HomeMy WebLinkAboutCITY OF FORT COLLINS UTILITIES CUSTOMER SERVICES BUILDING - PDP - PDP140005 - REPORTS - RECOMMENDATION/REPORT W/ATTACHMENTSITEM NO _________________
HEARING DATE March 11, 2015 _
STAFF Seth Lorson__ ____
ADMINISTRATIVE HEARING
Planning Services 281 N College Ave – PO Box 580 – Fort Collins, CO 80522-0580
fcgov.com/developmentreview/ 970.221.6750
STAFF REPORT
PROJECT: City of Fort Collins Utility Administration Building FDP #140005
APPLICANT: City of Fort Collins
300 Laporte Avenue
Fort Collins, CO 80521
PROJECT DESCRIPTION:
This project proposes to construct a 39,562 square foot office building at 222 Laporte
Ave. The proposed office building will house the City of Fort Collins Utilities
Administration and Customer Service staff and the Sustainability Service Area. Staff will
be transferred from 200 N. Mason St. (Utilities), 321 Maple Street (Sustainability), 300
Laporte Ave. (Sustainability), 215 N. Mason (Sustainability), and 700 Wood St.
(Utilities). Parking serving this project will be located on-street and in the Civic Center
Parking Garage located at 144 N. Mason St.
The site is located at the northeast corner of Howes Street and Laporte Avenue. The
development of the Utility Administration Building is the first in a larger plan to create a
two block (blocks 32 & 42) civic campus bounded by Maple Street (north), Laporte
Avenue (south), Mason Street (east), and Meldrum Street (west). The future civic
campus plans will also include 215 N. Mason, Operations Services, new city hall,
parking structure(s) and additional administration buildings.
In order to construct the proposed building in its location, the “Laboratory Building” (AKA
“Butterfly Building”) – which is individually eligible for historic landmark designation – will
have to be moved to the southeast corner, approximately 105 feet to the east of its
existing location. The proposal to move the Laboratory Building has received approval
from the Landmark Preservation Commission. Additionally, three other buildings (208
Howes, and 212 & 230 Laporte) have already been demolished to make space for the
proposed building.
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
2
The entire block is located in the Downtown (D) District – Civic Center Subdistrict and
the Transit-Oriented Development (TOD) Overlay Zone. Community facilities are
permitted in the Downtown District – Civic Center Subdistrict by Administrative Review
(Type 1).
RECOMMENDATION:
Staff recommends approval of City of Fort Collins Utility Administration Building FDP
#140005.
EXECUTIVE SUMMARY:
The proposed Utility Administration Building had gone through multiple iterations of
design review by staff and by the Landmark Preservation Commission. The final design
is meant to complement the existing civic buildings in the area, both old and new, and
highlight the Laboratory Building. Directly east, between the proposed building and 215
N. Mason, this project will construct the a portion of the “Civic Spine” – a north-south
pedestrian walkway – as identified in the City’s Civic Center Master Plan and already
constructed south of Laporte Ave. and north of Maple St.
Staff finds that the proposed development complies with all standards of the land use
code.
COMMENTS:
1. Surrounding Zoning and Land Uses.
Surrounding zoning and land uses are as follows:
Direction Zone District Existing Land Uses
North Downtown (D) Civic – City Buildings
South Downtown (D) Civic – County Courthouse and Civic
Center Park
East Downtown (D) Civic – City Buildings
West Downtown (D)
Civic – City Buildings
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
3
2. Compliance with Division 4.16 - Applicable Downtown Zone District Standards.
Staff finds that the City of Fort Collins Utility Administration Building complies with the
applicable standards in Division 4.16 Downtown District – Civic Center Subdistrict, as
explained below.
Section 4.16 (A) Purpose:
The purpose of the Downtown District is as follows:
The Downtown District is intended to provide a concentration of retail, civic, office and
cultural uses in addition to complementary uses such as hotels, entertainment and
housing. It is divided into three (3) subdistricts as depicted on Figure 18. The
development standards for the Downtown District are intended to encourage a mix of
activity in the area while providing for quality development that maintains a sense of
history, human scale and pedestrian-oriented character.
222 Laporte
Avenue
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
4
• The proposed civic building is consistent in use and design with the purpose of
the Downtown District and more-specifically the Civic Center Sub-district.
