help
preserve the natural resources and critical habitats.
B. The City of Fort Collins provides no services to the area.
Staff response: Water service is provided from the Loveland -Fort Collins
Water District, and sanitary sewer service is provided from the South Fort
Collins Sanitation District with the district's wastewater treatment plant is
located within the CPA adjacent to Fossil Creek Reservoir. Fire service is
provided by the Prouder Fire Authority. Road improvements will basically
be a function of development requirements. The City will extend electric
utility and police protection to the area upon annexation. Thus, the area
south of Fossil Creek Reservoir is no different than the other portions of
the City south of Harmony Road and northeast of the Prouder River where
water and sewer utilities are provided by special districts, the PFA, and the
City provides electric power and police protection.
C. The City has a written policy which precludes financial participation in
improving the 1-25/Carpernter Road interchange.
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 11
Carpenter Road/County Road 32 almost to the west property lines of the
properties immediately adjacent to the 1-25 interchange; and by converting
almost all of the former employment area south of properties immediately
adjacent to the 1-25 interchange to a commercial area, however, staffs
recommendation includes a 300 +/- foot employment land use designation along
the west and south boundaries of these properties to buffer the commercial areas
south of Carpenter Road from the Community Separator designated areas.
Commercial and Emplovment Acres — Preferred Staff Option
Option #
Commercial
Acres
Employment
Acres
Community
Separator
Acres
Option 1
Existing
134.9
38.4
52.3
Structure Plan
Staff
Recommendation
213.7
26.4
0.0
Change from
Option 1
+78.8
-12.0
-52.3
Staffs recommendation is primarily based on the Preferred Land Use Scenario
as contained in the document A Plan for the Region Between Fort Collins &
Loveland, which s hows t he a rea a djacent t o t he 1-25 i nterchange a s a M ixed
Use area, and the Vision Framework map of the Northern Colorado Regional
Communities 1-25 Corridor Plan, which designates the area as a activity center
to support the use of alternative modes (especially transit). The major objectives
and policies of these plans were presented earlier in this staff report and will not
be repeated here.
Both the Fossil Creek Reservoir Area Plan and the Plan for the Region
Between Fort Collins & Loveland encourage development within the area to be
according to an overall master plan. After changes to the Structure Plan map are
made establishing the appropriate land uses for the area, additional work will be
required to coordinate development proposals within the area to be controlled by
an overall master plan.
As indicated, staffs recommendation includes a 300 +/- foot employment land
use designation to buffer commercial areas from the Community Separator
designated areas. Staff believes this land use buffer is necessary because
design standards and criteria of the City's Land Use Code may not be sufficient
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 10
properties immediately adjacent to the 1-25 interchange; and by converting the
former employment area south of properties immediately adjacent to the 1-25
interchange to a commercial area.
The table below presents a summary of land area devoted to commercial,
employment, and Community Separator uses for the portion of the former CPA
located near 1-25 as those uses change through the various land use options.
The table does not provide land use data for the entire former CPA that is being
added into the GMA boundary in order to avoid skewing of the data by areas that
are not changing from one option to another. For example, the Structure Plan
shows an area designated as Urban Estate adjacent to Fossil Creek Reservoir.
This land use designation does not change in any of the options and is therefore
not included in the table below.
Commercial and Employment Acres per Option
Community
Option #
Commercial
Employment
Separator
Acres
Acres
Acres
Option 1
Existing
134.9
38.4
52.3
Structure Plan
Option 2
182.7
43.0
0.0
Change from
Option 1
+47.8
+4.6
-52.3
Option 3
131.6
94.0
0.0
Change from
Option 1
-3.3
+55.6
-52.3
Option 4
90.5
135.2
0.0
Change from
Option 1
-44.4
+96.7
-52.3
Option 5
225.7
0.0
0.0
Change from
Option 1
+90.8
-38.4
-52.3
After review of the identified land use options, including public comments and
feedback from the Planning and Zoning Board and City Council, Staff has
developed a preferred option. The staff recommendation for land use
designation changes to the Structure Plan map is most similar to Land Use
Option 5 and suggests extending planned commercial areas located south of
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 9
former CPA and near 1-25. The land use options were presented at a public open
house on August 31, 2005.
Summary of the Land Use Options (see attached maps)
Option 1
Option 1 shows the land use designations of the current City Structure Plan map
adopted by the Fort Collins City Council in May 2004. Option 1 is the base option
for comparison to all other options.
Option 2
Option 2 differs from Option 1 by extending planned commercial areas located
south of Carpenter Road/County Road 32 to the west property lines of the
properties immediately adjacent to the 1-25 interchange.
