HomeMy WebLinkAboutOAKRIDGE CROSSING (AFFORDABLE SENIOR HOUSING) - PDP - PDP160009 - REPORTS - RECOMMENDATION/REPORTAgenda Item 2
approved.
■ The Project Development Plan complies with relevant standards located in Division 4.26 —
Harmony Corridor District (H-C) of Article 4 — Districts, provided that either the Modification of
Standard to Section 4.26(D)(6)(b)(2) or 4.26(D)(6)(b)(3) is approved.
RECOMMENDATION:
Staff recommends that the Planning and Zoning Board make motions to approve the Modification of Standard to
Section 3.2.2(K)(1)(a), the Modification of Standard to Section 4.26(D)(6)(b)(2), to deny the Modification of
Standard to Section 4.26(D)(6)(b)(3), and to approve the Oakridge Crossing Project Development Plan, PDP
#160009 based on the Findings of Fact found on pages 37-40 of the staff report.
ATTACHMENTS
1. Applicant's Statement of Planning Objectives (PDF)
2. Modification Request 1 - Access to Park, Central Feature or Gathering Place (PDF)
3. Modification Request 2 - Access to Park, Central Feature or Gathering Place (PDF)
4. Modification Request 3 - Required Number of Parking Spaces (PDF)
5. Bicycle Parking Alternative Compliance Request (PDF)
6. Site Plan, Landscape Plan, Elevations, Elevation Rendering, Colored Perspectives, Photometric Plan,
Shading Analysis (PDF)
7. Subdivision Plat (PDF)
8. Utility Plans (PDF)
9. Transportation Impact Study(PDF)
10. June 2015 Neighborhood Meeting Summary (PDF)
11. April 2016 Neighborhood Open House Summary (PDF)
12. Applicant Response to Property Management Questions (PDF)
13. Applicant's Tax Credit Financing Letters of Support (PDF)
14. Public Comments (PDF)
15. Applicant Requested Information for Record (PDF)
16. Oakridge Business Park ODP (PDF)
17. Oakridge Business Park 11th Filing (PDF)
Item # 2 Page 40
Agenda Item 2
Legacy Senior Residences is a project similar to Oakridge Crossing, with the same project
financial demographics, a younger age cohort, and a similar environment of nearby amenities, that
utilizes a parking ratio below what Oakridge Crossing proposes and the maximum observed
parking occupancy was 80%. The most analogous project to the Oakridge Crossing development
demonstrates the parking rate proposed is suitable for a development catering to low-income
senior residents.
A common feature of senior apartments is that a larger share of residents do not own vehicles,
and Oakridge Crossing will promote resident mobility through the use of on -site bike and carshare
programs, and assist connecting residents with senior mobility service providers such as SAINT
and PACE, which provide free and volunteer transportation for seniors. The combination of
reduced parking demand and alternative transportation options means the safe, convenient and
efficient use of project parking promotes the purpose of the standard equally well than a plan that
complies with the standard.
The request satisfies Criteria 2.8.2(H)(2)
...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
The proposed project provides 110 affordable units for seniors earning between 30% and 60% of
the area median income. City Plan and numerous other City plans, goals, and policies support and
encourage the development of as many new affordable units and senior units as possible
throughout the community. Recent studies on the growth of the senior population, as well as
reports on the large increase in rents communitywide and decreasing vacancy rates continue to
demonstrate the need for affordable senior units in the community, which may be more difficult to
provide when excess parking is required beyond the demand the project's demographics are likely
to generate.
• The proposed Alternative Compliance to Section 3.2.2(C)(4) Bicycle Facilities accomplishes the
purpose of the section equally well or better than would a plan complying with section. The
proposed bike parking meets the requirements for the number and location of bicycle spaces for
the commercial office component of the project. The remaining portion of the proposal is oriented
towards multifamily units for seniors age 62 and above with limited financial means. Due to the
age and some decrease in mobility and balance by residents, there is likely to be a reduction in
bicycle travel demand.
For those who do wish to bike as an alternative means of travel, the project provides substantially
more bike parking, most indoors near residences, than other senior apartment projects within the
community. In addition to the 78 parking spaces for the multifamily units, the project will feature
onsite bike/tricycle sharing whereby residents can check out a tricycle with safety equipment for
use. This may be particularly attractive when the bike travel is more infrequent and owning and
maintaining a bike would otherwise be a cost burden on a limited income. These actions continue
to support the promotion of alternative travel such as bicycling while offering a bike parking
solution tailored to a population likely to experience reduced demand.
• 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 the Oakridge Business Park Overall Development
Plan.
■ The Project Development Plan complies with relevant standards located in Article 3 — General
Development Standards, provided that the Modification of Standard to Section 3.2.2(K)(1)(a) is
Item # 2 Page 39
Agenda Item 2
As applied to single -building, infill development sites, the purpose of Land Use Code Section
4.26(D)(6) has been to provide amenities for residents of multifamily projects and opportunity for
active and passive recreation. Tract A provides many opportunities for active and passive
recreation, being a large, well -landscaped area with walking paths, picnic tables, game fields, and
a playground. Although not open to the general public, if Oakridge Crossing residents have access
to Tract A as members and tenants of the Oakridge Business Park Association which holds joint -
ownership, it is meeting the standard equally well or better as an amenity and opportunity for
recreation.
However, access by residents of Oakridge Crossing to Tract A is disputed by other joint -owners of
the property. As the dispute is not presently and definitively resolved, access to Tract A by
Oakridge Crossing residents could be restricted in the future, leaving residents without access to
the amenity and its benefits. Similarly, if a future resolution determines Oakridge Crossing
residents do not have access, its near term use if the modification and project is approved may be
placing additional maintenance responsibilities on all owners, both circumstances being
detrimental to the public good.
The request satisfies Criteria 2.8.2(H)(2)
...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
The proposed project provides 110 affordable units for seniors earning between 30% and 60% of
the area median income. City Plan and numerous other City plans, goals, and policies support and
encourage the development of as many new affordable senior units throughout the community as
possible. The onsite amenities, both indoor and outdoor, provided are well suited to support
passive and active recreation by the targeted senior population and do not impair the intent of the
Land Use Code while simultaneously supporting community goals for increasing affordable
housing supply.
However, access by residents of Oakridge Crossing to Tract A is disputed by other joint -owners.
As the dispute is not presently and definitively resolved, access to Tract A by Oakridge Crossing
residents could be restricted in the future, leaving residents without access to the amenity and its
benefits. Similarly, if a future resolution determines Oakridge Crossing residents do not have
access, its near term use if the modification and project is approved may be placing additional
maintenance responsibilities on all owners, both circumstances being detrimental to the public
good.
• The Modifications of Standards to Section 3.2.2(K)(1)(a) proposed with this Project Development
Plan meets the applicable requirements of Section 2.8.2(H)(1) and (2), and the granting of the
Modification would not be detrimental to the public good.
The request satisfies Criteria 2.8.2(H)(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.
National research studies, comparisons to other local senior apartment projects, and staff
observations and parking counts demonstrate that low-income, independent senior apartment
projects generate reduced demand for parking and parking spaces. Data and observations from
parking counts completed at local projects illustrate the parking ratio proposed at Oakridge
Crossing was sufficient to meet the parking demand at the majority of all other local projects and
will accommodate the anticipated demand at the project site without spillover parking effects.
Item # 2 Page 38
Agenda Item 2
Y Support for the project as it is providing additional affordable housing inventory to the community and
addressing the community's affordability concerns and housing for the growing senior population.
Y Concerns about ownership and maintenance responsibilities in the detention/park area to the south
(Tract A, Oakridge Village PUD VII Filing).
Concern and confusion about City versus Oakridge Business Park Association approval. The project
must receive approval from both the City and business association, and there are differences between
Land Use Code standards and association standards/covenants.
5. Findings of Fact/Conclusion
In evaluating this request, Staff makes the following finds of fact:
• The Modification of Standard to Section 4.26(D)(6)(b)(2) proposed with this Project Development
Plan meets the application requirements of Section 2.8.2(H)(1) and (2), and the granting of the
modification would not be detrimental to the public good.
The request satisfies Criteria 2.8.2(H)(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.
As applied to single -building, infill development sites, the purpose of Land Use Code Section
4.26(D)(6) has been to provide amenities and opportunity for residents of multifamily projects for
active and passive recreation. Although a portion of the on -site amenities provided will not be
visible by the public, the combination of on -site outdoor and indoor amenities promotes the general
purpose of the standard equally well or better, as visibility by residents to the amenities is
maintained and by tailoring the amenities to the project's targeted senior population. The outdoor
amenities have been designed for a senior population with patios and seating areas, small pet
stations, and low -impact game courts. In addition, indoor amenities available to residents include
year round community and craft rooms, a small workout room, and library.
The request satisfies Criteria 2.8.2(H)(2)
...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
The proposed project provides 110 affordable units for seniors earning between 30% and 60% of
the area median income. City Plan and numerous other City plans, goals, and policies support and
encourage the development of as many new affordable senior units throughout the community as
possible. The onsite amenities, both indoor and outdoor, provided are well suited to support
passive and active recreation by the targeted senior population and do not impair the intent of the
Land Use Code while simultaneously supporting community goals for increasing affordable
housing supply.
■ The Modifications of Standard to Section 4.26(D)(6)(b)(3) proposed with this Project Development
Plan meets the applicable criteria of Section 2.8.2(H)(1) and (2), however, the granting of the
modification is detrimental to the public good.
The request satisfies Criteria 2.8.2(H)(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.
Item # 2 Page 37
Agenda Item 2
Aj. Section 3.5.3(E) — Fagade Treatment
The building fagade features distinct building bays distinguished by window and fenestration
patterns and projecting and recessed elements that add architectural interest, variety, and are of
human -scale proportions. In addition, all four of the building sides are consistent in their use of
materials and architectural interest.
Ak. Section 3.5.3(E)(4) — Entrances
Building entrances are clearly defined by sheltering elements including metal canopies and
building overhangs along the commercial frontage.
Al. Section 3.5.3(E)(6) — Base and Top Treatments
The building features a darker -colored masonry base with a ledge, while the building top includes
cornice treatments that vary in height in correlation with projecting or recessed elements, and a
stepped parapet on the one -floor portion fronting McMurry Avenue satisfying requirements of this
code section.
Am. Section 3.6.4 — Transportation Level of Service Requirements
The Traffic Operations and Engineering Departments have reviewed the proposal's Transportation
Impact Study and determined vehicular, pedestrian and bicycle facilities proposed are consistent
with the City of Fort Collins Multi -Modal Transportation Level of Service Manual.
An. Section 3.6.4 — Emergency Access
Poudre Fire Authority has reviewed project plans and has been determined the project provides
safe access for emergency vehicles. The project will be dedicating an emergency access
easement running through the site, and the main drive aisle serving the development has been
increased in width to 30-feet to accommodate the movement and staging of emergency
equipment.
4. Neighborhood Meetings
A neighborhood meeting and project open house were held for the proposed project in June 2015 and
April 2016 respectively. A detailed summary of the neighborhood meeting and open house are attached to
this staff report. In addition to these meetings, the project has received large interest from nearby
residents, property owners, and community organizations. Listed below are a summary of frequently heard
topics and concerns addressed by these public comments:
Concern that the amount of parking provided is insufficient and could lead to spillover parking impacts.
w Concern that the project site is located in a business/industrial area with potential impacts on future
residents (e.g. noise) and on existing businesses (parking competition, driveway obstruction, safety of
residents and liability for businesses in loading/service areas).
