HomeMy WebLinkAboutLONGVIEW MARKETPLACE @ SHENANDOAH, PDP - MOD. OF STANDARDS - 47-95C - REPORTS - RECOMMENDATION/REPORTModifications — Longview Marketplace Project Development Plan — Filing #47-95D
February 20, 2003 P & Z Meeting
Page 12
building clustered "town center" setting and put emphasis on the pedestrian in locations
where they must interface with vehicular movement.
D. With regards to Subsections 4.19(E)(2)(b) and 4.19(E)(2)(c): The existing physical
conditions of the site, the existing topography, and the nature of the proposed street
pattern in the area make it difficult and unreasonable for the property owner to meet the
strict application of the Block Structure and Minimum Building Frontage standards for
the shopping center. The proposed project is on a 16 acre site that slopes dramatically
from west to east, to South College Avenue. The proposed street network adjacent to
the site has been pre -determined by existing developments to the north and west, as
well as an existing sub -station and an existing wetland to the south. Therefore, the
strict application of the standards sought to be modified would result in unusual and
exceptional practical difficulties, or exceptional or undue hardship upon the owner of
such property.
6. RECOMMENDATION:
Staff recommends approval of the Modifications of Standards in Subsection 3.5.3(B)(1),
Subsection 4.19(E)(2)(b), and Subsection 4.19(E)(2)(c) of the Land Use Code for the
Longview Marketplace @ Shenandoah Project Development Plan - #47-95B.
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By reason of exceptional physical conditions or other extraordinary and exceptional
situations, unique to such property, including, but not limited to, physical conditions
such as exceptional narrowness, shallowness or topography, or physical conditions
which hinder the owner's ability to install a solar energy system, the strict
application of the standard sought to be modified would result in unusual and
exceptional practical difficulties, or exceptional or undue hardship upon the owner of
such property, provided that such difficulties or hardship are not caused by the act
or omission of the applicant.
Subsection 4.19(E)(2)(b) Block Size and Subsection 4.19(E)(2)(c) Minimum
Building Frontage.....The current Longview Marketplace @ Shenandoah
PDP is for a supermarket and associated commercial development on
approximately 16 acres. The two "blocks" within the actual development plan
for this proposed shopping center have been created in response to the pre-
determined street network in the area, the natural topography that exists on
and around the site, and the attempt to form a "town center' component
within the shopping center. Within any shopping center there is a building
square footage to parking space ratio that must be met. To complete the
"town center' concept the applicant has clustered four of the smaller
buildings together fronting on the private drives that serve the site from South
College Avenue. Because of this it has become difficult to distribute the
buildings on pad sites around the perimeter of the "blocks" to comply with the
minimum building frontage requirement. Staff has determined that
compliance with the Block Structure and Minimum Building Frontage
requirements are infeasible due to unusual topographic features and existing
development, as set forth in Section 4.19(E)(2) Block Requirements if the
LUC.
5. FINDINGS OF FACT/CONCLUSION:
A. The requested Modifications of Standards in Subsection 3.5.3(B)(1), Subsection
4.19(E)(2)(b), and Subsection 4.19(E)(2)(c) of the Land Use Code for the Longview
Marketplace @ Shenandoah PDP is subject to review by the Planning and Zoning
Board.
B. Granting the requested modifications would not be detrimental to the public good nor
would it impair the intent and purposes of the Land Use Code.
C. With regards to Subsections 3.5.3(B)(1), 4.19(E)(2)(b), and 4.19(E)(2)(c): Considering
the configuration of the proposed development site and the nature of the proposed
street pattern in the area, the Private Drive Plan as submitted will protect the public
interests and purposes of the standards for which modifications are requested equally
well than would a plan which complies with the standards for which modifications are
requested. The development plan will provide enhanced pedestrian walkways in a
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February 20, 2003 P & Z Meeting
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allowed in a public street right-of-way (ROW). The choice to utilize private
drives was made to allow for desired site amenities and to grant private
control of all street improvements and maintenance to the developer.
