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HomeMy WebLinkAboutWOODWARD TECHNOLOGY CENTER (FORMERLY LINK-N-GREENS) - PDP - PDP130001 - REPORTS - RECOMMENDATION/REPORT W/ATTACHMENTSPROJECT: Link-n-Greens Project Development Plan, PDP #130001, Modification of Standard to Section 4.20(D)(3)(a)(1) and Modification of Standard to Section 4.20(D)(3)(a)(2) APPLICANT: NewMark Merrill Mountain States c/o Allen Ginsborg 2720 Council Tree Ave., Suite 230 Fort Collins, CO 80525 OWNERS: Link-n-Greens C.A. Musgrave 777 E. Lincoln Ave. James P. Hoffman Trust Ruth N. Hoffman Trust Dorothy A. Whisler c/o Micheal P. Williams Wood, Ris & Holmes, P.C. 1775 Sherman St. Ste. 1600 Denver CO, 80203 PROJECT DESCRIPTION: This is a request for approval of a Project Development Plan (P.D.P.) for the Link-n- Greens property. This area consists of 101.5 acres and is generally located at the southwest corner of East Lincoln and South Lemay Avenue. The Cache la Poudre River is the southern boundary and the majority of the western boundary of the P.D.P. The Poudre River Trail is located on the property within an easement. The project is zoned C-C-R Community Commercial – Poudre River District, and the proposed uses are permitted in this zone district at this location. The Link-n-Greens P.D.P. is being established to accommodate a new campus for Woodward. As a large employer, Woodward intends to develop a campus of office, Woodward Link-n-Greens P.D.P. February 15, 2012 1 manufacturing, and testing facilities. The campus will include a collection of buildings with parking areas served by private drives. In conjunction with the campus, a retail and commercial center is proposed to be located in the southeast corner of the site on Lot 3. The combined building footprint is projected to be 944,400 square feet in buildings ranging from one to three stories. A river restoration area of approximately 28.7 acres is also proposed. Phasing for construction of all portions of the P.D.P. could occur over a five to thirty year time frame depending on market activities for differing uses. RECOMMENDATION: Approval of Link-n-Greens Project Development Plan, PDP #130001, Modification of Standard to Section 4.20(D)(3)(a)(1) and Modification of Standard to Section 4.20(D)(3)(a)(2), with Conditions. EXECUTIVE SUMMARY: The following summarizes key factors that are specific to the Woodward Link-n-Greens P.D.P.: • The project plan is divided into Phase One and Future Phases. Phase One includes the core components of the Woodward operations, and is shown on the plans with a higher level of detail than the future development areas. The river restoration area shown on Lot 4 includes approximately 29 acres and is also shown in greater detail. • Future areas are shown with sufficient detail to establish a basic framework that demonstrates compliance, with remaining required detail deferred to subsequent submittals. The level of detail shown in each area of the plan addresses several of Woodward’s requirements that are critical to their evaluation and final selection of the site: • the need for certainty that the desired components of the development program will fit on the site; • the need to ensure the initial Phase One grading operations encompass the entire site, so that future development areas can be elevated out of the floodplain, and areas adjacent to the river can be prepared for restoration and; • the need to expedite and simplify development approval of future areas to the maximum extent feasible, by establishing a basic framework for future site areas that includes parking, buffers, building envelopes and footprints. These future areas include an appropriate level of detail to demonstrate the final Woodward Link-n-Greens P.D.P. February 15, 2012 2 development intent, but without showing the final level of detail until Woodward is ready to build such areas. In order to address Woodward’s requirements and ensure that the P.D.P. plans for Phase One and Future Areas are described as necessary to demonstrate compliance with all applicable standards of Land Use Code, the following notes have been recommended and are included on the plans: • “Other than for Phase One for which final design and easements shall be included as a part of the Final Development Plan documents, buildings, parking, landscaping and other site elements are not indicated in final detail with this Site Plan, Landscape Plan, Lighting Plan, and/or Building Elevations. Final design shall be provided, approved, and accepted concurrent with and prior to the approval of the minor amendment(s) for each additional phase(s), building(s) and/or prior to the start of any construction work on these items, provided that the Minor Amendment does not result in a change in character of this development. Each Minor Amendment for future buildings shall include a Traffic Impact Analysis if applicable.” • “Building foundation, parking lot and perimeter landscaping are indicated in detail for Phase One and river restoration areas. Future Phase building foundation and parking lot landscaping within the campus will be similar in character to Phase One. Specific areas of perimeter buffering are indicated on the plans for future phase areas.” • “Landscape buffer areas shown on the plan shall be used to screen service, loading and parking areas, including drive isles, from abutting uses, streets and natural areas. Screening shall consist primarily of plant material with a minimum height of thirty (30) inches to provide solid visual screening but in an informal arrangement reflecting the natural character of the adjacent river landscape. Where appropriate and feasible, berming will also be used to accomplish visual screening. Buffers areas shall be a minimum of twenty feet in width exclusive of right-of-way.” • “Tree removal should be timed to avoid the nesting season in accordance with the Migratory Bird Treaty Act. A nest survey shall be conducted prior to any tree removal if tree removal is proposed during the nesting season (April- July).” The Woodward Link-n-Greens Project Development plan as shown and noted, subject to approval by the Planning and Zoning Board, complies with the applicable requirements of the City of Fort Collins Land Use Code (LUC), more specifically: Woodward Link-n-Greens P.D.P. February 15, 2012 3 • The P.D.P. complies with process located in Division 2.2 – Common Development Review Procedures for Development Applications of Article 2 – Administration. • The P.D.P. is in conformance with the Link-n-Greens Overall Development Plan approved by