Expectations that the development of the site would be for a more similar industrial or commercial user
versus mixed -use.
Enforcement of no parking along McMurry Ave (McMurry was recently re -striped to include only
vehicle travel lanes and bike lanes but some people are still parking in the bike lanes).
Item # 2 Page 36
Agenda Item 2
adjacent sites that do not preclude the functional use of solar energy systems. Further, the
development seeks to minimize privacy impacts on adjacent properties through the use of
landscaped setbacks, small juliet balconies, and the arrangement of outdoor resident areas away
out of line of site of nearby buildings or oriented towards the interior of the site.
Ae. Section 3.5.1(I) — Outdoor Storage Areas/Mechanical Equipment
The project includes interior locations for trash and recycling collection and will be out of view of
public streets and internal pedestrian walkways. Building meters and vents will be painted to
match building surrounds and rooftop mechanical equipment shall be screened from view,
satisfying requirements of this code section.
Af. Section 3.5.3(C)(1) — Orientation to a Connecting Walkway
Primary building entrances open directly onto the site's connecting walkway as required by this
code section. The connecting walkway features direct access to the McMurry Avenue sidewalk
and does not cross driveways and vehicle use areas.
Ag. Section 3.5.3(C)(2) — Orientation to Build -to Lines for Streetfront Buildings
The front building face along McMurry Avenue has been located no more than 15 feet from the
right-of-way, an adjoining collector street, consistent with the Land Use Code for a mixed -use
structure. In addition, project parking is located to the side or rear of the building and is not located
between the building face and the street.
Ah. Section 3.5.3(D) — Variation in Massing
The proposed building achieves a variation in massing by creating three distinct building
segments, and within each segments utilizing a series of projecting and recessing elements. The
first of the primary building segments includes a front section designed to resemble characteristics
of a commercial building with storefront windows, canopies, overhanging roof elements, building
material composition, and a commercial window and fenestration pattern. In addition, this segment
features a different width than remaining portions of the building and features both one and three-
story elements.
The second segment involves the remaining east -west orientation of the building that is both wider
and offset approximately eight feet to the north, with a series of smaller projections and recesses
associated with the location of building entrances and window and balcony pattern above.
The third segment is a shift in building orientation from east -west to north -south, creating the "top"
of the L-shaped building. This final segment is further partitioned by another building offset of
approximately 20 feet, and smaller projections and recesses for residential window and balcony
patterns.
Within each of the building's primary segments, the location of the smaller projects and recesses
also correspond to small changes and projections in building height with the addition of raised
cornices over balcony alignments and higher roof planes over building entrance areas.
Ai. Section 3.5.3(E) — Character and Image
The project has been tailored to its individual site by incorporating a building footprint matching the
L-shape of the infill parcel. In addition, similar building materials and colors/shades are used on
the structure from the nearby context.
Item # 2 Page 35
Agenda Item 2
subdivided into smaller proportions through the use of offset building masses, a changes in
building orientation that creates an L-shaped structure, and projecting and recessed elements.
Viewed from most angles, the L-shape reduces the overall effect of the building's size, bulk, and
mass as compared to if the structure was square in shape.
The proposed building is shorter than the MacKenzie Place assisted living and apartment building
across McMurry Avenue and uses a flat -roof design similar to the majority of nearby industrial and
commercial buildings. The portion of the building fronting McMurry Avenue and the smaller scale
MacKenzie Place cottages presents a one-story building face to the street before rising in height to
three stories which helps mitigate the impact of the transition.
Aa. Section 3.5.1(D) — Privacy Considerations
This standard requires project elements maximize privacy of residents and adjacent uses while
also creating opportunities for interactions among neighbors. The establishment and protection of
privacy for Oakridge Crossing residents and nearby sites is primarily managed through the use of
landscaped setbacks between adjacent properties that increase the amount of open space
between buildings. Landscape screening and the location and arrangement of outdoor resident
areas have also been designed to prioritize privacy.
Along the project's southern and eastern sides, where adjacent structures are closest, landscaped
setbacks range from 20 to 28 feet on the project site and include shrub and canopy shade tree
plantings. To the east of the project site, the adjacent property features an extensive shrub lining
and mature trees that provide a substantial screening effect. Areas to the north are buffered by the
project parking lot, drainage areas, and landscaping, or the shared parking and driveway areas.
Outdoor resident spaces have also been placed to maximize privacy with landscaping and site
placement. The project's outdoor barbecue area is located along a crook of the site's eastern
property line that abuts and lines up with an open space drainage area on the neighboring
property to the east.
While protecting resident and adjacent user privacy, the site plan also features opportunities for
interaction through the mixed -use nature of the project and inclusion of plaza, entryway features,
and street furniture such as stone sitting benches near the commercial and residential entries.
Ab. Section 3.5.1(E) — Building Materials
Proposed building materials are similar to existing building materials found around the project site
consistent with this code section. Primary building materials include split -face and ground -face
concrete masonry blocks, lap siding, and stucco. Detail and accent materials include metal
canopies and juliet balconies, and storefront window system along the project's office component.
Building windows windows are also individually defined with the use of 4-inch trim frames.
Ac. Section 3.5.1(F) — Building Color
The proposed building color palette features a mix of natural and earth -tone colors that facilitate
blending in with existing colors and shades found nearby, including the brown stone finish and
yellow/tan siding of the MacKenzie Place structures, the light and dark brown masonry blocks on
buildings to the east and northeast, and the light grays on buildings to the south and north.
Ad. Section 3.5.1(G) — Building Height Review
The height of the three-story building measured to the dominant roof element is 36 feet. Although
less than the 40 foot height that triggers the Land Use Code special height review, the applicants
have submitted a shadow and shading study for December 215i when the longest shadows are
cast, which demonstrates building shadows fall predominantly on the project site, or on areas of
Item # 2 Page 34
Agenda Item 2
U. Section 3.2.2(L) Parking Stall Dimensions
Parking lot stall dimensions meet minimum required for perpendicular and parallel spaces in
consideration of vehicular overhang of stalls abutting the drainage and rain garden area. Long-
term parking stall dimensions are also utilized in areas located away from building entrances and
the commercial office space where more frequent use is anticipated to occur.
Drive aisle widths exceed dimensional standards in support of a defined fire access lane and the
movement of trucks serving nearby businesses in the shared parking areas to the north and
northeast of the project site.
V. Section 3.2.3(E) Shading
Staff requested the applicants submit a shadow analysis to analyze potential shading impacts on
neighboring properties on December 21 st when the longest shadows are cast. Due to the building's
location on the southern half of the site and the L-shaped dimensions of the site, the majority of
shadows cast from the building on December 21 st fall directly on the project site itself.
Some shading is anticipated to occur during late afternoon hours in the winter on portions of sites
to the north and east, falling on small portions of building roofs and on landscaping/parking areas.
The shading cast on these properties is less than what would be cast by a hypothetical twenty-five
foot wall along the property line, in conformance with Land Use Code Standards. On the property
immediately to the east, shadows cast in the late afternoon on winter days may be overlapping
with an existing stand of mature trees.
W. Section 3.2.4(C) — Lighting Levels
Project lighting is focused on building surrounds interior to the site and within the parking lot, with
minimum lighting levels meeting or exceeding code requirements for commercial building
surrounds (1.0 foot candles), pedestrian stairways (.3 foot candles) and parking areas (1.0 foot
candles).
X. Section 3.2.4(D) — Design Standards
Project light sources include a combination of pole and building -mounted fixtures. All light sources
will be fully shielded and down -directional and meet design standards of the Land Use Code. In
addition, the project photometric plan demonstrates lighting -levels at or 20-feet beyond the
property boundary do not exceed .1 foot-candles as generated by project sources.
Y. Section 3.2.5 — Trash and Recycling Enclosures
In lieu of outdoor trash enclosures, the project proposes utilizing multiple trash and recycling
collection areas inside the building to facilitate the needs of site residents. As detailed in the
attached Property Operations and Management report, two trash rooms are located on each floor,
with upper floors having access to trash chutes. Trash and recycling is collected separately and
dumpsters are rolled outside during trash and recycling pickup windows. As trash and recycling
collection areas takes place interior to the building, the operations are fully screened.
Z. Section 3.5. l (C) — Building Size, Height, Bulk, Mass, Scale
The surrounding context of the project site features a mix of smaller scale single-family houses
(MacKenzie Place cottages), the three-story MacKenzie Place assisted living and apartment
building, and a mix of one and two-story commercial and industrial buildings. The proposed
building is similar in building size, height, bulk, mass, and scale to the larger MacKenzie Place
assisted living and apartment building, and is slightly larger than the one and two-story industrial
and commercial buildings to the north, south, and east; however, the structure has been
Item # 2 Page 33
Agenda Item 2
found that local employment growth has been stronger than the larger region, and over the past 14
years median household incomes have lagged increases in the cost of living, resulting in reduced
purchasing power. Further, as outlined in the Affordable Housing Strategic Plan, the U.S.
Department of Housing and Urban Development data indicates there are approximately 2,474
cost -burdened elderly households earning less than 80% of the area median income in Fort
Collins.
The affordability concern has also only continued to grow since the original adoption of City Plan
and the Affordable Housing Strategic Plan in 2015. In February, a report from RealtyTrac noted
Fort Collins was ranked second nationwide among cities with the lowest vacancy rates at less than
3%. The tight rental market and above average rent and household price increases has made it
more difficult to afford housing in the community. In addition, a list of affordable senior apartment
developments compiled by the Larimer County Office on Aging indicates most developments
having waiting lists from 1 to 2 years.
To help address the growing affordability concerns, City Plan has adopted the following principles
and policies:
City Plan
■ Policy LIV 7.5 — Address Special Needs Housing
Plan for and meet the housing needs of special populations within the community. Disperse
residential care facilities, shelters, group homes, and senior housing throughout the Growth
Management Area.
• Principle LIV 8 - The City will encourage the creation and expansion of affordable housing
opportunities and preservation of the existing affordable housing supply.
Policy LIV 8.5 — Integrate and Distribute Affordable Housing
Encourage the integration and distribution of affordable housing as part of individual
neighborhoods and the larger community rather than creating larger concentrations of
affordable units in isolated areas.
The 2015-2019 Affordable Housing Strategic Plan also contains the following objectives:
• Produce as many new rental units affordable to households earning 50% of less of AMI as
possible
• Incentivize new rental units affordable to households earning 60-80% of AMI
• Incentivize the production of affordable housing
■ 2015-2017 Actions: Support projects producing affordable units to serve cost -burdened
senior citizens
As evaluated under Criteria 2.8.2(H)(1), parking demand based on project demographics can be
met at a reduced rate without impairing the intent and purpose of the Land Use Code, and the
development of a large number of new senior affordable units will help meet City goals and
objectives to increase and distribute the supply of affordable housing throughout the community.
Such objectives are especially important at the present time due to the tight rental market,
increasing rents, and the growth in the senior population.
T. Section 3.2.2(K)(5) Handicap Parking
Six handicap parking spaces are provided as part of 88 overall parking spaces, exceeding
minimum requirements base on the size of the parking lot. Handicap parking spaces meet
dimensional standards and will be striped and signed for easy identification. The location of the
handicap spaces have been distributed evenly throughout the project site and placed as close as
possible to building entrances and ramps.