The developers, their applicant, and City staff have met on several occasions
and have come to the conclusion that the private drive system in the area of
the relatively small commercial, retail, restaurant buildings (Buildings B, C, D,
and E) will function adequately with the projected traffic volumes in the area.
All four buildings have the ability to provide main entrances that open directly
onto a walkway that connects with sidewalks (pedestrian ways) along the
private drives that tie this small "town center" component of the shopping
center together. The Longview Marketplace @ Shenandoah PDP will
combine direct connectivity from the main entrances of the buildings to
pedestrian walkways (both standard widths and enlarged widths) with
enhanced, pedestrian -oriented crosswalks across the private drives and
drive curb cuts into the parking lots.
Subsection 4.19(E)(2)(b) Block Size and Subsection 4.19(E)(2)(c) Minimum
Building Frontage..... The current Longview Marketplace @ Shenandoah
PDP is for a supermarket and associated commercial development on
approximately 16 acres. The site is bounded by South College Avenue to the
east and undeveloped lands to the south, west, and north. To the south is the
existing Longview Farm open space in Larimer County. The possible (and
probable) street/roadway network in this area will consist of the extension of
Avondale Road from the west (in the Ridgewood Hills PUD) to the
intersection of South College Avenue and Carpenter Road, the extension of
Strasburg Drive from the north (in the Shenandoah PUD) to a future point of
intersection with Longview Drive, and private drives penetrating the proposed
shopping center.
The "blocks" created by the pre -determined alignment of streets (by virtue of
previous developments, topography, and existing wetland and sub -station)
will be 14.1 acres and 1.9 acres in size. The larger "block" will contain the
supermarket and 5 of the 6 proposed commercial buildings, along with
associated parking. The smaller "block" will contain one commercial building
(possibly a standard restaurant) with associated parking. Because of the
alignment of Avondale Road, running diagonally through the area (having
been determined and designed with the Ridgewood Hills PUD, Third Filing),
the location for the future Strasburg Drive being determined by its
intersection with the existing Triangle Drive, and the probable diagonal
alignment of the future Longview Drive, the absolute compliance with
Subsection 4.19(E)(2)(b) is not feasible.
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February 20, 2003 P & Z Meeting
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Section 2.8.2(H) of the LUC specifies that the Planning and Zoning Board shall only grant
a modification for the following reasons:
a. granting a modification of standard would neither be detrimental to the public good
nor impair the intent and purposes of the Land Use Code; and
b. the modification would result in the project addressing the purposes of the standard
equally well or better than a plan that complies with the standard; or
c. the modification would result in a substantial benefit to the city; or
d. the strict application of the standard sought to be modified would result in unusual
and exceptional practical difficulties or exceptional or undue hardship upon the
owner of the property.
Subsection 3.5.3(B)(1) Orientation to a Connecting Walkway sets forth the requirement of
the LUC that at least one (1) main entrance of any commercial or mixed -use building shall
face and open directly onto a connecting walkway with pedestrian frontage.
Subsection 4.19(E)(2)(b) Block Size sets forth the requirement of the LUC that all blocks
shall be limited to a maximum of seven (7) acres, except that blocks containing
supermarkets shall be limited to a maximum of ten (10) acres.
Subsection 4.19(E)(2)(c) Minimum Building Frontage sets for the requirement of the LUC
that 40% of each block side or 50% of the total block frontage shall consist of either
building frontage, plazas, or other functional open space."
Staff has determined that:
Granting the requested modifications would not be detrimental to the public
good and would not impair the intent and purposes of the Land Use Code.
Section 2.8.2(H)(1) - The plan as submitted will advance or protect the public
interests and purposes of the standards for which the modifications are requested
equally well than would a plan which complies with the standards for which
modifications are requested.
Subsection 3.5.3(B)(1) Orientation to a Connecting Walkway..... The current
Longview Marketplace @ Shenandoah PDP is proposing a private drive
roadway system from South College Avenue west (between Buildings C, D,
and E) to Building B, where it will turn 90 degrees to the north to connect with
the intersection of Longview Drive and Strasburg Drive (both to be public
streets). The applicant's cited purpose for the private drives versus public
streets is because many of the site amenities being proposed would not be
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• On the west side of the site, there is a mid -block land -use transition to the MMN zone.
