HomeMy WebLinkAboutBEEBE CHRISTIAN SCHOOL - PDP - PDP160022 - REPORTS - RECOMMENDATION/REPORT W/ATTACHMENTS (13)ATTACHMENTS
Agenda Item 3
1. Applicant's Statement of Planning Objectives (PDF)
2. Planning Document Set (PDF)
3. Utility Plans (PDF)
4. Subdivision Plat (PDF)
5. Operations Narrative (PDF)
6. Modification of Standard Requests (PDF)
7. Neighborhood Meeting Summary(PDF)
Item # 3 Page 12
Agenda Item 3
4. Neighborhood Meeting:
A neighborhood meeting was held for the proposal on June 22, 2016 at the Police Services
Building. Only one member of the public was present and indicated support for a school proposal at
this location. A complete neighborhood meeting summary is attached to this staff report.
5. Findings of Fact / Conclusion:
In evaluating the request for the Beebe Christian School Project Development Plan and
Modification of Standard to Sections 4.27(D)(2) and 3.5.3(C)(2) of the Land Use Code, staff makes
the following finds of fact and conclusions:
§ The Project Development Plan complies with the applicable procedural and administrative
requirements outlined in Article 2, Division 2.2 - Common Development Review Procedures for
Development Applications.
§ The Project Development Plan complies with applicable standards located in Article 3 - General
Development Standards, with the exception of a Modification of Standard to Section 3.5.3(C)(2)
as noted below.
§ The Project Development Plan complies with applicable standards located in Division 4.27
Employment District (E) of Article 4 - Districts, with the exception of a Modification of Standard to
Section 4.27(D)(2) as noted below.
§ The Project Development Plan is in conformance with the Spring Creek Farms North Overall
Development Plan, last amended in 2011.
§ The Modification of Standard to Section 4.27(D)(2) to allow greater than 25% of a secondary use
in the Employment zone district would not be detrimental to the public good and meets the
applicable requirements of Sections 2.82(H)(1) and 2.8.2(H)(4) of the Land Use Code. This is
because a secondary use is only part of the overall proposal which includes another dedicated
primary use, and the site's large detention pond, which collects water from other nearby sites,
has allowed for intensification of other nearby primary uses not accounted for in the calculation of
requirements for the area of the Employment zone district.
§ The Modification of Standard to Section 3.5.3(C)(2) to allow a vehicle use area between the front
of the building and the street would not be detrimental to the public good and meets the
applicable requirements of Section 2.8.2(H)(1) of the Land Use Code. This is because the
vehicle use areas between the building in the street has been designed as the minimum
necessary to meet the unique site constraints to design around existing easements, fire access
requirements, and user needs, while providing an enhanced level of human -scale design with
enhanced landscaping and pedestrian emphasis.
RECOMMENDATION:
Staff recommends that the Planning and Zoning Board approve the Modification of Standards to
Sections 4.27(D)(2) and 3.5.3(C)(2) of the Land Use Code, and approve the Beebe Christian School
Project Development Plan #PDP160022.
Item # 3 Page 11
Agenda Item 3
Criteria 2.8.2(H)(1)
The site is unique with the presence of a large detention pond and multiple easements
along the lot's outer edges, pushing the to the center of the lot. The building footprint also
creates challenges in meeting fire access requirements to all sides of the structure
without nearby drive aisles due to the nature of the large spaces planned for the
gymnasium and auditorium. Simultaneously, there is a desire to preserve large
contiguous open areas as a field and playground space for children. It is also expected
an above average number of elderly will travel to the site, and a drop off area with
handicap parking spaces would be beneficial as for site users as described by Section
3.2.2(F) of the Land Use Code.
Given these constraints, the proposed design includes a one-way driveway and four
handicap parking spaces between the front of the building and the street. These vehicle
use areas are located within easements where no building could otherwise be
constructed, thus the location of the building itself and its relationship to the street is not
being pushed further away from the street and sidewalk to establish these vehicle areas.
Additionally, the design of the vehicle use area has been minimized as much as possible
to only serve the unique user needs of the site by providing a smaller one-way driveway
instead of a two-way aisle, and to only include four handicap parking spaces; the primary
purpose and intent of the standard to locate parking to the side or rear of the structure
has been preserved. In addition, enhancements have been made to support pedestrian
and human -scale design between the building and the street to ensure the standard is
being met equally well. These enhancements include the presence of prominent building
entrances, enhanced landscaping to screen the driveway with a double row of trees and
shrub beds, and a large raised crosswalk with alternative materials where the driveway
cuts across the main pedestrian walkway connecting to the street sidewalk.