the Planning and Zoning Board, on September 13, 2012. • The Modification of Standard to Section 4.20(D)(3)(a)(1) and Modification of Standard to Section 4.20(D)(3)(a)(2) that are proposed with this P.D.P. meet the applicable requirements of Section 2.8.2(H), and the granting of these Modifications would not be detrimental to the public good. • The P.D.P. complies with relevant standards located in Article 3 – General Development Standards, with conditions. • The P.D.P. complies with relevant standards located in Division 4.20, Community Commercial – Poudre River District (C-C-R) of Article 4 – Districts, provided that the Modification of Standard to Section 4.20(D)(3)(a)(1) and Modification of Standard to Section 4.20(D)(3)(a)(2) that are proposed with this P.D.P. are approved. COMMENTS: 1. Background: The subject property was annexed from 1987 to 1997 through four separate ordinances: • Link-n-Greens Annexation (October 1987, 37.3 acres) • Link-n-Greens Second Annexation (April, 1988, 16.8 acres) • Link-n-Greens Third Annexation (January, 1992, 44 acres) • Link-n-Greens Fourth Annexation (July, 1997, 4.2 acres) The property is currently used as the Link-n-Greens golf course which has been in operation since 1986. The property contains a barn, silos and outbuildings known as the Coy/Hoffman Barn, which were designated on the Colorado State Register of Historic Properties in 1995. The barn is associated with the earliest development of agriculture in the area, having been built during the 1860s as part of a homestead. The surrounding zoning and land uses are as follows: N: Community Commercial- Poudre River (C-C-R): Commercial (Lambspun, Back Porch Cafe) Industrial (I): Commercial; Light Industrial Woodward Link-n-Greens P.D.P. February 15, 2012 4 S: River Conservation District (RC): Mulberry Water Reclamation Facility River Downtown Redevelopment (RDR): Vacant Parcel E: General Commercial (CG): Large Retail; Commercial/Retail W: Public Open Lands (P-O-L): Udall Natural Area Community Commercial- Poudre River (C-C-R): Commercial The Planning and Zoning Board, on September 13, 2012, approved the Link-n-Greens Overall Development Plan. Two Modifications of Standard were also approved regarding gated developments and orientation to build-to lines for street fronting buildings. 2. Compliance with Article 4 of the Land Use Code – Community Commercial – Poudre River District (C-C-R): The project complies with all applicable Article 4 standards as follows: A. Section 4.20(B) – Permitted Uses • The proposed land uses are consistent with the permitted uses in the C-C-R District. The development uses specifically proposed in the P.D.P. are campus employment, office and commercial/retail. Campus employment is an Addition of Permitted Use at this location. B. Section 4.20(D) – Development Standards 1) 4.20(D)(3)(a) Buildings, Massing and Placement: • Detailed building elevations are shown for all proposed building footprints, including all buildings in the Lot 3 future Commercial/Retail area. Three stories are proposed for the future office headquarters, and all other buildings are one or two stories. Request for Modification: The applicant requested two modifications that are applicable to Section 4.20(D): 1) 4.20(D)(3)(a)(1) Height/Mass: A Modification of Standard is requested for Buildings D and E. Buildings D and E, located on Lot 3, are proposed to be Woodward Link-n-Greens P.D.P. February 15, 2012 5 two stories. These buildings are required to step down to one story directly abutting the natural area protection buffer. 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 following is the applicant’s written justification: Woodward Link-n-Greens P.D.P. February 15, 2012 6 While a new allowed use called "Campus Employment" was added to the C- C-R zone district with the Link-n-Greens ODP for this site, the definition of the use does not contain specific standards for building massing and placement. Accordingly, the Applicant requests that the building height limit of one (1) story adjacent to the river buffer as set forth in 4.20(D)(3)(a)(1) of the Fort Collins Land Use Code ("LUC") be modified to allow two (2) stories in order to accommodate the current development plan for the property. Following is an explanation of how the proposed PDP meets the requirements for a modification of standards under LUC 2.8. Current Standard (A) Purpose. The Community Commercial - Poudre River District (C-C-R) is for downtown fringe areas in the Cache la Poudre River corridor with both public street frontage and River frontage. This District provides locations for redevelopment or development of moderate intensity uses that are supportive of Downtown, subject to floodplain restrictions. Such redevelopment or development shall be compatible with the scenic, cultural, natural and historical context of the River and Downtown. A main purpose of the District is to foster a healthy and compatible relationship between the River, the Downtown and surrounding urban uses. Any significant redevelopment shall be designed as part of a master plan for the applicable group of contiguous properties. The Link-n-Greens PDP is being established to accommodate a new campus for Woodward. As a large employer, Woodward is designing a master planned campus of office, manufacturing, and testing facilities with nearby services and offices that will complement the campus. The development team has partnered with the City of Fort Collins to develop a comprehensive approach to the restoration and enhancement of the Poudre River habitat adjacent to the Link-N-Greens campus development areas. Multiple city departments engaged in this discussion including Natural Resources, Planning, Floodplain Administration, and Parks. Through these discussions the Applicant has approached both the development of the property and the river restoration in a holistic manner based on the river flow conditions, existing landscape, historic river conditions, and the vision for the future development of the Lincoln Triangle area. Several site planning scenarios were explored for the narrow commercial area designated at the southeast corner of the site. The site planning for the commercial area has been designed to balance and achieve several goals including: Woodward Link-n-Greens P.D.P. February 15, 2012 7 - Woodward's desire that its headquarters become a catalyst for quality private and public development and redevelopment in order to enhance the area. - Applying market and planning guidelines to achieve the highest and best use for this