Item # 2 Page 32
Agenda Item 2
core within the Oakridge Crossing parking lot for project residents and nearby neighbors
and businesses. According to the Transportation Sustainability Research Center, the
average carshare vehicle is responsible for a reduction in the need for 9 to 13 private
vehicles.
Summarizing staff's observation, data, and findings:
■ Case studies, national research, and legislative action increasingly support reduced
parking demand at senior apartment projects. Studies have discovered a strong link
between lower parking demand and projects specifically catering to low-income seniors.
■ A large majority of local senior apartment projects also feature a reduction in the number
of parking spaces compared to what is required by the Land Use Code for market rate and
mixed -age multifamily projects.
■ Staff parking counts and observations at local senior apartment projects found a majority
are able to meet their parking demands, even when utilizing the parking ratio proposed at
Oakridge Crossing. Of the projects that could not meet the demand, they were less by
only a few spaces, and their individual project characteristics may account for their
increased parking demand, such as a higher proportion of two -bedroom units and younger
residents.
■ One of the best local comparisons to Oakridge Crossing is Legacy Senior, which features
a similar context to Oakridge Crossing and similar demographics, and is able to meet its
parking demand at a parking rate slightly lower than what is proposed at Oakridge
Crossing and still experiences approximately 20% vacant vehicle parking spaces.
• Oakridge Crossing features additional measures to improve resident mobility and reduce
the need to own and operate a vehicle, including local volunteer transportation providers
such as SAINT, on -site bikeshare, and planned on -site car share.
Staff believes available data supports the modification request that 80 parking spaces can meet
the parking demand for 110 affordable senior multifamily units. As the data has shown parking
demand will not exceed parking supply, and the parking lot is being designed to Land Use Code
standards, the parking provided at Oakridge Crossing should function in a safe, convenient, and
efficient manner.
Criteria 2.8.2(H)(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.
The proposed development would include 110 new affordable residential units for seniors age 62
and older earning between 30% and 60% of the area median income. Recently completed studies
and plans, including City Plan and the Housing Affordability Policy Study contain policies and
objectives to encourage and support the creation of new affordable housing units to help address
the community's growing housing affordability concerns. Many of the policies and objectives also
specifically target segments of the population, such as seniors, which are expected to rapidly
increase their share of the overall community population in the coming years.
While economic health and employment growth are also important goals of the City, the recent
Housing Affordability Policy Study completed in support of the Affordable Housing Strategic Plan
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the exception of Reflections Senior Apartments and Innovage (Thornton); both projects would
require an additional three spaces based on observed parking demand; however, characteristics
of the Oakridge Crossing project may ameliorate parking demand in comparison to these projects
as the project features a lower percentage of two -bedroom units and the minimum age for
residents at Oakridge Crossing is higher than at the other projects.
The San Diego Affordable Housing Parking Study concluded project context was also an important
factor in parking demand. Staff asked the applicant to complete a contextual analysis for the area
around Oakridge Crossing and Legacy Senior Residences, which represents the best local project
analog to Oakridge Crossing. Legacy Senior was recently constructed and provides slightly less
parking proportionally than Oakridge Crossing is proposing (.71/unit versus .73/unit) and features
similar demographics of seniors earning between 30% and 60% of area median income.
The analysis compared nearby zoning, land -uses, and access to transit, and compared distances
to nearby amenities:
Distances to Services & Amenities
Oakridge Crossing
Legacy
Grocery Store with Pharmacy
2 343ft
3 823ft
TransFort Bus Stop
1 600ft / 1 931ft
loft / 80ft
Health Care Campus
3 832ft
8 261ft
Bike Trail
Adjacent
Adjacent
Hotel
900ft
2 900ft
Bank
858ft
2 114ft
Full Service Restaurant breakfast
575ft
1 769ft
While the Oakridge Crossing vicinity has closer access to a grocery store and pharmacy, banks,
and other healthcare facilities, Legacy Senior features a larger variety of nearby restaurants and
has better transit access. Viewed comprehensively, both sites appear to offer a comparable level
of services, although individual amenities and distance to amenities differ.
Given a similar context, Legacy Senior is able to meet their project's parking demand in a similar
proportion of spaces as proposed at Oakridge Crossing, and still has approximately 20% of
parking spaces left open. In addition, the applicants for Oakridge Crossing have also identified
supplemental transportation services and measures available to project residents that reduce the
need for vehicle ownership and support independent mobility:
■ SAINT (Senior Alternatives in Transportation), provides personal transportation to seniors
60 years of age and older in Fort Collins and Loveland through a network of volunteers
using their own vehicles to help seniors get to doctor's appointments, the grocery store,
and social visits. The SAINT website claims over 26,000 rides were provided to seniors in
2014.
■ InnovAge / PACE (Program for All-inclusive Care for the Elderly), is a comprehensive
service providing personal in -home care and transportation to and from PACE centers for
seniors with limited financial resources. PACE can also deliver meals and prescriptions
and offers daytime social activities for members.
• Bikeshare: Oakridge Crossing will house two bicycles or tricycles with errand baskets and
safety accessories for residents to check-out to complete nearby errands.
■ Zipcar: The car -sharing company Zipcar has recently expanded in Fort Collins outside the
CSU campus, placing car -share vehicles in and around downtown. Oakridge Crossing has
joined Zipcar as an organizational member to allow residents access to the vehicle sharing
service and plans to host some of the first Zipcar vehicles outside the CSU/Downtown
Item # 2 Page 30
Agenda Item 2
Senior Community: Conter Estates Commerce City) (114 units; 96 parking spaces)
Max. Observed
Max- Observed
Occupied Spaces Da
Occupied Spaces (Ni ht)
80 83.3%
n/a n/a
n/a
Ir
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
84
Crossing ratio .73/unit :
Available parking at Oakridge Crossing ratio
Yes
based on max. observed occupancy?
Senior Community: Innova a Thornton 72 units; 77 parking spaces)
Max. Observed
Max. Observed
Occupied Spaces Da
Occupied Spaces (Night)
56 72.7%
n/a n/a
n/a
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
53
Crossing ratio .73/unit :
Available parking at Oakridge Crossing ratio
No
based on max. observed occupancy?
In addition to field observations and parking counts, staff also contacted several local senior
apartment property managers. Responding property owners indicated they typically do not
experience full parking lots or spillover parking, but that there is generally competition for vehicle
spaces closest to building entrances.
If the same parking ratio proposed for the Oakridge Crossing development were applied to the
other senior developments observed, all would be able to meet their parking demand on -site with
Item # 2 Page 29
Agenda Item 2
Senior Community: Woodbridge Senior A artments 50 units; 50 parking spaces)
Max. Observed
Occupied Spaces Da
Max. Observed
Occupied Spaces (Night)
26 52.0%
29 58.0%
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
Crossing ratio .73/unit :
37
Available parking at Oakridge Crossing ratio
based on max. observed occupancy?
Yes
Sernor Conwnurft ,Dahlia Square Denver 128 units; 83 parking spaces)
Max. Observed
Max. Observed
Occupied Spaces Da
Occupied Space Ni ht
58 1 69.9%
n/a n/a
n/a
r
r,
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
94
Crossing ratio .73/unit :
Available parking at Oakridge Crossing ratio
Yes
based on max. observed occupancy?
Item # 2 Page 28
Agenda Item 2
Senior Community: Reflections Senior Apart ents 72 units; 90 parking spaces)
Max. Observed
Max. Observed
Occupied Spaces Da
Occupied Spaces (Night)
51 56.7%
56 162.2%
r;
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
53
Crossing ratio .73/unit :
Available parking at Oakridge Crossing ratio
Daytime: Yes; Night: No
based on max. observed occupancy?
Seer Com . . Rf den Fertn Senior !L'W1
25 units; 72 off-street parking spaces*)
Max. Observed
Occu ied Spaces Da
Max. Observed
Occupied Spaces (Night)
55 55% total, 76.3% on -site only
49 1 49% total, 68% on -site only
Dedicated shuttle serviceprovided?
Yes
Number of parking spaces if parked at Oakridge
Crossing ratio .73/unit :
92
Available parking at Oakridge Crossing ratio
based on max. observed occupancy?
Yes, accounting for both observed on -street
and off street parking
"Note: Rigden Farm Senior Living is a market -rate project with an approved parking modification
for 72 off-street spaces, and the use of 28 additional on -street spaces. Parking counts include off -
site and on -street parking observations. All cars parked on -street surrounding the project were
counted and likely belong to visitors, staff, or residents, but cannot be confirmed.
Item # 2 Page 27
Agenda Item 2
Senior Community: Oakbrook 1 (107 units; 108 arkin spaces)
Max. Observed
Occupied Spaces (Day)
Max. Observed
Occupied Spaces (Night)
48 144.4%
51 147.2%
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
Crossing ratio (.73/unit):
79
Available parking at Oakridge Crossing ratio
based on max. observed occupancy?
Yes
Sen) [Or Co :081kbrook ll 100 units; 87 parking spaces)
Max. Observed
Occupied Spaces Da
Max. Observed
Occu ied S aces Ni ht
44 50.6%
51 58.6%
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
Crossing ratio .73/unit :
73
Available parking at Oakridge Crossing ratio
based on max. observed occupancy?
Yes
Item * 2 Page 26
Agenda Item 2
Senior Community: DMA Plaza 126 units; 48 arkin s aces
Max. Observed
Max. Observed
Occupied Spaces Da
Occupied Spaces Ni ht
34 170.8%
34 170.8%
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
92
Crossing ratio .73/unit :
Available parking at Oakridge Crossing ratio
Yes
based on max. observed occupancy?
Senior Community: Legacy Senior 72 units; 5 parking spaces)
Max. Observed
Occupied Spaces Da
Max. Observed
Occupied Spaces (Night)
40 78.4%
41 80.4%
Dedicated shuttle serviceprovided?
No
Number of parking spaces if parked at Oakridge
Crossing ratio .73/unit :
53
Available parking at Oakridge Crossing ratio
based on max. observed occupancy?
Yes
Item # 2 Page 25
Agenda Item 2
The evaluation of approved parking rates for these 10 local affordable and market -rate senior
apartment projects reveals 9 provide fewer spaces than what current Land Use Code standards
require, ranging from a low of 25% of current standards at DMA Plaza to slightly over the required
minimum (101%) at The Sanctuary. At these projects, the reduced parking rates result from a
combination of previously -approved modification of standards, project approvals when parking
standards were different, or due to reductions based on location factors, such as no minimum
parking requirements in the first iteration of the Transit Oriented Development Overlay Zone.
In addition to a review of local project parking rates, other national case studies provide additional
support to the applicant's claims that senior apartments typically generate lower parking demand
than what is customarily found at other multifamily projects. Beyond the applicant's Corcoran
report, a study of affordable housing projects in San Diego highlighted the correlation between
income and age of residents and a reduced need for parking.
The San Diego Affordable Housing Parking Study, completed in 2011, sought to examine the role
of parking demand and availability at over 30 affordable housing developments in the City using
data collected from over 2,700 household surveys, management surveys, and field observations.
The parking study's summarized findings include:
• Parking demand for affordable projects is about one half of typical rental units in San
Diego; almost half the units surveyed had no vehicle.
• Parking demand varies with type of affordable housing (i.e., Family Housing versus SRO);
higher demand is also associated with larger unit size and higher income.
• Household vehicle availability varies significantly with income; however, income may be
correlated with other project characteristics, such as project type and size.
■ Parking demand is less in areas with many walkable destinations and more transit service.