Section 4.16(B) - Permitted Use:
The proposed community facility is permitted in the Downtown District by Administrative
Review (Type 1). Community facility is defined in Sec. 5.1.2 of the Land Use Code as a
publicly owned or publicly leased facility or office building which is primarily intended to
serve the recreational, educational, cultural, administrative or entertainment needs of
the community as a whole.
Section 4.16(D) – Building Standards:
(1) Setback from Streets. This standard requires a “landscaped setback” for all block
faces west of Mason Street.
• The proposed frontage along Laporte Ave. provides an entry plaza with
seatwalls, landscaping consisting of trees and ornamental grasses, and an
overall design that complements the Laboratory Building.
(2) Building Height. The maximum building height for this block is 7 - 9 stories, +/-
115 feet.
• The proposed building is 3 stories, 42 feet in height.
(5) Building Character and Facades. This standard requires that buildings have
architectural interest, encourage outdoor activity, and are constructed with high-
quality materials.
• The proposed building will be constructed primarily with brick (both new and
reused from the former Creamery Building, which the Laboratory Building served)
with accents of cast stone, sandstone, and aluminum.
• A significant plaza is proposed for the Laporte frontage (front) giving clear
indication that this is a public building as well as a green space and employee
terrace providing a an outdoor common area for staff.
Section 4.16(F) – Special Provisions – Civic Center Subdistrict:
(1) Civic Spine. This standard requires that development along the planned Civic
Spine contribute to continuous pedestrian connections.
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
5
• The east side of the lot will provide a continuation of the Civic Spine from the
south where there is a mid-block pedestrian crosswalk (Laporte Ave.) from the
County Courthouse to the north where an existing alley leads to another mid-
block pedestrian crosswalk (Maple St.). It is proposed to be constructed with
colored, stamped concrete that carries the building’s front plaza design around to
the east side. The Civic Spine also serves as an emergency access.
• Additional pedestrian connections are made off of the Civic Spine from the
relocated Laboratory Building, and from 215 N. Mason across to the green space
and employee terrace through to Howes St.
(2) Building materials. This standard requires use of local sandstone in all civic
buildings.
• Local sandstone is incorporated as accents at the building’s front entrance for the
greatest amount of exposure with sparse use of the expensive material.
(3) Civic Buildings. This standard requires that civic building be located in the Civic
Center Subdistrict and placed in central locations.
• The Utility Administration Building is in a very prominent location facing onto
Laporte Avenue and directly abutting the Civic Spine.
(4) Incorporation of new buildings. This standard requires that new buildings
establish continuity between the existing buildings in the district and convey a
sense of permanence and importance.
• Much effort has been put into compatibility of the proposed building with existing
civic buildings and the Laboratory Building. The building reflects the newer
buildings in the vicinity such as 215 N. Mason and the County Courthouse with
traditional civic design elements such as high quality materials complemented by
pillars, pilasters, and cornices.
• The proposal also reflects the Operation Services Building and Laboratory
Building that were built in the mid-20
th
Century. The mix of brick colors and the
window awnings/shades reflect the Operation Service Building. The asymmetry
and angled entry awnings reflect the Laboratory Building and the design style of
Mid-Century Modern architecture.
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
6
3. Compliance with Article Three – General Development Standards:
Staff finds that Utility Administration Building complies with the applicable General
Development Standards, as explained below.
Section 3.2.1 – Landscaping and Tree Protection:
Standards in this section require a fully developed landscape plan that addresses
relationships of landscaping to the street, the building, abutting properties, and users on
site.
• All areas of the site not paved for pedestrian access are landscaped.
Section 3.2.2 – Access, Circulation and Parking:
Standards in this section require safe, convenient, efficient, parking and circulation
improvements that add to the attractiveness of the development.
This project was submitted prior to the newly adopted (November 18, 2014) parking
ordinance and therefore no minimum requirement is applicable. The new standard
requires parking provided at 1 space per 1,000 square feet for a total of 40 parking
spaces (39,562/1,000 = 39.6).
• The project is not providing any on-site parking. Four short-term parallel parking
spaces are provided on Laporte Ave. for customers who are paying utility bills.
