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HomeMy WebLinkAbout17547 DRB report 1-10-18Page 1 of 12 17547 Cottonwood and Ida Concept Planned Unit Development Staff Report Date: Design Review Board, January 10, 2018 Project Description: A concept planned unit development for a multi-building, mixed use development. Project Location: The site is located at 615 E. Cottonwood Street/702 N. Ida Avenue. The legal description is Lots 5-28 plus vacated alley, Northern Pacific Addition, Section 6 Township 2S, Range 6E, PMM City of Bozeman, MT. The lots combined contain a total of 2.04 acres. The project is zoned HMU, Historic Mixed Use District. The project does not lie within an Overlay District. Recommendation: Provide comments on concept PUD Report Date: January 4, 2018 Staff Contact: Brian Krueger, Development Review Manager Executive Summary The planned unit development (PUD) concept review is a pre-application review and discussion with the City’s Development Review Committee (DRC), Design Review Board (DRB), other applicable advisory boards and the planning staff of the applicant's proposal and any requirements, standards or policies that may apply. This step represents an opportunity to identify any major problems that may exist and identify solutions to those problems before formal application. The property owner/applicant has made a PUD concept plan application for the construction of a mixed use development on 2 acres bound by a future extension of Aspen Street, Ida Avenue and East Cottonwood Street. The site is presently partially developed with older light industrial buildings. The PUD concept plan is for the development of a single phase project to construct an underground parking structure on the majority of the property, with five buildings placed on top of the parking podium and with one existing building to be renovated as a community center/commons building. The uses are proposed as a mix of residential (72%), office (22%), artisan manufacturing (4%), and the community building (2%). This application is reviewed against the Unified Development Code plan review criteria that apply to all site plan applications, conditional use permit criteria and the criteria of the PUD chapter specific to the proposed nature of the PUD. If relaxations to the zoning standards are requested with the PUD the review authority must find that the 17547 Cottonwood and Ida Concept PUD Staff Report Page 2 of 12 deviation will produce an environment, landscape quality and character superior to that produced by the existing standards of this chapter, and which will be consistent with the intent and purpose of this article, with the adopted goals of the city growth policy and with any relevant adopted design objectives plan. The Design Objectives Plan for the Entryway Corridors 2005 is the relevant adopted design objectives plan at this time. The Development Review Committee reviewed the application and provided comments on the application (attached). The Design Review Board will consider the application on January 10, 2018. The Board is required to provide a comments and recommendations to the applicant as to whether the concept plan meets the City’s requirements, standards and policies. TABLE OF CONTENTS Executive Summary ............................................................................................................ 1 SECTION 1 - MAP SERIES .................................................................................................... 3 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES .................... 5 SECTION 3 - STAFF ANALYSIS AND COMMENTS ......................................................... 6 APPENDIX A – PUD INTENT STATEMENTS .................................................................. 10 APPENDIX B - PROJECT SITE ZONING AND GROWTH POLICY ............................... 11 APPENDIX C - OWNER INFORMATION AND REVIEWING STAFF ............................ 12 ATTACHMENTS ................................................................................................................... 12 17547 Cottonwood and Ida Concept PUD Staff Report Page 3 of 12 SECTION 1 - MAP SERIES 17547 Cottonwood and Ida Concept PUD Staff Report Page 4 of 12 17547 Cottonwood and Ida Concept PUD Staff Report Page 5 of 12 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES a. Apartment building use in HMU. This is a proposed new conditional use in the HMU district. b. Reduction to front yard setbacks from 20’ to10’. c. Increase in allowable building height from 45’ top 48’. d. Reduced parking ratio for the residential uses: studio and efficiency units from 1.25 spaces per unit to one space per unit and a reduction in the ratio for one bedroom units from 1.5 to 1.25 spaces per unit. e. Reduced parking rations for nonresidential uses: reduction of 20% for office uses and 30% reduction for artisan manufacturing and other commercial uses. 17547 Cottonwood and Ida Concept PUD Staff Report Page 6 of 12 SECTION 3 - STAFF ANALYSIS AND COMMENTS The purpose of the Concept PUD is for discussion of the applicant’s proposal with the designated review committees in order to identify any requirements and applicable standards and policies, as well as offering the applicant the opportunity to identify major problems that may exist and identify solutions prior to making formal application. Staff has evaluated the project and offers the following comments and questions for the DRB’s consideration. Conformance to and consistency with the City’s adopted growth policy The project site has a future land use designation of industrial and a zoning designation of NEHMU, Northeast Historic Mixed Use. This project proposes apartment buildings within the NEHMU. While residential uses are allowed in HMU, they are only allowed as accessory to another industrial principal use and configured as no more that 50% of the gross area of a building. This project proposes apartment buildings. 