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HomeMy WebLinkAboutCONFLUENCE - PDP - PDP170001 - REPORTS - RECOMMENDATION/REPORT W/ATTACHMENTSAgenda Item 3 Item 3 Page 1 STAFF REPORT July 10, 2017 Hearing Officer PROJECT NAME CONFLUENCE, PROJECT DEVELOPMENT PLAN – PDP170001 STAFF Jason Holland, City Planner PROJECT INFORMATION PROJECT DESCRIPTION: This is a request for a Project Development Plan on a 0.4 acre site located at the northeast corner of Linden and Willow Street. A mixed- use building is proposed, composed of office, housing, retail and structured parking. The proposal is located at 401,405, and 409 Linden Street, and is within the (R-D-R) River Downtown Redevelopment Zone District and the Transit-Oriented Development overlay zone (TOD). A total of 28 residential dwellings are proposed and 30 off-street parking spaces, with 10,156 square feet of commercial. The total floor area of the building is 45,763 square feet. The maximum building height proposed is approximately 64’ - 6”, which includes five stories plus a partial mezzanine level for two 5th floor dwellings. A modification request is included with the PDP for these two dwellings to address the 1/3 limitation on mezzanine floor areas. APPLICANT: Jason Kersley [AU]Workshop, LLC. 405 Linden Street Fort Collins, CO 80524 OWNER: Space Foundry, LLC RECOMMENDATION: 405 Linden Street Fort Collins, CO 80524 Approval EXECUTIVE SUMMARY The proposed Confluence PDP complies with the applicable requirements of the City of Fort Collins Land Use Code (LUC), more specifically: Agenda Item 3 Item 3 Page 2  The PDP complies with process located in Division 2.2 – Common Development Review Procedures for Development Applications of Article 2 – Administration.  The PDP complies with relevant standards located in Article 3 – General Development Standards, provided that the Modification is approved.  The PDP complies with the relevant (R-D-R) River Downtown Redevelopment District standards in Division 4.17 of Article 4. VICINITY MAP Agenda Item 3 Item 3 Page 3 COMMENTS: 1. Background: The surrounding zoning and land uses are as follows: Direction Zone District Existing Land Uses North River Downtown Redevelopment District (R-D-R) Legacy Senior Residences; 320 Willow Street -- single-family detached dwelling; 316 Willow – Wolverine Farm Publishing South River Downtown Redevelopment District (R-D-R) Feeder Supply building East River Downtown Redevelopment District (R-D-R) El Burrito Cafe; River District Block One mixed use building. West River Downtown Redevelopment District (R-D-R) Feeder Supply residential and commercial development The property was annexed and platted in 1873 as a part of the original City map. The site currently includes three parcels at 401,405, and 409 Linden Street which are included in the proposed replat. 401 Linden Street contains an existing one story commercial building which is proposed to be demolished. This building is currently occupied by the Education and Life Training Center. The other two properties at 405 and 409 Linden contain one story buildings that would remain, with the proposed Confluence building occupying the rear portion of these properties. 2. River Downtown Redevelopment Zone District – Design Guidelines: The Fort Collins River Downtown Redevelopment Zone District Design Guidelines were adopted in June of 2014. The document provides guidelines that promote the community’s vision for the R-D-R zone through compatible new construction and redevelopment. The guidelines are intended to support investment that builds a strong, pedestrian-oriented urban fabric and encourages creative design that is compatible with the historic context by providing architectural detail and forms that are unique to the district. The guidelines outlined in this document were codified into the Land Use Code, under Article Four, in the R-D-R zone district development standards which are discussed in the next section. Agenda Item 3 Item 3 Page 4 3. Compliance with the R-D-R, River Downtown Redevelopment Zone District: The project complies with all applicable R-D-R District standards: A. Section 4.17(B)(2) – Land Use Mixed-use dwellings are a permitted use in the R-D-R District, in this case subject to a Type 1 administrative review. B. Section 4.17(D)(2) – Development Standards – Streets and Walkways The PDP meets the requirements of this section. The PDP preserves the existing pattern of streets and blocks. The street grid pattern is augmented by courtyard space and street amenities located along Linden Street and a future plaza space along Willow Street. C. Section 4.17(D)(3)(b)1. – Development Standards – Buildings – Programming, Massing and Placement – Height/Mass This standard states that multiple story buildings of up to five (5) stories are permitted, provided that massing is terraced back from the River and from streets so that multiple story buildings are stepped down to one (1) story abutting the River landscape frontage and are stepped down to three (3) stories or less abutting any street frontage. Such terraced massing shall be a significant and integral aspect of the building design. Additionally, where new buildings are placed next to existing shorter buildings that are expected to remain, the new buildings must be stepped down in such a manner as to minimize their impact on the shorter buildings. The PDP complies with these standards by providing a significant step down to three stories at the intersection of Willow and Linden with an outdoor terrace and cornice projection provided at the