parcel to allow the best opportunity to create vibrant, successful mixed-use services for the adjacent Woodward campus and the nearby neighborhoods. - Protecting and enhancing views to the Poudre River from the Mulberry corridor gateway into Fort Collins and the Mulberry Bridge. - Applying the Performance Standards of 3.4.1(E)(1) and responding to the comprehensive river restoration concepts. The commercial area site plan positions commercial uses along Lemay Avenue with two mixed-use office/ commercial buildings to the west adjacent to the river buffer area. Use of vertically mixed use buildings is encouraged in Plan Fort Collins. The use of two 2-story buildings creates a more compact and varied development footprint along the river buffer than would a larger footprint 1-story building of a similar size. As a result, the applicant would like to request a modification of standard 4.20(D)(3)(a)(1) – Community Commercial – Poudre River District (C-C-R) Building Height/Mass to allow two (2) stories rather than one (1) adjacent to the river buffer area in order to allow for this more compact and varied development pattern adjacent to the river buffer in the commercial area. Pursuant to LUC 2.8.2(H), the modification must meet the first standard (not detrimental to the public good), plus one of the four other listed standards. In this case, the proposed modification meets all of the standards; accordingly, the City's approval is requested. The granting of the modification would not be detrimental to the public good. Granting the proposed modification would not be detrimental to the public good because the proposed development plan meets the other Performance Standards of 3.4.1(E)(1), and brings an overall positive development to this grossly underutilized land located in a key area of Fort Collins. The overall purpose of the increased height is to allow for buildings with smaller footprints, rather than buildings which occupy more of the site. Allowing buildings to be up to two stories rather than one allows for better balancing of the overall height and massing of the required structures on the site for a more aesthetically pleasing overall appearance. Woodward Link-n-Greens P.D.P. February 15, 2012 8 (Criteria 1): 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. - Overall, the Woodward campus project will bring significant economic benefits to the City, in terms of retaining and creating quality jobs, prestige and publicity for the City, and locating these jobs near downtown where they will support existing Fort Collins businesses. - In order to enhance the feasibility of the project and diversify the uses on the site, the commercial portion of the development in the southeast corner of the site is a key component. - The increased density created with two stories will help provide positive economic impact to stimulate further quality development in the area. Second level space creates flexibility required to accommodate a broader variety of uses and diversify the project, thus increasing its viability. (Criteria 2): 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. The area of the site within which the proposed two story buildings will be located adjacent to the river buffer is narrow and one could argue that this area is somewhat narrow to accommodate the proposed commercial development, and is further narrowed by the river buffer. Additionally, an existing PRPA power line, which may be relocated as part of the project, will further narrow the area available for development. Woodward will be making significant investments to enhance and stabilize the river embankments while filling-in the floodplain; while this also enhances the development potential of the property, it also increases project costs and creates a need to accommodate increased development density. Because Woodward will be dedicating approximately 1/3 of the site to open space, the remaining land is Woodward Link-n-Greens P.D.P. February 15, 2012 9 burdened by the purchase price of this land, thereby increasing the land basis by 33%. Adequate development coverage and density is needed to help offset this investment. - Although the relocation of the PRPA power line is technically caused by the applicant as part of the project, the physical constraints on this portion of the property are still somewhat limiting, even without this factor. - Overall, the river buffer in its current state, or as proposed as part of the project, is a further constraint on the property. Allowing the use of sensitively designed two-story buildings to be located on certain parts of the property adjacent to the river buffer balances the City's goals related to preservation and enhancement of the river buffer with its goals for economic development. - The use of two story buildings provides better protection to the habitat area by containing noise, light and pollution from busy Lemay Avenue to the east of the commercial space. (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. The proposed modification is nominal and inconsequential in relationship to the overall development plan, and will continue to advance the purposes of the LUC. The master planned campus has been developed based on a comprehensive approach considering the river flow conditions, historic river patterns, and vision for the future development of the Lincoln Triangle area. The plans include more than 30 acres of habitat restoration and open space with wider areas where the river will be allowed to move outside its current bank condition, and with a more narrowed area here where the river moves back to its channel beneath the Mulberry bridge. The use of use of smaller footprint 2-story buildings in this location supports this overall approach and creates a more compact and varied development footprint along the river buffer than would a larger footprint 1-story building of a similar size. When considered from the perspective of the entire 100-acre development plan, the use of these 2-story buildings will not diverge from the standard except in a nominal and inconsequential way. In addition, the plan will continue to advance the purposes of the Land Use Code as contained in Section 1.2.2 including: - Encouraging innovations in land development and renewal. - Fostering the safe, efficient and economic use of the land, the city’s transportation infrastructure, and other public facilities and services. Woodward Link-n-Greens P.D.P. February 15, 2012 10 - Ensuring that development proposals are sensitive to natural areas and features. Staff Finding Staff