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HomeMy WebLinkAbout17412 DRB.sr v217412 Design Review Board Staff Report for the Costco Addition Preliminary Planned Unit Development (PPUD) Date: Design Review Board, January 24, 2018, at 5:30 pm. Project Description: A Site Plan and Preliminary Planned Unit Development (PUD) application to allow a 24,000 square foot expansion of the existing 126,000 square foot Costco warehouse facility with parking, open space, and related site improvements. The site is located on 18.41 acres zoned B-2 and within the Class 1 I-90 entryway corridor. Project Location: 2505 Catron Street. The parcels are legally described Lot 1 Minor Subdivision No. 210, Bozeman, Montana, and Tract E-1 Certificate of Survey 1827, located in the Northeast ¼ of S35, T01 S, R05 E, P.M.M., Gallatin County, Montana. Recommendation: That the DRB review and provide comments on the conformance with Entryway Corridor building and site design standards, large scale retail zoning design requirements, and the performance standards required with the Planned Unit Development. Report Date: October 6, 2017 Staff Contact: Tom Rogers, Senior Planner EXECUTIVE SUMMARY Unresolved Issues There are no unresolved issues with the application. Project Summary The property owner and applicant made application to expand the existing Costco warehouse. The expansion includes an additional 24,000 square feet of floor area, 150 additional parking spaces, and related site improvements include stormwater retention, landscaping and street improvements. The subject property is within the I-90 Class 1 Entryway Corridor and due to the size of the building triggers the design requirements of large scale retail under section 38.22.180, BMC. The subject property is also with the North 19th Avenue and Oak Street Corridor Master Plan area. Two relaxations are required with the application. First, permission to exceed maximum size of retail stores, section 38.22.180.B, BMC. Secondly, grant approval 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 2 of 28 to construct parking in excess of 125% of the minimum parking requirements. See section 38.25.040.2.b, BMC. The relaxations to exceed maximum parking and retail space requirements may be granted with a Planned Unit Development (PUD). The criteria for granting a PUD are found section 38.20.090.E, BMC. Minimum design standards for both the Entryway Corridor and large scale retail apply. Therefore, the application requires a three tier design standard metric for approval. Tier one in a Certificate of Appropriateness (COA) for the Entryway Corridor. Tier two are the standards for large scale retail. Tier three are the additional requirements associated with the PUD to grant the excess parking and retail store square footage. A PUD is a discretionary approval and the review authority must find that the overall development is superior to that offered by the basic existing zoning standards. See Section 38.20.030.A.4, BMC. The intent of a PUD is to promote maximum flexibility and innovation in development proposals within the City. The applicants can request relaxations from the UDC in exchange for a higher quality of design. The obligation to show a superior outcome is the responsibility of the applicant. The applicant asserts that the overall outcome of the proposal is superior to what would be obtained from the application of the default B-2 district. The outcome will be a large-scale retail operation designed to: relate to the local community; be supportive of nearby neighborhood development scales, service and amenity needs, and connectivity requirements; and demonstrate innovative, high quality features. In addition, the project is subject to design review for conformance with the adopted Design Objectives Plan (DOP). Upon completion of the subject addition, landscaping and open space provisions, and related existing design refresh, where warranted, the project will be an aesthetically pleasing development in one of the most prominent commercial areas within the I-90 entryway corridor and more contextually, for residents in adjacent neighborhoods. The Design Review Board (DRB) considered the application on October 11, 2017, In addition, the Development Review Committee (DRC) reviewed and provided comments on the application. Based on these comments Costco revised the building design and numerous site plan components and submitted revised plans on December 21, 2017. Administrative Design Review (ADR) met on December 28, 2017 and found the revised plans generally complies with the standards and intent of the Entryway Corridor COA criteria. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 3 of 28 The DRC considered the revised application on January 10, 2018. The DRC identified a number of code correction and suggested conditions of approval. With code corrections and conditions of approval the DRV is forwarding a recommendation to the City Commission to approve the application. Prior to Site Plan approval a final PUD application is required which must address the conditions of approval in order for the applicant to be granted site plan approval. The Design Review Board (DRB) is scheduled to review the application on October 11, 2017. The Design Review Board is the design review advisory body to the City Commission on this application. The DRB is required to make a recommendation to the City Commission on this application. Alternatives 1. Recommend Approval of the application with the recommended conditions with modifications to the recommended conditions and report findings; 2. Recommend Approval of the application with modifications to the recommended conditions and modifications to the report findings; 3. Recommend Denial the application based on the Design Review Board’s findings of non-compliance with the applicable criteria contained within the staff report; or 4. Open and continue the review on the application with the concurrence of the applicant, with specific direction to staff or the applicant to supply additional information or to address specific items. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 4 of 28 TABLE OF CONTENTS Executive Summary ............................................................................................................. 1 Unresolved Issues ............................................................................................................... 1 Alternatives ......................................................................................................................... 3 SECTION 1 - MAP SERIES .................................................................................................... 5 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES .................. 20 SECTION 3 - RECOMMENDED CONDITIONS OF APPROVAL .................................... 20 SECTION 4 – REQUIRED CODE PROVISIONS ................................................................ 