The western property line of the site is adjacent to the MMN zone. This relationship allows
for a mid -block land -use transition rather than a street transition. According to the LUC,
mid -block transitions are preferred.
In summary, the private drive frontage, additional retail uses, and mid -block land use transition
combine to create a site plan that meets the Land Use Code criteria equally well or better than a
site plan which complies with Section 4.19 (C)(2)(b).
A second justification for this request per the Modification Criteria (Section 2.8.2(H) (3) is that the
proposed plan has difficult physical conditions which hinder the ability of the site to meet the
standards. We believe that the proposed project also falls under this category for this reason.
• State Highway 287 is located along the eastern property line. All access along this
highway has been pre -determined by the South College Access Plan.
This site has only been allowed to have two access points along Highway 287. The location
of these determined access points creates the shape and size of the site.
• This project is located on a steeply sloping site. The existing site conditions make it
very difficult to incorporate more public streets in order to reduce the block size.
The grades on this land steeply slope to Highway 287 on the east. These existing steep
slopes make it difficult to design public streets that meet the Larimer County Urban Area
Street Standards.
After several discussions with city staff, it was decided to make the internal street system,
through the site, private drives. By utilizing private drives, the block size is larger and there
is less opportunity for building frontage along the block sides.
In summary, the limited access from Highway 287 and the steep slopes on site create
difficult physical conditions, which hinder the ability of this site to meet the standards.
4. STAFF'S ANALYSIS OF THE MODIFICATIONS REQUEST
In reviewing the proposed alternative plan for purposes of determining whether it
accomplishes the purposes of this section as required, the Planning and Zoning Board
shall take into account whether the proposed plan demonstrates innovative design and
best meets the intent of the Land Use Code.
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February 20, 2003 P & Z Meeting
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with diagonal parking, placing building facades on the street and providing lots of pedestrian
amenities such as street trees, planters, benches, etc ... we are able to create a truly pedestrian -
oriented environment.
MODIFICATION - to Subsections 4.19(E)(2)(b) and 4.19(E)(2)(c)
The Longview Marketplace site is approximately 16 acres within a block that is approximately 21
acres in size. The large block size and inability to incorporate public streets through the site reduces
the overall building frontage. Streets that conform to the City's South College Access Plan and the
Master Street Plan form the block. (See attached drawing)
This request is for a modification to grant a larger block size than the allowed 10 acres and
allow for a reduced amount of building frontage.
JUSTIFICATION
Justification for this proposal relating to the Modification Criteria (Section 2.8.2(H)(1) is that the
proposed plan will serve the standard equally well or better than would a plan which complies with
the standard. We believe that the proposed project meets this criterion in the following ways:
• The private drives through the site help to reduce the apparent block size, offer
additional building frontage and provide the same circulation patterns that a public
street would.
Streets within the center were originally proposed as public streets, but because the
distinction between public and private begins to blur when we add amenities like diagonal
parking and special paving, it was decided that a private drive was a more workable
scenario. In our estimation, the private drives essentially function the same way. Private
drives provide opportunities for buildings to face streets and create opportunities for both
pedestrian and vehicular connectivity. If the private drives were public streets, the overall
block size would be 16.9 acres with Long View Marketplace utilizing .14.1 acres of the
block. (See attached drawing)
• By having a block size larger than 10 acres, it is possible to incorporate additional
commercial/retail uses to serve the surrounding neighborhoods.
Additional commercial and retail uses have been added to the site to provide the surrounding
residential neighborhoods with frequently needed goods and services. The additional
neighborhood center acreage makes this possible.
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JUSTIFICATION
A justification for this proposal relating to the Modification Criteria (Section 2.8.2(H)(1) is that the
proposed plan will serve the standard equally well or better than would a plan which complies with
the standard. We believe that the proposed project meets this criterion in the following ways:
• There is an enhanced 12'-wide pedestrian walkway/plaza along each building.