The building is anticipating 121 total employees. Of those, 73 already work in
Downtown and are utilizing available parking; the additional 48 employees will be
almost-entirely accommodated by the restriping of Howes Street (creating 47
new spaces). Less than one block away is the Civic Center Parking Garage with
ample capacity for employees in this building.
• Additionally, the new parking ordinance permits alternative compliance through
off-site parking such as using the Civic Center Parking Garage. Therefore, if the
new standard was applicable, the project could still meet the minimum standard
by purchasing parking spaces in the garage.
Section 3.2.2(C)(4) – Bicycle Parking Space Requirements:
This standard requires at least one bicycle parking space per 4,000 square feet for a
total of 10 spaces. 20% or 2 spaces must be enclosed and 80% or 8 spaces must be
fixed (meaning traditional exterior bicycle racks).
• The project is providing 38 bicycle parking spaces: 20 located inside the building
(enclosed); and 18 outside (fixed).
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
7
Section 3.2.4 – Site Lighting:
The purpose of this section is for a project to ensure that the functional and security
needs of a project are met in a way that does not adversely affect the adjacent
properties and neighborhood.
• All lighting is down-directional with cutoff fixtures. No foot-candle levels exceed
one-tenth as measured 20 feet from property lines as required under this
standard with the exception of walkway security lighting along the Civic Spine.
The Civic Spine , as a pedestrian/park walkway, is required to be illuminated at a
minimum of 0.5 foot-candles.
Section 3.4.7 – Historic and Cultural Resources
This Section is intended to ensure that, to the maximum extent feasible: (1) historic
sites, structures or objects are preserved and incorporated into the proposed
development and any undertaking that may potentially alter the characteristics of the
historic property is done in a way that does not adversely affect the integrity or
significance of the historic property; and (2) new construction is designed to respect the
historic character of the site and any historic properties in the surrounding
neighborhood. This Section is intended to protect designated or individually eligible
historic sites, structures or objects, as well as sites, structures or objects in designated
historic districts, whether on or adjacent to the development site.
History of LPC Review of Laboratory Building and Utilities Administration Building, 222
Laporte Avenue:
• The Laboratory Building has been found to be individually eligible for designation
as a Fort Collins Landmark multiple times; and,most recently by the Landmark
Preservation Commission (LPC) in March 2014. The building is significant as a
locally rare example of Googie style architecture. Additional individually eligible
buildings adjacent to this project are the Old City Hall/Police Services/Operation
Services Building; the Haiston Oil Complex; and St. Joseph School, which is a
designated Landmark. Due to the adjacency of buildings that are designated or
are individually eligibility for designation, development plans affecting the
Laboratory Building are reviewed for compliance with both Chapter 14 of the City
Code, “Landmark Preservation,” and Land Use Code Section 3.4.7., “Historical
and Cultural Resources.” To comply with the codes, the plans would, to the
Maximum Extent Feasible, need to provide for the preservation and adaptive use
of the Laboratory Building in a manner that would not adversely affect its
significance or integrity; and would need to not adversely affect the eligibility of
the other historic properties.
Timeline of the Review:
• August 1996 – Results and recommendations of a professional survey of
properties in the Central Business District, including the Poudre Valley Creamery
site and the Laboratory Building, (also known as the “gull wing” or “butterfly
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
8
building”) are presented to the LPC; LPC finds that the Creamery and Laboratory
Building are eligible for designation as Fort Collins Landmarks.
• August 2009 - Aller-Lingle-Massey Architects is hired for the Block 32/42 Master
Plan Project, prepares a structural analysis and historical assessment for each
building on the site. The assessment notes the Laboratory Building’s
architectural significance, and, in addition to Fort Collins Landmark eligibility, its
potential for individual listing on both the National and State Registers under
Criterion C, for its distinctive characteristics of the Googie Style of Commercial
Architecture.
• March & April, 2010 – Chief Building Official Mike Gebo declared the Creamery
“dangerous” and directed that it be repaired or removed. Presentation to the
LPC on the Creamery’s dangerous status, and its pending
demolition/deconstruction. The Laboratory Building is identified to be retained
and incorporated into future redevelopment of the site.
• November 2012 – Determination of Eligibility on the Laboratory Building,
requested by Operation Services. The building is found to be individually eligible
for Landmark designation.
• January 22 and 23, 2014 – Utilities Customer Service Building (now UAB) Design
Charrette.
