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HomeMy WebLinkAboutLAKEVIEW - PDP - PDP130026 - REPORTS - RECOMMENDATION/REPORTITEM NO 1. MEETING DATE November 7, 2013 STAFF Ted Shepard HEARING OFFICER Planning Services 281 N College Ave – PO Box 580 – Fort Collins, CO 80522-0580 fcgov.com/developmentreview/ 970.221.6750 STAFF REPORT Project: Lakeview Subdivision P.D.P., #PDP130026 Applicant: Todd Amberry and Mike Cooper Century Communities 8390 E. Crescent Parkway, Suite 650 Greenwood Village, CO 80111 Owner: Same Project Description: This is a request for a subdivision consisting of 42 lots for single family detached homes located on 11 acres on the east side of the Christ Center Community Church at 2700 South Lemay Avenue. All lots would meet or exceed 6,000 square feet which is the minimum requirement in the R-L, Low Density Residential zone district. The P.D.P. includes two requests for Modification of Standard. The first would be to allow a 15 foot front setback instead of a 20 foot front setback but only for the front porches or side-loaded garages. [Land Use Code Section 4.4(D)(2)(b)]. The second Modification would be to allow a street-facing garage door to be recessed from a side-loaded garage instead of the ground floor living area portion of the house or a front porch but only on certain house models. [(Land Use Code Section 3.5.2(F)(1)]. On July 24, 2013, a stand-alone Request for Modification to Section 4.4(D)(1) was approved, subject to conditions, to allow houses at a variety of sizes all of which would result in lot sizes having less than three times the floor area of houses but not less than 6,000 square feet. The Modification allows for lots to be no less than 1.75 times the house sizes. Recommendation: 1. Approval of the Modification to Section 4.4(D)(2)(b) 2. Approval of the Modification to Section 3.5.2(F)(1) 3. Approval of the Project Development Plan Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 2 Executive Summary: The P.D.P. complies with the requirements of the R-L zone with one exception and with the general development standards of Article Three also with one exception. These two Modifications have been evaluated and found to meet the criteria per Section 2.8.2(H). COMMENTS: 1. Background: The surrounding zoning and land uses are as follows: N: R-L; Parkwood Estates S: R-L; Eastborough Subdivision, City of Fort Collins Stormwater Detention Pond E: R-L; Silverwood Village Second Filing, Eldorado Springs Second Filing W: N-C; Scotch Pines Village Shopping Center NW: E; Woodward Governor The property was included in the 76-acre Vance First Annexation in 1976. The First Christian Church Master Plan was approved in 1980. First Christian Church P.U.D. was approved in 1980 and contained 28,754 square feet. An addition was approved in 1984 containing 12,768 square feet bringing the total up to 41,522 square feet. In October of 2009, Christ Center Community Church requested a rezoning of the entire 25 acre campus from R-L to L-M-N with no specific end-user in mind. The Planning and Zoning Board deliberated and as it became evident that the request would fail on a three-to-three vote, the Church requested the item be tabled indefinitely. In July of 2012, a Request for an Addition of Permitted Use and P.D.P. to allow Multi- Family Dwellings, in the Low Density Residential (R-L) zone district was approved by the Planning and Zoning Board. In November of 2012, City Council considered an appeal of the Request for this Addition of a Permitted Use and P.D.P. and overturned the decision of Planning and Zoning Board. As mentioned, on July 24, 2013, a stand-alone Request for Modification to Section 4.4(D)(1) was approved, subject to conditions, to allow houses at a variety of sizes all of which would result in lot sizes having less than three times the floor area of houses but Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 3 not less than 6,000 square feet. The Modification allows for lots to be no less than 1.75 times the house sizes and is valid for one year. 2. Modification to Section 4.4(D)(1) – Conditions of Approval: The approval of the Request for Modification to Section 4.4(D)(1) on July 24, 2013 was subject to four conditions. These conditions, and their resolution as demonstrated by the Lakeview Subdivision P.D.P., are summarized as follows: A. The Modification shall be applicable to the subject property only. The Modification is applicable only to Lakeview Subdivision. The boundary of the Lakeview Subdivision is identical to the boundary associated with the Modification. B. The applicant shall submit a P.D.P. within one year of the decision. The Modification was granted on July 24, 2013. The application for Lakeview Subdivision was accepted on August 28, 2013. C. The P.D.P. shall be consistent with the exhibits provided in consideration of the Modification and shall not include more