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HomeMy WebLinkAboutDOWNTOWN HOTEL & CONFERENCE CENTER - MODIFICATION OF STANDARD - 06-08 - REPORTS - RECOMMENDATION/REPORTATTACHMENTS Zoning exhibits Request letter Exhibits: 1. Preliminary site plan 2. Massing model views showing code compliant and proposed project from various angles 3. Massing model views showing code compliant and proposed project from various street -level perspectives 4. Building heights chart 5. Shadow studies showing code compliant and proposed project 6. Photo simulations 7. Elevations Neighborhood Meeting notes from meeting dated February 26, 2008 16 H. The proposal as submitted will promote the general purpose of the bulk reduction standard for which the modifications are requested equally well or better than would a plan which complies with the standard. The reason that the proposal promotes the general purpose of the standard for which the modification is requested equally well or better than would a proposal which complies is because: 1) the proposal is the result of an expressed need for greater intensity of development in the Central Business District; 2) the proposal provides a very high level of architectural design in its building articulation, fenestration and generous mix of materials and colors that far exceed that which would normally be required: 3) the proposal distributes the large program of the project into three separate buildings instead of one large building and concentrates most of the excess height into one slender volume, which allows for a human -scaled, context sensitive ground plane design Along the public streets, most of building facades will be perceived by pedestrians as between 2-4 stories tall. These qualitative efforts would not be possible in a code compliant building: 4) step backs that exceed the standards where possible; and 5) the proposal's many high -quality streetscape amenities and pedestrian plazas promote the urban character of the downtown area. RECOMMENDATION Staff recommends approval of both requests for modification. 15 B. The granting of a modification of the bulk reduction standard would not be detrimental to the public good. C. The granting of both modifications would, without impairing the intent and purpose of the Land Use Code, 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 City Plan, the Downtown Strategic Plan, the Downtown Plan and the Civic Center Master Plan. D. The general purpose of the standard for which the height modification is requested is to limit building height to 4 stories in order to maintain the character of the downtown, most of which was two to three stories, as perceived by pedestrians. E. The proposal as submitted will promote the general purpose of the height standard for which the modifications are requested equally well or better than would a plan which complies with the standard. F. The reason that the proposal promotes the general purpose of the standard for which the modification is requested equally well or better than would a proposal which complies is because: 1) the proposal places 100% of its required parking below the structure, thus preserving the opportunity to provide for other above -ground features such as retail at the street level. 2) the proposal breaks the large square footage of the project into three separate buildings with pedestrian plazas between. Along the public streets, most of building facades will be perceived by pedestrians as between 2-4 stories tall, 3) the proposal provides high -quality streetscape amenities and pedestrian plazas which promote the urban character of the downtown area, and 4) the proposal provides a very high level of architectural design in its building articulation, fenestration and generous mix of materials and colors that far exceed that which would normally be required. G. The general purpose of the standard for which the bulk reduction modification is requested is to acknowledge and accommodate the need for more intensity in the Central Business District but to reduce the appearance of the additional bulk of the building as perceived by pedestrians on the street to be in keeping with the existing character of the downtown area, most of which was two to three stories. Analysis of the `equal to or better than' justification: Staff finds that the extra mass proposed is successfully mitigated by the following: • Distributing the large program of the project into three separate buildings instead of one large building, which allows for a human -scaled, context sensitive ground plane design, ■ Concentrating most of the excess height into one slender volume, and ■ Using step backs that exceed the standards where possible. The majority of the mass visible to a pedestrian along Remington and Olive streets is 3-4 stories. On Oak Street, it is 7-8 stories. (See Exhibit 6.) The fourth floor facades (and even second and third stories in many places) are stepped back substantially from the third floor facades, except in the hotel volume, where substantial step backs are made at the second story at the comers where the mass reduction will be most perceptible to the public. Cornices and major changes in materiality are expressed at the fifth and seventh floors for scale. The solidity of the top two floors is dissolved with cantilevered, wing -like roofs and extensive use of glass, which also afford residents with ample views of the city lights and mountains beyond. The design is not required to comply with the step back standards of the other Downtown subdistricts for taller buildings [Section 4.16 (D)(4)(b)(1-3)] or of the Transit -Oriented Development (TOD) Overlay Zone [Section 3.10.5 (in effect only south of Prospect Street)]. But as a further testament to the sensitivity and appropriateness of this design, it exemplifies the intent of those standards and even meets the letter of most of them. A code -compliant building with less articulation and no useful void spaces or outdoor courtyards would not make as positive a contribution to the downtown central business district. Staff, therefore, finds that the buildings as designed are equal to or better than a building that would otherwise comply with the standard. 