93 dwelling units are proposed. A PUD relaxation is required in order to grant the apartment building use. The industrial land use designation description in the growth policy states ”This classification provides areas for the uses which support an urban environment such as manufacturing, warehousing, and transportation hubs. Development within these areas is intensive and is connected to significant transportation corridors. In order to protect the economic base and necessary services represented by industrial uses, uses which would be detrimentally impacted by industrial activities are discouraged. Although use in these areas is intensive, these areas are part of the larger community and shall meet basic standards for landscaping and other site design issues and be integrated with the larger community. In some circumstances, uses other than those typically considered industrial have been historically present in areas which were given an industrial designation in this growth policy. Careful consideration must be given to public policies to allow these mixed uses to coexist in harmony.” If the PUD project were approved and constructed, how would this alter the NEHMU district? Would future industrial uses ever locate in the vicinity of this project? Will a significant increase in residential units create future conflicts between the current industrial uses? It is arguable that the district changes substantially if this project is constructed with a stronger likelihood that more residential projects would follow and with an increase of conflicts between residential uses and industrial uses. The NEHMU zoning intent states “The unique qualities and nature of the area are not found elsewhere in the city and should be preserved as a place offering additional opportunities for creative integration of land uses. The intent of this area is to allow private and case-by-case determination of the most appropriate use of land in a broad range of both nonresidential and residential uses.” Is this project a creative integration of land uses or an inappropriate addition of new apartment building uses that were not 17547 Cottonwood and Ida Concept PUD Staff Report Page 7 of 12 anticipated in this district? Will the unique qualities and nature of the area be detrimentally impacted by the new apartment building uses? The following goals and objectives from the Bozeman Community Plan are included for discussion: Goal LU-1: Create a sense of place that varies throughout the City, efficiently provides public and private basic services and facilities in close proximity to where people live and work, and minimizes sprawl. The historic northeast mixed use district neighborhood has a distinct sense of place. Does this project contribute to the existing and expanding sense of place in this neighborhood? This is a developing urban center and this project would allow people to live in close proximity to work, public and private basic services and minimizes sprawl. Objective LU-1.4: Provide for and support infill development and redevelopment which provides additional density of use while respecting the context of the existing development which surrounds it. Respect for context does not automatically prohibit difference in scale or design. This project is infill development and is the redevelopment of an underutilized site that provides additional density of housing and new office space. The NEHMU district has not historically included significant amounts of office space or apartment buildings. Traditionally offices were only included in buildings as accessory to other light industrial uses. These buildings propose residential and office uses at a density not seen previously in the district. Does this larger scale respect the context of the existing development which surrounds it? Will the new uses respect the context of the existing development around it? Goal LU-2: Designate centers for commercial development rather than corridors to encourage cohesive neighborhood development in conjunction with non- motorized transportation options. The project is not along a corridor. This project provides additional housing density and allows residents to access services and recreation with non motorized transportation options. Objective LU-2.3: Encourage redevelopment and intensification, especially with mixed uses, of brownfields and underutilized property within the City consistent with the City’s adopted standards. This project includes mixed uses and is proposed on underutilized property. Objective C-1.3: Support compatible infill within the existing area of the City rather than developing land requiring expansion of the City’s area. 17547 Cottonwood and Ida Concept PUD Staff Report Page 8 of 12 This project is compatible with the B-3 zoning district, the downtown neighborhood and is an infill project within the City. Objective C-5.2 Encourage the inclusion of plazas and other urban design features as public areas within developments. This project includes a public access plaza open space and integrates urban design features into the public areas. Objective H 1.1 - Encourage and support the creation of a broad range of housing types in proximity to services and transportation options. This project provides new apartment housing options for singles or couples that do not exist in the NEHMU. The location is in proximity to services and transportation options. Objective H2.2 –Support infill development and the preservation of existing affordable housing and encourage the inclusion of additional affordable housing in new infill developments. This project proposes long term restricted affordable housing within an infill development. In staff’s review, the