L. Section 3.5.3(D) - Variation in Massing
Following the layout of classrooms and meeting spaces in the school and church, the
proposed building includes a number of projections and recesses that help break-up the
overall massing of the building. Larger spaces, such as the auditorium, include nested
projections at the front and where longer walls exist, trellises with vines are proposed to
help create relief, similar in design to those used on new projects to the north such as the
climbing gym.
M. Section 3.6.4(C) - Transportation Impact Study
The City's Traffic Operations Department has conducted a review of the proposed
development and size of the school and church operations to ensure transportation
impacts can be safely accommodated by the transportation system and that Level of
Services standards are met. This evaluation included a review of on -site circulation and
proposed drop-off and pick-up activities.
N. Section 3.6.6 - Emergency Access
Poudre Fire Authority has reviewed the development plans to ensure emergency access
to and throughout the site meets standards, including the addition of a gated, hard -
surface area capable of supporting fire equipment near the children's play area to provide
access to the rear -sides of the building.
Item # 3 Page 10
Agenda Item 3
"The decision maker 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:
(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; or
(2) 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 defined 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 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; or
(4) the plan as submitted will not diverge from the standards of the Land Use
Code that are authorized by this Division to be modified except in a nominal,
inconsequential way when considered from the perspective of the entire
development plan, and will continue to advance the purposes of the Land Use
Code as contained in Section 1.2.2. "
Applicant's Justification:
The applicant's complete modification request narrative is included as an attachment to
this report. The narrative asserts the modification would not be detrimental to the public
good and that the plan as proposed will promote the general purpose of the standard
equally well or better than a plan which complies with the standard, as the overall design
continues to emphasize the design of a pedestrian and human -scaled environment, by
including enhanced safety and prioritization of pedestrians crossing the one-way drive -
aisle, enhanced and prominent front entrances to the building located as close to the
street as permitted by existing easements, and landscaping in excess of requirements.
Further, the driveway and handicap space design is tailored for site users (children and
the elderly) and dedicates the majority of parking to the side of the building as required by
the code section.
Staff Analysis & Findings:
Staff finds that the applicant's modification request to Section 3.5.3(C)(2) is justified by
applicable standards of Land Use Code Section 2.8.2(H)(1) and that the granting of the
modification would not be detrimental to the public good.
Item # 3 Page 9
Agenda Item 3
Within this varied context, the overall building size achieves a middle -ground, being
similar or less massive and bulky than some immediately -adjacent structures, but larger
than the single-family homes to the west. While larger than the single-family homes, the
building features articulated faces and building segments corresponding to individual
classrooms, and the overall structure is located interior to the site and buffered to the
single-family homes by parking areas, landscaping, and Joseph Allen Drive
1. Section 3.5.1(E)(1) - Building Materials
Proposed building materials include concrete and masonry blocks, stucco, and metal,
similar to other nearby commercial and institutional buildings, meeting requirements for
consistency with the surrounding neighborhood.
J. Section 3.5.1(F) - Building Color
Finishes and colors on the proposed structure are primarily neutral earth -tones, with an
accented green metal roof over the auditorium closer to Timberline Road. The overall
palette of building colors and finishes is similar to nearby development and meets
requirements to facilitate blending into the neighborhood.
K. Section 3.5.3(C)(2) - Orientation to Build -to Lines for Streetfront Buildings
This Land Use Code requires buildings to meet "build -to" line standards to encourage
pedestrian street fronts and a consistent building/sidewalk relationship with buildings
located close to the street, without vehicle areas in-between. Buildings are typically
required to locate at the corner of intersections when the lot abuts more than one street.
Along an arterial road, this section's build -to line requires the building face to be located
no more than 25-feet from the property line; however, exceptions can occur if required by
established easements or drainage channels. On this development site, established utility
and drainage easements measuring 107-ft fronting Timberline Road, and a combination
of 30-ft wide utility and irrigation easements along Nancy Gray Avenue preclude the
building from siting prominently either Timberline Road or Nancy Gray Avenue. Although
differing from typical requirements, this street relationship is consistent with other
developments along the west side of Timberline Road that also feature such large
setbacks to accommodate the drainage channel.