• Special paving and raised crosswalks, over the driveways, increase pedestrian accessibility
and safety.
• The pedestrian amenities along the walkways will enhance the shopping center, and these
amenities would not typically be allowed if the streets were to be public.
• The driveway cuts north of buildings B and E would be permitted if the streets were public,
but the site amenities would be extremely limited.
The wide pedestrian walkways and plaza, the site amenities throughout, and the raised
crosswalk connection to the streets to the north enable the site plan to meet the Land Use Code
criteria equally as well as a plan which complies with Section 3.5.3(B).
This request is for a modification to the Block Size requirements and the Minimum Building
Frontage standards as outlined in the Fort Collins Land Use Code. The modification being
requested is from Sections 4.19 (E)(2)(b) and 4.19 (E)(2)(c). This regulation reads that:
"All blocks shall be limited to a maximum size of seven (7) acres, except that blocks
containing supermarkets shall be limited to a maximum of ten (10) acres. "
"Forty (40) percent of each block side or fifty (50) percent of the total block frontage shall
consist of either building frontage, plazas, or other functional open space. "
Access and circulation has been determined based on the South College Access Plan prepared
jointly by the City and the Colorado Department of Transportation (CDOT) and the City's Master
Street Plan as well as by, existing street patterns in Ridgewood Hills and Shenandoah. Avondale
Drive will extend from Ridgewood Hills southeast to align with County Road 32 at Highway 287.
This signalized intersection is located at the southeast corner of the site. Three primary access
points including Avondale Drive on the south, Strasburg Drive on the north and a three-quarter
access along College Avenue serve Longview Marketplace.
A primary objective of the internal vehicular and pedestrian circulation system is to separate
vehicular -oriented and pedestrian -oriented uses. By clustering the pedestrian -oriented uses at the
north end of the project, we are able to minimize pedestrian/vehicular conflicts, and enhance the
pedestrian experience by making it safe, convenient and interesting. By creating a "main street"
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zoned MMN, serves as a transitional land use between the commercial center and single-family
neighborhoods.
Surrounding land uses include the Schrader gas station and Victoria Estates located across Highway
287. There is undeveloped land, zoned MMN, to the immediate north and west and Long View
Farm Open Space to the south. Ridgewood Hills and Shenandoah, both single-family
developments, are located farther to the north and west.
MODIFICATION - to Subsection 3.5.3(B)(1)
Buildings B and E, at the north end of the site, open and directly face an internal private
walkway/plaza area. This pedestrian connection will link shoppers to the other buildings within the
site via wide walkways and raised crosswalks. Although buildings B and E have direct access to
this pedestrian walkway, they do not have direct access to the public street sidewalk on Long View
or Strasburg Drives. Before the walkways, north of B and E, reach the public street sidewalk, they
each cross a driveway. Under the Terms and Definitions section of the LUC, a connecting walkway
shall mean "(1) any street sidewalk, or (2) any walkway that directly connects a main entrance of a
building to the street sidewalk without requiring pedestrian to walk across parking lots or
driveways, around buildings or around parking lot outlines which are not aligned to a logical route."
The internal street system within this center is comprised of private drives. The decision to utilize
private drives, around buildings B, C, D and E, was made after several discussions°with City staff.
If these private drives were to be public streets, buildings B and E would comply with the
connectivity standards and a modification request would not be necessary. Unfortunately, many of
the site amenities that are being proposed are not allowed within the public right-of-way. The
attached drawing labeled "Public Streets" illustrates what the site would look like if the connectivity
standards were to be met. The driveways north of buildings B and E would be allowed, the streets
would be wider, and no raised crosswalks, special paving, seat walls, retaining walls or planters
would be allowed within the ROW. The choice to utilize private drives was made to allow for these
site amenities, and to grant private control of all street improvements and maintenance to the
developer.
The driveway cuts north of buildings B and E are necessary for circulation around the buildings.
These driveways also prevent dead end parking from occurring. The walkway connections from the
buildings to the adjacent street shall be raised and enhanced when they cross the driveways. The
pedestrians will have a constant level sidewalk to make the street connection. See the attached plan
labeled "Private Drives".