Option 3
Option 3 differs from Option 1 by extending planned commercial areas located
south of Carpenter Road/County Road 32 to the west property lines of the
properties immediately adjacent to the 1-25 interchange; and by converting
former commercial areas north along 1-25 to employment uses, thereby, creating
employment area transitions along 1-25 from the commercial uses immediately
adjacent to the interchange.
Option 4
Option 4 differs from Option 1 by converting planned residential areas located
south of Carpenter Road/County Road 32 to an employment area and extending
the employment area to the west property lines of the properties immediately
adjacent to the 1-25 interchange (thus splitting those properties into commercial
and employment areas); and by converting former commercial areas north along
1-25 to employment uses, thereby, creating employment area transitions to the
north, west, and south from the commercial uses adjacent to the 1-25
interchange.
Option 5
Option 5 differs from Option 1 by extending planned commercial areas located
south of Carpenter Road/County Road 32 to the west property lines of the
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 8
The Vision Framework (see attached map) illustrated the combined
recommendations of the Transportation Concept Plan, The Open Lands and
Natural Areas Policies, and the Development Design Guidelines Standards and
showed the 1-25/County Road 23 (Carpenter Road)/State Highway 392
interchange as an "Activity Center" and a locations for a "feeder Bus Station."
The Plan's Corridor Design Principles include:
• Establish a range of development types and intensities within the Corridor.
Focus urban levels of development within compact "activity centers".
The Preferred Vision promotes the development of more compact, "activity
centers" near interchanges, east -west highways, future transit stations,
and other transportation hubs.
The update to City Plan and the City Structure Plan map (see attached map)
depicts a mixed land use pattern for the Fossil Creek CPA with Commercial
Corridor and Employment land uses within'/4 mile of 1-25 and Urban Estate,
Community Separator and Public Open Lands for the balance of the area.
2. Land Use Options:
As indicated above, the City Council directed City staff to work with property -
owners in the area to see if any land use/zoning changes are appropriate in order
to deal with a variety of development related issues in the area. This step would
include but not limited to, the need to improve the 1-25 interchange and
Carpenter Road, compatibility of future development with surrounding existing
land uses, preservation of open lands as part of the Loveland -Fort Collins
community separator, and mitigation of development impacts on existing
wetlands and natural areas.
Staff conducted several meetings with property -owners and their consultant
representatives. Based on those meetings and comments from those individuals
at public hearings on the GMA boundary amendment, staff developed several
land use options for potential changes to the Structure Plan map. Most of the
land use concerns were for properties adjacent to 1-25. Therefore, the options
developed for further discussion did not include any changes to the Structure
Plan map for properties further west along Carpenter Road (County Road 32).
The options developed differed mainly in the amount of acres planned for
commercial (retail) and employment (office and light industrial) uses within the
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area` (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 7
future multi -modal transportation network, and protection of significant
areas and open lands within the corridor.
The Plan's Preferred Vision includes the following key concepts:
Land Use Patterns
• Development is concentrated in mixed -use activity nodes to support
the use of alternative modes and reduce short-term land
consumption.
• Development is organized to create a strong visual and physical
connection to current and future transportation systems, to other
developments, and to 1-25.
• Single-family detached residential development does not occur
within'/ mile of 1-25 to minimize noise and visual impacts.
• Large employers and industrial uses are clustered in a campus -like
setting adjacent to activity centers, or are integrated with other uses
into activity centers.
Transportation
• A multi -modal transportation system (transit, pedestrian, and
bicycle) enhances access in the corridor.
• Development is served by a continuous north/south roadway
system, set back'/4 to'/z mile (where existing feature allow) to
provide a continuous, efficient north/south movement for local traffic
between activity centers.
• At physically constrained interchange sites, exaggerated frontage
road "bulb -outs" are used.
• Existing railroad right-of-way is converted to commuter rail over
time and nodes are served by bus service in the near term.
• Pedestrian and bicycle mobility within and between nodes is
enhanced with sidewalks and bike lanes.
Open Lands
• River corridors, natural areas, and other important features are
preserved.
• Development is set back to help protect long-range views.
• Where opportunity exists, agricultural lands are maintained.