third story. The building mass is stepped down further to two stories along the east side of the building’s Linden frontage, which provides a suitable mass transition to the one story building at 405 Linden Street. The overall building design divides the project into three main building massing areas, with material treatments, window details, balconies and cornice projections within the massing that provide an effective visual transition to the surrounding buildings adjacent to the PDP. Agenda Item 3 Item 3 Page 5 Agenda Item 3 Item 3 Page 6 D. Section 4.17(D)(3)(c) – Development Standards – Buildings – Character and Image This section requires that new buildings be designed to demonstrate compatibility with the historical agricultural/industrial characteristics of the R-D-R District in order to promote visual cohesiveness and emphasize positive historical attributes. Such characteristics include simple rectilinear building shapes, simple rooflines, juxtaposed building masses that directly express interior volumes/functions, visible structural components and joinery, details formed by brickwork, sandstone, sills, lintels, headers and foundations and details formed by joinery of structural materials. Standards of this section are intended to promote a unique site and building design approach with authentic building details and forms related to the design and placement of outdoor spaces, window treatments, roof forms, materials, entrances, accent features and awnings/canopies. Staff Comments: The overall building design divides the project into three main building areas with a three story component to the east along Poudre Street, and two five-story tower elements separated by an interior courtyard on the second level. A combination of flat, shed and gable roof forms and cornice treatments are used that are suitable for the district. The tower elements are arranged to create a distinctive design that provides an appropriate contribution to the character and image of the district and are effective in reducing the overall apparent mass of the building. In accordance with the standard, windows are placed in a symmetrical pattern relative to the walls and massing along the Linden and Willow frontage. Windows are individually defined with detail elements including framing elements, lintels, and appropriate placement to visually establish and define the building stories and establish human scale and proportion. The overall building design is cohesive and provides accent features and material patterns that provide a positive design example for the R-D-R District. 4. Compliance with Article 3 of the Land Use Code – General Development Standards The project is compliance with all applicable General Development Standards with the following relevant comments provided: A. Section 3.2.1 Landscaping and Tree Protection Street trees are provided along Linden and Willow Street in sidewalk cut outs protected by tree grates. Future Willow Street plaza improvements shall be implemented by the City as part of a City Capital Improvement project. B. Section 3.2.2 – Access, Circulation and Parking In conformance with the Purpose, General Standard, and Development Standards described in this section, the parking and circulation system provided with the project is adequately designed with regard to safety, efficiency and convenience for vehicles, Agenda Item 3 Item 3 Page 7 bicycles, pedestrians and transit, both within the development and to and from surrounding areas. Minimum off-street parking quantities required for the project are based on TOD requirements for the number of bedrooms for the multi-family dwellings and gross square feet for the commercial area. Deductions are also requested based on demand mitigation allowances in the TOD zone. Based on these TOD requirements, parking is provided in accordance with the standards as follows: Residential Parking: TOD baseline residential requirement: Total required based on 16 units (of one bedroom or less) x .75 = 12 and 12 units (of two bedroom) x 1 = 12, totaling: 24 required parking spaces. Subtotal residential parking required 24 spaces Demand Mitigation - Transit Passes for each tenant 10% -2.4 spaces Demand Mitigation - Bicycle & Pedestrian Level of Service A -2.4 spaces Car Share (1 car) -5 spaces Total provided (residential) with TOD Mitigation strategies: 16 spaces Non-Residential Parking with TOD Demand Mitigation: Project parking total required: Total provided (residential) with TOD Mitigation strategies: 16 spaces Total non-residential provided with TOD Mitigation strategies: 12 spaces Total required: 28 spaces Total parking provided with PDP: 30 spaces Agenda Item 3 Item 3 Page 8 C. Section 3.2.4 – Site Lighting A photometric plan was submitted for the project. As proposed, the project complies with the lighting design standards in Section 3.2.4. All exterior building lighting is provided by down-directional and sharp cut-off fixtures. D. Section 3.2.5 – Trash and Recycling Enclosures Trash and recycling is provided within the parking structure and is fully screened in from public view in accordance with the requirements of this section. E. Section 3.3.1 – Plat Standards The layout of driveways, utilities, drainage facilities, easements and other services are designed in accordance with the City’s engineering standards. The plat demonstrates proper dedication of public rights-of-way, drainage easements and utility easements that are needed to serve the area being developed. F. Section 3.4.7 – Historic and Cultural Resources Because the