HomeMy WebLinkAboutPOUDRE SCHOOL DISTRICT, EAST PROSPECT ROAD SERVICE FACILITY - ODP - 44-08 - REPORTS - RECOMMENDATION/REPORTPoudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 13
zone district that is bordered on the north and south by existing, semi -rural,
residential neighborhoods. The proposed Service Facility is separated from
these subdivisions by significant setbacks, berming and landscaping. The
following standards relating to project compatibility are achieved to the extent
that they can be applied at the level of detail required for an O.D.P.
• Section 3.5.1(A) - Building and Project Compatibility
• Section 3.5.1(H) - Land Use Transition
• Section 4.2(E)(1)(a) - Street Connectivity and Design
• Section 4.28(E)(1) - Prospect Road Streetscape Program
• Section 4.28(E)(3)(a)1. - Screening - outside storage
• Section 4.28(E)(3)(a)3. - Screening - 80-foot yard
RECOMMENDATION.
In making a recommendation, the Planning and Zoning Board may:
• Approve the request.
• Approve the request with conditions.
• Continue the request for more information.
• Deny the request.
Staff recommends approval of Poudre School District East Prospect Road Service
Facility O.D.P., #44-08, subject to the following condition:
The O.D.P. contains two uses not permitted in the U-E, Urban Estate zone.
Therefore, in addition to the list of permitted uses in Section 4.2, Urban Estate Zone
District, only those uses specifically authorized by the separate action of the
Planning and Zoning Board, under the provisions of Section 1.3.4, may be added to
the Urban Estate portion of the O.D.P.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 12
The Warehouse would generate 97 trips per day and would require the construction of an
eastbound left -turn lane at McLaughlin Lane. The Transportation Facility would generate
913 trips per day and would require a new traffic signal at the Eastern Frontage Road and
require the 1-25 interchange to be reconstructed. The Public School and the growth in
background traffic would require new signals at Prospect/C.R. 5 and Mulberry/C.R. 5.
Improvements to the 1-25 interchange are the subject of a Draft Environmental Impact
Study by the Colorado Department Transportation. Coordinating the construction of
necessary road improvements required to serve Phase Two development will remain a
challenge among the Poudre School District, City of Fort Collins and CDOT.
The issue of approving any of the proposed Phase Two projects will have to be made at
the time of submittal for a Site Plan Advisory Review and based upon the scheduling and
funding of the necessary road improvements. Since the request is for an Overall
Development Plan which does not vest any rights to develop, the status and scope of
CDOT's 1-25/Prospect Road improvement project does not necessarily need to be
resolved at this time.
9. Findings of Fact/Conclusion:
In evaluating the request for Poudre School District East Prospect Road Service
Facility O.D.P., Staff makes the following findings of fact.
A. The O.D.P. complies with the applicable standards as stated in of 2.3.2(H)(1 —7
B. The proposed land uses comply with the U-E, Urban Estate and 1, Industrial
zone districts with two exceptions. Warehouse and Professional Office are
not permitted in the Urban Estate zone. The applicant has requested these
two uses be added into the Urban Estate, for this location only, as a separate
item under the provisions of Section 1.3.4.
C. A condition of approval is recommended so that in addition to the permitted
uses listed in Section 4.2, Urban Estate Zone District, only those uses
specifically permitted by the P & Z board by separate action are allowed to be
included within the Urban Estate portion of the O.D.P.
D. Two neighborhood information meetings were held. There is significant
opposition to the proposed O.D.P. based on the impacts associated with the
land use and traffic on the surrounding streets.
E. The O.D.P. represents the development and intensification in the Urban Estate
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 11
8. Neighborhood Information Meetings:
Two neighborhood information meetings were held. Summaries are attached.
There is significant opposition to the O.D.P. primarily for two reasons. The
proposed land uses associated with the Transportation Facilities are considered
incompatible with the surrounding area, particularly for a parcel that is zoned Urban
Estate. And, there are concerns about the introduction of additional traffic onto
East Prospect Road and C.R. 5. These traffic impacts are exacerbated by the
present lack of funding by any public or private entity to improve the Prospect Road
/1-25 highway interchange.
A. Land Use and Neighborhood Compatibility
There is a concern that the introduction of the Transportation Facilities deviates
from the established character of the two affected subdivisions. The Urban Estate
zone implies a semi -rural, large -lot residential area. A Transportation Facility, as
envisioned by the O.D.P., will have a negative impact on the established residential
neighborhood character of the area.