The request is for a modification to the connectivity standards for buildings B and E.
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(such as, by way of example only, traffic congestion or urban blight), and the
strict application of such a standard would render the project practically
infeasible; or
(3) by reason of exceptional physical conditions or other extraordinary and
exceptional situations, unique to such property, including, but not limited to,
physical conditions such as exceptional narrowness, shallowness or
topography, or physical conditions which hinder the owner's ability to install a
solar energy system, the strict application of the standard sought to be
modified would result in unusual and exceptional practical difficulties, or
exceptional or undue hardship upon the owner of such property, provided
that such difficulties or hardship are not caused by the act or omission of the
applicant."
The applicant has proposed that modification of the standards would not be detrimental to
the public good and that they meet the requirements of Sections 2.8.2(H)(1) and
2.8.2(H)(3) of the LUC.
3. APPLICANT'S REQUEST (in Times New Roman font)
This request is for a modification to the "orientation to a connecting walkway" requirements as
outlined in the Fort Collins Land Use Code. The modification being requested is from section
3.5.3 (13)(1), Relationship of Buildings to Streets, Walkways and Parking. This regulation reads
that:
"At least one main entrance of any commercial or mixed -use building shall face and open
directly onto a connecting walkway with pedestrian frontage. "
PROJECT DESCRIPTION
Long View Marketplace is located at the northwest corner of the intersection of Highway 287 and
County Road 32. The site zoning is designated as NC for Neighborhood Commercial. Originally,
this site was part of the Ridgewood Hills ODP. In 1995, that ODP indicated a neighborhood center
of 36 acres. When the Land Use Code was adopted in 1997, the zoning map was changed to
indicate 20 acres in the NC zone. The remaining acreage, surrounding the site, is zoned MMN,
Medium Density Mixed -Use, and is approximately 27 acres.
Long View Marketplace can be described as a neighborhood center that includes a mix of land uses.
The commercial anchor is a King Soopers Grocery store. The other potential uses would be a liquor
store, a video store, a drug store, a fuel station, small retail shops and a potential restaurant. While
retail is the primary focus, the site plan also includes a banking facility. The variety of retail and
service shops will provide convenience and service for not only the neighborhood, but also for
people working and commuting along Highway 287. The adjacent 27 acres to the north and west,
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2. MODIFICATIONS REQUEST — PERTINENT CODE SECTIONS
This request is for modifications to standards in the following sections of the LUC:
Section 3.5.3(B) Relationship of Buildings to Streets, Walkways and Parking,
Subsection 3.5.3(B)(1) Orientation to a Connecting Walkway states:
"At least one (1) main entrance of any commercial or mixed -use building shall face
and open directly onto a connecting walkway with pedestrian frontage. Any building
which has only vehicle bays and/or service doors for intermittent/infrequent
nonpublic access to equipment, storage or similar rooms (e.g. self -serve car
washes and self -serve mini -storage warehouses) shall be exempt from this
standard."
Section 4.19(E) Development Standards, Subsection 4.19(E)(2)(b) Block Size states:
"All blocks shall be limited to a maximum of seven (7) acres, except that blocks
containing supermarkets shall be limited to a maximum of ten (10) acres."
Section 4.19(E) Development Standards, Subsection 4.19(E)(2)(c) Minimum Building
Frontage states:
"Forty (40) percent of each block side or fifty (50) percent of the total block frontage
shall consist of either building frontage, plazas, or other functional open space."
As specified in Section 2.8.2 Modification Review Procedures, (H) (Standards), the
Planning and Zoning Board shall review, consider, and approve, approve with conditions
or deny an application for a modification based upon:
"... the granting of the modification would neither be detrimental to the public good nor
impair the intent and purposes of this Land Use Code; and that.