5. Findings of Fact: In evaluating the request for two stand-alone modifications, one to Section 4.16(D)(2)(a) and one to Section 4.16(D)(4)(a), Staff makes the following findings of fact: MENTRe gra detrimental to the public g project exceeds our standards in its sensitivity to existing neighborhoods across public streets from it; it fosters the use of the Mason Corridor and downtown transit center and conference center. The proximity of a hotel and conference center and increased public parking on this site to the planned Mason Corridor and the Central Business District restaurants, retailers and services will, by design, reduce vehicle miles traveled, encourage trip consolidation and increase public access to mass transit and other alternative modes of transportation; • it will be safe and compliant with adequate public facilities, public utilities and provision of access to and from the project by all transportation modes; • it will be designed with innovative and rigorous energy consumption and demand reduction measures, minimizing the adverse environmental impacts of the development; Community Need. This project would substantially address an important community need specifically and expressly defined and described i city's compr?,b_ensive plan anti associated long-range planning dg&Wer. • City Plan 1997,=Plan hensive pla updated 2004 Downtown StratCouncilado �' PIS9) • Civic Center Master Plan 1997, � Council -adopted component of City Plan • Plan for Downtown Development Plan (DDA), in effect from 1981-present Even as far back as 1989, the Downtown Plan had this to say about a downtown hotel: 'A good quality, upscale, and competitively priced hotel with adjacent parking, small meeting facilities, a good restaurant, and comfortable accommodations is critical to the revitalization of Fort Collins' downtown... Due to a hotel being a critical element in the success of the Downtown area, some form of economic development incentive should be offered to make this an attractive opportunity for developers." Project feasibility: A strict application of the height standard would render the project practically infeasible because the amount of total square footage and the arrangement of and relationship between the specialized uses in the project cannot be contained effectively within a building whose upper floors are successively stepped back at a 35-degree angle from the top of the third floor. "the play: as submitted will promote the general purpose of the standard for which the modification is requested equally well or better than_would plan which complies with the standard fi)r which a modification is requested The applicant postulates that a taller building with a relatively smaller footprint will result in less density at the pedestrian level and will have less impact on the immediate neighborhood than would a lower, broader building. Moving a major portion of the building up, off of the street level, allows for more open space and public amenities. E. Staff Evaluation of Second Modification Request History of bulk reduction standard The bulk reduction standard for the Old City Center Subdistrict of the Downtown Zone District originated with the adoption of the Land Use Code in 1997. The authors of the 35-degree bulk reduction standard intended it to acknowledge and accommodate the need for more intensity in the Central Business District but to reduce the appearance of the additional bulk of the building as perceived by pedestrians on the street to be in keeping with the existing character of the downtown area, most of which was two to three stories. Analysis of the `City-wide need' justification: - The project is proposed to be located downtown to support and enhance the vitality of our Central Business District NWWse U th ted modifications, would improve and protep health, safety that: Majiggglpistent with the ents; Fcted site is appropriate for development and t .n the developer, the DDA and the City represenic use of the land; JL the architectural design of the project and the attention paid to the design, quality and character of the project exceed our standards and set a high standard for future development in Fort Collins. The hotel and conference center are uses that have been allowed in this zone district since the inception of Fort Collins' first zoning ordinance and thus must be presumed to be a rational pattern of use for this land. This project will develop an underused property in the Central Business District. The design of this with an additional 1-6 stories (4-64 feet), are equal to or better than a code - compliant design. By distributing its mass along the three abutting public streets with increasing height to the north where impacts on the surrounding project are minimized, concentrating and stepping back the taller building portions from the historic facades on College Avenue, and with pedestrian -scaled plaza and courtyard areas between buildings, the design mitigates the potential negative impacts that additional height might otherwise present. 