finds that the request for a Modification of Standard to Section 4.20(D)(3)(a)(1) Height/Mass is justified by the applicable standards in 2.8.2(H) for Buildings D and E located on Lot 3 of the Project Development Plan. This is because: A. The granting of the Modification would not be detrimental to the public good. The plan provides substantial enhancements to the natural area buffer adjacent to the proposed buildings. The proposed landscape canopy adjacent to the buildings provides transition and helps reduce the massing of the buildings. The plan as proposed for Lot 3 with two- story buildings provides a more varied edge along the buffer than a plan that would result from a strict interpretation of the standard that would provide larger one-story building footprints along the River buffer. B. The request satisfies Criteria 4 (2.8.2(H)(4): The plan as submitted does 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 majority of development within the entire 100 acre plan provides for additional buffer with deeper setbacks and screening, so that parking and buildings that are not directly adjacent to the buffer, but rather set back from the buffer. Request for Modification: 2) 4.20(D)(3)(a)(2) Parking Lots: A Modification of Standard is requested to address the requirement that buildings shall be sited so that any new parking lots and vehicle use areas are located in either: 1) interior block locations between buildings that face the street and buildings that face the River, or 2) side yards. 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: Woodward Link-n-Greens P.D.P. February 15, 2012 11 (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 Justification: The following is the applicant’s written justification: While a new allowed use called "Campus Employment" was added to the C-C-R zone district with the Link-n-Greens ODP for this site, the definition of the use does not contain specific standards for parking lots. Accordingly, the Applicant requests that standard set forth in 4.20(D)(3)(a)(2) – Community Commercial – Poudre River District (C-C-R) Parking Lots be modified to allow parking between buildings and the River. Woodward Link-n-Greens P.D.P. February 15, 2012 12 Current Standard (A) Purpose. The Community Commercial - Poudre River District (C-C-R) is for downtown fringe areas in the Cache la Poudre River corridor with both public street frontage and River frontage. This District provides locations for redevelopment or development of moderate intensity uses that are supportive of Downtown, subject to floodplain restrictions. Such redevelopment or development shall be compatible with the scenic, cultural, natural and historical context of the River and Downtown. A main purpose of the District is to foster a healthy and compatible relationship between the River, the Downtown and surrounding urban uses. Any significant redevelopment shall be designed as part of a master plan for the applicable group of contiguous properties. Description of need for Modification of Standard The Link-n-Greens PDP is being established to accommodate a new campus for Woodward. As a large employer, Woodward is designing a master planned campus of office, manufacturing, and testing facilities with nearby services and small offices that will complement the campus. These facilities have been designed as a collection of buildings with deliberate adjacencies and both functional and operational connectivity. The site master plan has been developed collaboratively with input from city staff from various departments. The plan has been developed to best meet the needs for Woodward’s continued operational success, but also with awareness of the unique characteristics and opportunities of the site. The site plan has been developed to both restore and highlight two key features of the site, the Cache la Poudre River and the Coy-Hoffman barn complex. The site plan locates the office buildings and office areas of the industrial buildings adjacent to these key features to make them an integral part of the pedestrian-oriented outdoor spaces and walkways planned for the campus. With this type of large connected campus development, it is difficult to define ‘front yards’ and ‘side yards’ as the standard references. The 100- acre site is bounded by arterial streets on the north and east, and by the Cache la Poudre River on the south and southwest leaving only the northwest portion adjacent to other developed lots. With this large connected development, the development plan still responds to the intent of this standard by locating primary parking fields on the ‘side yards’ (east and west of the main building collections). Woodward Link-n-Greens P.D.P. February 15, 2012 13 However, small portions of the parking may be considered to depart from this standard. In order to provide fire access and to serve the larger office headquarters building, a small visitor parking circle is located to the south of this building. While this parking circle is located south of this new building, it is to the side of the historic barn structures and could potentially be considered to be within a side yard. While not meeting the standard fully, we believe it meets the intent of this section by minimizing the appearance of parking fields from public rights of way and from the river buffer area. As a result, we would like to request a modification of standard 4.20(D)(3)(a)(2) – Community Commercial – Poudre River District (C-C- R), Parking Lots, in order to allow for this campus-based parking configuration. Specific findings for the modification request: Pursuant to LUC 2.8.2(H), the modification must meet the first standard (not detrimental to the public good), plus one of the four other listed standards. In this case, the proposed modification meets two additional standards; accordingly, the City's approval is requested. The granting of the modification would not be detrimental to the public good. The overall intent of the standard appears to be to minimize the appearance of parking lots from public rights of way and from the river buffer area. The site plan preserves this public good by locating the parking lots in areas that are the closest thing to side yards, given the non- traditional campus like configuration of the site plan. Only very limited areas of parking are located in areas which may be considered to depart from this standard. The public good is preserved notwithstanding the modification. This is more fully explained below, (Criteria 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. Woodward