While the building could be situated along Joseph Allen Drive, this street features minimal
pedestrian activity, with most nearby buildings presenting their building backsides or
parking areas to the street. Further, locating along Joseph Allen Drive presents the
buildings' larger mass and bulk closer to single-family homes under construction, while a
location closer to Timberline Road is more consistent with the established street and
sidewalk relationship nearby.
A second element of this section requires that no vehicle use area be present between
the front of the building and the street. The proposed building's main entrance is located
off Nancy Gray Avenue, while a one-way drop-off lane accessing four handicap parking
spaces are located between the building face and the street. The applicants have
requested a Modification of Standard to this requirement.
Modifications are permitted by Land Use Code Section 2.8.2(H) as follows
Item # 3 Page 8
Agenda Item 3
C. Section 3.2.2(F) - User Needs
As a site intended to serve large groups of both children and the elderly, the overall
circulation network and handicap parking spaces have been designed with user needs in
mind. A one-way driveway near the main church and school entrances has been provided
for drop-off and to access handicap parking spaces that are located closer to primary
building entrances than found in the main parking lot to the side of the building.
As a trade-off to meeting the needs of site users, a vehicle use area (driveway and four
handicap parking spaces) exist between the building and the street, which places the
configuration of the building to the sidewalk out of conformance with build -to line
standards. Further discussion of this configuration is provided as part of the Modification
of Standard request to Section 3.5.3(C)(2) found later in this staff report.
D. Section 3.2.2(J) - Setbacks
All vehicle use and parking area setbacks meet or exceed standards for setbacks from
nonarterial streets of at least ten feet.
E. Section 3.2.2(K) - Parking Lots - Required Number of Off -Street Spaces for Type of Use
Minimum parking requirements for churches and schools are based on the largest
calculation of either seats in an auditorium, employees, or building size. Utilizing
auditorium size (266 seats) produced the largest number of required parking spaces for
the project. At a ratio of 1 space for every 4 seats, a total of 67 parking spaces are
required, and 80 are provided, exceeding this standard.
F. Section 3.2.4 - Site Lighting
The project's site lighting has been designed to meet minimum levels for safety and
comfort, with lighting emphasis near building entrances and parking areas. Site lighting
has also been designed to minimize potential impacts on the nearby residential homes
under construction to the west; no pole -mounted lighting fixtures are planned on the
westernmost parking aisle to reduce lighting levels at the property line and nearby
homes. Additionally, all site lighting meets code standards for down -direction, fully -
shielded fixtures.
G. Section 3.3.1 - Plat and Development Plan Standards
The development includes a new subdivision plat meeting engineering requirements for
dedication of right-of-way for Joseph Allen Drive and required easements.
H. Section 3.5.1 - Building Size, Height, Bulk, Mass, Scale
The proposed building is one-story, and 26,018 square feet, and meets requirements for
size, height, bulk, mass and scale. The nearby context features a diverse mix of these
building elements, with taller or more massive buildings located to the south (Police
Services) and north (self -storage, offices, climbing gym), while smaller single-family
homes are located to the west.
Item # 3 Page 7
Agenda Item 3
church are complementary to the nearby developing neighborhood, serve as a buffer,
and the potential space lost for additional employment opportunities by including a church
as part of the proposal are nominal and inconsequential when considering the entire
development plan.
C. Section 4.27(D)(4) - Dimensional Standards
The proposed school and church building is one-story and complies with the Employment
district standards, which permit building heights up to four stories.
D. Section 4.27(E)(1)(a) - Site Design
As one of the last remaining portions of the Spring Creek Farms Overall Development
Plan, the proposal complies with the coordinated and cooperative planning set out in the
larger area in terms of street design and connectivity, outdoor spaces, and drainage.
3. Compliance with Article 3 of the Land Use Code - General Development Standards:
The project complies with all applicable General Development Standards as follows, with the
exception of Section 3.5.3(C)(2), to which a Modification of Standard has been requested.
A. Section 3.2.1 - Landscaping and Tree Protection
The proposed landscaping plan is consistent with the applicable requirements of Land
Use Code Division 3.2.1, Landscaping and Tree Protection, with additional explanation
for specific subsections below:
3.2.1(D) - Tree Planting Standards
A total of 79 new trees are proposed on the project site, meeting tree stocking and
street tree requirements. Importantly, the proposal will continue the established
species and planting pattern of clusters of spruce trees in the large detention area
fronting Timberline Road, providing a unified landscape palette and design for the
overall area.
