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HomeMy WebLinkAboutATRIUM SUITES, 502 W. LAUREL - MODIFICATION OF STANDARD - 7-04B - REPORTS - RECOMMENDATION/REPORTAtrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 12 These qualitative attributes are unique to Fort Collins. Staff finds that the request for a reduction in the number of spaces, for this project, at this location, based on adopted plans and policies is justified. H. Field observations of a comparable project, Sherwood Greens, reveal that out of the 26 minimum required parking stalls, a range of 5 to 14 remain vacant at hours when residents would be expected to be home. These observations suggest that with close proximity to campus, residents have an opportunity to not need a car thereby, lessening the demand on parking. There is no significant neighborhood opposition to the P.D.P. J. This Request for Modification complies with the criteria of Section 2.8.2(H) in that: (1.) The granting of the Modification would not be detrimental to the public good. (2.) The plan as submitted will promote the general purpose of the standard for which the modification is requested equally well or better than would a plan which complies with the standard for which the modification is requested because: • The standard is designed to protect the neighborhood from spillover parking. The research indicates with the plan as submitted, there will be no spillover parking; • The research indicates that the standard of 1.75 spaces per two -bedroom unit may be too high for projects in or abutting activity centers. • The policies of compact urban growth within a fixed G.M.A. boundary encouraged a higher level of urbanization. The plan as submitted fulfills this vision. RECOMMENDATION: Staff recommends approval of Atrium Suites, 502 West Laurel Street, Request for Modification to Standard Section 4.8(D)(1), #7-04B. Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 11 bedroom mix of Atrium Suites would be allowed by 38% of the sample standards. C. The survey also reveals that on a parking space per unit basis, Atrium Suites, at 1.46 spaces per unit, is just slightly below the sample median of 1.58 spaces per unit. D. The survey indicates that five sample cities have refined their parking code to account for specific geographic areas within their city. These specific areas are downtown and near the university campus where the minimum required number of spaces has been reduced. Fort Collins, however, has not adopted this approach and the residential parking standards remain a 'one -size -fits -all." E. The survey reveals that for two -bedroom units only, 64% of the sample uses a standard of 1.5 spaces per unit versus 1.75 spaces per unit as found in the Land Use Code. F. From a quantitative perspective, based on the survey, Staff finds that Request for Modification for 35 parking spaces is moderate, reasonable, and in the middle of the range of standards. Such a number does not represent the extreme low end of the scale. G. In evaluating and verifying the survey results, Staff finds that there are a number of important qualitative differences among the sample with regard to unique community attributes. These unique characteristics define a community's individuality and contribute significantly to the strategy behind a multi -family minimum parking standard. In Fort Collins, the primary attributes to consider are: Proximity to an Activity Center such as Colorado State University; • The policies of City Plan which have now fixed the Growth Management Area boundary; • The policies of City Plan which promote urbanization and compact urban growth within the G.M.A. • The geographic separation between downtown and the C.S.U. campus. The effectiveness of the alternative modes infrastructure. Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 10 empty spaces in the Sherwood Greens parking lot ranges from 5 to 14 (see attached worksheet for numbers of observations, time of day and available number of parking spaces.) C. Evaluation Staff was surprised by how many available parking spaces are vacant at times when residents would be expected to be home. These observations suggest that not all students have cars. This is similar to the conclusion reached by the Board with regard to the expansion at Cambridge House Apartments at Shields Street and Plum Street. Staff does not mean to suggest that Atrium Suites and Sherwood Greens enter into a shared parking agreement. Rather, Staff gains a high degree of confidence that proximity to campus results in a decrease in the demand for parking spaces. By necessity, the evaluation of Sherwood Greens does not include on - street parking. The Board should be aware, however, that on Sherwood Street, between Laurel and Myrtle, there is unrestricted diagonal parking on both sides. The observations reveal that this parking is full during the day and practically empty at night. This availability of on -street parking, particularly at night, offers yet another degree of confidence that the lack of eight parking spaces at Atrium Suites would not negatively impact the neighborhood. 