4. Second Modification — Section 4.16(D)(4)(a) — Building Mass Reduction: A. Standard The standard requires that mass at the fourth story or above of a building must be set back at a thirty -five -degree angle. B. Proposal Exhibits 2 and 3 show where the proposed design would not meet this standard. The applicant proposes upper floor step backs as shown on Exhibits 2, 3 and 6. C. Extent of Modification The proposed design would be non -compliant along approximately 40% of the public streets. D. Applicant's Justification In his request for modification letter, the applicant states that a mod this standard is justified because, as is set forth in Section 2.8.2 H'i Land Use Code, ..the granting of the modification would n good, and that the granting of a modffcation from the strict applican anv standard would, without impairing the intent and purpose. Use Code, substantialh) alleviate an existing, defined and desc problem of city-wide concern or would result in a substantial beng city by reason of the fact that the proposed project would substantiaM, address an important community need specifically and expressly de rued and described in the city s Comprehensive Plan or in an adopted policy, ordinance or resolution of the City Council, and the strict application of such a standard ii ould render the project practicaIN infeasible. " and that Analysis of the `equal to or better than' justification: The applicant has provided exhibits that demonstrate that the concentration of height in the hotel volume and resulting outdoor space result in a project that is equal to or better than a building that would comply with the height standard. The exhibits show that a project with the same square footage concentrated equally over the site would still not meet the height standard and would be There would be no opportunity for outdoor amenities or the creation of pedestrian -scaled amenities or deep step backs above the streetscape in a code compliant design. A more code -compliant project with this much square footage, an unusual situation in the Old City Center, could appear obtrusive, institutional and out of character in the downtown. Staff concurs that the proposed building height is designed in a way that protects the unique scale and character of the historic downtown core. Between the careful massing and step backs and the architectural materials and detailing, the proposed plan minimizes negative impacts to the surrounding historic context quite effectively. Shading on adjacent properties is negligible, especially when viewed in relation to what would be allowed of a code -compliant building. Submitted exhibits demonstrate that the historic facades, which represent the style and technology of their time, will not be visually overwhelmed by the additional building height of the hotel because of sensitive design measures. side of College between Oak and Olive, so none of the existing buildings 114 specifically protected from redevelopment. These properties along College < also zoned D—Downtown, Old City Center Subdistrict, which allows four sto as on the subject property. To put that in perspective, any property along College could redevelop their site with a building as tall as the office buildir proposed with this proje;J Staff also finds the underground parking to be a superior design versus surface or even structured parking lots. Surface parking lots in an urban core are an under -utilization of valuable space that could otherwise be put to more beneficial use for both private gain and public urban design. Structured parking would add to the required height of the buildings and could detract from the high -quality pedestrian -oriented streetscapes proposed throughout the site and which contribute to the vitality of the downtown. finds that the project would substantially address the community's that the project as proposed demonstrates an exceptionally high level of urban character along all adjacent public streets and that the buildings, 9 underused property in the Central Business District. The design of this project exceeds our standards in its sensitivity to existing neighborhoods across public streets from it-, L.,Jt fosters the use of the Mason Corridor and downtown transit center and tenfe rence center. The proximity of a hotel and conference center and creased public parking on this site to the planned Mason Corridor and the ntral Business District restaurants, retailers and services will, by design, reduce vehicle miles traveled, encourage trip consolidation and increase public access to mass transit and other alternative modes of transportation: 11&0 be safe and compliant with adequate public facilities, public utilities rovision of access to and from the project by all transportation modes, Ime designed with innovative and rigorous energy consumption and and reduction measures, minimizing the adverse environmental impacts development: Community Need: This project would substantially address an important community need specifically and expressly defined and described in the city's comprehensive plan and associated long-range planning