Link-n-Greens P.D.P. February 15, 2012 14 Woodward is a primary employer for the community of Fort Collins and the region. Accommodating a new campus for Woodward on the Link-N- Greens site would substantially address the important community Economic Health need by supporting this existing primary employer. The ability for Woodward to develop a new campus on this site relies on the ability to create a collection of internally connected buildings and uses that support their successful operations. As a result, fire access and multiple entries to the various buildings require the need for circulation and limited parking in areas that may be considered a departure from the standard. Strict application of the standard on such a large site would render the project infeasible, and could result in a less aesthetic overall design than that presented. (Criteria 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 The 100-acre site is bounded by arterial streets on the north and east, and by the Cache la Poudre River on the south and southwest leaving only the northwest portion adjacent to other developed lots. As such, it is difficult to define ‘front yards’ and ‘side yards’ as the standard references. With this large connected campus development, the site plan still responds to the intent of this standard by locating primary parking fields on the ‘side yards’ (east and west of the main building collections). But fire access is required in limited areas that may be considered to depart from the standard. Thus strict application of the standard would result in exceptional or undue hardship upon the owner. Staff Finding: Staff finds that the request for a Modification of Standard to Section 4.20(D)(3)(a)(2) Parking Lots to allow parking lots between buildings and the River is justified. This is because: A. The granting of the modification will not be detrimental to the public good. Although it may be difficult or unwarranted to strictly apply front, side and rear yard designations to this site, especially considering the proposed use, it is important to point out that the general purpose of this standard is to ensure that parking areas will be screened when Woodward Link-n-Greens P.D.P. February 15, 2012 15 viewed from the Poudre River Trail. Due to the landscape buffers provided, buildings are not needed to screen the parking. Because the parking and vehicle service areas are screened, the location of the parking lots in relation to the buildings is not detrimental. B. In accordance with criteria 2.8.2(H)(1), the proposed plan will promote the general purpose of the standard equally well or better than a plan which complies with the standard. This is because the extensive landscape buffers provided are intended to screen parking lots and vehicle use areas when viewed from the River equally well or better than buildings that would be used for the same purpose in compliance with the standard. 3) 4.20(D)(3)(b)(2) Character and Image, Windows: Glass curtain walls are utilized within portions of the building elevations, and although this practice is discouraged in this zoning district, the windows are divided by exposed mullions and decorative bands that define the stories and establish human scale in accordance with the standard. 4) 4.20(D)(4)(a) Site Design, Landscaping/Vegetation Protection: The project meets this standard which requires that the natural qualities of the river landscape be maintained and enhanced using plants and landscape materials native to the river corridor in the design of the landscape improvements. Extensive enhancements are proposed with the restoration of the river buffer area and perimeter landscape buffers are also provided with the project plan in accordance with this standard. 3. Compliance with Article 3 of the Land Use Code – General Development Standards The project complies with all applicable General Development Standards; with the following relevant comments provided: A. Division 3.2 – Site Planning and Design Standards 1) 3.2.1 Landscaping and Tree Protection: • The applicant is requesting Alternative Compliance to Section 3.2.1(D)(4) Tree species and Minimum Sizes. A detailed request from the applicant is submitted with this report. This request applies to the Woodward Link-n-Greens P.D.P. February 15, 2012 16 river restoration area. The request proposes a variation and reduction in the minimum tree and shrub sizes to accomplish a more natural condition rather than the uniform minimum sizing required by the standard. The sizes and species proposed with the alternative compliance plan are similar to those used in other City restoration projects, and include a combination of B&B trees, container trees and shrubs, flats and plugs. Staff has worked closely with the applicant to develop the restoration plan, and recommends approval of the alternative compliance in order to achieve a more natural condition that will achieve the purpose of Section better than the minimum standard. • A detailed tree mitigation plan is provided with this P.D.P. in coordination and with the approval of the City Forester. An overall tree mitigation tree replacement ratio of 1.2 was recommended by the City Forester. • “Full Tree Stocking” is planned along all high use and high visibility areas of the development, with generous quantities of trees located along building faces; • Trees are planted in the parking lot interior and perimeter in excess of the minimum requirements; • Ground cover in parking lot and building foundation areas is also planted in excess of the minimum requirements, with deciduous and evergreen shrubs, perennials and ornamental grasses used extensively. • Landscape buffers are designated around future parking areas in order to ensure that these areas will be adequately screened, and the plan stipulates a minimum buffer depth of twenty feet. 2) 3.2.2 Access, Circulation and Parking: • Sidewalk connections are planned for the campus between buildings and through parking areas. Bicycle parking is planned in accordance with the minimum quantity for industrial buildings and is placed appropriately near building entrances. It is anticipated that additional bicycle parking will be required to meet future program needs. • A condition is recommended to provide a 15 feet wide public access easement along the western property boundary to accommodate a future trail connection from Lincoln Avenue to the Poudre River Trail This condition is needed for the P.D.P. to provide compliance with Woodward Link-n-Greens P.D.P. February 15, 2012 17 Section 3.2.2(A) and (B) Access, Circulation and Parking – Purpose and General Standard and/or Section 3.2.2(C)(6) Direct On-Site Access to Pedestrian and Bicycle Destinations. The circulation system proposed is not sufficient without the condition. This is because the P.D.P. does not accommodate direct connections either within the development or adjacent to the development as required for the movement of pedestrians and bicycles safely, efficiency and/or conveniently to and from surrounding areas with directness and continuity to the extent reasonably feasible or to the maximum extent feasible. The standards relevant to the recommended condition are as follows: 3.2.2 Access, Circulation and Parking (A) Purpose. This Section is intended to ensure that the parking and circulation aspects of all developments are well designed with regard to safety, efficiency and convenience for vehicles, bicycles, pedestrians and transit, both within the development and to and from surrounding areas. Sidewalk or bikeway extensions off-site may be required based on needs created by the proposed development. This Section sets forth parking requirements in terms of numbers and dimensions of parking stalls, landscaping and shared parking. It also addresses the placement of drive-in facilities and loading zones. (B) General Standard. The parking and circulation system within each development shall accommodate the movement of vehicles, bicycles, pedestrians and transit, throughout the proposed development and to and from surrounding areas, safely and conveniently, and shall contribute to the attractiveness of the development. The on-site pedestrian system must provide adequate directness, continuity, street crossings, visible interest and security as defined by the standards in this Section. The on-site bicycle system must connect to the city’s on- street bikeway network. Connections to the off-road trail system shall be made, to the extent reasonably feasible. 3.2.2(C)(6) Development Standards – Direct On-Site Access to Pedestrian and Bicycle Destinations. The on-site pedestrian and bicycle circulation system must be designed to provide, or allow for, direct connections to major pedestrian and bicycle destinations including, but not limited to, parks, schools, Neighborhood Centers, Neighborhood Commercial Districts and transit stops that are located either within the development or adjacent to the development as required, to the maximum extent feasible. The on-site pedestrian and bicycle circulation system must also provide, or allow for, on-site Woodward Link-n-Greens P.D.P. February 15, 2012 18 connections to existing or planned off-site pedestrian and bicycle facilities at points necessary to provide direct pedestrian and bicycle travel from the development to major pedestrian destinations located within the neighborhood. In order to provide direct pedestrian connections to these destinations, additional sidewalks or walkways not associated with a street, or the extension of a sidewalk from the end of a cul-de-sac to another street or walkway, may be required. Request for Alternative Compliance: The project proposes Alternative Compliance to exceed the maximum parking ratio set forth in the table contained in Section 3.2.2(K)(2)(a) for nonresidential land uses. To approve an alternative plan, the decision maker must first find that the proposed alternative plan accomplishes the purposes of this Section equally well or better than would a plan which complies with the standards of this Section. In reviewing the request for an alternative parking ratio plan in order to determine whether it accomplishes the purposes of this Section, the decision maker shall take into account the number of employees occupying the building or land use, the number of expected customers or clients, the availability of nearby on-street parking (if any), the availability of shared parking with abutting, adjacent or surrounding land uses (if any), the provision of purchased or leased parking spaces in a municipal or private parking lot meeting the requirements of the city, trip reduction programs (if any), or any other factors that may be unique to the applicant's development request. The decision maker shall not approve the alternative parking ratio plan unless it meets the applicable criteria that it: 1. does not detract from continuity, connectivity and convenient proximity for pedestrians between or among existing or future uses in the vicinity, 2. minimizes the visual and aesthetic impact along the public street by placing parking lots to the rear or along the side of buildings, to the maximum extent feasible, 3. minimizes the visual and aesthetic impact on the surrounding neighborhood, 4. creates no physical impact on any facilities serving alternative modes of transportation, 5. creates no detrimental impact on natural areas or features, Woodward Link-n-Greens P.D.P. February 15, 2012 19 6. maintains handicap parking ratios. Staff finds that the applicable criteria are met. This is because: A. The additional parking is not speculative and is intended solely for use of the Woodward operations. B. The plan designates areas rather than final quantities for future Woodward parking and demonstrates that the future parking areas can be adequately screened and buffered. C. Future parking planned for Lot 3 shall not be a part of this alternative compliance request. D. Alternative modes of transportation are not physically impacted, provided that the condition of approval is granted requesting a 15 feet wide public access easement along the western property boundary to accommodate a future trail connection from Lincoln Avenue to the Poudre River Trail. E. Visual and aesthetic impact to public streets, natural areas, and nearby neighborhoods is mitigated by the landscape buffer areas designated on the plan. F. Handicap ratios will be maintained. 