than 42 lots. The P.D.P. contains 42 lots. D. The P.D.P. must demonstrate that the there be a minimum lot area of 1.75 times the floor area of the house, excluding basements and garages, but not less than 6,000 square feet. All lots within the P.D.P. are 6,000 square feet or larger, and the lots are at least 1.75 times the floor area of the house, excluding basements and garages. This prescribed ratio would allow a maximum house size of 3,428 square feet to be placed on the minimum required 6,000 square foot lot. All four models are able to comply with the terms of the Modification on all lots. 3. Compliance with Section 4.4 – Low Density Residential Zone District: A. Section 4.4(D)(2)(a) – Dimensional Standard – Minimum Lot Width A minimum lot width of 60 feet is required. All lots meet or exceed the 60-foot lot width minimum. Lots 7 and 39 are located at the curvature of the street and are pie-shaped Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 4 and contain 12,640 and 8,045 square feet respectively but do not provide for 60 feet of lot width at the front property line. The Land Use Code anticipates and accommodates pie-shaped lots on cul-de-sacs by use of the following definition: “Lot width shall mean the horizontal (plan view) distance between the side lot lines as measured along a straight line parallel to the front lot line or the chord thereof. The minimum lot width shall be measured between the side lot lines along a line that is parallel to the front lot line and located at the minimum front setback distance from the front lot line. In the case of cul-de-sac lots, the minimum lot width may be measured between the side lot lines along a line that is parallel to the front lot line and located at the actual front building line.” To compensate for their shape, these lots are over-sized to accommodate any of the four proposed models. This arrangement is the typical solution for cul-de-sac lots found in most residential neighborhoods. B. Section 4.4(D)(2)(b) – Dimensional Standard – Minimum Front Yard Setback The minimum setback of the front yard is required to be 20 feet. The applicant has requested a Modification of Standard to allow a 15 foot minimum front yard setback to the front porch and only for those models that feature a side-loaded garage. The analysis of this Modification follows in a separate sub-section. C. Section 4.4(D)(2)(c) – Dimensional Standard – Minimum Rear Yard Setback The minimum setback of the rear yard is required to be 15 feet. All four house models will exceed this standard. D. Section 4.4(D)(2)(d) – Dimensional Standard – Minimum Side Yard Setback The minimum setback of the side yard setback is 15 feet on the street side of any corner lot and 5 feet for all interior side yards. All four models will comply or exceed these standards. E. Section 4.4(D)(2)(e) – Dimensional Standard – Maximum Building Height The maximum building height is 28 feet. All four models comply with this standard. Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 5 4. Request for Modification – Section 4.4(D)(2)(b) – Minimum Front Yard Setback: A. The standard at issue: The minimum setback of the front yard shall be twenty (20) feet. B. Applicant’s Request and Justification: The applicant is requesting a 15 foot setback for front porches and side-loaded garages for all models resulting in a five foot decrease from the standard. The applicant contends that front porches and side-loaded garages are attractive and well-designed while at the same time maintaining a minimum 20 foot setback to the street-facing garage so that there is no vehicle overhanging the sidewalk. The applicant contends that the project is upgraded by offering four models versus the required three [Section 3.5.2(C)(1)]. In addition, the streetscape is upgraded with front porches are that are covered with functional dimensions that range in size (6’x9’, 7’x10, 6’x18 and 8’x45’). Side-loaded garages feature residential components facing the street such as pitched roofs, windows, shutters, masonry, wainscoting and decorative window headers and air vents. The applicant also contends that, overall, the subdivision includes development components that exceed that which is found in most existing R-L neighborhoods. These features include detached sidewalks versus attached, parkways with street trees, front porches and street-facing garages that are recessed by four feet. In addition, the applicant contends that a 15 foot setback is allowed under Section 3.5.2(E)(2) which, as an Article Three General Development Standard, has governed all single family development in the L-M-N zone since 1997, but is superseded by Section 4.4(D)(2)(b) because Article Four standards are considered more specific. Finally, the applicant contends that by moving the front porches and side-loaded garages forward by five feet, additional rear yard area is gained for Lots 7 – 17 which adjoin the existing neighborhood to the east. The applicant contends that voluntarily increasing this rear yard dimension over the minimum standard that may range between 2 – 21 feet represents a response to public input from the neighborhood meeting regarding enhancing compatibility where possible. C. Staff Analysis As proposed, Lakeview Subdivision includes development features not typically found in the existing R-L neighborhoods. This is because the R-L zone was established primarily for the benefit of existing neighborhoods at the time of adoption of City Plan in Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 6 1997. All new City Plan neighborhoods developed since 1997 are zoned L-M-N, Low Density Mixed-Use Neighborhood, in order to implement the principles of new urbanism. So by introducing new urbanism features, the applicant is upgrading the subdivision over the R-L baseline with current design principles. While placing a single family detached neighborhood next to existing single family detached neighborhoods is generally considered compatible on its face, the public input from the existing neighborhoods indicates that compatibility could be enhanced by increasing the rear yard setbacks along the east property line. These setbacks have the potential of exceeding the required minimum of 15 feet by a range of 17 – 36 feet depending on the selected house model. D. Staff Findings Staff finds that the size of the covered front porches and the design of the street-facing elevation of the side-loaded garages located 15 feet from the front property line is equal to or better than a small, uncovered front porch and a street-facing garage that are 20 feet from the front property line. This is because the design features as proposed at 15 foot setback will enhance the streetscape and neighborhood character over that which would otherwise be allowed at 20 feet. In addition, Lakeview Subdivision, by virtue of being an infill project with no opportunity for street connections into the surrounding neighborhoods, would not be impacting any established character where porches and garages are setback by 20 feet. By being self-contained, there is no negative impact associated with the proposed 15 foot setback of porches and side-loaded garages. Staff therefore, in accordance with Section 2.8.2(H)(1),finds that allowing a 15 foot setback for front porches and side-loaded garages, as designed by Lakeview Subdivision P.D.P., is not detrimental to the public good and is equal to or better than a design that would otherwise meet the standard. 5. Compliance with Applicable General Development Standards – Article Three: A. Section 3.2.1 – Landscaping and Tree Protection Existing trees along Drake Road will be placed within a separate tract so that their maturity will continue to enhance the arterial streetscape and provide buffering along a busy street. New deciduous street trees will be placed in the parkways at uniform intervals of approximately 40 feet. In the stormwater detention pond, new trees and Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 7 shrubs will be planted in a naturalistic manner to emphasize that this area will have less irrigation and maintenance and be a passive, not an active recreation area. B. Section 3.2.2 – Access Circulation and Parking An eight-foot wide concrete walkway is provided from Peony Way out to the public sidewalk along Drake Road. Also, an eight-foot wide concrete walkway is provided from Zinnia Way into the stormwater detention pond which will be landscaped to double as a passive recreation area. Both walkways would be dedicated for public use so there can be cross-access among the existing and proposed neighborhoods. Finally, an easement would be dedicated along Drake Road for a future bus stop and possible bus shelter to be installed at the time that service is provided. C. Section 3.2.3(C)(F) – Solar Orientation This standard requires that at least 65% of the lots (28) be oriented to within 30 degrees of an east-west line. Lakeview Subdivision provides 45% (19 lots) at this orientation thus short by 9 lots. This standard allows for alternative compliance. Lakeview Subdivision is a north-south rectangle with overall dimensions of approximately 1,000’ x 500’. This orientation discourages east-west streets which would normally allow for compliance with the standard. The site constraints include an existing stormwater detention pond at the south end and existing neighborhoods along the east and a portion of the south boundaries. Drake Road forms the north boundary. In compliance with provision of Section 3.2.3(F), Lakeview Subdivision is designed in an alternative manner and meets the applicable review criteria: • Lakeview Subdivision enhances neighborhood continuity and connectivity by matching the land use of the established neighborhoods and providing two walkways to the north and south perimeters that are to be dedicated as public access easements. • Lakeview Subdivision fosters non-vehicular access and preserves existing natural conditions by the two aforementioned walkways and continues to respect the established topography. D. Section 3.2.4 – Site Lighting All streets are private. Street lighting will be provided by sharp cut-off, fully-shielded light fixtures that are rated dark-sky compliant. Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 8 E. Section 3.3.1(B)(C) – Plat Standards – Lots and Public Dedications All lots meet or exceed the required minimum for the R-L zone. The private street system provides for access to the public street system. The general layout of lots, roads, driveways, utilities, drainage facilities and other services are designed in a way that enhances an interconnected street system within and between neighborhoods and preserves natural features. Dedications are platted for drainage and utility easements as well as public access easements for the walkways to Drake Road on the north and the open space to the south. G. Section 3.5.1 – Project Compatibility Lakeview Subdivision consists of lots that are planned for 42 single family detached homes. This housing type matches the existing neighborhoods to the east and south although the proposed lot sizes are slightly smaller than adjoining lots. As mentioned, in order to further promote neighborhood compatibility, the rear yards of the homes along the east property line will be slightly increased beyond the 15 foot required minimum. In addition, Lakeview will provide a continuous, uniform, six-foot high, solid wood fence along the east property line so that privacy is achieved in a consistent manner rather than on a lot-by-lot basis. H. Section 3.5.2(C) – Housing Model Variety For developments fewer than 100 single family dwelling units, three different types of housing models are required. Lakeview Subdivision is providing four. I. Section 3.5.2(F)(1) – Street Facing Garage Doors This standard requires that street-facing garage doors must be recessed behind either the front façade of the ground floor living area portion of the dwelling or a covered porch that measures at least 6’ x 8’. The applicant is seeking a Modification of this standard, for one housing model only, where the street-facing garage door is recessed not behind a front façade or porch but, rather, behind a side-loaded garage. An evaluation of this Modification is provided in the following sub-section. J. Section 3.5.2(F)(2) – Side-loaded Garage Doors This standard requires that side-loaded garages must have windows, or other architectural details that mimic the features of the living portion of the dwelling. As mentioned, the side-loaded garages will feature street-facing façades that include pitched roofs, windows, shutters, masonry wainscoting, and decorative window headers and air vents all of which can be found on the main part of the house. Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 9 K. Section 3.6.2(F)(G) – Double Frontage Lots Along an Arterial Street This standard requires that lots along an arterial street cannot take access from such street and that lot depth must be at least 150 feet. Lots 1 – 6 adjoin Drake Road, an arterial street, and no access is provided to these lots from Drake Road. As to the 150 feet required minimum lot depth, an alternative compliance provision is allowed per Section 3.6.2(G) if the plan includes additional buffering or screening that will protect such lots from the noise, light and other negative impacts of the arterial street. Lots 1 – 6 have a depth ranging from 92 to 115 feet. Between the rear property lines and the Drake Road right-of-way, there would be a separate landscape tract that ranges in depth from 30 to 70 feet. This separate buffer includes existing mature trees and an existing undulating berm. In addition, the rear property lines will be provided with a solid wood fence ranging in height between four and six feet, depending on relative topography with the berm. (The intent is to avoid placing a six foot high fence at the high point of the berm.) Combined, the lots and tract provide for a depth ranging from 142 to 164 feet for an average depth of 153 feet. Staff finds that with the proposed depth provided by both the lots and the separate tract, combined with the fencing, berming and landscaping, that the alternative plan creates an effective screen and protection from the noise, light and other negative impacts of the arterial street equally well or better than a plan which otherwise comply. Further, the proposed design is aesthetically more pleasing than placing perimeter fencing at a theoretical lot depth of 150 feet which would be two to three feet behind the sidewalk along Drake Road. L. Section 3.6.4 – Transportation Level of Service (LOS) Requirements A Transportation Impact Study has been prepared based on Lakeview Subdivision, containing 42 single family lots and within close proximity to the existing signalized intersection of South Lemay Avenue and East Drake Road. According to this study: • The site is projected to generate about 473 vehicle trips on the average weekday with little or no alternative trips expected. During the morning peak, about 10 vehicles would enter and about 29 vehicles would exit the site. During the afternoon peak, about 30 vehicles would enter the site and about 18 vehicles would exit. Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 10 • The site has one existing access point on Drake Road and two access points on Lemay Avenue. The easement granted by the church and running through the church parking lot is written to allow site traffic to pass to / from Lemay Avenue only via the northern site access, but it is acknowledged that some site traffic will use the southern site access – particularly during peak-hours – and this volume is expected to be minimal. • The signalized intersection of South Lemay Avenue and East Drake Road is expected to operate at Level of Service D or better during the morning peak- hour for both the entire intersection and for each individual movement through 2018 with the addition of site traffic and the existing signal timings. • During the afternoon peak-hour, this intersection is expected to operate at LOS D or better for both the entire intersection and for each individual movement through 2018 with the addition of site traffic with modifications to the existing signal timings – primarily shifting some green time from South Lemay to East Drake. • Some of the stop-signed controlled local street approaches to Lemay Avenue are expected to operate at LOS E or LOS F through 2018 which is considered acceptable for the approach of a local street to an arterial. The movements that include site traffic are all low volume movements. None of these intersections meet acceptable traffic signal spacing requirements and / or are not expected to meet traffic signal warrants now or in the future beyond 2018. • An existing transit route 5 serves Lemay Avenue. • Bicycle and pedestrian levels of service are achieved. • A sight distance easement is being dedicated along Drake Road to improve visibility of westbound traffic for vehicles entering Drake Road from the site. M. Section 3.8.11 – Fences and Walls This standard requires that fences along arterial streets be made visually interesting and shall avoid creating a tunnel effect and shall feature a varying alignment. There is a solid wood fence along Lots 1 – 6. The height will vary between four and six feet in order to be proportional to the existing undulating earthen berm. This fence is placed at the rear property line so there is a distance that ranges from 30 to 70 feet between the Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 11 fence line and Drake Road right-of-way. This fence will feature a recess or projection of about four to eight feet at each property corner. There will be 10 masonry columns. This fence will also be softened by the existing mature trees. Staff finds that this fence complies with the standard. 6. Request for Modification – Section 3.5.24(F)(1) – Street-facing Garage Doors: A. The standard at issue: (1) Street-facing garage doors must be recessed behind either the front facade of the ground floor living area portion of the dwelling or a covered porch (measuring at least six [6] feet by eight [8] feet) by at least four (4) feet. Any street-facing garage doors complying with this standard shall not protrude forward from the front facade of the living area portion of the dwelling by more than eight (8) feet. B. Applicant’s Request and Justification: The applicant requests that for one housing model only, the street-facing garage door be recessed not behind a front façade of the house or a porch but, rather, by a side- loaded garage. The applicant desires to provide a housing model that offers garage parking for three vehicles with one car to be parked in the side-loaded garage and two cars to be parked in the street-facing garage. The applicant contends that the standard did not anticipate this arrangement and that the street-facing garage would, in fact, be recessed behind the side-loaded garage by a minimum of eight feet thus exceeding the standard by four feet. Further, the applicant contends that façade of the side-loaded garage that faces the street will contain residential features that mimic the character of the main house. As mentioned, these features include pitched roofs, windows, shutters, masonry, wainscoting, and decorative window headers and air vents. The actual number of houses that would need this Modification will be determined by the home buyers. C. Staff Analysis: The overall intent of the standard is to ensure that residential streetscapes are not dominated by garage doors. Side-loaded garages with residential features are an attractive design solution that accomplishes this objective. Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 12 D. Staff Findings Staff finds that a two car garage that is recessed at least eight feet behind a side-loaded garage with the requisite residential features is equal to or better than if recessed by four feet from a front porch (minimum of 6’x8’) or the first floor of the main house. Staff therefore, in accordance with Section 2.8.2(H)(1),finds that allowing a such a placement as demonstrated by the Lakeview Subdivision P.D.P, is not detrimental to the public good and is equal to or better than a design that would otherwise meet the standard. This is because an eight foot recess behind a side-loaded garage is an effective treatment that allows the residential streetscape to not be dominated by street-facing garage doors. 7. Neighborhood Meeting: A neighborhood meeting was held on May 6, 2013 and a summary is attached. A wide variety of topics were discussed. In general, those attending the neighborhood meeting expressed support for the overall project as a whole. Concerns were expressed about the need for a common perimeter fencing along the east property line. Concerns were also expressed about the potential traffic impacts if vehicles traversing the church parking lot veer off the dedicated access easement and instead traverse the parking lot towards the southern access drive in order to gain access to South Lemay Avenue. For residents whose rear property line abuts the southern portion of the church parking lot, such traffic would be seen as negative. As mentioned, the P.D.P. will provide a common perimeter privacy fence along the east property line. Drivers traversing the church parking lot will find this route to be circuitous and less direct than if staying within the dedicated access easement. According to the Transportation Impact Study, if such traffic occurs, volumes are expected to be minimal. 8. Findings of Fact and Conclusion: In evaluating the Lakeview Subdivision P.D.P., staff makes the following findings of fact: A. The 42 lots for single family dwellings is a permitted use in the R-L, Low Density Residential zone district, subject to Administrative Review. B. The P.D.P. complies with the dimensional requirements of the R-L zone with one exception. A Modification of Standard to Section 4.4(D)(2)(b) is requested to reduce the front yard setback, for porches and side-loaded garages only, from 20 feet to 15 feet and has been evaluated and found to comply with the Lakeview Subdivision, #PDP130026 Administrative Hearing 11/7/2013 Page 13 requirements of Section 2.8.2(H). This is because the granting of the Modification would not be detrimental to the public good and that the design, as proposed, would be equal to or better than a plan that would otherwise comply. This is because the design features as demonstrated by the architectural features on the street-facing elevation of the side-loaded garages and size of the porches at 15 foot setback will enhance the streetscape and neighborhood character over that which would otherwise be allowed at 20 feet. In addition, Lakeview Subdivision, by virtue of being an infill project with no opportunity for street connections into the surrounding neighborhoods, would not be impacting any established character where porches and garages are setback by 20 feet. By being self-contained, there is no negative impact associated with the proposed 15 foot setback of porches and side-loaded garages. C. The P.D.P. complies with the applicable criteria of Article Three, General Development Standards, with one exception. A Modification of Standard to Section 3.5.2(F)(1) is requested to allow a street-facing garage to be recessed behind a side-loaded garage instead of behind a front porch or the living portion of the first floor of the house. This Modification has been evaluated and found to comply with the requirements of Section 2.8.2(H). This is because the granting of the Modification would not be detrimental to the public good and that the design, as proposed, would be equal to or better than a plan that would otherwise comply. This is because an eight foot recess behind a side-loaded garage is an equally effective treatment that allows the residential streetscape to not be dominated by street-facing garage doors. Recommendation: Staff recommends approval of the Request for Modification to Section 4.4(D)(2)(b) of the Land Use Code to allow a 15 foot front yard setback for porches and garages only on all models. Staff also recommends approval of the Request for Modification to Section 3.5.2(F)(1) to allow the street-facing garage to be recessed a minimum of eight feet behind a side- loaded garage on certain models. Finally, staff recommends approval of Lakeview Subdivision P.D.P. #130026.