• In all of the projects studied, the amount of peak overnight parking used was less than the
amount supplied.
Such studies helped form the basis for recent legislative action in California that allows affordable
housing developments to build less parking than what many local regulations require based on the
age of residents and proximity to transit. Under California Assembly Bill 744, passed in 2015, the
minimum amount of parking required for a 100% senior affordable development with nearby
access to transit or paratransit is .5 spaces per unit.
While a review of national studies and approved parking rates at local projects provides strong
support to the applicant's claim of reduced parking demand based on project demographics, a
comparison of the proposed parking rate for Oakridge Crossing (.73 spaces / unit) to other local
projects reveals the rate is still amongst the lowest of comparable local projects. In evaluating
whether this level of parking proposed at Oakridge Crossing could meet project demand and was
safe, convenient, and efficient for the project site and vicinity, staff also conducted daytime and
nighttime parking counts and observations at seven local projects and three projects in Denver,
two of which include previously -developed properties by the applicant team.
In addition to the parking observations, the application of the Oakridge Crossing parking rate (.73
spaces / unit) was applied to each project to evaluate whether the observed parking demand at
each project could be met at proportionally the same level as what is being proposed at Oakridge
Crossing. Parking data and observational photos for each project are provided below:
Item # 2 Page 24
Agenda Item 2
the Modification would not be detrimental to the public good.
Criteria 2.8.2(H)(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.
As stated in the purpose of the Access, Circulation and Parking Land Use Code section, the
entirety of a project's parking and circulation system should be designed with regard to safety,
efficiency, and convenience for all travel modes. While the Land Use Code also speaks towards
designing for the user needs of each project, the minimum parking requirements set a base level
from which to judge whether a reduction in parking spaces has the potential to negatively impact
project and neighborhood safety, efficiency, and convenience.
A staff analysis of other local senior apartment projects, with an emphasis on senior apartments
providing affordable units, was completed to offer a comparison of project parking rates:
ApartmentSenior ..
lbr
2 br
3 br
Total
Units
Req.
Parking*
Parking
ProvidedComplex
%of Req.
Parking
Parking
Ratio (Unit)
Chalet Apartments
121 Dartmouth Trail
Fort Collins, CO 80525 14
21
3
38
64
57
89.4%
1.5
DMA Plaza
300 Remington Street
Fort Collins, CO80524
126
0
0
126
189
48
25.4%
0.38
Legacy Senior
413 N Linden Street
Fort Col lins, CO 80524
32
40
01
721
118
51
43.2%
0.71
MacKenzie Place'
4750 Pleasant Oak Drive
Fort Collins, CO 80525
26
60
10
96
164
100
61.0%
1.04
Oakbrookl
3200 Stanford Rd
Fort Collins, CO80524
102
5
0
107
162
108
66.8%
1.01
Oakbrook''
3200Stanford Rd
Fort Collins, CO80524
lool
0
0
1001
150
87
58.0%
0.87
Reflections Senior Apts
321 E Troutman Parkway
Fort Collins, CO 80525
48
24
0
72
114
90
78.9%
1.25
The Sanctuary
3720 Kunz Court
Fort Collins, CO80526
60
0
0
60
90
91
101.1%
1.52
Rigden farm Senior Living
2350 Limon Dr
Fort Col lins,CO80525
I
I 12SI
Min.190
72
52.60/.
0.57
Woodbridge Senior Apts
1508 W Elizabeth St
Fort Collins, CO 80521
40
10
0
So
78
50
64.5%
1.00
Oakridge Crossing
85
25
0
110
2721
80
46.5%
0.73
* Based on Current Land Use Code Parking Standards
Senior multifamily units only, excludes cottages & assisted living
Item # 2 Page 23
Agenda Item 2
Even if additional parking could be accommodated on the property, the cost would be prohibitive to
an affordable project that is dependent on financial assistance in the form of Federal tax credits,
private activity bonds, State of Colorado affordable housing tax credits and Federal Disaster Relief
Funds for its success, particularly when it is clear that such additional parking is not needed for
this type of project.
The need for affordable housing for seniors has long been identified as a high priority as
specifically identified in the following excerpts from elements of City Plan:
City Plan:
Principle LIV 8: The City will encourage the creation and expansion of affordable housing
opportunities and preservation of the existing affordable housing supply.
Policy LIV 8.5 — Integrate and Distribute Affordable Housing
Encourage the integration and distribution of affordable housing as part of individual
neighborhoods and the larger community rather than creating larger concentrations of
affordable units in isolated areas.
2010 Affordable Housing Strategic Plan:
-AHSP-12: The City will support project producing affordable units to serve persons with
disabilities, and "cost -burdened" senior citizens.
Based on the most significant affordable housing needs, four goals have been identified
and prioritized as follows: Goal #1) Increase the inventory of affordable rental housing
units.
- From the Conclusion: ...affordable housing must be elevated so it is discussed on par
with such topics as economic development, environmental protection, and public safety,
and included in any discussions involving those issues."
Housing Affordability Policy Study:
1.3 Findings:
1. Local employment growth has been stronger than regional growth, and incomes have
barely kept pace with the cost of living.
2.2.1: The percent of population between 45 and 75 years increased from 21 percent to 27
percent between 2000 and 2012... In actual numbers, 45 to 75 year -olds accounted for
more than 50 percent of the total population growth between 2000 and 2012...
2015-2016 City of Fort Collins Strategic Plan:
1.1 Improve access to a broad range of quality housing that is safe, accessible and
affordable.
• Residents identified housing affordability as a high priority during community outreach
sessions and in the 2013 Citizen Survey.
• Tight rental market with vacancy rates of less than 3% is making it difficult for low
income residents to live and work within Fort Collins. Several factors contribute to
affordability issues for a broad range of the population. A market study may be needed
to identify the factors and potential ways the City can mitigate them.
• Focus should be on both creating opportunities for ownership and access to affordable
rental units for all impacted residents. In addition, housing strategies should consider
the needs of a growing homeless population."
Staff Analysis & Findings:
Staff finds that the requested Modification of Standard to Section 3.2.2(K)(1)(a) to reduce the
minimum number of off-street parking spaces for the project's residential units from 172 to 80 is
justified by the applicable standards of Land Use Code Section 2.8.2(H), and that the granting of
Item # 2 Page 22
Agenda Item 2
...as the average age of residents increases, the number of trips and parking demand
decreases. This is an obvious affect (sic) of the aging process. Nursing beds require more
staff to service a patient needs than a more independent resident. When the proportion of
nursing beds to residential units increases, the amount of traffic and parking generally
increases. The economic well-being of residents increases the likelihood that they own a
car and thus drive and park. Lastly, bus shuttle%hauffeur service will provide an option to
the auto for residents keeping traffic and parking rates lower. Senior Housing Trip
Generation and Parking Demand Characteristics, Page 3.
The fact that Oakridge Crossing is designed for independent seniors and has no nursing beds,
coupled with the fact that Oakridge Crossing has a minimum age requirement of 62 years, and that
it is reserved for households earning between 30% and 60% of the area median income (AMI)
(annual incomes ranging from a low of $16,350/year for a single person to $37,380/year for a
family of 2), all indicate that providing fewer than the Land Use Code requirement (i.e..74 parking
spaces per dwelling unit as opposed to the LUC requirement for 1.5 and 1.75 spaces per
bedroom) would be an ample number of spaces to meet all of the project's parking demand.
...As noted in the Traffic Impact Study prepared by Matt Delich on March 11, 2016, the pedestrian,
bicycle, and transit levels of service at the site will all meet the City LUC requirements. Transfort
Route 16 on nearby Harmony Road provides service to the South Transit Center where
connections can be made to a number of Transfort routes and MAX and, in addition, the Power
Trail is located within the McMurray Avenue right-of-way in front of and along the site's west
property line, providing direct, safe, and convenient access to the entire City trail network. With all
of these alternatives available, the Oakridge Crossing residents will not have to rely as much on
car ownership.
Finally, the Applicant has conducted its own surveys of comparable senior housing complexes in
the Denver metropolitan area (i.e. projects that are exclusively for seniors 62 years of age or older,
with incomes between 30% and 60% of the AMI, and no nursing beds). At the two projects
surveyed, Dahlia Square in Denver and Confer Estates in Commerce City, only 61 % and 69% of
the residents, respectively, own vehicles. Dahlia Square, a complex with 128 apartments, provides
83 parking spaces or a ratio of .65 spaces per unit. Actual parking counts at Dahlia Square
indicate that at the time of the week when there are the most cars parked in the lot, the lot is only
75% full. At Confer Estates, where there are 114 apartments, a total of 96 parking spaces or .85
spaces per unit, are provided. Parking counts at Confer Estates indicate at the time of the peak
parking demand only 90% of the parking spaces are occupied. The results of these surveys
indicate Front Range senior affordable communities provide considerably less parking for its
residents than the Fort Collins LUC would require, and that even at this reduced rate, less than the
total number of spaces are ever occupied due, at least in part, to the relatively low rate of car
ownership for this demographic.
Addressing an Important Community Need
Oakridge Crossing, which provides affordable senior housing on an infill parcel close to services
with access to alternate modes of transportation, with a modification of the number of required off-
street parking spaces, would continue to promote the following purposes and intent of the Land
Use Code. As outlined in the following subsections of LUC Sec. 1.2.2:
(C) fostering the safe, efficient and economic use of the land, the city's transportation
infrastructure, and other public facilities and services.
(F) encouraging patterns of land use which decrease trip length of automobile travel and
encourage trip consolidation.
(G) increasing public access to mass transit, sidewalks, trails, bicycle routes and other
alternative modes of transportation.
(L) encouraging the development of vacant properties within established areas.
Item # 2 Page 21
Agenda Item 2
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.
Any finding made under subparagraph (1), (2), (3) or (4) above shall be supported by specific
findings showing how the plan, as submitted, meets the requirements and criteria of said
subparagraph (1), (2), (3) or (4)."
Summary of Applicant's Justification:
Due to overall length, a summary of the applicant's overall modification request and justification is
provided below in italics. The applicant's full narrative may be found as an attachment to this
report.
Request for Modification:
The Applicant requests that the Planning and Zoning Board approve a modification of the standard
that requires 172 off street parking spaces for the mutli-family portion of the project, and request
approval of the plan with 80 off street parking spaces.
Justification:
In support of its request, the Applicant asserts that the modification complies with two of the four
alternate standards: the plan promotes the purpose of the standard equally well or better than a
plan that meets the standard, and the plan addresses an important community need defined in the
City's plans and policies.
Promote the General Purpose of the Standard Equally Well or Better. The overall purpose of the
Land Use Code for Access, Circulation and Parking, found at LUC §3.2.2(A) is:
This Section is intended to ensure that the parking and circulation aspects of all developments are
well designed with regard to safely, efficiency and convenience for vehicles, bicycles, pedestrians
and transit, both within the development and to and from surrounding areas.
The parking standards of the LUC have one bedroom to parking spaces ratio that applies to all
mult-family developments regardless of the demographic of the residents; the same standards
applies for all possible mixes of residents, e.g. singles, couples, students, families of any size, and
senior citizens... While it is appropriate to encourage a mix of occupants, a housing community that
is age -restricted to individuals age 62 or older should be allowed to provide less off-street parking
if the actual need is less. Our research indicates that senior citizens require less parking than what
the Land Use Code standard would require for other types of projects.