3) 3.2.4 Site Lighting: • A photometric plan was submitted for Phase One. As proposed, the project complies with the lighting design standards. Parking lot and drive lighting is provided by down-directional and sharp cut-off fixtures. No lighting spills over into the Natural Habitat Buffer Zone; for future phases, a note has been added that no light will may spill over into the buffer zone. • Additional lighting information will be required with Phase One Final Plans and future Minor Amendments in order to demonstrate continued compliance with this standard for all proposed outdoor lighting fixtures. Woodward Link-n-Greens P.D.P. February 15, 2012 20 4) 3.2.5 Trash and Recycling Enclosures: Trash and recycling enclosures will be located within the service areas and within production buildings. Service areas are screened with a combination of fencing and landscape material. B. Section 3.3.5 – Engineering Design Standards Three variances are requested for the project: 1) Length of deceleration for auxiliary lanes; 2) Intersection spacing on Lincoln Avenue; and 3) Increasing the maximum length of curb radii from 20 feet to 30 feet at intersection entrances. These variances were reviewed by City Engineering and Transportation staff and found to be warranted with no detriment to the public health, welfare and safety. C. Division 3.4 – Environmental, Natural Area, Recreational and Cultural Resource Protection Standards 1) 3.4.1 Natural Habitats and Features: • The project’s Ecological Characterization Study reports that the Link-n- Greens site contains several natural habitats and features, predominately the Poudre River corridor, several wetlands that have formed along the fringe of the golf course ponds (0.10 acres), and 464 significant trees. The site’s existing habitat value is largely contained within the areas immediately adjacent to the Poudre River due to the ornamental nature of the golf course and the lack of habitat diversity associated with a bluegrass lawn. The site has also been evaluated for Threatened and Endangered species and the only potentially suitable habitat was for the Preble’s Meadow Jumping Mouse. However, no populations of jumping mouse are known to exist in the Poudre River downstream of Watson Lake (north of Bellvue). • To meet the standards associated with Section 3.4.1, the project has proposed to apply the performance standards contained in Section 3.4.1(E) of the Land Use Code. The project has proposed an overall buffer area of 28.7 acres instead of the 23.4 acres that would be required through the 300' standard. At no point is the proposed buffer zone less than 210’ and the buffer zone is as large as 600’ along the historical oxbow (a U-shaped area where the Poudre River was able to meander out of its main channel when it was connected with its floodplain). Woodward Link-n-Greens P.D.P. February 15, 2012 21 Staff finds that the project meets, and in cases exceeds, the standards in Section 3.4.1 by incorporating the following elements into the design. This is because: A. The project reconnects the Poudre River with its floodplain by grading the site to allow the river to flow into the historical oxbow on the site, in alignment with City Plan Policy ENV 4.2 (Enhance and Restore Streams), while also ensuring all floodplain protection standards are met. B. The applicants have worked extensively with the Natural Areas and Planning Departments to ensure that the river restoration area achieves the Poudre River Management Plan goals, through extensive plantings of upland, cottonwood, willow shrubland, wet meadow, and emergent wetland planting areas in the 28.7 Natural Habitat Buffer Zone. C. The project will also relocate the Poudre River Trail away from the Poudre River corridor, which will allow for greater species diversity in the corridor as less human-species interactions will take place. However, access is being provided for trail users down to the river so that the river landscape can still be enjoyed, as allowed by Section 3.4.1(E)(2)(5) of the Land Use Code. D. Where the buffer area proposed is less than 300’, the applicants have incorporated native plantings and extensive screening to ensure that the ecological value of the Poudre River corridor and the trail user’s experience is protected to the maximum extent feasible. 2) 3.4.4 Noise: Production activities will be conducted within the proposed buildings and the level of noise is not anticipated to exceed maximum allowable Db(A) levels. Buildings and service areas are located interior to the site to mitigate off site impacts. 3) 3.4.7 Historic and Cultural Resources: The Coy/Hoffman barn, silos, and milk house are designated on the Colorado State Register of Historic Properties. The barn and silos will remain, and the milk house is proposed to be moved to a new location approximately 30 feet north of the barn. The applicant has worked Woodward Link-n-Greens P.D.P. February 15, 2012 22 closely with Historic Preservation staff to preserve and integrate the historic buildings into the new development and has presented the project to the Landmark Preservation Commission (L.P.C.). The plan as proposed has received full support by the L.P.C. 4) 3.4.8 Parks and Trails: The Link-n-Greens, P.D.P. is consistent with the City's adopted Parks and Recreation Policy Plan. The plan proposes additional pedestrian/bicycle connections between East Lincoln Avenue, South Lemay Avenue and the Cache la Poudre River trail corridor. D. Division 3.5 – Building Standards • The architectural design for the Lot 3 commercial/retail buildings as well as the Woodward production, support and office buildings achieves a high standard of quality and compatibility within the context of the surrounding area. The new buildings make a substantial contribution to the character and image of the area. • Variations in massing, juxtaposed materials and forms, and repeated patterns of recesses and projections provide vertical and horizontal interest, breaking down the overall scale of the buildings. • The use of materials is balanced, with colors and textures helping to emphasize and articulate overall building forms. • Clerestories and other significant roof forms to add significant interest to the building facades. E. Division 3.6 – Transportation and Circulation 1) 3.6.3 Street Pattern and Connectivity Standards: Project continues to comply with the framework established with the Overall Development Plan. The project provides for access points to East Lincoln Avenue, South Lemay Avenue, and the Cache la Poudre River corridor that meet the purpose, general standard and spacing requirements of Section 3.6.3 with regard to safety, efficiency, and convenience for automobile, bicycle and pedestrian modes of travel, provided that a condition is approved, which recommends that a 15 feet wide public access easement shall be provided along the western Woodward Link-n-Greens P.D.P. February 15, 2012 23 property boundary to accommodate a future trail connection from Lincoln Avenue to the Poudre River Trail. The City Traffic Operations and Engineering Departments have reviewed proposed intersection locations and found proposed intersections to be in compliance with the standards in Section 3.6.3. 