• March 12, 2014 – Presentation to LPC regarding UAB and redevelopment of the
Creamery site. The LPC found that the Laboratory Building is individually eligible
for Landmark designation, and determined that the options for relocating the
building would not comply with the Secretary of Interior’s Standards. The LPC
directed that the Laboratory Building stay in its current location, and requested
that an option be developed that moved the UAB a few feet further north and
west.
• May 2014 – Utilities UAB Project Team’s responses to Project Development Plan
Review (PDR) comments: “The historic Creamery (sic) building will remain in
place and the [UAB] will be built around it and set back north and west to provide
relief between the two structures.” A presentation was made to the LPC retaining
the Laboratory Building in its original location and locating the UAB approx. 10
feet back from the Laboratory building which met with unanimous LPC support,
and the Commission finding that the proposal reflects the historic character of the
eligible buildings and meets LUC 3.4.7.
• September 2014 Work Session – A presentation was made to LPC of UAB
design changes since March. The Building shape was rectangular with no 1st
floor articulation. A request to relocate the Laboratory Building, with three
options for a new location, were presented.
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
9
• October 2014 – Presentation of revised design was made to the LPC. The
Commission approved relocation of the Laboratory Building to the east, with
mitigation; among other items, including a building design that reflects the
character of the adjacent eligible buildings.
• February 2015 – Final presentation to the LPC on UAB design. Commission
approves proposal 8-0.
Section 3.5.1 – Building and Project Compatibility:
Standards in this Section require compatibility with the context of the surrounding area
in terms of building size, massing proportions, design character and building materials.
Where the established character of the relevant area is not definitively established, or is
not consistent with the purposes of the Land Use Code, projects must set an enhanced
standard appropriate for the area.
• The project site is in the center of the Civic Center Subdistrict and surrounded on
all sides by civic buildings between 2 and 5 stories. The proposed 3 story civic
building is compatible by all definitions.
Section 3.5.3 – Mixed-Use, Institutional and Commercial Buildings:
This section is intended to promote the design of an urban environment that is built to
human scale.
(C)(2) Orientation to Build-to Lines for Streetfront Buildings. The required build-to line
along an arterial street (Laporte Ave.) is 10 – 25 feet.
• Subsection (d) permits exceptions to the build-to line standard “in order to form
an outdoor space such as a plaza, courtyard, patio or garden between a building
and the sidewalk.”
• The proposed building is setback 33 feet from the right-of-way to accommodate a
public plaza with seatwalls, landscaping, a water-quality demonstration pond,
and a plaza that highlights the Laboratory Building.
(D) Variation in Massing. This purpose of this standard is to avoid single, large,
dominant building mass.
• The proposed building is articulated into several modules that are differentiated
by wall plane and building materials.
City of Fort Collins UAB PDP #140005
Administrative Hearing March 11, 2015
10
(E) Character and Image. The standards in this section require a site specific design,
articulation in a building’s wall planes, and clearly recognizable base and top
architectural features.
• The windows are recessed in brick walls and have cast stone sills and lintels
that contribute to the articulation in the building. The front façade is asymmetrical
with red brick covering the entire height of the westernmost side, but only two of
the three stories on the east side; both are capped with cornices creating an
identifiable “top”. Recessed in the center of this façade is a blond brick which
clearly identifies the building’s main entrance. The base is identified by the use
of local sandstone above the entry and a painted steel canopy.
FINDINGS OF FACT AND CONCLUSION:
In evaluating the request for City of Fort Collins Utility Administration Building FDP
#140005, staff makes the following finding of fact and conclusions:
1. The Project Development Plan contains permitted uses and complies with the
applicable land development standards of the Downtown District – Civic Center
Subdistrict in Article 4, Division 4.16 of the Land Use Code.
2. The Project Development Plan complies with the applicable General
Development Standards of Article 3 of the Land Use Code.
3. The Project Development Plan complies with the applicable procedural and
administrative requirements of Article 2 of the Land Use Code.
RECOMMENDATION:
Staff recommends approval of City of Fort Collins Utility Administration Building FDP
#140005.
ATTACHMENTS:
1. Building Perspectives and Elevations
2. Site, Landscape, and Photometric Plans
3. Shadow and View
4. Landmark Preservation Commission Findings of Fact