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 6
The Plan's Land Use Framework Plan designated the portion of the CPA
basically within %2 mile west of 1-25 to be subject to a Unified Development Plan
stating:
The northwest and southwest corners of County Road 32 and 1-25 have a
statement on the Plan map indicating that when development is proposed
in these areas then a unified development plan is encouraged, but not
required, to be submitted for the development parcel and all other parcels
in the designated area north of County Road 32 or south of County Road
32. The objective of the overall development plan requirement is to
achieve coordinated site planning of water and sewer infrastructure,
internal road circulation/access to frontage roads and potential land use
relationships. The plan should be at the conceptual level and would not
depend upon detailed engineering. This submittal will enable the
applicant, surrounding property owners and review agencies supplying
infrastructure an improved opportunity to coordinate planning efforts,
achieve infrastructure cost economies, and insure efficient transportation
circulation to serve potential land uses. These areas are included in the
Larimer County TDU "Sending Area" and land owners are encouraged to
participate in that program.
The Northern Colorado Regional Communities 1-25 Corridor Plan was
prepared for Larimer and Weld Counties, the Cities of Fort Collins and Loveland,
and the Towns of Berthoud, Timnath, Johnstown, and Windsor. The Plan stems
from the 1995 Northern Colorado Regional Planning Study that outlined the
following regional vision:
Communities as neighbors that work together while remaining physically
separate; retain their individual characteristics and identities; and carefully
consider and plan the areas between then that are appropriate for
development.
The Plan's overview states:
Perhaps more than any other element in the region, the built and natural
environment along Interstate 25 will be a major factor in determining how
effective this vision can be realized. All of the aspects of this vision —
community separation, community identity, and the character of
development between communities — will be realized along the 1-25
corridor. As the next step towards implementing this vision — one of
establishing a unified quality of development, a framework supportive of a
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 5
The Fossil Creek Reservoir Area Plan was prepared for Larimer County and
the City of Fort Collins. The objectives of the plan were as follows:
• To outline a vision for the long-range and resource -based
development, within the Fossil Creek Reservoir Area, that reflects the
aspirations of Larimer County, City of Fort Collins, and adjoining
municipalities, and incorporation a strategy for accomplishing that
vision.
• To provide a basis for judging whether specific development proposals
and public projects are in harmony with Plan policies and development
standards, and consistent with Larimer County's PLUS Master Plan
and City Plan.
• To allow County and City departments and other public agencies, and
private developers to design projects that will enhance the character of
the Fossil Creek Reservoir Area, preserve and enhance critical
environmental resources, and minimize hazards.
• To provide for continuing consultation between Larimer County and the
City of Fort Collins on policies and standards that are within each
governmental body's jurisdiction.
The Plan created the Fossil Creek Cooperative Planning Area (CPA) and
repeated the following policy from the Larimer County Master Plan:
FC•1-6 According to the County's Master Plan, a Cooperative Planning
Area (CPA) is intended to be the area which is beyond a municipality's
Growth Management Area (GMA) but which could conceivably be
annexed in the long term. The CPA is a cooperative planning
arrangement (via intergovernmental agreement) between the municipality
and Larimer County. Each municipality will have its own CPA, and no
municipality's CPA should overlap that of another municipality. Any
planning in the CPA should be done jointly by the municipality and the
County. It is intended that rural development in the CPA proceed, but in a
manner that does not preclude or jeopardize urbanization when and if it
becomes part of the municipality's GMA. Another principle behind the
CPA ideas is that if each municipality would identify its own CPA, the
potential foe "annexation wars" would diminish. For this reason the south
portion of the Fossil Creek Reservoir planning area is shown in the Fossil
Creek Reservoir Area Plan to be in the Fort Collins CPA.
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 4
The Objectives for Subarea 18 were to:
• Maintain County Road 32 as a free -flowing arterial with open character.
• Avoid impacts resulting from airport proximity.
The Policies for the Preferred Scenario (see attached map) for Subarea 18 were
as follows:
Preservation
• Protect integrity of Mud Lake and Nelson Reservoir.
• Maintain open character along County Roads 30 and 32.
Land Use Character
• Some limited commercial along 1-25 frontage road.
• Ag./open in areas impacted by airport.
Implementation
• Airport overlay zone to minimize airport conflicts.
• Possible acquisition of land or easements by airport in impacted areas.
Alternatives were:
Land Use Character
• Rural residential development in center of parcel (areas not airport -
impacted).
Implementation
• Implement setbacks along County Roads 30/32 and Interstate 25 to
maintain open character.
The Preferred Scenario designates the areas adjacent to the 1-25 interchange for
mixed use development. Mixed use development was defined as:
Areas which are comprised of one or more residential, public, commercial,
or light industrial uses, developed according to an overall master plan.