documents: • City Plan 1997, W prehens�, updated 2004 MDowntown Strategic Plan 200 • Civic Center Master Plan 1997, • Plan for Downtown Development Plan (DDA), in effect from 1981-present Even as far back as 1989, the Downtown Plan had this to say about a downtown hotel: "A good quality, upscale, and competitively priced hotel with adjacent parking, small meeting facilities, a good restaurant, and comfortable accommodations is critical to the revitalization of Fort Collins' downtown... Due to a hotel being a critical element in the success of the Downtown area, some form of economic development incentive should be offered to make this an attractive opportunity for developers." Lct .t feasf y strict application of the height standard would render the practically infeasible because the amount of total square footage and thhement of and relationship between the specialized uses in the project be contained effectively within a four-story building. The applicant asserts that the proposed plan, with 4 to 64 additional feet of height, will meet a city-wide need by virtue of providing a viable hotel project The attractive, articulated buildings utilize creative design solutions to achieve an attractive streetscape within this downtown setting, which the applicant claims is better than a code -compliant project. E. Staff Evaluation of the First Modification Request History of height standard: The height standard for the Old City Center Subdistrict of the Downtown Zone District originated at the time of the first Downtown Plan in 1989. The authors of the four-story height standard intended it to limit new development to a height that was in keeping with the existing character of the downtown area, most of which was two to three stories, as perceived by pedestrian& Zonij Staff is in agreement that this part of the Old City Center Subdistrict of the Downtown District is more of a transition area than the Old Town Square area for which the subdistrict is named. In this transition area there are other taller buildings such as the DMA plaza across from the site to the southeast. Heights allowed just to the south of the site, in the Canyon Avenue Subdistrict are 5-6 and 7-9 stories. Elsewhere in downtown, the Key bank and First National Bank buildings are each approximately 0 feet tall. Analysis of the `City-wide need' justification: ® The project is proposed to be located downtown to support and enhance the vitality of our Central Business District deWmen a Intent and F these reque • it is cl lb Land • the ei laropf between the developer, t y economic use of the land; the architectural design of the project and the attention pa'... quality and character of the project exceed our standards and set a high standard for future development in Fort Collins. The hotel and - e center are uses that have been allowed in this zone district since. inception of Fort Collins' first zoning ordinance and thus must be " to be a rational pattern of use for this land. This project will d, "the granting of the modiftcation would not be detrimental to the public good, and that the granting of a modification from the strict application of any standard would, without impairing the intent and purpose of this Land Use Code, substantially alleviate an existing, defined and described problem of'city-wide concern or 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 de fit:ed and described in the ci4l s Comprehensive Plan or in an adopted policy, ordinance or resolution of the City Council, and the strict application of such a standard would render the project practically infeasible. and that Although the building exceeds the maximum height allowed by 50-114 percent, the applicant contends that the excess height is a necessary ingredient to fulfill a city-wide need because of the building functions required by the City and DDA, the financial viability of the project and the programmatic necessities of each use. In addition, the manner in which the massing and height of the buildings is designed achieves other important urban planning goals including underground parking, and pedestrian scale plazas. Tl plicant also asserts that the manner in which the massing and jt the buildings is designed is equal to or better than a design which com the standard with its underground parking, pedestrian scale plazas, andistinct buildings wit f which m heiaht of the ,oroie While the financial arrangement between the public and private partners has not been finalized yet, it is assumed that the City will own and maintain the public parking and the conference center and that the developer will control the hotel, the private parking, the office, retail and residential parts of the project. The designers have proposed underground parking which is not required. They have concentrated height in the hotel art of the project just south of Oak Street in order to stack the hotel functions and to minimize height and mass elsewhere on the site. They also propose that this massing arrangement would have the fewest negative impacts to neighbors in terms of unwanted shading. As a result of this arrangement of the height and mass of the buildings, they are able to provide a mid -block pedestrian plaza and connection to the existing passageway from the alley to College. 