In response, Staff has evaluated the juxtaposition of the existing and proposed uses. The
size of the parcel allows for large buildings to be set back from both the north and south
property lines. The two proposed landscaped earthen berms will minimize the visual
impact. While the proposed project will indeed introduce new impacts, these impacts are
capable of being mitigated. Future development will require neighborhood meetings and
Site Plan Advisory Review which will allow residents and the Planning and Zoning Board to
further assess the operational and physical compatibility issues.
B. Traffic Impacts
There is a concern that the traffic generated by the Service Facility will not be safely
accommodated on the existing roadways. And, any potential improvements to the
surrounding streets will likely lag behind the impacts created by the development. Finally,
the lack of a solid funding source for the future improvements to the 1-25/Prospect Road
interchange creates doubt about the validity of the traffic analysis for the year 2015.
In response, the Traffic Operations Department has evaluated the Transportation Impact
Study which divides the traffic impacts into three phases. Phase One (2010) would be the
Warehouse, Phase Two would the Transportation Facility (2015), and Phase Three would
be the Public School (2028).
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08.
February 19, 2009 P & Z Hearing
Page 10
5. Section 2.3.2 (H)(4) — Transportation Connections to Adioining Properties
This criterion requires an O.D.P. to provide for the location of transportation
connections to adjoining properties to ensure connectivity into and through the
O.D.P. from neighboring properties for vehicles, pedestrians and bikes as per
Sections 3.6.3 (F) and 3.2.2(C)(6).
A. With regard to Section 3.6.3 (F), the O.D.P. indicates continuing the two
proposed streets on the west as per the approved Prospect/1-25 O.D.P.
There are no other street stubs to the site.
B. With regard to Section 3.2.2(C)(6), Direct On -site Access to Pedestrian and
Bicycle Destinations, this standard requires that the bike and pedestrian
system be designed to provide logical, safe and direct connections to origins
and destinations. These improvements will be constructed as each individual
phase is developed. The City Parks and Recreation Policy Plan does not
show any future trails in the nearby vicinity.
6. Section 2.3.2 (H)(5) — Natural Features:
This criterion requires an O.D.P. to show the general location and size of all natural
areas, habitats and features within its boundaries and shall indicate the rough
estimate of the buffer zone as per Section 3.4.1(E).
The Cache La Poudre Reservoir Inlet Canal is the only feature on the site that will be
protected under Section 3.4.1(E). This canal is indicated on the O.D.P.
7. Section 2.3.2 (H) (6) — Drainage Basin Master Plan:
This criterion requires an O.D.P. to be consistent with the appropriate Drainage
Basin Master Plan.
The O.D.P. is located in the Boxelder/Cooper Slough Master Drainage Basin.
Permission has been obtained to discharge the detained stormwater at a controlled
release rate into the irrigation ditch.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 9
A Transportation Impact Study has been prepared. The T.I.S. concludes:
Short Term:
• The.short term — 2010 — analysis assumes full build -out of the proposed
30,000 square foot central receiving warehouse. An auxiliary eastbound left
turn lane will be required into the site at McLaughlin Lane.
Mid -Term:
• The mid-term — 2015 — analysis assumes full build -out of all the
transportation facilities, but not the two professional office buildings or the
school. A new traffic signal will be required at the Prospect/East Frontage
Road intersection.
• An auxiliary eastbound left turn lane will be required at the intersection of
Prospect Road and Meadowaire Drive.
• The north one-half of Prospect Road will need to be improved to the four -
lane arterial standard.
• The 1-25/Prospect Road interchange is assumed to be reconstructed by this
timeframe by other developments or CDOT:
Long Term:
• The west one-half of C.R. 5 will need to be improved to the four -lane arterial
standard.
• New traffic signals are likely to be needed at Prospect/C.R. 5 and C.R.
5/Mulberry intersections.
• In terms of multi -modal Levels of Service, the project will not meet the
standards for bikes, pedestrians, or transit in the short or mid term horizons.
It is likely that the project will meet the standard in the long range horizon
when additional development occurs in the area.
The City of Fort Collins does not have a capital plan or funding source for improving the I-
25/Prospect Road interchange. The City can only enforce the adequate public facilities of
Section 3.7 - Compact Urban Growth Standards if there is a City -funded capital program in
place to remedy the deficiency. Since there is no City of Fort Collins capital program for
improving the interchange, the standards of Compact Urban Growth do not apply.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 8
campus -like layout. There will be no need for the traffic associated
with dwelling units to be distributed to the arterial streets via a network
of sub -arterials.