2) 3.6.4 Transportation Level of Service Requirements: The Traffic Operations and Engineering Departments have reviewed the Transportation Impact Study that was submitted to the City for review and have determined that the vehicular, pedestrian and bicycle facilities proposed with this P.D.P are consistent with the standards contained in Part II of the City of Fort Collins Multi-modal Transportation Level of Service Manual. 3. Neighborhood Meeting Three neighborhood meetings were held for the project, and a detailed summary of each meeting is attached. • A meeting for the Overall Development Plan was held on August 20, 2012. • A meeting for the Project Development Plan was held on November 7, 2012. • A second meeting for the Project Development Plan was held on January 30, 2012. 4. Findings of Fact/Conclusion In evaluating the request for the Woodward Link-n-Greens Project Development Plan, Staff makes the following findings of fact: A. The Modification of Standard to Section 4.20(D)(3)(a)(1) regarding Height/Mass that is proposed with this P.D.P. would not be detrimental to the public good and the Modification meets the applicable requirements of Section 2.8.2(H)(4). This is because the majority of development within the entire 100 acre plan provides for additional buffer with deeper setbacks and screening so that parking and buildings are not directly adjacent to the buffer, but rather set back from the buffer, and therefore the plan as submitted does not diverge from the standards of the Land Woodward Link-n-Greens P.D.P. February 15, 2012 24 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. B. The Modification of Standard to Section 4.20(D)(3)(a)(2) to allow parking lots between buildings and the River that is proposed with this P.D.P. would not be detrimental to the public good and the Modification meets the applicable requirements of Section 2.8.2(H)(1). This is because the proposed plan will promote the general purpose of the standard equally well or better than a plan which complies with the standard due to the extensive landscape buffers provided that are intended to screen parking lots and vehicle use areas when viewed from the River equally well or better than buildings that would be used for the same purpose in compliance with the standard. C. The P.D.P. complies with process located in Division 2.2 – Common Development Review Procedures for Development Applications of Article 2 – Administration. D. The P.D.P. is in conformance with the Link-n-Greens Overall Development Plan approved by the Planning and Zoning Board, on September 13, 2012. E. The P.D.P. is in conformance with the two Modifications of Standard approved by the Planning and Zoning Board, on September 13, 2012. F. The P.D.P. complies with relevant standards located in Article 3 – General Development Standards, with conditions. G. The P.D.P. complies with relevant standards located in Division 4.20, Community Commercial – Poudre River District (C-C-R) of Article 4 – Districts, provided that the Modification of Standard to Section 4.20(D)(3)(a)(1) and Modification of Standard to Section 4.20(D)(3)(a)(2) that are proposed with this P.D.P. are approved. RECOMMENDATION: Staff recommends approval of: A. Modification of Standard to Section 4.20(D)(3)(a)(2) to allow parking lots between buildings and the river. Woodward Link-n-Greens P.D.P. February 15, 2012 25 B. Modification of Standard to Section 4.20(D)(3)(a)(1) for Buildings D and E located on Lot 3 to be two stories. C. Link-n-Greens Project Development Plan #130001. The following conditions are recommended with the approval: 1) A 15 feet wide public access easement shall be provided along the western property boundary to accommodate a future trail connection from Lincoln Avenue to the Poudre River Trail. 2) This project shall provide adequate access for emergency vehicles and for those persons rendering fire protection and emergency services by complying with Article 9, Fire Department Access and Water Supply, of the Uniform Fire Code as adopted and amended pursuant to Chapter 9 of the City Code. 3) A horizontal design for the double left turn lane for southbound Lemay Avenue to eastbound Mulberry Street shall be provided (included as a part of the final approved utility plan set) and the right-of-way needed to accommodate this design shall be dedicated on the final plat. The double left turn lane shall be built in conjunction with any phase of the project which triggers the need for the double turn lane based upon the Traffic Impact Study for that phase. If the double left turn lane construction becomes the responsibility of the City the timing shall be at the City’s discretion. 4) The final design of the utility infrastructure and any associated easements, other than for Phase 1 for which final design and easements shall be included as a part of the Final Development Plan documents, shall be provided, approved, and accepted concurrent with and prior to the approval of the minor amendment(s) for each additional phase(s), building(s) and/ or prior to the start of any construction work on these items. 5) As part of Phase One, this project is required to obtain FEMA approval of a Conditional Letter of Map Revision (CLOMR) and a Letter of Map Revision (LOMR) in order to update the floodplain maps. 6) A variance to allow hazardous material critical facilities in the 100-year floodplain prior to approval of the LOMR was granted by the Water Board on January 17, 2013. This project is required to comply with all conditions set forth in the floodplain variance. Woodward Link-n-Greens P.D.P. February 15, 2012 26 7) In the river restoration area, wetland plugs shall be required for landscape installation at a standard interval of 18-24" on-center, depending on the species, and never to exceed 36" on center. Broadcast seeding can be used to supplement the installation of the plugs. ATTACHMENTS: 1. Site Plan 2. Plat 3. Landscape Plans 4. River Restoration Planting Regimes 5. Building Elevations 6. Approved Overall Development Plan 7. Statement of Planning Objectives 8. Modification Request 4.20(D)(3)(a) Building Height 9. Modification Request 4.20(D)(3)(b) Parking Lots 10. River Buffer Narrative 11. Alternative Compliance Request, Plant Material Sizes 12. Engineering Variance Requests 13. Neighborhood Meetings, comments and responses 14. Ecological Characterization Study 15. Wetlands Letter 16. Transportation Impact Study - conclusions page 17. Transportation Impact Study - amendment 18. Hazardous Material Impact Analysis Woodward Link-n-Greens P.D.P. February 15, 2012 27