9. Findings of Fact: In evaluating the request for Atrium Suites, 502 West Laurel Street, Modification of Section 3.2.2(K)(1), and in fulfillment of the requirements of Section 2.8.2(H)(4), Staff makes the following findings of fact: A. Atrium Suites is in the Final Compliance phase and is unable to comply with the P.D.P. condition of approval regarding Section 3.2.2. A Modification, therefore, must be granted by the Planning and Zoning Board in order for the project to complete the process. B. A survey of 34 multi -family parking standards from 29 cities (including Fort Collins) was conducted by the applicant and verified by Staff. The survey reveals that the proposed 35 parking spaces for the number of units and Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 9 time, to be located off -site at Sherwood Greens, an apartment project owned by the applicant that has available parking. Subsequent to the neighborhood meeting, the Zoning Administrator determined that a formal shared parking agreement for eight spaces between Atrium Suites and Sherwood Greens would not be acceptable as this would cause Sherwood Greens to fall out of compliance with their required minimum number of spaces (26). There was no opposition expressed to the P.D.P. at this neighborhood meeting. In addition, at the P.D.P. hearing on June 11, 2004, there was no public testimony in opposition to the project. Based on written testimony, there was one letter in opposition, one individual letter in support and a form letter in support signed by 25 surrounding residents. 8. Field Observations and Evaluation of the Parking at Sherwood Greens A. Locational Attributes and Demand for Parking One key factor is the potential impact on the surrounding neighborhood. The primary purpose of requiring a minimum number of parking spaces is to protect the surrounding neighborhood from spillover parking. To assess this impact, Staff has analyzed the parking demand for Sherwood Greens, a small apartment building located across Sherwood Street at 620 South Sherwood Street. Sherwood Greens consists of 14 two -bedroom units and one one -bedroom unit and provides 26 parking spaces which is the required minimum based on same parking standards that are in the Land Use Code. Sherwood Greens is considered a valid comparable project as an apartment building since it is one-half block and further away from campus than Atrium Suites. B. Field Observations Using field observations of how the parking lot is used at certain times of the day, the analysis attempts to test the applicant's hypothesis that proximity to campus generates less parking demand from tenants in multi- family housing. Based on these observations, during times when residents are expected to be home (Monday through Friday, before 8:00 a.m. and after 5:00 p.m.), Staff found that out of a total of 26 parking spaces, the number of Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 8 F. Parking Structures and Parking Structure Fees - Capital Funding The cities within the sample have varying degrees of providing parking within university or municipal parking structures. In addition, some cities charge multi -family developers a fee that is ear -marked for public parking garages. For example, Portland, OR and Tempe, AZ feature extensive use of parking structures. Further, classes at Portland State are divided between day and night thus achieving a greater efficiency of existing limited parking. Public policies addressing funding and construction of parking structures would have an influence on a community's parking standards. G. The Affluence — Auto Ownership Relationship There seems to be a valid relationship between the price of the unit and the likelihood that the residents will own cars. Intuitively, it stands to reason that affluent purchasers of high -end multi -family dwellings will have a high degree of car ownership. Communities experiencing multi -family development at the higher end of the economic scale may find that parking standards may differ from campus -oriented housing. In evaluating these qualitative variables and in conversations with planners from various communities within the sample, one key point stands out. That is the level or promotion of urbanism, or compact urban growth, that a community is comfortable with. The sample communities represent various degrees on these policies generally referred to as "smart growth." Whether or not a community has adopted new urbanism and compact urban form as an urban design policy is the key factor in determining parking ratios in or near activity centers. The sample represents a wide universe with regard to the urbanism and compact urban growth. The most important point is for the Planning and Zoning Board to consider the attributes that are unique to For Collins, apply City Plan Principles and Policies, and, with an eye toward the future, make a decision that, while not precedent -setting, will influence the character and degree of urbanization in our activity center known as the Campus District. 