single largest policy discussion regarding this PUD is around the proposed character and the intensity of uses proposed within a relatively small area in the NEHMU that has not been seen historically or anticipated through the current zoning district regulations. Performance Points: With a PUD, Section 38.20.090.E.2.a.7 requires at least 20 performance points for the subject property. Points can be met using any combination of on-site and off-site open space or other options listed in the code. The Preliminary PUD must specify how the performance points are being met. The concept plan provides an inventory and small discussion of how the PUD performance requirements are to be met onsite. The proposal is to utilize a variety of options to satisfy the PUD performance requirement. Development Guidelines: With a PUD, Section 38.20.070.D.2 BMC requires development guidelines for all phased PUD’s. This project is proposed as one phase, as such development guidelines are not required, but each building will be required to be submitted with full design and site plan level materials with the preliminary PUD or subsequent with the final PUD plan review in order that building permits for all portions of the development can be issued simultaneously. The alternative is to submit a phasing plan and development guidelines. Pedestrian and Bicycle Circulation: The pedestrian circulation system is a strong element of the design. A hierarchy of types of circulation is provided and connections are available both in the north/south and east/west orientations. Bicycle racks are 17547 Cottonwood and Ida Concept PUD Staff Report Page 9 of 12 required and should covered, numbered and placed near key building entrances or open spaces. Automobile Connections: A two vehicular connections are provided from the primary adjacent streets. Two accesses are proposed from East Aspen Street. One access is proposed to the parking structure, with a second designated fire access along the west property boundary. The DRC discussed the need to provide a stronger secondary surface access to accommodate fire apparatus and sanitation trucks. The fire department noted a need to have better access into the plaza space in order to access the upper floors of the building during a fire event. The parking areas are entirely subgrade. While the code requires a minimum site size of 30 acres in order to institute a wayfinding district, smaller wayfinding signage is recommended for development of this size. Innovative Stormwater: The concept plan proposes performance points for low impact development stormwater design that localizes the treatment and conveyance of stormwater. This type of design is highly supported by staff. Opportunities exist to collect roof water underground for surface landscape irrigation. Landscaping: At the concept level, the application does not delineate in detail the amount of landscape features that are intended. Overall, the landscape plan should provide at least 23 performance points for landscape open space areas. The concept plans shows a mixture of trees, turf, plaza landscaping areas. No surface stormwater areas are shown. Common site furniture and outdoor plaza design should exhibit commonalities of theme and design. Public art is recommended in all plaza areas and near building entrances. Lighting: As with landscape features and site furniture, lighting of open space and major entrances into the development and individual buildings should implement a common theme that supports the concept of this mixed use PUD. A hierarchy of lighting types are recommended to direct pedestrians in the evening hours. A security lighting plan should be developed to provide an adequate level of light after business hours without lighting the entire development. LED lighting is highly recommended in all areas. Signage: Because this project contains multiple tenants, the Preliminary PUD should include a comprehensive signage plan which is required by code. Signs should be an integral part of the overall architectural design and should be part of the Development Guidelines. A common signage program that specifies location, size, lighting, materials, and unified graphic design for both shared and individual signs should be developed. This project is proposed on a singular lot, the code allows a maximum of 250 for the project. 17547 Cottonwood and Ida Concept PUD Staff Report Page 10 of 12 Public Areas and Plazas: Consideration should be given to identifying a general theme for the central public outdoor plaza area(s) with landscape furniture, landscape features, public art, and lighting. While the proposed open space plaza in the center of the development is proposed as public it is unlikely to be used as such as designed. A larger street presence for the plaza or other strategies to open it up to the public street spaces in order for the plaza to be utilized as public access performance points. Consideration should be given to shade structures/ elements within the outdoor areas. Landscape features, outdoor furniture, lighting, seating areas, and outdoor vendor areas should also be integral elements of these areas. Building Design:. While a single project the initial building designs read as if the project may have developed organically with each building. This is desirable in this location as the neighborhood context is a diverse mixture of building sizes/types and styles. The initial sketches demonstrate high quality design. The larger outstanding question is whether the dense intensity of uses is in conflict with the environment anticipated in the NEHMU zoning. The NEHMU district was adopted to reflect an existing local community character and did not anticipate a development of this intensity and size. Service and Utility areas: The proposal does not provide adequate