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 3
The Objectives for Subarea 17 were to:
• Preserve integrity of Fossil Creek Reservoir
• Preserve natural areas associated with Fossil Creek Reservoir
The Policies for the Preferred Scenario (see attached map) for Subarea 17were
as follows:
Preservation
• Preserve drainages and view corridors.
• Protect wetlands and other natural areas associated with Fossil Creek
Reservoir.
• Preserve open character of CR32 corridor, including State lands
property.
Land Use Character
• Remain largely undeveloped as public open space.
• Some limited commercial along 1-25 frontage road.
Implementation
• Acquire reservoir and environs through lease or purchase.
• Overall subarea plan to address transportation and land use issues.
Alternatives were:
Land Use Character
• Cluster development on State lands.
Implementation
• Implement setbacks from reservoir and CR32 to minimize visual and
environmental impacts.
City Structure Plan Map land use designation amendments within the recent
expansion of the Growth Management Area (GMA) boundary, incorporating the
former Fossil Creek Cooperative Planning Area (CPA) - File #19-04.
October 20, 2005 P & Z Meeting
Page 2
changes to the Structure Plan map. As a result, Staff has identified a preferred
option for changes to the Structure Plan map to increase the amount of land
designated for commercial uses and decreasing the amount of land designated
for residential and employment uses (while maintaining an employment land use
buffer between commercial areas and areas designated as community
separator).
The City Structure Plan map for the former Fossil Creek Cooperative Planning
Area is in need of amendment in order to better comply with the policies and
expectations set out in adopted plans for the area including the Fossil Creek
Reservoir Area Plan, A Plan for the Region Between Fort Collins &
Loveland and the Northern Colorado Regional Communities 1-25 Corridor
Plan. All of these plans are elements of City Plan, the City's Comprehensive
Plan.
COMMENTS:
1. Background:
The following adopted plans help provide policy guidance for staff's
recommended changes to the City Structure Plan map:
1. A Plan for the Region Between Fort Collins & Loveland (April
1995)
2. Fossil Creek Reservoir Area Plan (March 1998)
3. Northern Colorado Regional Communities 1-25 Corridor Plan
(May 2001)
4. City Plan (May 2004)
A Plan for the Region Between Fort Collins & Loveland was prepared for
Larimer County and the Cities of Loveland and Fort Collins. The purpose of the
plan was to "determine the future character and vision for the area between the
Cities of Fort Collins and Loveland." The entire planning area was divided into
22 subareas with specific preservation, land use character, and implementation
policies for each subarea. The former Fossil Creek CPA was divided into two
subareas, Subarea 17, located north of Carpenter Road (County Road 32) and
Subarea 18, located south of Carpenter Road.
I\
ITEM NO. 9
MEETING DATEI0/20/05
STAFF Kim Waido
City of Fort Collins PLANNING AND ZONING BOARD
STAFF REPORT
PROJECT: City Structure Plan Map land use designation amendments
within the recent expansion of the Growth Management Area
(GMA) boundary, incorporating the former Fossil Creek
Cooperative Planning Area (CPA) - File #19-04.
APPLICANT: City of Fort Collins
OWNERS: Various
PROJECT DESCRIPTION:
This is a request to amend the City Structure Plan map's land use designations
for the Fort Collins Growth Management Area (GMA) boundary amendment
incorporating the former the Fossil Creek Cooperative Planning Area (CPA), an
area of approximately 2 and.'/4 square miles.
RECOMMENDATION:
Approval
EXECUTIVE SUMMARY:
The Fort Collins City Council and the Larimer County Commissioners have
agreed in concept to expand the Fort Collins Growth Management Area (GMA)
boundary to include the former Fossil Creek Cooperative Planning Area (CPA).
Inclusion of the former Fossil Creek CPA into the Fort Collins GMA boundary
sets the stage for eventual annexation of the area into the Fort Collins city limits.
The City Council has also directed City staff to work with property -owners in the
area to see if any land use/zoning changes are appropriate in order to deal with a
variety of development related issues in the area, including but not limited to, the
need to improve the 1-25 interchange and Carpenter Road, compatibility of future
development with surrounding existing land uses, preservation of open lands as
part of the Loveland -Fort Collins community separator, and mitigation of
development impacts on existing wetlands and natural areas.
City staff developed several potential options for land use changes to the
Structure Plan map for discussion purposes and provides a recommendation for
COMMUNITY PLANNING AND ENVIRONMENTAL SERVICES 281 N. College Ave. P.O. Box 580 Fort Collins, CO 80522-0580 (970) 221-6750
PLANNING DEPARTMENT A