2 2. Citation of the Standards Relating to the Two Modifications: Section 4.16 (D)(2)(a): (2) Building Height. (a) Buildings in the Old City Center shall not exceed four (4) stories or fifty-six (56) feet in height. Section 4.16 (D)(4)(a): (4) Building Mass Reduction for Taller Buildings (over three [3] stories). (a) Old City Center: The fourth story of a building shall be set back at a thirty -five -degree angle measured at the intersection of the floor plane of the fourth story and the property line along the public street frontage. See Figure 19. 3. First Modification — Section 4.16(D)(2)(a) — Height: A. Standard This standard requires that buildings in the Old City Center be 4 stories or 56 feet in height or less. B. Proposal The proposed predominant height of the office building is 56 feet, though the tallest point is 68 feet. The proposed predominant height of the conference center is 38 feet, though the tallest point is 60 feet. The proposed predominant height of the hotel and residences is 84 feet, though the tallest volume is 120 feet (9 stories). (See Exhibits 2 and 4) C. Extent of the Modification The first modification would allow the proposed hotel building to have an additional 28 to 64 feet of height in excess of the 4 stories or 56 feet of height that would otherwise be allowed per the standard. D. Applicant's Justification In his request formdow.01MVIRWor, the applicant states that a is standard is justified because, as is set forth in Section 2.8.2 (H)(2) of the is Use Code, "The hotel and other mixed uses are intended to accomplish a variety of goals in the downtown setting. These include: • Providing rooms for visitors attending the cultural programming as well as visitors to Colorado State University, conference and convention attendees, business travelers and tourists in general. • Creating a 24-hour downtown. • Providing hotel and office space within the downtown employment center, thereby reducing traffic and air pollution. • Returning under -developed property to a higher use, with increased public revenues • Reinvigorating older public investments • Bringing more disposable income to the downtown to support retail, especially stores and restaurants that cater to frequent visitor needs and interests." "The City's strong support for hotel development is set forth in the Downtown Civic Center Master Plan, the Downtown Strategic Plan Update, the Downtown Plan and the Downtown Development Authority's cultural program initiative." From an addendum: "This project will be expected to utilize real (as in real stone, not cast materials) building materials wherever feasible, have a pedestrian -friendly street orientation, designed with the expectation that the building will be a community - appreciated asset for many generations, and incorporate green building principles." Five responses were received for various sites in the downtown area. highest of the teams in the written and oral evaluations of the RFP rc awarded an exclusive neaotiatina contract Corporex scored ;ess and was . Corporex subsequently held an architecture competition and chose OZ Architecture to design the project. Local firm BHA Design was chosen for site planning, landscape planning and engineering and local firm ELB Engineering was selected for transportation engineering. The DDA offered a purchase option to the Elks Lodge on their property across Oak Street to the north of the Remington parking lot. The DDA is in the process of completing the option to acquire the Elks parcels, which have been added to the subject site. A neighborhood meeting was held on this project on February 26th, 2008. Approximately 80 people were in attendance. Notes from the meeting are attached. 4 The Remington parking lot originally contained a row of single family homes dating as far back as the 1870s, including at least one substantial brick and frame home at the southwest corner of Oak and Remington. At some point before 1955, this home was replaced with a filling station, likely associated with the tire and battery store located adjacent to it at 113 E. Oak. The City purchased the parcels south of Oak Street in 1977 for the Remington Parking Lot. By the time of the explosion, the site of the Remington lot apparently was already empty of buildings, and was being used for downtown parking. Hotels, conference centers, offices, parking structures, retail and residential uses have been allowable, or at least not prohibited uses on this property all the way back to the first zoning map in 1929. For most of its history, there were no height regulations in the zoning code for these zone districts. In 1981, an amendment was made to the Code that stipulated that a proposal could not exceed 40 feet tall without a Planned Unit Development. The PUD option under the Land Development Guidance System was available between 1981 and 1997 regardless of the underlying zoning. This option allowed for a design - based review process with flexible land use and development standards, subject to providing impact mitigation where necessary. Modifications to development standards were not necessary under the LDGS as long as the overall project performed at a high level of design, and subject to Planning and Zoning Board approval. In June of 2006 the City and DDA prepared and issued a Request For Proposals (RFP) for "a multi -tenant project to include a significant full -service urban hotel, parking garage, street -facing retail, and offices to be located on 1.67 acres (72,576 square feet; dimensions are 144' x 504') of Block 122 in the City's Downtown Civic Center District (the subject property) or on any other downtown