Matt Delich of Delich & Associates has performed a Parking Demand Analysis, based on ITE
Parking Generation, 4`h Edition. This reference provides parking demand rates for a number of
specific land use categories including Senior Adult Housing. Using the Parking Generation's
average peak parking demand of .59 parking spaces for each Senior Adult Housing unit, the 110
residential units in Oakridge Crossing PDP would require approximately 65 spaces. Using either
the 85r" percentile demand of .66 spaces per unit, or the highest demand of .67 spaces per unit,
Oakridge Crossing would need to have 73 or 74 parking spaces to meet the demand. With the
project providing a total of 80 off-street parking spaces for the residential uses, there are still, even
using the highest parking demand, an excess of 6 spaces for the residential units.
The parking demands of senior housing vary significantly from traditional residential uses because
residents no longer have to be at work, pick up their children, or do their shopping at a specific
time. According to Senior Housing Trip Generation and Parking Demand Characteristics by
Stephen B. Corcoran, P.E., the author's experience with senior housing together with data
collected from senior housing projects around the United States concluded that the following
factors affect the demand for parking at a senior housing complex: age, affluence, number of
nursing beds and the availability of alternate transportation:
Item # 2 Page 20
Agenda Item 2
R. Section 3.2.2(J) - Setbacks
Vehicle area setbacks for the project exceed code minimums which require parking lots to be
setback a minimum of 10 feet along nonarterial streets and 5 feet alongside lot lines. Project
parking setbacks include 15 feet along McMurry Avenue and more than 20 feet along the northern
and western edges of the parking area abutting the raingarden. All setback areas are landscaped
according to requirements for perimeter parking with the exception of the parking area located
along the northern edge of the site, as consistent with provisions for shared parking areas.
S. Section 3.2.2(K) — Parking Lots - Required Number of Off -Street Spaces for Types of Use
Minimum parking requirements for Oakridge Crossing are based on both office and multifamily
standards. The ground floor office is 5,106 square feet in size, and is anticipated primarily as
general office space for senior support entities. A tenant such as an optometrist (medical office)
may also be a possibility.
Minimum parking requirements for general office is 1 space per 1,000 square feet or 2 spaces per
1,000 square feet for medical office. Using an average of 1.5 spaces to account for the potential of
a medical office use, minimum parking requirements for this project component amount to 7.6
spaces, and 8 commercially -designated spaces will be provided near the commercial entrances.
The project's multifamily component features 85 one -bedroom units and 25 two -bedroom units.
Studio and one -bedroom units require 1.5 spaces per unit and two -bedroom units require 1.75
spaces per unit. Combined, the Land Use Code requires 172 spaces for the residential units and
80 spaces are proposed. The applicant has submitted a Modification of Standard request to
Section 3.2.2(K)(1)(a) of the Land Use Code to provide 80 spaces for the project's residential
component.
Land Use Code Modification of Standard Criteria
"The decision maker may grant a modification of standard 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
Item # 2 Page 19
Agenda Item 2
which the plan will better accomplish the purposes of this Section than would a plan that
complies with the standards of this Section.
2.Review Criteria. To approve an alternative plan, the decision maker must first find that
the proposed alterative plan accomplishes the purposes of this Section equally well or
better than would a plan that complies with the standards of this Section.
In reviewing a request for an alternative number of bicycle parking spaces, the decision maker
must consider whether the proposed land use will likely experience a lower than normal amount of
bicycle traffic. Factors to be taken into consideration in making this determination may include, but
need not be limited to: (i) the nature of the proposed use; (ii) its location in relation to existing or
planned bicycle facilities or infrastructure; and (iii) its proximity to natural features that make the
use of bicycles for access to the project infeasible.
The applicant's alternative compliance request is based on project demographics, experience with
bicycle usage at other senior apartment projects they have developed, and interviews with a
property manager at a local senior apartment complex.
Although the on -street portion of the Power Trail runs in front of the project along McMurry Avenue
and there is a well -developed network of nearby on -street bike lanes, staff is recommending
approval of the alternative compliance for bicycle parking based on project demographics, which
will feature residents 62 years of age and older, which is much older than the typical multifamily
complex to which the typical bicycle requirements are tailored.
As documented below in staff's analysis of vehicle parking demand for the applicant's Modification
of Request for vehicle parking spaces, trip generation for low-income seniors is much lower than
other types of multifamily housing. Staff has also observed use and bicycle storage below
averages at other mixed -age apartment complexes. By way of comparison, DMA Plaza provides
one large bicycle rack for its 128 apartment units, and Legacy Senior Residences provides only 6
bike spaces for 72 apartment units.
For senior residents of Oakridge Crossing who do choose to use bicycles, the project proposes to
provide 58% of the minimum requirement, with almost 87% of these spaces in secure, enclosed
areas located in common areas throughout the building. Additional spaces are located in outdoor
fixed racks near building entrances. In addition to these personal bike parking spaces, the project
proposes the use of a small onsite bikeshare system where residents may check out two tricycles
with baskets and safety accessories for nearby errands.
The proposed amount and location of bicycle parking continues to meet the purpose for safe and
convenient bicycle access, and promotes and encourages alternative modes of transportation, but
is better tailored to the anticipated demand from a project specifically catering to an older
demographic with documented lower rates of trip generation.
Q. Section 3.2.2(C)(5) - Walkways
Site walkways meet Land Use Code requirements by providing direct connections from the
McMurry Avenue street sidewalk to all building entrances without having to cross drive aisles. All
project walkways are a minimum of 6 feet wide.
R. Section 3.2.2(E) - Parking Lot Layout
The layout of the parking lot and circulation system follow the `L-shaped' configuration of the site,
connecting from McMurry Avenue to the shared parking and driveways at the north edge of the
site. Project parking consists of perpendicular and parallel spaces, with the beginning and ends of
parking rows defined by landscaped islands. In addition, the parking lot has been broken up into
multiple segments and is not one large contiguous area.
Item # 2 Page 18
Agenda Item 2
K. Section 3.2.1(E)(5) — Parking Lot Interior Landscaping
Ten new landscaped islands are proposed in the project parking area providing the required 6%
interior parking lot landscaping. The landscaped islands are evenly distributed throughout the
parking area and include two new landscape islands along the existing row of parking on the
northern edge of the site. These two new landscape islands also satisfy current code requirements
for no more than 15 consecutive spaces of vehicle parking.
L. Section 3.2.1(F) — Tree Protection and Replacement
No existing trees are present on the project site or will be removed as part of the development
proposal. Existing trees located along or immediately inside adjacent property lines have been
documented on the landscaping plans, and all such trees are to remain.
M. Section 3.2.2(C)(1) - Safety Considerations
The interior project parking and circulation areas have been designed to enhance safety for
residents and visitors, with clearly delineated parking areas, and wide walkways connecting from
building entries to the public sidewalk system.
N. Section 3.2.2(C)(2) - Curbcuts and Ramps
Ramps from parking lot areas to project walkways are located throughout the project site in
relation to the distributed network of handicap parking spaces.
O. Section 3.2.2(C)(3) - Site Amenities
The project features site amenities promoting the use of alternative means of transportation
including amenities for bicyclists and pedestrians such as covered entryways, protected bicycle
parking, and walkway furniture such as benches.
P. Section 3.2.2(C)(4) - Bicycle Facilities
Bike parking for the project is based on the size types of land uses present as part of the proposal.
The commercial office space requires a minimum of four bicycle spaces, and the residential
component requires one space per bedroom, or a total of 135 spaces for 85 one -bedroom units
and 25 two -bedroom units.
The project is meeting required bicycle parking for the commercial office space by providing four
outdoor spaces in a fixed rack protected from the elements underneath canopies and a roof
overhang, in addition to an enclosed space located indoors. For the residential bicycle parking
spaces, the applicant is meeting the code requirement through alternative compliance.
The applicant's alternative compliance request is attached to this report, documenting the
provision of 78 bicycle parking spaces, with the majority of spaces, 65, enclosed spaces located
throughout common areas of the building. The remaining 13 spaces would be located in exterior
racks near residential entrances. Procedures and review criteria for alternative compliance are
copied in italics below:
Alternative Compliance. Upon written request by the applicant, the decision maker may approve
an alternative number of bicycle parking spaces that may be substituted in whole or in part for the
number that would meet the standards of this Section.
1.Procedure. The alternative bicycle parking plan shall be prepared and submitted in
accordance with the submittal requirements for bicycle parking plans. Each such plan shall
clearly identify and discuss the modifications and alternatives proposed and the ways in
Item # 2 Page 17
Agenda Item 2
D. Section 3.2.1(D)(2) - Street Trees
Four new canopy shade trees will be planted along the McMurry Avenue street frontage in a tree
lawn located between the sidewalk and street curb. The street trees are regularly spaced and
include varieties of Oak species as prescribed in the Harmony Corridor Standards and Guidelines.
The number, spacing, and size of street trees all meet Land Use Code requirements.
E. Section 3.2. i(D)(3) — Minimum Species Diversity
Of the 55 new trees proposed as part of the Oakridge Crossing development, the largest
concentration of one species is the 'Espresso' Kentucky Coffeetree at 14.2%, which is a lower
than the maximum concentration of a single species required by the Land Use Code.
F. Section 3.2.1(D)(4) — Tree Species and Minimum Sizes
The tree species to be planted have been reviewed by the City Forester and Environmental
Planning for suitability as street trees and for compliance with the recommended tree list for new
projects. As an affordable housing project, the Land Use Code allows for a reduction in the size of
new tree plantings, however; the project is proposing to plant project landscaping according to the
size of typical projects; 1.5-inch caliper ornamental trees, 2-inch caliper canopy shade trees, and
6-foot height evergreen trees, and 5 gallon shrubs.
G. Section 3.2.1(E)(1) — Buffering Between Incompatible Uses and Activities
The southern and eastern sides of the proposed projects are the sides closest to existing
development and activities. Side setbacks ranging between 20 and 28 feet in combination with
dense shrub plantings and canopy shade trees enhance the buffer between the two uses. New
tree plantings are limited along the eastern property line due to an existing line of mature shrubs
and canopy shade trees located on the adjacent property that already provide substantial
screening and cause shading and growth impairment for new trees on the project site.
H. Section 3.2. l (E)(2) — Landscape Area Treatment
All areas of the site not covered by structures or impervious surfaces are landscaped with a
combination of trees, shrubs, turf grass, rock cobble, and seed mixes. Special landscaping
emphasis has been placed along the McMurry Avenue frontage with formalized plantings
attracting attention to the plaza and entrance to the commercial spaces. 1%
1. Section 3.2. l (E)(3) — Water Conservation
The project's landscape plan has been designed to utilize native plants, limits high -irrigation turf
areas, and emphasizes low-water usage. The landscape plan includes hydrozone information, with
the majority of plantings classified with low watering needs.
J. Section 3.2. l (E)(4) — Parking Lot Perimeter Landscaping
Within the minimum landscaped setback areas for vehicle use areas, trees and shrubs have been
planted meeting Land Use Code requirements for parking lot perimeter landscaping. These
plantings include the trees and shrubs planted along the McMurry Avenue frontage as well along
the plantings along the northern and western edges of the parking area abutting the rain garden
and drainage area. Shrubs are planted in excess of the 70% perimeter area required and facilitate
the screening of vehicle headlights.
Parking and driveway areas continue to the north of the project site and do not feature new
perimeter landscaping treatment consistent with standards for shared parking areas defined in
Section 3.2.2(J).