3.2.1(E)(4) - Parking Lot Perimeter Landscaping
Screening for the parking area exceeds standards through the utilization of a double -
row of trees and extensive shrub plantings. Combined, the landscape perimeter
treatments will help block headlights and enhance aesthetics along the parking lot
perimeter.
3.2.1(E)(5) - Parking Lot Interior Landscaping
The proposal's parking field includes ten landscape islands with trees, meeting
requirements for the amount of interior space dedicated to parking lot landscaping.
B. Section 3.2.2(C)(4) - Bicycle Facilities
Schools and places of worship require one bicycle space per 3,000 square feet of
building area. At 26,018 square feet, a total of 9 spaces are required, and the proposal is
providing 11 spaces split between two storage areas, one of which will be covered and
weather -protected, exceeding minimum standards.
Item # 3 Page 6
Agenda Item 3
upon the owner of such property, provided that such difficulties or hardship are
not caused by the act or omission of the applicant; or
(4) the plan as submitted will not diverge from the standards of the Land Use
Code that are authorized by this Division to be modified except in a nominal,
inconsequential way when considered from the perspective of the entire
development plan, and will continue to advance the purposes of the Land Use
Code as contained in Section 1.2.2. "
Applicant's Justification:
The applicant's complete modification request narrative is included as an attachment to
this report. The narrative asserts the modification would not be detrimental to the public
good and that the plan as proposed will promote the general purpose of the standard
equally well or better than a plan which complies with the standard. This is because the
proposal is not solely for a secondary use, but includes a primary use (private school),
and that both the primary and secondary uses proposed act as a buffer between nearby
residential and industrial uses, as intended when the larger Johnson Farm rezoning was
approved.
Staff Analysis & Findings:
Staff finds that the applicant's modification request to Section 4.27(D)(2) is justified by
applicable standards of Land Use Code Sections 2.8.2(H)(1) and 2.8.2(H)(4), and that the
granting of the modification would not be detrimental to the public good.
Criteria 2.8.2(H)(1)
The proposal promotes the general purpose of the standard equally well or better than a
plan complying with the standard. As the proposal includes a primary use (private
school), the issue concerning the proposed modification is not that no primary use exists,
but that a portion of the proposal is also dedicated to a secondary use (church).
While the inclusion of a secondary use may diminish opportunity for additional job
supporting activities on this site, much of the intent behind the size and location of this
employment district was to act as buffer between planned residential to the south and
activities in the Industrial zone district to the north. This framework can be seen when
comparing the relatively small and isolated size of the district in comparison to other
employment areas within the community.
In addition, a large portion of the development site has already been developed and
dedicated as a detention pond for drainage from this and other nearby sites, which
include other primary employment uses, such as offices to the north and the Police
Services building to the south. These other primary uses have benefitted from the ability
to export portions of their drainage requirements to this site, leaving additional room on
their own sites for larger buildings and primary use intensification, while diminishing the
capacity and size of remaining land for other large employment uses. Staff is including
this opportunity cost as part of the modification valuation.
Criteria 2.8.2(H)(4)
As the proposal includes a primary use, the presence of a secondary use is nominal and
inconsequential. Were the proposal to only have included the primary private school use,
with no alterations to size or intensity, no modification would be required by a literal
interpretation of the Land Use Code. Additional activities in the form of the proposed
Item # 3 Page 5
Agenda Item 3
2. Compliance with Article 4 of the Land Use Code - Employment (E). Division 4.27:
The project complies with all applicable Article 4 standards as follows, with the exception of
Section 4.27(D)(2), to which a Modification of Standard has been requested:
A. Section 4.27(B) - Permitted Uses
The proposal includes construction of a new building to be used as both a private school
and a church (listed as a place or worship in the Land Use Code). Both uses are
permitted in the Employment zone district, subject to Planning & Zoning Board (Type 2)
review.
B. Section 4.27(D)(2) - Secondary Uses
In the Employment zone district, uses are categorized as either primary or secondary,
with job -supporting uses such as offices, research facilities, or workshops considered
primary, while supporting uses such as retail, hotels, or residential are considered
secondary. In the Employment district, secondary uses are limited in size to 25% of the
development or overall development plan area.
Within the larger Employment district of the Spring Creek Farms North Overall
Development Plan, the 25% of secondary uses were previously allocated to single-family
homes, requiring the remainder to be primary uses. While private schools are considered
a primary use in the Employment zone district, churches are considered secondary, and
to account for a secondary use in excess of the 25% maximum, the applicants have
requested a Modification of Standard.