(1) the plan as submitted will advance or protect the public interests and
purposes of the standard for which the modification is requested equally well
or better than would a plan which complies with the standard for which a
modification is requested; or
(2) the granting of a modification from the strict application of any standard
would result in a substantial benefit to the city by reason of the fact that the
proposed project would substantially address an important community need
specifically and expressly defined and described in the City's Comprehensive
Plan, adopted policy, ordinance or resolution (such as, by way of example
only, affordable housing or historic preservation) or would substantially
alleviate an existing, defined and described problem of city-wide concern
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EXECUTIVE SUMMARY:
The applicant has submitted an application with a request for modifications of standards as
set forth in Section 3.5.3(B) Relationship of Buildings to Streets, Walkways and
Parking, Subsection 3.5.3(B)(1) Orientation to a Connecting Walkway; Section 4.19(E)
Development Standards, Subsection 4.19(E)(2)(b) Block Size; and, Section 4.19(E)
Development Standards, Subsection 4.19(E)(2)(c) Minimum Building Frontage of the
LUC. These subsections set forth the requirements that one main entrance of any
commercial building shall face and open directly onto a connecting walkway with
pedestrian frontage, blocks containing supermarkets shall be limited to a maximum of 10
acres, and 40% of each block side or 50% of the total block frontage shall consist of either
building frontage, plazas, or other functional open space.
This application for modifications of standards requests that the Planning and Zoning
Board determine if the modifications requests meet the intent of the LUC. This request is
only for modifications of the specific standards in Subsection 3.5.3(B)(1), Subsection
4.19(E)(2)(b), and Subsection 4.19(E)(2)(c) of the LUC. The applicant has submitted a
Project Development Plan (PDP) package for a Planning and Zoning Board (Type II)
review by the City. The PDP must be approved prior to the applicant being able to receive
building permits and construct the project.
COMMENTS
1. BACKGROUND
The surrounding zoning and land uses are as follows:
N: MMN; existing single family residential, vacant land (Shenandoah PUD)
E: FA, FA1 in Larimer County; existing single family residential
S: FA in Larimer County; existing County open space (Longview Farm)
W: MMN; existing single family residential, vacant land
The property was annexed as part of the Trilby Heights Second Annexation in June, 1981.
The property has not previously been subdivided.
The Longview Marketplace PDP (Type II, LUC) development request was submitted to the
City on November 5, 2002, and is currently in the City's development review process. The
proposal is for a 65,600 square foot supermarket (King Soopers) and 65,000 square feet of
in -line retail, mixed -use, bank, and convenience store in 6 separate buildings on
approximately 16.0 acres.
ITEM NO. 6
MEETING DATE 2/20/03
STAFF Steve Olt
Citv of Fort Collins PLANNING AND ZONING BOARD
STAFF REPORT
PROJECT: Modification of Standards in Subsection 3.5.3(B)(1), Subsection
4.19(E)(2)(b), and Subsection 4.19(E)(2)(c) of the Land Use Code for
the Longview Marketplace @ Shenandoah Project Development Plan
(PDP) - #47-95B
APPLICANT: VF Ripley Associates
c/o Rachel Linder Lee
401 West Mountain Avenue, Suite 201
Fort Collins, CO 80521
OWNER: Quadrant Properties, LLC
16253 Swingley Ridge Road, Suite 220
Chesterfield, MD 63017
PROJECT DESCRIPTION:
This is a request for modifications of standards found in the following sections of the Land
Use Code (LUC):
• Section 3.5.3(B) Relationship of Buildings to Streets, Walkways and Parking,
more specifically Subsection 3.5.3(B)(1) Orientation to a Connecting Walkway.
• Section 4.19(E) Development Standards, more specifically Subsection
4.19(E)(2)(b) Block Size.
• Section 4.19(E) Development Standards, more specifically Subsection
4.19(E)(2)(c) Minimum Building Frontage.
The property is located at the northwest corner of South College Avenue (also known as
Colorado Highway 287) and Carpenter Road (also known as County Road 32). It is in the
NC — Neighborhood Commercial Zoning District.
RECOMMENDATION: Approval
COMMUNITY PLANNING AND ENVIRONMENTAL SERVICES 281 N. College Ave. PO. Box 580 Fort Collins, CO 80522-0580 (970) 221-6750
PLANNING DEPARTMENT