Item # 2 Page 16
Agenda Item 2
F. Section 4.26(E)(2) Site Design
This Land Use Code section requires, to the extent reasonably feasible, applicants of multiple
parcel ownership and development to enter into cooperative agreements for the integration of
planned streets, outdoor spaces, building styles and land -uses. Portions of the Oakridge Crossing
development site were first included as part of the Oakridge Business Park 111" Filing, and the
subdivision plat included shared and cooperative easements for access, utilities, and storm
drainage. As part of this development proposal, these existing cooperative easements will be
continued and extended on the development site outside the original 11t" Filing boundaries outside
of the new building footprint. Portions of these easements dedicated for public use may need to be
vacated where they overlap with the new building footprint during final plan review if the proposed
project is approved at public hearing. Where other cooperative agreements exist, such as found in
private cross -access easements between neighboring properties or within the private Oakridge
Business Park Association covenants, conditions, and rules, the applicant will need the separate
approval or permission of those private entities.
Harmony Corridor site design standards also require employment or industrial uses abutting a
residential area to show no drastic or abrupt change in scale and height of buildings. While other
industrial and employment uses exist to the north, east, and south, a residential component exists
to the west of the site at the MacKenzie Place development, which includes a larger 3-story
building for assisted living and senior apartments, as well as single family cottages to the
southeast of the project site. In consideration of the smaller cottages, the portion of Oakridge
Crossing building closest to McMurry Avenue features a 1-story element fronting the street before
the building increases in height to 3-stories. Proximity of the three-story element of the proposed
building is also similar in distance between the MacKenzie Place cottages and the 3-story
MacKenzie Place apartment and assisted living building.
3. Compliance with Article 3 of the Land Use Code - General Development
Standards:
The project complies with all applicable General Development Standards as detailed below, with the
exception of Section 3.2.2(K)(1)(a), to which the applicants have submitted a Modification of Standard
request.
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 contained in the
following subsections.
B. Section 3.2.1(D) - Tree Planting Standards
A total of 55 new trees are planned on site in conjunction with the proposal, and will be evenly
distributed around the new building, in the parking lot, and in setback areas. The mix of evergreen,
ornamental and canopy shade trees will help establish an urban tree canopy and is consistent with
code requirements of this section.
C. Section 3.2.1(D)(1) — Minimum Plantings/Description
Project tree plantings will allow full tree stocking to occur, with the average spacing of new trees
between 20 to 40 intervals as required by this section. In addition, the project meets the minimum
landscaping standards for both interior and perimeter parking areas as detailed in subsequent
sections.
Item # 2 Page 15
Agenda Item 2
Business Park Association's role and maintenance of Tract A is centered on the drainage and
stormwater properties of Tract A, and was not intended as a park -like or gathering space amenity
for residents/members of the Oakridge Business Park Association, and that Tract A's full use is
governed by the covenants, conditions, and restrictions of the Oakridge Village PUD 7'h Filing
Association, and not those of the Oakridge Business Park Association.
As Tract A does not have a recorded public access easement and there are disagreements about
resident access between the other joint owners of the property, staff has concerns about the future
or ongoing access to Tract A by Oakridge Crossing residents. Were the modification to be
approved and a future determination was made that access for Oakridge Crossing residents was
not permitted, residents would be without a major amenity for passive or active recreation and the
purpose and intent of the standard would no longer be fulfilled.
Staff does not believe it is in a position to recommend approval of the modification for the use of
Tract A as fulfilling requirements as a park or gathering space for the Oakridge Crossing proposal
when long-term access to the area is not presently and definitively established. It would be
detrimental to the public good if future access for Oakridge Crossing residents were restricted and
they were left without another space meeting their needs for active and passive recreation.
If a determination is made to grant the modification, staff believes it should be made in conjunction
with the approval of the first modification request for on -site park or gathering space. If future
access to Tract A was then restricted in some manner, the on -site amenities would continue to
fulfill the purpose and intent of the park, central feature and gathering space standards found in
Land Use Code Section 4.26(D)(6).
Criteria 2.8.2(H)(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.
The Oakridge Crossing development, proposing to add 110 affordable units for seniors earning
between 30% and 60% of the area median income provides a substantial benefit to the City as
outlined in numerous principles, policies, and objectives of the City's comprehensive plan and the
Affordable Housing Strategic Plan. A full account of the specific principles, policies, and objectives
the project meets by proposing to develop affordable senior housing units can be found in staff's
analysis for the applicants first modification request on pages 12 and 13 of this staff report.
While staff believes a the project does substantially help alleviate a described problem of city-wide
concern and result in a benefit to the city through the development of additional affordable housing
option without impairing the intent and purpose of the Land Use Code, the granting of the
modification may be detrimental to the public good when access to the use of Tract A in the future
by Oakridge Residents remains in dispute between the private parties jointly owning and
maintaining the space. For reasons articulated in the evaluation of Criteria 2.8.2(H)(1) above, staff
is not recommending approval of the modification for the use of Tract A to fulfill requirements of
access to a park, central feature or gathering space. It would be detrimental to the public good if a
resolution of the dispute were made in the future and restricted access by Oakridge Crossing
residents, potentially leaving them without access to another amenity space.
If a determination is made to grant the modification, staff believes it should be made in conjunction
with the approval of the first modification request for on -site park or gathering space so as to leave
residents the benefit of on -site access to passive and active recreational opportunities if their
access to Tract A is restricted in the future.
Item # 2 Page 14
Agenda Item 2
Criteria 2.8.2(H)(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
Given the size of the area that is unsuitable to count towards the Land Use Requirement for a park
or gathering area due to limited visibility, staff does not recommend approval of the modification
based on the criteria and applicability of a nominal or inconsequential justification as found in LUC
2.8.2(H)(4).
The size of the gathering space that is not easily realistically visible to members of the public
amounts to approximately 3,773 square feet, or 37% of the required park and gathering area.
Further, this area could be construed as particularly hidden given its location at the rear of the
property abutting the building's rear facade. While these characteristics do not prevent the
beneficial and functional use of the area by residents as an amenity space for active or passive
recreation, staff believes it should not be recognized as a nominal or inconsequential deviation for
the purposes of visibility.
Staff Analysis & Findings (Modification Request Two):
Staff finds that the applicant's second modification request to Section 4.26(1))(6)(b)(3) based on
the lack of public accessibility to Tract A of the Oakridge Village PUD Seventh filing is justified by
the applicable standards of Land Use Code Section 2.8.2(H), but that the granting of the
modification may be detrimental to the public good. Staff does not recommend approval of the
applicant's second modification request due to present uncertainty over access for residents of
Oakridge Crossing to use Tract A.
Criteria 2.8.2(H)(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.
As indicated in staff's discussion and analysis for the applicant's first modification request, the
original purpose and intent of the park and gathering area requirement is more difficult to apply to
an infill site with a single -building, rather than a larger neighborhood -style development creating a
new system of streets and blocks. However, on the basis of the purpose of and intent of the
standard applied to infill, single -building developments for the provision of amenities and
opportunity for passive and active recreation, Tract A meets and exceeds this purpose by
providing a large area for walking, enjoyment of nature, picnic tables and benches, a playground,
and sports -field areas. Although Tract A is not open the public as required by the Land Use Code
standards, the general purpose is still being met for the Oakridge Crossing project if residents
have access to use the space.
Tract A was originally owned individually by the Oakridge Village PUD 71h Filing Association as a
manicured detention area. Additional park -like amenities were added later by Oakridge Village 71h
Filing Association. Due to increasing costs, Tract A eventually became jointly -owned by three
Oakridge Associations; the Oakridge Business Park Association, and the associations belonging
to the Oakridge Village PUD 71h Filing and Oakridge Village PUD 8th Filing. The three associations
have also entered into a long-term agreement for the maintenance and upkeep of Tract A.
The applicants have made the case for the use of Tract A by Oakridge Crossing residents as
members/tenants of the Oakridge Business Park Association and that association's joint
ownership and maintenance of Tract A. However, communications from the Oakridge Business
Park Association and residents and members of the Oakridge Village 7'h and 8th Filing
Associations dispute that future tenants of the Oakridge Crossing site have proper access to use
Tract A in a manner as an amenity for active or passive recreation. The contention is the Oakridge
Item # 2 Page 13
Agenda Item 2
help address the community's growing housing affordability concerns. Many of the policies and
objectives also specifically target additional affordable options for seniors, whose percentage of
the overall community population is expected to increase dramatically in the coming years.
While economic health and employment growth are also important goals of the City, the recent
Housing Affordability Policy Study completed in support of the Affordable Housing Strategic Plan
found that local employment growth has been stronger than the larger region, and over the past 14
years median household incomes have lagged increases in the cost of living, resulting in greater
portions of the community devoting are larger percentage of their income to housing. Further, as
indicated in the Affordable Housing Strategic Plan, the U.S. Department of Housing and Urban
Development data found approximately 2,474 cost -burdened elderly households earning less than
80% of the area median income in Fort Collins as of 2014.
Since the adoption of City Plan and the Affordable Housing Strategic Plan, concern about overall
community housing affordability has only continued to grow. In February 2016, a report from
RealtyTrac noted Fort Collins was ranked second nationwide among cities with the lowest vacancy
rates at less than 3%, with perhaps as few as 250 vacant rental units community -wide. The tight
rental market and above average rent and household price increases has made it more difficult to
afford housing in the community. This is of particular concern to seniors, whose percentage of the
overall population is growing rapidly. A list of affordable senior apartment developments compiled
by the Larimer County Office on Aging indicates most independent affordable senior apartment
complexes having waiting lists for new residents of 1 to 2 years.
To help address the growing affordability concerns, City Plan has adopted the following principles
and policies:
City Plan
• Policy LIV 7.5 — Address Special Needs Housing
Plan for and meet the housing needs of special populations within the community. Disperse
residential care facilities, shelters, group homes, and senior housing throughout the Growth
Management Area.
• Principle LIV 8 - The City will encourage the creation and expansion of affordable housing
opportunities and preservation of the existing affordable housing supply.
Policy LIV 8.5 — Integrate and Distribute Affordable Housing
Encourage the integration and distribution of affordable housing as part of individual
neighborhoods and the larger community rather than creating larger concentrations of
affordable units in isolated areas.
The 2015-2019 Affordable Housing Strategic Plan also contains the following objectives:
■ Produce as many new rental units affordable to households earning 50% of less of AMI as
possible
■ Incentivize new rental units affordable to households earning 60-80% of AMI
• Incentivize the production of affordable housing
■ 2015-2017 Actions: Support projects producing affordable units to serve cost -burdened
senior citizens
The combination of on -site indoor and outdoor amenities is suited towards meeting the specific
needs of a senior population. Although the visibility of the indoor amenities and those located
behind (east) of the building disqualify their inclusion towards meeting the strict application of the
gathering space standard, the intent and purpose of the Land Use Code is not impaired and the
development supports the many listed policies and objectives adopted by the City for the
development of new affordable housing units.
Item # 2 Page 12
Agenda Item 2
found only in the Medium Density Mixed -Use Neighborhood (MMN) district, where large scale
multifamily developments with many buildings and separate blocks were anticipated. In response
to an increase in multifamily developments several years ago, many of the MMN zone district
standards were incorporated into a new supplementary section of Article 3 for multifamily
development, and the specific park and gathering space standards were also incorporated into the
Employment and Harmony Corridor zone districts of Article 4 for projects containing a residential
component.