20 SECTION 5 - STAFF ANALYSIS AND FINDINGS ........................................................... 21 Planned Unit Development Review Criteria, Section 38.20.090.E, BMC. ...................... 21 Entryway Overlay District Review Criteria, Section 38.17.060 BMC. ............................ 25 Large-scale retail, size limitations and design and site development guidelines and requirements, Section 38.22.180, BMC. ........................................................................... 25 APPENDIX A –PROJECT SITE ZONING AND GROWTH POLICY................................ 26 APPENDIX B – OWNER INFORMATION AND REVIEWING STAFF ........................... 27 APPENDIX C –PLANNED UNIT DEVELOPMENT INTENT ........................................... 27 ATTACHMENTS ................................................................................................................... 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 5 of 28 SECTION 1 - MAP SERIES Zoning Classification 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 6 of 28 Growth policy designation 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 8 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 9 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 10 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 11 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 12 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 13 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 14 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 15 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 16 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 17 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 18 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 19 of 28 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 20 of 28 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES a. Section 38.22.180.B, BMC, exceed maximum retail store size. Maximum allowed is 75,000 square feet. b. Section 25.040.2b, BMC, exceed maximum allowable parking. Maximum allowed is 125% of required parking. SECTION 3 - RECOMMENDED CONDITIONS OF APPROVAL Please note that these conditions are in addition to any required code provisions identified in this report. Conditions approval provided below are within the purview of the DRB. Additional conditions of approval and code corrections are required and will be included with the final report provided to the City Commission. Recommended Conditions of Approval: 1. Section 38.25.010.A.a. Parking. Parking is calculated at 85 percent of the gross floor area. The parking demand provided in the submittal uses the total gross floor area. The plans are under stating the parking relaxation requested. Please revise the calculations and update the PUD performance analysis to reflect the increased relation request. 2. Revised analysis showing compliance with required PUD performance was omitted with the revised plans. The December 14, 2017 narrative does include statements that the plans meet standards the City submittal must include analysis and references to documentation showing how the standards are met. SECTION 4 – CODE REQUIREMENTS REQUIRING PLAN CORRECTIONS 1. Overflow parking must be designed to minimize stormwater runoff. LID integration is required to meet the standards of the Design Objective Plan. This is a minimum standard, any requested PUD performance points must show a superior design. This provision was noted in the correspondence dated September 15, 2017. The City respectfully disagrees that the parking areas exceeding the maximum of 125 percent is defined as “overflow” parking. Please revise the parking area that exceeds the maximum to include LID designs. 2. Color materials palette keyed to the building elevations. Including all exterior siding, trim, roofing, doors, windows, glazing, awnings, stairs, railings, trash enclosure materials, mechanical screening, and fencing. The only materials information provided are shown above. The materials must be described. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 21 of 28 SECTION 5 - RECOMMENDATION AND FUTURE ACTIONS The Development Review Committee (DRC) considered the Planned Unit Development and Site Plan applications on January 10, 2018. The DRC found that the application is sufficient for continued review. The Design Review Board will consider the proposal on January 24, 2018. The Design Review Board public meeting will occur at 121 North Rouse Avenue, Bozeman MT, in the City Commission room at 5:30 p.m. The City Commission will consider the proposal on March 19, 2018. The City Commission public hearing will occur at 121 North Rouse Avenue, Bozeman MT, in the City Commission room at 6 p.m. SECTION 5 - STAFF ANALYSIS AND FINDINGS Analysis and resulting recommendations are based on the entirety of the application materials, municipal codes, standards, plans, public comment, and all other materials available during the review period. Collectively this information is the record of the review. The analysis in this report is a summary of the completed review. Planned Unit Development Review Criteria, Section 38.20.090.E, BMC. Section 4.03C of the application presents the applicant’s response to these criteria. a. All development. All land uses within a proposed planned unit development shall be reviewed against, and comply with, the applicable objectives and criteria of the mandatory "all development" group. (1) Does the development comply with all city design standards, requirements and specifications for the following services: water supply, trails/walks/bike ways, sanitary supply, irrigation companies, fire protection, electricity, flood hazard areas, natural gas, telephone, storm drainage, cable television, and streets? Except for those standards proposed for relaxation, identified code corrections and applicable conditions of approval, the application conforms. (2) Does the project preserve or replace existing natural vegetation? The project requires modification of existing wetlands, re-routing a water course, filling wetlands, and re-establishing landscaping I the disturbed areas. All applicable permits have been secured. A watercourse planting plan was submitted with this application. The plan proposes connecting existing trails with proposed trail networks in the PROST Plan. These included connecting the parking area with the natural area on the west side 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 22 of 28 of the property and completing the pathway on the east side of the property between Catamount Catron Streets. The site has been substantially disturbed by previous development. There will be substantial placement of new vegetation within the open spaces and parking areas. The master plan includes overall landscaping proposed for setback, common parking and open space areas. (3) Are the elements of the site plan (e.g., buildings, circulation, open space and