In evaluating the proposed street pattern, Staff finds:
• The alternative design has no impact on natural areas or features.
• The alternative design preserves the ability to provide non -vehicular access.
• The alternative design provides for the distribution of the development's
traffic without exceeding level of service standards at the affected
intersections.
• The alternative design provides a direct, sub -arterial street access to the
future school.
(3) 3.6.3 (F) — Utilization and Provision of Sub -Arterial Street Connections
to and from Adjacent Developments and Developable Parcels.
This standard requires that development plans incorporate and
continue all sub -arterial streets stubbed to the boundary.
The O.D.P. is bounded by existing development on the north (Kitchell
Estates). There are no opportunities for sub -arterial connections into
this subdivision.
In the portion of the O.D.P. zoned Industrial, the westerly street stub
will connect into the local street system identified on the Prospect 1-25
O.D.P. This westerly street stub has the potential of connecting north
into the Waterdale (Sunflower) and Clydesdale Park residential
subdivisions with a connection to Mulberry Street.
C. With regard to the requirements of the Transportation Level of Service
Requirements, Section 3.6.4, states that the standards are intended to ensure that.
"the project demonstrate that all adopted Level of Service standards will be
achieved for all modes of transportation."
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 7
The traffic signal is anticipated to be placed at the East Prospect /
Eastern Frontage Road intersection in the 2015 mid-term scenario.
Extensions of McLaughlin and Meadowaire would align with two
existing roads that serve Homestead Estates south of Prospect Road.
They are separated by 1,400 feet. Aligning with the two roads is
preferable to creating offset intersections. There are no sub -arterial
connections along C.R. 5 except for private drive associated with the
future school.
(2) 3.6.3 (D) - Spacing of Limited Movement Collector or Local Street
Intersections with Arterial Streets.
This standard requires that additional non -signalized, potentially
limited movement, collector or local street intersections with arterial
streets shall be spaced at intervals not to exceed 660 feet between full
movement collector or local street intersections.
There is 620 feet between the future Carriage Parkway (Prospect/1-25
O.D.P.) and McLaughlin Lane. As mentioned, there is 1,400 feet
between McLaughlin and Meadowaire. And, there is 1,200 feet
between Meadowaire and C.R. 5 between which there is a -proposed
private access drive to serve the school. Two of these separations
exceed 660 feet.
The Land Use Code provides for an Alternative Compliance provision
to Section 3.6.3 - Street Pattern and Connectivity Standards. Under
this provision, the Board is allowed to consider an alternative plan that
will accomplish the purpose of the standard equally well or better than
would a plan and design which complies with the standard. Further, if
the alternative plan results in any reduction in access and circulation
for vehicles, then facilities for bicycle, pedestrian and transit must be
maintained to the maximum extent feasible.
The street pattern proposed by the O.D.P. is designed to
accommodate the needs of a transportation facility for one and
possibly two, large public service entities. In addition, approximately
30 acres are set aside for a future public school. There is the potential
that the site could also contain a 30,000 square foot central receiving
warehouse and two professional office buildings. There will be no
dwelling units.
Access for these potential end -users has been designed to allow for
large parcels to be reserved for a variety of specialized functions in a
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 6
Staff, therefore, finds that the O.D.P. achieves a sufficient level of quality to the
Land Use Transition standard to the extent that this standard can be applied at the
level of detail required for an O.D.P.
3. Section 2.3.2 (H) (2) — Density Ranges of Residential Uses
This criterion requires that the O.D.P: be consistent with the required density range
of residential land uses if located in the L-M-N or M-M-N zone district.
There are no residential uses or L-M-N or M-M-N zoning within the O.D.P. Therefore, this
criterion is not applicable.
4. Section 2.3.2 (H)(3) — Master Street Plan and Levels of Service
This criterion requires the O.D.P. to conform to the Master Street Plan and street
pattern and connectivity standards as required by Section 3.6.1 and 3.6.3 (A)
through (F). In addition, the O.D.P. shall also conform to the Transportation Level of
Service Requirements as contained in Section 3.6.4.
A. With regard to compliance with the Master Street Plan, Section 3.6.1, the O.D.P.
acknowledges that both East Prospect Road and C.R. 5 are classified as four -lane
arterial streets and that the O.D.P. will continue these roadway classifications
across the respective frontages.
B. With regard to Street Pattern and Connectivity, Section 3.6.3, the standards are
intended to ensure that the local street system is well designed with regard to
safety, efficiency, and convenience for cars, bikes, pedestrian and transit. There
are three specific sub -sections of the standard 3.6.3 (C), (D) and (F) that are
applicable.