Read together with the illustrated block patterns for an MMN development, the original intent of the
standards were aimed at larger developments with multiple buildings creating a system of blocks
defined by public or private streets and a visible park or gathering area for residents as part of a
neighborhood -unit concept. As a single -building at an infill location within an established block, the
original purpose and intent of the standards are difficult to apply. Where this standard has been
applied since its incorporation into Article 3 for other infill multifamily developments on established
blocks, the purpose and intent has been to provide means for ensuring amenities and opportunity
for active and passive recreation for residents.
It is this amenity -driven aspect of the standard that the development plan continues to promote in
an equal manner. Outdoors, the development site contains plaza areas with seating, benches and
picnic tables in programmed landscape areas, a barbecue -patio, two smaller senior -oriented game
courts, and small -pet maintenance stations. Although some of these gathering space areas, such
as the barbecue -patio and game courts are not easily visible from streets, they remain beneficial
and functional areas for residents, with other on -site areas more highly visible by the public, such
as the plaza areas fronting entrances to the building or side yard seating and picnic tables that
could be utilized by nearby office employees.
In addition to these outdoor spaces, other senior -oriented amenities are also included interior to
the building in the form of a community gathering room, library, computer room, workout room and
craft space. These areas total approximately 2,100 square feet in size, and although these spaces
are also not fully visible and accessible to the public and ineligible to count towards the Land Use
Code requirement, it is additional amenity space for passive recreation specifically suited to meet
the functional needs of a senior population and will be available for year-round used, unlike some
of the outdoor spaces.
Summary of Gathering Space Areas:
Conforming outdoor gathering areas:
6,610 sf
Picnic tables, plaza seating, et -station areas
Nonconforming outdoor LUC gathering areas:
3,773 sf
(Barbecue -patio & game courts — do not meet LUC requirements for visibility)
Nonconforming indoor LUC gathering areas:
2,154 sf
(Community room, library, computer room, workout room, craft room — do not
meet LUC requirements for visibility)
Criteria 2.8.2(H)(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.
The proposed development includes 110 new affordable residential units for seniors age 62 and
older earning between 30% and 60% of the area median income. Recently completed studies and
adopted plans, including City Plan and the Housing Affordability Policy Study contain principles,
policies, and objectives to encourage and support the creation of new affordable housing units to
Item # 2 Page 11
Agenda Item 2
Justification:
In support of its request, the Applicant asserts that the modification complies with two of the four
alternative standards: the plan promotes the purpose of the standard equally well or better than a
plan that meets the standard, and the plan addresses an important community need defined in the
City's plans and policies.
Promote the General Purpose of the Standard Equally Well or Better
The overall purpose of the Harmony Corridor District, including the standard for access to park,
central feature or gather place, found at LUC §4.26(A), is
The Harmony Corridor District is intended to implement the design concepts and land use
vision of the Harmony Corridor Plan — that of creating an attractive and complete mixed
use area with a major employment base. (emphasis added)
From page 3-2 of Chapter 3: Land Use, are the following statements of 'intent" of the Harmony
Corridor Plan:
Promote the development of the corridor as a high -quality, self-contained and compact
business center... provide shopping and service areas convenient to residents and
employees of the corridor (emphasis added)
From The Vision for Land Use on page 3-5 of the Harmony Corridor Plan, we find the following
general purpose statements:
It should also include a mixture of land uses including open space, residential, office,
recreational, and retail activities. (emphasis added)
From these statements, the purpose of the LUC requirement for proximity to a privately owned
park with public access is so that residents of the neighborhood will have the opportunity to
experience the outdoors, either actively or passively, conveniently within their own neighborhood.
There are a number of public City parks and golf courses within a mile of Oakridge Crossing:
Landings Park, Warren Park, Collindale Golf Course, Golden Meadows Park, Southridge Golf
Course, Fossil Creek Community Park and Miramont Park. The Applicant proposes that, in
addition to having access to these facilities, close and easy access to Tract A, together with the
smaller on -site area within the detention area, promotes the purpose of the standard equally well
or better than a plan that strictly complies with all of the requirements for access to a park, central
feature or gathering place.
Addressing an Important Community Need
Please see the nearly -identical justification utilized by the applicants above regarding Modification
Request One on staff report pages 8 and 9.
Staff Analysis & Findings (Modification Request One):
Staff finds that the applicant's first modification request to Section 4.26(D)(6)(b)(2) based on the
visibility of private on -site park or gathering areas is justified by the applicable standards of Land
Use Code Section 2.8.2(H), and that the granting of the modification would not be detrimental to
the public good.
Criteria 2.8.2(H)(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.
The requirement for a central feature or gathering space is a recent requirement in the Harmony
Corridor district. The original standards for such central features or gathering spaces used to be
Item # 2 Page 10
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Agenda Item 2
2010 Affordable Housing Strategic Plan:
-AHSP-12. The City will support project producing affordable units to serve persons with
disabilities, and "cost -burdened" senior citizens.
Based on the most significant affordable housing needs, four goals have been identified
and prioritized as follows: Goal #1) Increase the inventory of affordable rental housing
units.
- From the Conclusion: ... affordable housing must be elevated so it is discussed on par
with such topics as economic development, environmental protection, and public safety,
and included in any discussions involving those issues."
Housing Affordability Policy Study:
1.3 Findings:
1. Local employment growth has been stronger than regional growth, and incomes have
barely kept pace with the cost of living.
2.2.1: The percent of population between 45 and 75 years increased from 21 percent to 27
percent between 2000 and 2012... In actual numbers, 45 to 75 year -olds accounted for
more than 50 percent of the total population growth between 2000 and 2012...
2015-2016 City of Fort Collins Strategic Plan:
1.1 Improve access to a broad range of quality housing that is safe, accessible and
affordable.
• Residents identified housing affordability as a high priority during community outreach
sessions and in the 2013 Citizen Survey.
• Tight rental market with vacancy rates of less than 3% is making it difficult for low
income residents to live and work within Fort Collins. Several factors contribute to
affordability issues for a broad range of the population. A market study may be needed
to identify the factors and potential ways the City can mitigate them.
• Focus should be on both creating opportunities for ownership and access to affordable
rental units for all impacted residents. In addition, housing strategies should consider
the needs of a growing homeless population."
The project's provision of over 10,000 square feet of on -site gathering space, even with the minor
modification regarding the visibility of a part of the space and, to the extent needed, the
modification regarding the contiguity of the space, would not seem to overshadow the great benefit
to the senior and lower income members of our community that will result from the approval of the
project.
Nominal and Inconsequential Deviation from the Standard
The majority of the gathering space is visible from McMurry Avenue. The remainder of the space,
namely the East Patio Area is visible from private drives and access ways and other
office/industrial buildings within this part of the Oak Ridge Business Park, but has more limited
visibility from a street (Innovation Drive). It is the Applicant's position that having a more limited
visibility of the East Patio Area from Innovation Drive is a nominal and inconsequential deviation
from the requirement when considered from the perspective of the entire development.
Finally, the Oakridge Crossing plan as modified by this request for a modification will continue to
advance the following purposes of the Land Use Code as contained in Section 1.2.2:
(C) fostering the safe, efficient and economic use of the land, the city's transportation
infrastructure, and other public facilities and services.
(F) encouraging patterns of land use which decrease trip length of automobile travel and
encourage trip consolidation.
(G) increasing public access to mass transit, sidewalks, trails, bicycle routes and other
Item # 2 Page 8
Agenda Item 2
Promote the General Purpose of the Standard Equally Well or Better
The Applicant proposes that the outdoor gathering spaces with recreational amenities within the
development promote the purpose of the standard equally well or better than a plan that has all of
the gathering space highly visible from the street and, to the extent required, a plan with one
contiguous gathering space. Even though less visible from a street, the East Patio Area still meets
all of the other criteria and provides a beneficial recreational amenity. The dispersed gathering
spaces on the property are equal to or better than a large gathering space for senior citizens
because they are more intimate, more conveniently accessed, can be seen and accessed by the
neighborhood easier, and serve to activate multiple sides of the building with their human
presence. Additionally, all but one of the gathering spaces are directly adjacent to the building,
providing direct and convenient access to residents without crossing a drive aisle or parking lot.
Big parks are great for playing football, soccer and other large field games, but seniors tend to
prefer spaces that are more familiar, quieter, and more intimate, and the diversity of the spaces at
Oakridge Crossing allows for a diversity of uses, some more active while others more passive.
In addition to the great on -site outdoor spaces, the Oakridge Crossing building will house a variety
of indoor gathering and recreational spaces that will be available for resident use twenty-four hours
a day, all yearlong:
Community Room 893 sf
Arts-n-Crafts Room 378 sf
Library 286 sf
Billiards Room 269 sf
Workout Room 178 sf
Computer Lab 150 sf
Total 2,154 sf
Addressing an Important Community Need
Oakridge Crossing, which provides affordable senior housing on an infill parcel close to services
with access to all modes of transportation, with a modification of the parkland requirement, would
continue to promote the following purposes and intent of the Land Use Code, as outlined in the
following subsections of LUC Sec. 1.2.2:
(C) fostering the safe, efficient and economic use of the land, the city's transportation
infrastructure, and other public facilities and services.
(F) encouraging patterns of land use which decrease trip length of automobile travel and
encourage trip consolidation.
(G) increasing public access to mass transit, sidewalks, trails, bicycle routes and other
alternative modes of transportation.
(L) encouraging the development of vacant properties within established areas.
The need for affordable housing for seniors has long been identified as a high priority as
specifically identified in the following excerpts:
City Plan:
Principle LIV 8: The City will encourage the creation and expansion of affordable housing
opportunities and preservation of the existing affordable housing supply.
Policy LIV 8.5 — Integrate and Distribute Affordable Housing
Encourage the integration and distribution of affordable housing as part of individual
neighborhoods and the larger community rather than creating larger concentrations of
affordable units in isolated areas.
Item # 2 Page 7
Agenda Item 2
Land Use Code Modification of Standard Criteria
"The decision maker may grant a modification of standard 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.
Any finding made under subparagraph (1), (2), (3) or (4) above shall be supported by specific
findings showing how the plan, as submitted, meets the requirements and criteria of said
subparagraph (1), (2), (3) or (4)."
Summary of Applicant's Justifications:
Due to overall length, only selected portions of the applicant's modification requests are provided
in italics below. The first of the applicants modification requests ('Modification Request One') is
related to the visibility of gathering spaces provided on -site, while the second request
('Modification Request Two') is related to the public accessibility and use of Tract A south of the
development site. The applicants' full modification request narratives may be found as
attachments to this staff report.
Modification Reauest One:
The Applicant requests that the Planning and Zoning Board approve a modification of LUC
4.26(D)(6) to the extent that is requires the gathering space to be a contiguous area, and a
modification from the requirements of 4.26(D)(6)(b)(2) that would require all of the on -site
gathering space to be easily visible from the street.
Justification:
In support of its request, the Applicant asserts that the modification complies with three of the
alternate standards: the plan promotes the purpose of the standard equally well or better than a
plan that meets the standard, • the plan addresses an important community need defined in the
City's plans and policies; and the plan only diverges from the standard in a nominal and
inconsequential way.
Item # 2 Page 6
Agenda Item 2
C. Section 4.26(D)(3) — Dimensional Standards
The project proposes a 3-story building, under the maximum height limit of 6-stories for
nonresidential buildings, including those containing mixed -use dwellings. The new building will be
100,489 square feet, which is over the 80,000 square foot size threshold requiring Planning and
Zoning Board review.