7. Neighborhood Meeting: A formal City -sponsored neighborhood meeting was conducted in conjunction with the P.D.P. on May 11, 2004. At this meeting, the parking limitation of 35 on -site parking spaces was explained. The eight additional parking spaces were proposed, at that Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 7 emission circulator buses that link Boulder's activity centers. Alternative transportation in the form of bicycle facilities are found in Berkeley and Eugene where systematic networks of bike lanes, underpasses and off- street trails promote a much higher percentage of non -auto related trips than most communities. This level of public investment in alternative mode infrastructure is a key variable in how an individual community addresses multi -family parking requirements. C. Ratio of Size of Student Enrollment to Population of City The cities within the sample have varying degrees of student enrollment as compared to the total population of the entire city. For example at one extreme is Dekalb, IL with a student enrollment of 23,000 and a population of 42,698 for a ratio of At the other end of the scale are cities such as Albuquerque, NM — 56,e , and Portand, OR — 4%. (See attached table.) 41? 9. This ratio may factor into a community's regulatory climate. The sample reveals that some communities react with sensitivity to this ratio by requiring higher parking standards (Chico, CA; Columbia, MO;) while others accept a higher degree of urbanism (Boulder, CO; Madison, WI). D. Proximity of Campus to Downtown The cities within the sample have varying degrees in the geographic relationship between the downtown and the campus. This relationship would factor significantly in a community's parking codes since both areas compete for limited parking. The closer the two, the more competitive parking environment which would influence the regulatory climate. For example, in Madison, WI, the university is located on the edge of downtown which is also the state capital. In Evanston, IL, the campus abuts downtown and mid -rise multi -family dwellings. E. Community Growth Rate — Ability to Grow or Annex Whether or not a community is growing, and at what rate, would factor into a community's parking code. For example, Evanston, IL and Cambridge, MA cannot annex or grow outward due their location in a larger metropolitan area and a fixed boundary. Whether a city desires growth may factor into a parking standard. For example, in a conversation with an Evanston planner, the city is hungry for residential growth having experienced economic decline for decades. Their parking ratio reflects this despite the campus abutting downtown. Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 6 B. Refined Parking Standards Based on Specific Geographic Criteria The sample also reveals an interesting trend that has not yet taken hold in Fort Collins. Four of the sampled cities provide a lower alternative minimum parking standard for specific geographic areas such as near campus or in and around the downtown core. These four cities are reflected in the data. In addition, Boise, ID., provides three different parking standards based on three rings around the downtown. (This data was not included in the sample.) This level of refinement indicates that the one -size -fits -all standard may be overly simplistic in dealing with distinct sub -districts within a given urban area. In analyzing this trend, Staff contends that If the City of Fort Collins desires to promote urbanism within the fixed G.M.A. boundary, then using a suburban parking standard will not achieve the desired development pattern. It appears evident that the required minimum parking standard, as applied in or near activity centers, is counter productive in achieving compact urban growth. 