PDP is adjacent to sites that are designated, eligible or potentially eligible as historic resources, the proposed building was reviewed by the Landmark Preservation Commission. At its May 17, 2017 meeting, the Landmark Preservation Commission conducted a review as authorized under LUC Section 3.4.7(F)(6). The LPC voted 5-0 to recommend to the Decision Maker approval of the Confluence Project (PDP170001), finding it is in compliance with the standards contained in the Land Use Code 3.4.7 and the River Downtown Redevelopment (R-D-R) Zone District Design Guidelines, in regard to compatibility with the character of the project’s area of adjacency. (LPC Memorandum and meeting minutes attached.) G. Section 3.5.1(G)(1) Building Height Review and Special Height Review The purpose of this Section is to establish a special process to review buildings or structures that exceed forty (40) feet in height. Its intent is to encourage creativity and diversity of architecture and site design within a context of harmonious neighborhood planning and coherent environmental design, to protect access to sunlight, to preserve desirable views and to define and reinforce downtown and designated activity centers. All buildings or structures in excess of forty (40) feet in height shall be subject to special review pursuant to this subsection (G). (a) Review Standards. If any building or structure is proposed to be greater than forty (40) feet in height above grade, the building or structure must meet the following special review criteria: Light and Shadow. Buildings or structures greater than forty (40) feet in height shall be designed so as not to have a substantial adverse impact on the distribution of natural and artificial light on adjacent public and private property. Adverse impacts include, but are not limited to, casting shadows on adjacent property sufficient to preclude the functional Agenda Item 3 Item 3 Page 9 use of solar energy technology, creating glare such as reflecting sunlight or artificial lighting at night, contributing to the accumulation of snow and ice during the winter on adjacent property and shading of windows or gardens for more than three (3) months of the year. Techniques to reduce the shadow impacts of a building may include, but are not limited to, repositioning of a structure on the lot, increasing the setbacks, reducing building mass or redesigning a building shape. Staff Comments regarding the height review criteria per LUC 3.5.1(G)(1): With buildings taller than 40 feet, further review is required base on the criteria described above. The criteria requires that buildings or structures greater than forty (40) feet in height shall be designed so as not to have a substantial adverse impact on the distribution of natural and artificial light on adjacent public and private property. Adverse impacts include, but are not limited to, casting shadows on adjacent property sufficient to preclude the functional use of solar energy technology, creating glare such as reflecting sunlight or artificial lighting at night, contributing to the accumulation of snow and ice during the winter on adjacent property and shading of windows or gardens for more than three (3) months of the year. Techniques to reduce the shadow impacts of a building may include, but are not limited to, repositioning of a structure on the lot, increasing the setbacks, reducing building mass or redesigning a building shape. A shadow analysis has been provided by the applicant. The analysis reveals that for the three conditions (March, December, and June), the proposed building mass casts a shadow on the adjacent properties during portions of the year, mainly during the morning hours. Adjacent properties receive direct sunlight during afternoon hours, benefitting from the street pattern in the area which is approximately 45 degrees off-axis from due north. Per the standard, staff finds that the shadowing does not have a substantial adverse impact on the distribution of natural and artificial light on adjacent public and private property. Nor does the shadowing preclude the functional use of solar energy technology or cause an undue accumulation of snow and ice on adjacent property. H. Section 3.5.3 – Mixed-Use, Institutional and Commercial Buildings; Division 3.10 – Development Standards for the Transit Oriented Development Overlay Zone The building design provides a high level of quality in terms of building articulation, material choice and placement, and placement of courtyards and balconies that satisfies the building requirements of these sections. The extensive articulation of the building form and generous use of masonry and panel systems contribute to a high quality appearance that is consistent with the architectural design expected within the TOD Overlay Zone. Variations in massing and placement of durable materials and cornice details at the street level help provide a human scale and break down the overall scale of the building. Varied patterns of recesses and projections provide vertical and horizontal interest in conformance with Section 3.5.3(E)(2). Agenda Item 3 Item 3 Page 10 Entrances are clearly identified and articulated with an entrance canopy as a sheltering element and with a change in mass related to the building entrance in conformance with Section 3.5.3(E)(4). I. Section 3.6.4 – Transportation Level of Service Requirements A Transportation Impact Study was submitted with this PDP (See attached.) It analyzed the anticipated traffic for the development and concluded that the added traffic from the project does not impact the nearby intersections and that the pedestrian Level of Service in the area is acceptable. 