D. Section 4.26(D)(4) — Density/Intensity
The Harmony Corridor requires all residential development to have a minimum density of seven
dwelling units per net acre. The proposed development includes 110 multifamily units on 2.61
acres, or a density of 42 units per acre, above the zone district minimum requirement.
E Section 4.26(D)(6) — Access to a park, central feature or gathering place
Any project containing a residential component in the Harmony Corridor zone district must include
access to a park, central feature or gathering space, either on the development site or located
within a quarter mile. If utilizing a private park or gathering space, the following Land Use Code
sub -criteria also applies:
1. Size. In development projects greater than two (2) acres in gross area, such private parks must
be a minimum of ten thousand (10,000) square feet. In development projects with a gross area of
two (2) acres or less, such private parks must be a minimum of six (6) percent of the gross site
area.
2. Location. Such parks must be highly visible, secure settings formed by the street layout and
pattern of lots and easily observed from streets. Rear facades and rear yards of dwellings shall not
abut more than two (2) sides or more than fifty (50) percent of the perimeter frontage of the park.
3. Accessibility. All parts of such parks shall be safely and easily accessible by pedestrians, and
open to the public.
4. Facilities. Such parks shall consist of multiple -use turf areas, walking paths, plazas, pavilions,
picnic tables, benches or other features for various age groups to utilize.
5. Ownership and Maintenance. Such parks may, in the discretion of the City, be acquired by the
City (through dedication or purchase), or be privately owned and maintained by the developer or
property owners' association.
6. Storm Drainage. When integrating storm drainage and detention functions to satisfy this
requirement, the design of such facilities shall not result in slopes or gradients that conflict with
other recreational and civic purposes of the park.
The Oakridge Crossing development proposes on -site amenities including patio and plaza areas,
picnic and bench seating areas, game -courts, and pet stations designed to meet the central
feature or gathering space requirements, however; portions of these areas do not meet the strict
interpretation of a gathering area that is fully visible/accessible to the public, and the applicants
have requested a modification of standard to these Land Use Code criteria. In addition, a separate
modification of standard is requested by the applicants related to the public accessibility of a
common detention and turf area qualifying as a private gathering area or park within a quarter mile
south of the development site known as Tract A of the Village PUD Seventh Filing.
Provided below, in order, are the modification of standard criteria found in the Land Use Code, a
summary of the applicant's two separate modification requests, and staff's evaluation of the
modification requests.
Item # 2 Page 5
Agenda Item 2
2. Compliance with Article 4 of the Land Use Code — Harmony Corridor (H-C),
Division 4.26:
The project complies with all applicable Article 4 standards as detailed below, with the exception of Section
4.26(D)(6)(b), to which the applicants have submitted two concurrent Modification of Standard requests.
A. Section 4.26(B)(2) - Permitted Uses
The Oakridge Crossing project proposes mixed -use dwellings consisting of 110 multifamily
residential units and 5,106 square feet of ground floor office space. Mixed -use dwellings are
typically subject to Administrative review in the Harmony Corridor zone district; however, the
proposed building size is greater than 80,000 square feet, requiring Planning and Zoning Board
review consistent with the Harmony Corridor zone district dimensional standards found in Section
4.26(D)(3)(b).
B. Section 4.26(D)(2) — Secondary Uses
The Harmony Corridor zone district categorizes land uses as either primary or secondary, with
secondary uses such as residential, retail, and hotels limited to 25% of the total gross area of a
development plan. The conforming 75% primary and 25% secondary land use designations were
already established for this site as part of the Oakridge Business Park Overall Development Plan,
which designated this location for primary uses.
While stand-alone residential uses are classified as secondary uses in the Harmony Corridor zone
district, mixed -use dwellings are an exception when the residential units are stacked above a
primary use occupying the ground floor. The proposal includes office space on the ground floor
with residential units above, constituting a mixed -use building consistent with the primary and
secondary use standards of the Harmony Corridor district.
The project would be one of the first examples of vertical mixed -used with a residential component
in the Harmony Corridor as encouraged and envisioned by both the Harmony Corridor Plan and
City Plan. The 5,106 square feet of ground floor office space fronting McMurry Avenue provided as
part of the project represents approximately 2,000 square feet of primary office space per acre
given the 2.6-acre development site. This amount of office space provided per acre is similar to
some other nearby professional office and financial service offices developed in the Harmony
Corridor and Employment zone districts.
This code section also requires secondary uses to be integrated in both appearance and function
into the larger employment area. The project has been designed with the office use and
commercial building design elements fronting McMurry Avenue. These elements include a plaza
space, masonry building base, commercial storefront windows, and a commercial -style window
fenestration pattern on the floors above containing residential units. The building and site have
been developed to appear as a commercial structure when viewed from McMurry Avenue.
In function, the project continues the established network of access, utility, and drainage
easements originally anticipated for this site and the neighboring parcels to the north and
northeast. The existing parking aisle and driveways on the northern edge of the site will be
maintained and continue to function to serve the parking and garage -access needs of the
surrounding properties. For the building to the west of the project site, a 30-foot unobstructed
access area has been maintained for garage access, which exceeds the 20-feet originally left
between this building and the original building envelope as envisioned in the Oakridge Business
Park 11`h Filing. While elements of the northern parking aisle will be upgraded to meet current
Land Use Code standards, the new design continues to support the functionality of this rear
parking area as a parking courtyard and access for the commercial and industrial buildings sharing
the space.
Item # 2 Page 4
Agenda Item 2
In 2000, a new Overall Development Plan (ODP) was approved by the Planning & Zoning Board that classified
remaining vacant lands in the Oakridge area for either primary or secondary uses. Consistent with the Harmony
Corridor Plan, the Harmony Corridor zone district, and the Land Use Code, at least 75% of the remaining land
shown in the ODP was reserved for primary uses emphasizing employment, including the Oakridge Crossing site.
The ODP lists primary uses as research facilities, laboratory and light -industrial uses, a variety of offices, clinics,
and any other uses of similar character as determined by the Planning and Zoning Board.
A summary of zoning and adjacent land -uses near the project site are summarized in the table below, and a
zoning vicinity map is provided on the following page:
Direction
Zone District
Existing Land Uses
North
Harmony Corridor (H-C)
Light -Industrial & Professional Office
South
Harmony Corridor (H-C)
Light -Industrial & Professional Office
East
Harmony Corridor (H-C)
Light -Industrial & Professional Office
West
Harmony Corridor (H-C)
Assisted Living, Senior Multifamily Dwelling
Units, Senior Single -Family Dwelling Units
Zoning Map: Oakridge Crossing Vicinity
1 inch = 500 feel
Oakridge Crossing
Item # 2 Page 3
Agenda Item 2
OWNER: McDermott Properties, LLC c/o Mike Lengen
7200 S. Alton Way, Suite A310
Centennial, CO 80112
RECOMMENDATION: Approval
EXECUTIVE SUMMARY
EXECUTIVE SUMMARY
Staff finds the proposed Oakridge Crossing Project Development Plan complies with the applicable requirements
of the City of Fort Collins Land Use Code (LUC), 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 is in conformance with the Oakridge Business Park Overall Development
Plan, approved in September 2000.
■ The Modifications of Standard complies with the process located in Division 2.8.2 — Modification Review
Procedures.
• The Project Development Plan complies with relevant standards located in Article 3 — General
Development Standards, provided that the Modification of Standard to Section 3.2.2(K)(1)(a), Required
Number of Off -Street Spaces for Type of Use, is approved.
• The Project Development Plan complies with relevant standards location in Division 4.26, Harmony
Corridor District (H-C) of Article 4 — Districts, provided that either the Modification of Standard to Section
4.26(D)(6)(b)(2), Privately Owned Parks, Location or Section 4.26(D)(6)(b)(3) Privately Owned Parks,
Accessibility, is approved.
COMMENTS:
1. Background
The project site was annexed into the City as part of the Keenland Annexation in 1980. Throughout the 1980's,
several nearby sites began to develop primarily as business and light industrial uses, including sites to the north
and northeast of the Oakridge Crossing development site.
In 1989, the Oakridge Business Park Eleventh Filing was approved and encompassed the northern portion of the
Oakridge Crossing development site, as well as areas to the north and northwest. As part of the eleventh filing plat,
a building envelope was created on the northern portion of the Oakridge Crossing site which will be removed as
part of a new subdivision plat filed with this proposal. After the original eleventh filing was approved, a separate
minor amendment to the eleventh filing was also approved to allow for the construction of parking rows on the
northernmost edge of the Oakridge Crossing site that is shared amongst the properties and businesses located to
the northeast and northwest. This parking aisle is proposed to remain as part of this development proposal.
In 1990, a large master plan for Oakridge and Oakridge West was approved by the Planning and Zoning Board for
a mixed -use development area. On the master plan, the Oakridge Crossing site and the immediate area were
designated for industrial or business uses; however, separate notes on the master plan indicated flexibility for
alternate land uses to account for changing market conditions, and that multifamily dwellings could be integrated
into parcels labeled for non-residential uses.
Item # 2 Page 2
Agenda Item 2
PROJECT NAME
OAKRIDGE CROSSING PROJECT DEVELOPMENT PLAN, PDP160009 AND MODIFICATION OF
STANDARDS TO SECTION: 4.26(D)(6)(B)(2) — LOCATION OF A PUBLIC PARK, CENTRAL FEATURE, OR
GATHERING SPACE, 4.26(D)(6)(B)(3) — ACCESS TO A PUBLIC PARK, CENTRAL FEATURE, OR
GATHERING SPACE, 3.2.2(K)(1)(A) - REQUIRED NUMBER OF OFF-STREET PARKING SPACES FOR TYPE
OF USE
STAFF
Ryan Mounce, Associate Planner
PROJECT INFORMATION
PROJECT DESCRIPTION: This is a request for consideration of a Project Development Plan for the
construction of a mixed -use building on a vacant 2.6-acre site located at 4706
McMurry Avenue. The site is located in the Harmony Corridor (H-C) zone district
and within the boundaries of the Oakridge Business Park Overall Development
Plan (ODP). Primary access to the site occurs using a shared driveway entrance
located on the east side of McMurry Avenue near the intersection with Pleasant
Oak Drive. Secondary access to the site may occur utilizing a shared driveway
and parking area located at the northeastern corner of the site leading to
Oakridge Drive and Innovation Drive.
The proposed 3-story, 100,469 square foot building will contain 110 affordable
multifamily units for seniors age 62 and older earning between 30% and 60% of
the Area Median Income (AMI). The ground floor of the proposed structure
contains 5,106 square feet of office space fronting McMurry Avenue, multifamily
units, and indoor resident community space and a management office supporting
the building's apartment units.
Three modification of standard requests accompany the proposal; the first two
modification requests concern Sections 4.26(D)(6)(b)(2) and 4.26(D)(6)(b)(3) of
the Land Use Code, requiring public visibility and accessibility to areas meeting
the project's requirements for a park, central feature or gathering space. These
modifications request the use of on -site gathering space that not visible to the
public and the use of an off -site private park or gathering space that is not open to
the public. The third modification relates to Section 3.22(K)(1)(a) of the Land Use
Code requesting a reduction in the number of required minimum vehicle parking
spaces for the project's residential units. The 110 apartment units require 172
spaces and 80 are proposed.
APPLICANT: Terence Hoaglund
Vignette Studios
PO Box 1889
Fort Collins, CO 80522
Item # 2 Page 1