6. Survey of Cities — Other Variables Worth Discussing: In evaluating and verifying the survey, Staff found that there are other variables that should be considered in comparing parking ratios for multi -family housing. Due to complexity, these variables were not accounted for in the applicant's analysis. The Board, however, should be aware of the following community attributes that would tend to determine the appropriate parking ratio for multi- family housing near a university campus within any given municipality. A. Density or Level of Urbanization of the Sample City The cities within the sample have different degrees of density. Obviously, San Francisco, CA differs greatly from Columbia, MO. A city with a low density development pattern may lean toward requiring higher minimum required parking by the sheer luxury of having available land area. B. Availability of Alternative Transportation Several of the sampled communities provide transit service that effectively link commercial, employment and housing areas. Most notable are Portland, Eugene, San Francisco and Boulder. The systems range from regional solutions like the light rail systems used in major cities, like Portland and San Francisco, all the way to the high -frequency, low- Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 5 (1) the plan as submitted will promote the general purpose 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. 5. Evaluation of the Applicant's Request: Staff has evaluated the applicant's request against the criteria provided in Section 2.8.2(H) of the Land Use Code. Specifically, Staff offers the following for the Board's consideration: A. Parking Survey Staff has evaluated the survey offered by the applicant. (Staff has independently verified ten of the citi c ntained in the sample and concludes that the data is valid.) Wf the cities sampled had multiple parking requirements depending on the location within the city such as downtown or near the university campus. Thus, there are more sample values in the data than cities. The data suggest that proposed parking ratio for Atrium Suites falls within the range of allowable parking ratios for 41 % of the sample as demonstrated by the results. As mentioned, Atrium Suites represents a slight reduction as compared to the sample median. In addition, the sample ranges from zero parking spaces per unit to 3.00 spaces per unit. Atrium Suites is in the middle of the range at 1.46 spaces per unit. One interesting surrey result is that for two -bedroom units only, 64% of the sample requires 1.5 spaces per unit as compared to Fort Collins which requires 1.75 spaces per unit. The data reveal that 35 spaces for the bedroom mix of Atrium Suites falls within an acceptable range of sample values. Based on this finding, Staff has looked at other qualitative variables that factor into the recommendation regarding the Modification. Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 4 • The P.D.P. is supported by the Westside Neighborhood Plan and the recently amended City Plan. The P.D.P. promotes density, use of alternative modes of travel, and new urbanism design. It is difficult to achieve these objectives at this location and comply with the minimum required parking ratios. The applicant contends that these ratios will yield a suburban development pattern and, therefore, act in opposition with City Plan objectives. • The project will attract tenants who desire living in an urban area with the convenience offered by being close to the educational and cultural opportunities offered by C.S.U. In addition, this convenience is enhanced by proximity to the various retail and commercial services offered by the Laurel Street shopping area. These locational attributes will attract tenants who will not necessarily create the same demand on parking spaces as tenants in larger apartment complexes located further away from this activity center. a9 • A survey of 34 multi -family parking standards from-34-cities that include universities indicates that there are varying degrees of minimum parking requirements. The parking ratio proposed for Atrium Suites falls within the middle of the range of various parking ratios required by the sample cities. For example, for the total project mix of 24 dwelling units, divided between 20 two -bedroom units and four three -bedroom units, the proposed 35 onsite spaces equals 1.45 spaces per unit for Atrium Suites. This is compared with the sample median of 38 spaces which equals 1.58 spaces per unit. Thus, Atrium Suites represents a slight reduction as compared to the sample. The sample reveals a broad diversity of required minimum parking spaces and that the request for 35 spaces is in the middle of the range, not at the low end. (Please refer to the applicant's pie charts, bar chart and graph that illustrates the survey results.) 