Modifications are permitted by Land Use Code Section 2.8.2(H) as follows:
"The decision maker 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:
(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; or
(2) 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 defined 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 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
Item # 3 Page 4
Agenda Item 3
The surrounding zoning and land uses are as follows:
Direction
Zone District
Existing Land Uses
North
Industrial (1)
Self -Storage, Office, Retail, Indoor
Recreation
South
Medium Density Mixed -Use
Institutional (Police Services), Multifamily
Neighborhood (M-M-N)
East
Low Density Mixed -Use
Single Family Attached & Single Family
Neighborhood (L-M-N)
Homes
West
Employment (E), Low Density
Single Family Homes
Residential (R-L)
A zoning vicinity map is presented below:
Site & Zoning Vicinity Map
1 inch = 500 fee!
Beebe Christian School
Item # 3 Page 3
Agenda Item 3
EXECUTIVE SUMMARY
The Beebe Christian School Project Development Plan (PDP) complies with applicable requirements of
the City of Fort Collins Land Use Code, more specifically:
The Project Development Plan complies with process located in Division 2.2 - Common
Development Review Procedures for Development Applications of Article 2 - Administration.
The Project Development Plan complies with relevant standards of Article 3 - General
Development Standards, excluding the requested Modification of Standard to Section
3.5.3(C)(2).
The Project Development Plan complies with relevant standards located in Division 4.27
Employment (E) of Article 4 - Districts, excluding the requested Modification of Standard to
Section 4.27(D)(2).
The Project Development Plan is in conformance with the Spring Creek Farms North Overall
Development Plan, last updated in 2011.
COMMENTS:
1. Background
The project site was annexed into the City of Fort Collins as part of the Timberline Annexation in 1997.
In late 2000, the Johnson Farm, comprised of the area bounded by Timberline Road to the east, the
Union Pacific Railroad to the west, Drake Road to the south and site of this proposal to the north was
rezoned to a mixture of Low Density Mixed -Use Neighborhood (LMN), Medium Density Mixed Use
Neighborhood (MMN) and Employment (E) zoning. The Employment zoning at the north edge was
intended both for employment uses and to help act as a buffer between the planned residential areas to
the south and uses in the Industrial (1) zone district to the north.
Following the rezoning, the Spring Creek Farms North Overall Development Plan (ODP) was approved
in early 2001. Both the original ODP and a subsequent amendment in 2011 list land uses and densities
consistent with the LMN, MMN, and E zone districts. An important element of the Employment zone
district is the mix between primary and secondary uses. The ODP does not specify the geographic
location of the 75% primary uses mix required in the Employment zone district, instead leaving this
evaluation to subsequent project development plans.
In 2014, the western portion of the Employment area within the ODP was developed as part of Spring
Creek Farms North Filing No. 4, creating lots for 76 single family homes (7 lots in the Employment zone
district and 69 in the Low Density Mixed -Use Neighborhood zone district to the south). The use of the
western portion of the Employment zone for single family homes fulfilled the maximum 25% secondary
use within the overall district, requiring the remaining employment areas in the ODP to adhere to primary
uses.
Item # 3 Page 2
Agenda Item 3
PROJECT NAME
BEEBE CHRISTIAN SCHOOL
STAFF
Ryan Mounce, City Planner
PROJECT INFORMATION
PROJECT DESCRIPTION: This is a request for a Project Development Plan to construct a 26,018
square foot building for use as a private school and church located at the
northwest corner of Timberline Road and Nancy Gray Avenue. The 3.3-
acre site is located in the Employment (E) zone district and will include
development of 80 parking spaces, a playfield, and a large detention pond
serving drainage needs for this proposal and other nearby existing
developments.
Two Modification of Standard requests accompany the proposal, the first
to Section 4.27(D)(2), relating to secondary uses in the Employment zone
district, and the second to Section 3.5.3(C)(2), relating to vehicle use
areas between the front of the building and the street.
APPLICANT: Cathy Mathis
TBGroup
444 Mountain Avenue
Berthoud, CO 80513
OWNER: Rocky Mountain Conference of Adventists
250 Downing Street
Denver, CO 80210
RECOMMENDATION: Approval of the requested Modification of Standards to Sections
4.27(D)(2) and 3.5.3(C)(2), and approval of the Beebe Christian School,
PDP160022.
Item # 3 Page 1