(1) 3.6.3 (C) — Spacing of Full Movement Collector and Local Street
Intersections with Arterial Streets.
This standard requires that potentially signalized, full -movement
intersections of collector or local streets with arterial streets, shall be
provided at least every 1,320 feet, or one -quarter mile.
The O.D.P. indicates that there will be two full -movement, sub -arterial
connections along East Prospect Road. These are McLaughlin Lane
and Meadowaire Drive. Neither of these is expected to be signalized.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 5
The proposed buildings will be dissimilar and in contrast with the context of the
surrounding area. In order to mitigate this incongruity, emphasis has been placed on
building setbacks and significant landscape buffering. For example, landscaped earthen
berms between six and eight feet in height will be placed along both the north and south
property lines. Minimum 80-foot building setbacks will be provided along these two
property lines as well. Based on the proposed uses, buildings will not likely exceed 40 feet
in height.
According to the Illustrative Plan, it appears at the O.D.P. stage that the privacy and height
standards will be achieved. It cannot be determined, however, how architectural standards
will be achieved for all buildings with the exception of the proposed warehouse which is
under separate review. Such standards remain to be evaluated at the time of submittal for
a site specific development plan.
B. Land Use Transition — Section 3.5.1(H):
This standard states:
"When land uses with significantly different visual character are proposed adjacent to each
other and where gradual transitions are not possible or not in the best interest of the
community, the development plan shall, to the maximum extent feasible, achieve
compatibility through compliance with the standards set forth in this Division regarding
scale, form, -materials and colors and adoption of operational standards including limits on
hours of operation, lighting, placement of noise -generating activities and similar
restrictions."
For reference, the Code defines compatibility as follows:
"Compatibility shall mean the characteristics of different uses or activities or design which
allow them to be located near or adjacent to each other in harmony. Some elements affecting
compatibility include height, scale, mass and bulk of structures. Other characteristics include
pedestrian or vehicular traffic, circulation, access and parking impacts. Other important
characteristics that affect compatibility are landscaping, lighting, noise, odor and
architecture. Compatibility does not mean "the same as." Rather, compatibility refers to the
sensitivity of development proposals in maintaining the character of existing development."
As can be seen by the standard and definition, this O.D.P., and subsequent site
specific development plans, are challenged to comply with a rigorous requirement to
be of as high quality as possible.
The Service Facility will comprise approximately 70 acres affording ample land area
for screening and buffering purposes. For example, according to the Illustrative
Plan, direct lines of sight from the two subdivisions will be mitigated by the earthen
berms and landscaping. This combination of distance, berms and landscaped
buffer yards will minimize the impacts associated with the Service Facility.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 4
to provide integration between neighborhoods. The Illustrative Plan indicates future street
connections to the west.
Regarding any applicable Industrial zone district standards, Section 4.28(E)(1) requires
that the development comply with the Prospect Rod Streetscape Program. The O.D.P.
indicates that there will be sufficient setback from the right-of-way to provide for the
minimum setback of 50 feet and for the double row of plant material.
In addition, Section 4.28(E)(3)(a)1. requires that industrial and commercial activities and
related storage are contained within a building or otherwise completely screened from view
from the residential area. The Illustrative Plan indicates that along portions of the north
and south property lines where such activities are planned, there will be a landscaped
earthen berm ranging between six and eight feet in height.
Finally, Section 4.28(E)(3)(a)3. states that where industrial development abuts a residential
area, an 80-foot setback along the north property line is required.. The Illustrative Plan
indicates this setback is achieved.
2. Section 2.3.2(H)(1) - Applicable General Development Standards:
This criterion requires the O.D.P. to be consistent with the permitted uses and
applicable general development standards (Article 3) that can be applied at the level
of detail required for an O.D.P.
A. Building and Project Compatibility — Section 3.5.1(A-G):
For newly developing projects, these standards are applied at the P.D.P. stage (or in the
case of the Poudre School District, a Site Plan Advisory Review). For an O.D.P., however,
these standards are applicable but only from a broader perspective. Section 3.5.1(A)
states, in part:
The purpose of the following standards
"... is to ensure that the physical and operational characteristics of proposed
buildings and uses are compatible when considered within the context of the
surrounding area. They should be read in conjunction with the more specific building
standards contained in this Division 3.5 and the zone district standards contained in
Article 4."