5. Modification of Standard Request to LUC Section 3.8.17(A)(2)(a) -- Building Height Measured in Stories -- Mezzanines Overview: This code section requires that the floor area of balconies and mezzanines be no more than 1/3 of the total floor area of the nearest floor area directly below. Page DR13 of Attachment 4 (PDP plans) shows the proposed floor plan for the 5th story. The floor plan shows the two separate tower massings that are proposed. As can be seen on page DR13, the north tower includes two dwelling units on the 5th story, with a small mezzanine level above the 5th story dwellings as shown on sheet DR14. The mezzanine level floor spaces are a part of the two 5th story units and are not separate dwellings. As outlined in the applicant’s modification request, the 5th story floor area of the north tower is 1213 square feet, with a proposed mezzanine area above of 458 square feet, resulting in a mezzanine level that is slightly over the 1/3 limit of 404 square feet. The mezzanine level exceeds the 1/3 limit by 54 square feet. Request for Modification. The applicant requests a modification to allow the mezzanine to not be considered a full story by being nominally over the 1/3 ratio limit. Land Use Code Standard proposed to be modified: 3.8.17 - Building Height (A) Measuring Building Height. (1) Building Height Measured in Feet. When measured in feet, building height shall be measured from the average of the finished ground level at the center of all walls of a building or structure to the highest point of the roof surface or structure. (2) Building Height Measured in Stories. In measuring the height of a building in stories the following measurement rules shall apply: (a) A balcony or mezzanine shall be counted as a full story when its floor area is in excess of one-third (1/3) of the total area of the nearest full floor directly below it. Agenda Item 3 Item 3 Page 11 Land Use Code Modification Criteria: “The decision maker may grant a modification of standards only if it finds that the granting of the modification would not be detrimental to the public good, and that: (1) the plan as submitted will promote the general purpose of the standard for which the modification is requested equally well or better than would a plan which complies with the standard for which a modification is requested; or (2) the granting of a modification from the strict application of any standard would, without impairing the intent and purpose of this Land Use Code, substantially alleviate an existing, defined and described problem of city-wide concern or would result in a substantial benefit to the city by reason of the fact that the proposed project would substantially address an important community need specifically and expressly defined and described in the city's Comprehensive Plan or in an adopted policy, ordinance or resolution of the City Council, and the strict application of such a standard would render the project practically infeasible; or (3) by reason of exceptional physical conditions or other extraordinary and exceptional situations, unique to such property, including, but not limited to, physical conditions such as exceptional narrowness, shallowness or topography, or physical conditions which hinder the owner's ability to install a solar energy system, the strict application of the standard sought to be modified would result in unusual and exceptional practical difficulties, or exceptional or undue hardship upon the owner of such property, provided that such difficulties or hardship are not caused by the act or omission of the applicant; or (4) the plan as submitted will not diverge from the standards of the Land Use Code that are authorized by this Division to be modified except in a nominal, inconsequential way when considered from the perspective of the entire development plan, and will continue to advance the purposes of the Land Use Code as contained in Section 1.2.2. 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). Applicant’s Justification: The applicant has provided a modification request, attached to this staff report. The Applicant requests that the modification be approved and provides the following justification for Criteria 1 and 4: Criteria (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. Criteria (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. Agenda Item 3 Item 3 Page 12 Applicant’s Justification for Criteria 1 and 4: “Currently the total floor area (as defined in the LUC) of the mezzanine is 458sf and the total floor area (as defined in the LUC) directly below it is 1213sf (5th story), which is over 1/3 by only 54sf. This ratio calculation counts only the floor area of the level below that the mezzanine directly serves. If all floor areas on the 5th story level in the project were taken in consideration, the mezzanine area would be well under the 1/3 max ratio. Additionally the city has adopted the amendment to the 1012 IBC changes the area limitation of mezzanines in the building code: (17) Section 505.2.1 Area Limitation is amended by adding a new exception number 3 to read as follows: “3. Within individual dwelling units of Group R occupancies, the maximum aggregate area of a mezzanine may be equal to one--‐half of the area of the room in which it is located, without being considered an additional story. The mezzanine may be closed to the room in which it is located as long as exits from the mezzanine