site selected by the development team." The following are pertinent excerpts from the RFP: "The Downtown Strategic Plan identifies several strengths and weaknesses of the downtown in an attempt to help the City clarify how to protect, manage, leverage and blend the economic and cultural vitality created by the core retail and entertainment district. One of the shortages identified by the Plan is the lack of hotel rooms in and adjacent to the Downtown core and the attendant service -oriented businesses that a hotel brings. This shortage will become more acute as the DDA's year-round cultural program "Beet Street" becomes active. The Downtown Development Authority has committed $3 million toward the development of a unified cultural program that is intended to eventually draw as many as 10,000 visitors to the central business district 24 times a year and who will stay downtown from five to 14 days (this program is modeled on Chautauqua, New York." 3 EXECUTIVE SUMMARY: Section 4.16(D) contains two standards relating to building height and bulk reduction which the applicant is unable to meet in their proposal for the downtown hotel and conference center. A downtown hotel and conference center has been a goal of the City's in planning documents for over 25 years. Due to high -quality building massing and design and underaround oarkina. W modifications are'iusti led because they plan is equal to or better than a ply that would comply with each of the standards. COMMENTS: Background: The surrounding zoning and land uses are as follows: N: D—Downtown, Old City Center Subdistrict (existing commercial businesses with Old Town Square beyond); S: D—Downtown, Old City Center Subdistrict (existing commercial businesses and DMA Plaza residential tower); E: D—Downtown, Old City Center Subdistrict (existing single-family and multi -family residential, residential buildings converted to commercial uses, and a church) with NCB —Neighborhood Conservation Buffer District (two proposed multi -family residential projects and existing multi -family residential projects) and NCM— Neighborhood Conservation Medium Density District (Library Park with Fort Collins Museum and Fort Collins Public Library) beyond; W: D—Downtown, Old City Center; Existing commercial and mixed -use properties The subject property has been in few different zone districts over the years. The zoning history is as follows: 1929 — 1965 — E—Commercial 1965 — 1997 (pre -Land Use Code adoption) — BG—General Business 1997 — present (post -Land Use Code adoption) — D, Downtown, Old City Center Subdistrict The Elks Lodge was originally constructed in 1908 as Fort Collins' YMCA. The Elks purchased the building in 1937, and extensively remodeled it. On April 26, 1977, an explosion occurred, centered under the buildings at the Flowers and Things shop at 116 and 120 East Oak just to the west of the Elks building. A natural gas leak was the suspected cause. The newly remodeled Elks Building was severely damaged. Reconstruction took another year and brought the building to its current appearance. I Revies PROJECT: Downtown Hotel and Conference Center — Request for two Modifications of Standards, #6-08 APPLICANT: Darrin Jensen OZ Architecture 1805 29th Street, Suite 2054 Boulder, CO 80301 OWNER: Kim Koehn Corporex Colorado, LLC 1125 17th Street, Suite 2300 Denver, CO 80202 PROJECT DESCRIPTION: This is a request for two stand-alone — related to a future Project Development Plan for a hotel and conference center with retail and office space, residential units and structured parking. The project is proposed for the lots that are currently the public surface parking lot on Remington between Oak and Olive Streets plus the Elks Lodge lots north of Oak Street. The parcels are zoned D—Downtown, Old City Center Subdistrict. The approval of these modifications is critical to project viability; that is why this request precedes the project development plan. If approved, a standalone modification is valid for one year. Upon approval of this request, the applicant intends to submit a Type II (Planning and Zoning Board Review) Project Development Plan and provide more detailed plans for approval. RECOMMENDATION: Approval �t Collins Planning & Zoning Board Staff Report Item No. 3 Meeting Date 3/20/08 Staff Anne Aspen PROJECT: Downtown Hotel and Conference Center — Request for two Modifications of Standards, #6-08 APPLICANT: Darrin Jensen OZ Architecture 1805 29t' Street, Suite 2054 Boulder, CO 80301 OWNER: Kim Koehn Corporex Colorado, LLC 1125 17"' Street, Suite 2300 Denver, CO 80202 PROJECT DESCRIPTION: This is a request for two stand-alone building height and massing modifications related to a future Project Development Plan for a hotel and conference center with retail and office space, residential units and structured parking. The project is proposed for the lots that are currently the public surface parking lot on Remington between Oak and Olive Streets plus the Elks Lodge lots north of Oak Street. The parcels are zoned D—Downtown, Old City Center Subdistrict. The approval of these modifications is critical to project viability; that is why this request precedes the project development plan. If approved, a standalone modification is valid for one year. Upon approval of this request, the applicant intends to submit a Type II (Planning and Zoning Board Review) Project Development Plan and provide more detailed plans for approval. RECOMMENDATION: Approval