There are no compatibility issues with the future school as schools are typically found in
residential areas. The Service Facility portion of the O.D.P., however, borders Kitchell
Estates to the north and Homestead Estates to the south and requires an overview of how
compatibility may achieved with future site specific development.
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 3
conditioned such that any development was required to proceed as a
planned unit development under the Land Development Guidance System.
• In 1997, the R-L-P portion of the property was rezoned to U-E, Urban Estate
as part of the implementation of City Plan.
• The Industrial zone remains in place and was not changed under City Plan.
OVERALL DEVELOPMENT PLAN - REVIEW CRITERIA
1. Section 2.3.2(H)(1) — Permitted Uses and District Standards
This criterion requires the O.D.P. to be consistent with the permitted uses and
applicable zone district standards (Article 4) that can be applied at the level of detail
required for an O.D.P.
A. Permitted Uses
The site is zoned Urban Estate and Industrial. The proposed uses are:
• Public and private schools for elementary, intermediate and high school
education;
• Public facilities;
• Warehouse ;
• Professional Office.
Two of the proposed uses, Warehouse and Professional Office, are not permitted in the
Urban Estate zone. The request to add these two uses has been made by the applicant to
the Planning and Zoning Board under the provisions of Section 1.3.4. The P & Z Board
will consider this request prior to consideration of the O.D.P. Staff recommends that this
O.D.P. be conditioned such that only those specific uses allowed by separate action by the
P & Z Board can be permitted in the Urban Estate portion within the O.D.P.
B. Applicable Zone District Standards
Regarding any applicable Urban Estate zone district standards, Section 4.2(E)(1)(a)
requires, to the extent feasible, that streets will connect to adjacent development in order
Poudre School District East Prospect Road Service Facility, Overall Development Plan, #44-08
February 19, 2009 P & Z Hearing
Page 2
EXECUTIVE SUMMARY:
A. The O.D.P. complies with the applicable standards as stated in of
2.3.2(H)(1 —7 ).
B. The proposed land uses comply with the 1, Industrial zone and the U-E,
Urban Estate but only if Warehouse and'Professional Office are added to
the U-E zone as Addition of Permitted Uses.
C. A condition of approval is recommended so that, in addition to the
permitted uses listed in Urban Estate, only those uses specifically
authorized by the Planning and Zoning Board, may be included in the U-E
portion of the O.D.P.
D. Two neighborhood information meetings were held. There is significant
opposition to the proposed O.D.P. based on land use compatibility and
traffic impacts.
COMMENTS:
1. Background:
The surrounding zoning and land uses are as follows:
N: FA-1 (County); Kitchell Estates
S: FA-1 (County); Homestead Estates and Plant Nursery
E: R-2 and C-2 (Timnath); Serratoga (sic) Falls
W: I; Vacant
2. Zoninq History:
• The property was annexed in 1991 as part of the 235 acre Galatia
Annexation.
• As part of the Galatia Annexation, the property was placed into the R-L-P,
Low Density Planned Residential, zone district and a small portion in the
southwest corner was placed into the I, Industrial zone district.
• The R-L-P zoning contained a condition that density could not exceed one
dwelling unit per acre. For both the R-L-P and I zones, all development was
F
tr
of
Planning & Zoning Board
STAFF REPORT
Item #: (c
Meeting Date c
Staff:
PROJECT: Poudre School District East Prospect Road Service Facility, Overall
Development Plan, #44-08
APPLICANT: Poudre School District
BHA Design
1603 Oakridge Drive
Fort Collins, CO 80525
OWNER: Poudre School District
2407 LaPorte Avenue
Fort Collins, CO 80521
PROJECT DESCRIPTION:
This is a request for an Overall Development Plan for the 99.11 acres located at the
northwest corner of East Prospect Road and County Road 5. The purpose of the O.D.P. is
to establish general planning and development control parameters for projects that will be
developed in phases while allowing flexibility for detailed planning in subsequent phases.
An O.D.P. does not establish any vested right to develop the property. The O.D.P.
contains both Urban Estate and Industrial zoning.
The westerly portion of the property would be devoted to various service functions for the
Poudre School District and, possibly, the Larimer County Road and Bridge Department.
The easterly portion would be reserved for a future school. For the Poudre School District,
these functions include a central receiving materials warehouse, two office buildings, a
transportation fleet maintenance building, covered parking for school buses and a fleet
fueling station. For Larimer County, these functions may include transportation fleet
maintenance and storage for the Road and Bridge Department as well as a future
warehouse and a general parking and equipment staging area.
RECOMMENDATION: Approval with Condition