are in conformance with Section 505.2.2. Our request is to allow the mezzanine to NOT be considered a full story while being nominally over the 1/3 ratio limit. The plan promotes the general purpose of the standard equally well or better than a plan that builds to the theoretical maximums allowed by the code. The plan’s upper stories are smaller than the maximum allowable in an effort to achieve a design that’s beneficial to the occupants by providing views, access to light and air, and compelling architectural design, while also benefiting the public with a project that is compatible with the neighboring context, historic preservation guidelines, the overall Land Use Code, and the city’s River District design guidelines. We believe this modification would not be detrimental to the public good, and that it affects the standard in a nominal, inconsequential way when considered from the perspective of the overall development plan.” Staff Findings for the Modification Staff finds that the request for a Modification of Standard to Section 3.8.17(A)(2)(a) – Building Height Measured in Stories – Mezzanines, is justified by the applicable standards in 2.8.2(H) (1 and 4): A. Criterion 1 is met, (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. B. Criterion 4 is met, (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 as contained in Section 1.2.2. The granting of the Modification would not be detrimental to the public good and is inconsequential because the overall increase in the mezzanine floor area is minor and the added mezzanine space does not change the external appearance of the building design. A reduction in the mezzanine floor area to meet the standard would not result in a change in the building’s appearance, and would only result in additional two-story open Agenda Item 3 Item 3 Page 13 area within the units. Therefore, the increase in the mezzanine floor area provides a design that is equal to a design with the 54 square feet of floor area proposed. The effect of the mezzanine level’s height and mass is nominal and inconsequential; the mezzanine level does not contribute significantly to the overall height and mass of the project and the resulting height is similar to the overall height of the southwest tower. The overall building height and massing placement proposed meets the design requirements of the R-D-R District by concentrating building mass into appropriately scaled, iconic architectural features that are encouraged in the district while providing open space between the tower elements to reduce the overall apparent mass of the project. 6. Neighborhood Meeting As a Type 1 administrative use, a neighborhood meeting was not required and the applicant elected to not hold a City neighborhood meeting. 7. Findings of Fact/Conclusion In evaluating the proposed Overlook Project Development Plan, staff makes the following findings of fact: A. The PDP complies with process located in Division 2.2 – Common Development Review Procedures for Development Applications of Article 2 – Administration. B. The Modification to LUC Staff finds that the request for a Modification of Standard to Section 3.8.17(A)(2)(a) – Building Height Measured in Stories – Mezzanines, is justified by the applicable standards in 2.8.2(H) (1 and 4): Criterion 1 is met, (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. Criterion 4 is met, (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 as contained in Section 1.2.2. The granting of the Modification would not be detrimental to the public good and is inconsequential because the overall increase in the mezzanine floor area is minor and the added mezzanine space does not change the external appearance of the building design. A reduction in the mezzanine floor area to meet the standard would not result in a change in the building’s appearance, and would only result in additional two-story open area within the units. Therefore, the increase the mezzanine floor area provides a design that is equal to a design with the 54 square feet of floor area proposed. The effect of the mezzanine level’s height and mass is nominal and inconsequential; the mezzanine level does not contribute significantly to the overall height and mass of the project Agenda Item 3 Item 3 Page 14 and the resulting height is similar to the overall height of the southwest tower. The overall building height and massing placement proposed meets the design requirements of the R-D- R District by concentrating building mass into appropriately scaled, iconic architectural features that are encouraged in the district while providing open space between the tower elements to reduce the overall apparent mass of the project. C. The PDP complies with relevant standards located in Article 3 – General Development Standards, provided that the Modification is approved. D. The PDP complies with the relevant (R-D-R) River Downtown Redevelopment District standards in Division 4.17 of Article 4. RECOMMENDATION: Approval of the Confluence Project Development Plan and Modification of Standard to Section 3.8.17(A)(2)(a) ATTACHMENTS 1. Applicant’s Planning Objectives Narrative 2. Applicant’s Height Analysis Narrative 3. Applicant’s Modification Request 4. PDP Planning set: a. Site Plan b. Building Elevations c. Landscape Plan d. Shadow Analysis e. Perspective Building Views f. Building Materials Exhibit g. Floor Plans 5. Lighting Plan 6. Plat 7. Utility Plans 8. Traffic Impact Study 9. Landmark Preservation Commission (LPC) Findings of Fact and Conclusions Pertaining to Confluence (PDP170001)