circulation for deliveries, trash service, and outdoor storage. Depending on the overall mix of uses that develop within the project, demands for services may vary substantially. Some manufacturers and offices have a much higher demand for deliveries and services than other low intensity uses. Thought should be given to a flexible approach to trash enclosures and loading/delivery areas to service the development. Currently the proposal does not address this element in a way that would satisfy the criteria for the project. APPENDIX A – PUD INTENT STATEMENTS Sec. 38.20.010. Intent. A. It is the intent of the city through the use of the planned unit development (PUD) concept, to promote maximum flexibility and innovation in the development of land and the design of development projects within the city. Specifically, with regard to the improvement and protection of the public health, safety and general welfare, it shall be the intent of this chapter to promote the city's pursuit of the following community objectives: 1. To ensure that future growth and development occurring within the city is in accord with the city's adopted growth policy, its specific elements, and its goals, objectives and policies; 17547 Cottonwood and Ida Concept PUD Staff Report Page 11 of 12 2. To allow opportunities for innovations in land development and redevelopment so that greater opportunities for high quality housing, recreation, shopping and employment may extend to all citizens of the city area; 3. To foster the safe, efficient and economic use of land and transportation and other public facilities; 4. To ensure adequate provision of public services such as water, sewer, electricity, open space and public parks; 5. To avoid inappropriate development of lands and to provide adequate drainage, water quality and reduction of flood damage; 6. To encourage patterns of development which decrease automobile travel and encourage trip consolidation, thereby reducing traffic congestion and degradation of the existing air quality; 7. To promote the use of bicycles and walking as effective modes of transportation; 8. To reduce energy consumption and demand; 9. To minimize adverse environmental impacts of development and to protect special features of the geography; 10. To improve the design, quality and character of new development; 11. To encourage development of vacant properties within developed areas; 12. To protect existing neighborhoods from the harmful encroachment of incompatible developments; 13. To promote logical development patterns of residential, commercial, office and industrial uses that will mutually benefit the developer, the neighborhood and the community as a whole; 14. To promote the efficient use of land resources, full use of urban services, mixed uses, transportation options, and detailed and human-scale design; and 15. To meet the purposes established in section 38.01.040 BMC (Intent of the Unified Development Code). APPENDIX B - PROJECT SITE ZONING AND GROWTH POLICY Zoning Classification The subject property is zoned “NEHMU” (Northeast Historic Mixed Use District). The intent of the northeast historic mixed-use district is to provide recognition of an area that has developed with a blend of uses not commonly seen under typical zoning requirements. The unique qualities and nature of the area are not found elsewhere in the city and should be preserved as a place offering additional opportunities for 17547 Cottonwood and Ida Concept PUD Staff Report Page 12 of 12 creative integration of land uses. The intent of this area is to allow private and case-by-case determination of the most appropriate use of land in a broad range of both nonresidential and residential uses. Standards for buffering between different land uses are deliberately not as high as standards elsewhere in the community as it is assumed that persons choosing to locate in this area are aware of the variety of possible adjacent land uses and have accepted such possibilities as both acceptable and desirable. It is expected that the lots within this district will continue to develop under a variety of uses which may increase or decrease in scope in any given portion of the district. The clear intent of this district is to support a mix and variety of nonresidential and residential uses. Adopted Growth Policy Designation The property is designated as “Industrial” in the Bozeman Community Plan. This classification provides areas for the uses which support an urban environment such as manufacturing, warehousing, and transportation hubs. Development within these areas is intensive and is connected to significant transportation corridors. In order to protect the economic base and necessary services represented by industrial uses, uses which would be detrimentally impacted by industrial activities are discouraged. Although use in these areas is intensive, these areas are part of the larger community and shall meet basic standards for landscaping and other site design issues and be integrated with the larger community. In some circumstances, uses other than those typically considered industrial have been historically present in areas which were given an industrial designation in this growth policy. Careful consideration must be given to public policies to allow these mixed uses to coexist in harmony. APPENDIX C - OWNER INFORMATION AND REVIEWING STAFF Owner: Bangtail Partners LLC PO Box 10195 Palo Alto CA 94303 Applicant: Imperial Development LLC 33 N. Black Avenue Bozeman, MT 59715 Representative: Thinktank Design Group Inc. 33 N. Black Avenue Bozeman, MT 59715 Report By: Brian Krueger, Development Review Manager ATTACHMENTS PUD Concept Plan Development Review Committee Memorandum January 5, 2018 The full application and file of record can be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715.