4. Review of the Modification Criteria — Section 2.8.2(H): The citation for the applicable review criteria for a Modification is as follows: (H) Step 8 (Standards): Applicable, and the Planning and Zoning Board may grant a modification of standards only if it finds that the granting of the modification would not be detrimental to the public good, and that: Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 3 2. Review of the Standard — Section 3.2.2(K)(1): The citation is as follows: (K) Parking Lots - Required Number of Off -Street Spaces for Type of Use. (1) Residential and Institutional Parking Requirements. Residential and institutional uses shall provide a minimum number of parking spaces as defined by the standards below. (a) Attached Dwellings: For each two-family and multi -family dwelling there shall be parking spaces provided as indicated by the following table: Number of Bedrooms/Dwelling Unit Parking Spaces Per Dwelling Unit* One or less 1.5 Two I 1.75 Three 2.0 -� _ Four and above 2.5 3. Summary of Applicant's Request: The applicant has provided information describing the request (see attached). In summary, the applicant asks the Planning and Zoning Board to consider the following: • The minimum required parking ratios in the Land Use Code are one -size - fits -all and favor new green -field development on the fringe of the City. The Code, therefore, does not provide a more refined standard that would account for infill redevelopment on small parcels in or near Activity Centers identified by City Plan. The location of the project is across the street from the C.S.U. campus and one block from a transit stop. Bike lanes are provided on Laurel Street. This proximity to an Activity Center and alternative modes infrastructure allows opportunities for walking biking or riding transit and lessens the need for residents to use a car. Atrium Suites, 502 W. Laurel Street, Modification of Standard, #7-04B September 16, 2004 P&Z Meeting Page 2 EXECUTIVE SUMMARY: This is a stand-alone Modification request. The standard requires that the project provide a minimum of 43 parking spaces. The applicant seeks to decrease the number of spaces to 35. COMMENTS: 1. Background: The surrounding zoning and land uses are as follows: N: N-C-B; Existing single family detached dwelling unit S: Not Zoned; Colorado State University Main Campus E: N-C-B; Existing Multi -Family W: N-C-B; Existing Commercial (Woody's Standard Restaurant) The site formerly contained a large group quarters residential structure that was originally used for a sorority. Most recently, it was used by Larimer County Community Corrections Department for the Adult Residential Services and Day Reporting Center programs. The building is now vacant. On April 15, 2004, the Planning and Zoning Board approved a Modification of Standard to Section 4.8(D)(1) which allowed the floor area of the building to exceed the lot area by 2,041 square feet. On June 17, 2004, the Board approved Atrium Suites P.D.P. which allows for one multi- family structure to contain 24 dwelling units. This P.D.P. provided 35 onsite parking spaces and eight off -site parking spaces. Since these eight off -site parking spaces are not obtainable, the applicant now seeks a Modification of Standard to reduce the parking provided from 43 to 35. The P.D.P. contained the following condition: At the time of submittal for Final Plan, the applicant shall demonstrate compliance with the minimum parking requirement for the number of dwelling units, and the number of bedrooms per unit, by securing the necessary number of off -site parking spaces in a manner that complies with both Section 3.2.2(D)(3)(a)2. — Off -Site Parking Spaces and Section 3.2.2(K)(1) — Parking Lots — Required Number of Spaces. Since compliance cannot be achieved, the applicant now seeks a Modification. ITEM NO. 13 MEETING DATE 9/16/04 STAFF Te,� chapard Citv of Fort Collins PLANNING AND ZONING BOARD STAFF REPORT PROJECT: Atrium Suites, 502 West Laurel Street, Request for Modification of Standard, #7-04B APPLICANT: Eastpoint Studio C/o Mr. Don Brookshire 3207 Kittery Court Fort Collins CO 80526 OWNER: Atrium Suites, L.L.C. P.O. Box 1613 Fort Collins, CO 80522 PROJECT DESCRIPTION: This is a request for a Modification of Standard for the Atrium Suites P.D.P. This P.D.P. is located at 502 West Laurel Street where the existing structure would be demolished and replaced by a new multi -family structure containing 24 dwelling units. The standard at issue is Section 3.2.2(K)(1)(a) which pertains to the minimum parking required on a per -bedroom -per -unit basis. The applicant is requesting that the proposed parking be 35 spaces instead of the 43 spaces required by the Land Use Code, a difference of eight spaces. The site is located at the northwest corner of West Laurel Street and Sherwood Street. The site presently contains a large residential structure that was formerly a sorority and then housed two programs of the Larimer County Corrections Department. This existing building is now vacant. The site is 19,221 square feet (.44 acres) in size and zoned N-C-B, Neighborhood Conservation Buffer. RECOMMENDATION: Approval COMMUNITY PLANNING AND ENVIRONMENTAL SERVICES 281 N. College Ave. P.O. Box 580 Fort Collins, CO 80522-0580 (970) 221-6750 PLANNING DEPARTMENT