landscaping, etc.) designed and arranged to produce an efficient, functionally organized and cohesive planned unit development? Yes, the revised plan proposal appears cohesive and has a variety of coordinating elements ranging from design standards to physical site, circulation, open space and landscape configurations. (4) Does the design and arrangement of elements of the site plan (e.g., building construction, orientation, and placement; transportation networks; selection and placement of landscape materials; and/or use of renewable energy sources; etc.) contribute to the overall reduction of energy use by the project? The project has lot layouts which are favorable to installation of solar systems. Such systems are not proposed at this time. As noted in the application Costco will improve energy efficiency by up-dating refrigeration and lighting fixtures. The site will be integrated in to the existing and developing pedestrian and bicycle network which will enable travel without motor vehicles. However, due to the nature of the service provided, utilization of multi-modal transportation by customers is unlikely. (5) Are the elements of the site plan (e.g., buildings, circulation, open space and landscaping, etc.) designed and arranged to maximize the privacy by the residents of the project? Not applicable. (6) Park land. Does the design and arrangement of buildings and open space areas contribute to the overall aesthetic quality of the site configuration, and has the area of park land or open space been provided for each proposed dwelling as required by section 38.27.020. Commercial development is not required to provide parkland. No parkland is proposed with this development. (7) Performance. All PUDs shall earn at least 20 performance points. With a PUD, Section 38.20.090.E.2.a.7 requires at least 20 performance points for the subject property. In addition, as noted above, the project is with the North 19th Avenue 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 23 of 28 and Oak Street Corridor Master Plan. Therefore, a total of 30 performance points must be met. There are 11 options provided in the UDC to meet this requirement. 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. Chapter 3 of the applicant’s submittal includes an analysis of the proposed performance point summary. The revised plans did not include a revised analysis of the PUD performance, see Condition No.2 above. However, the existing summary includes numerous items showing superior design including the following: Description Points Earned 1. On-site storm-water retention/detention 2.0 2. Open space 15.9 3. Planting plan 1.0 4. Irrigation systems 1.0 5. Limited (none) sod 1.0 6. Sustainable design and construction 4.0 7. Water use reduction 1.0 (8) Is the development being properly integrated into development and circulation patterns of adjacent and nearby neighborhoods so that this development will not become an isolated "pad" to adjoining development? The application proposes expanding an existing facility. The original Costco Warehouse was reviewed and approved prior to the Bozeman Large Scale retail ordinance, adoption of the Entryway Corridor overlay, and the Design Objectives Plan. The existing condition created an isolated development with limited connectivity to adjacent properties and residential development. The use is and will continue to be heavily automobile dependence. The proposed expansion improves the connectivity and integration into the community. This is achieved by constructing lot frontage pathways, completing trail networks in and through the site, integrating stormwater facilities into the design, and the substantially revised internal circulation will improve safety and access to the entrance. c. Commercial. Planned unit developments in commercial areas (B-1, B-2, B-3 and UMU zoning districts) may include either commercial or multi-household development, however adequate but controlled access to arterial streets is essential. Activities would include a broad range of retail and service establishments designed to serve consumer demands of the city area. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 24 of 28 (1) If the project contains any use intended to provide adult amusement or entertainment, does it meet the requirements for adult businesses? No adult amusement or entertainment is proposed. (2) Is the project contiguous to an arterial street, and has adequate but controlled access been provided? The project is at the intersection of an arterial street and two local streets: East Valley Center Road, Catamount, and Catron Streets. Catamount will be constructed to a local street cross section. Staff is requiring the intersection of Max Avenue and Catron be improved prior to site plan approval to accommodate the additional traffic generated by the expansion. (3) Is the project on at least two acres of land? Yes, the Costco property includes the existing and proposed site lot areas, 13.731 and 4.68 (4) If the project contains two or more significant uses (for instance, retail, office, residential, hotel/motel and recreation), do the uses relate to each other in terms of location within the PUD, pedestrian and vehicular circulation, architectural design, utilization of common open space and facilities, etc.? Not applicable. (5) Is it compatible with and does it reflect the unique character of the surrounding area? Neutral. The area in question has evolved to be Bozeman’s large scale retail center. The proposed expansion further solidifies that character. (6) Is there direct vehicular and pedestrian access between on-site parking areas and adjacent existing or future off-site parking areas which contain more than ten spaces? Yes. (7) Does the project encourage infill, or does the project otherwise demonstrate compliance with the land use guidelines of the city growth policy? The project demonstrates compliance with the land use guidelines of the city growth policy with conditions and code corrections. (8) Does the project provide for outdoor recreational areas (such as additional landscaped areas, open spaces, trails or picnic areas) for the use and enjoyment of those living in, working in or visiting the development? Yes. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 25 of 28 Entryway Overlay District Review Criteria, Section 38.17.060 BMC. The site is located within the Class I, I-90 and Class II East Oak Street Entryway Corridor Overlay District. ADR staff has reviewed the proposal for conformance with the Bozeman Design Guidelines for Entryway Corridors. Staff finds the proposal to be in general conformance with the 2005 Bozeman Design Guidelines for Entryway Corridors except for the following, which is not in conformance and requires a condition of approval. None have been identified. Large-scale retail, size limitations and design and site development guidelines and requirements, Section 38.22.180, BMC. No retail building, utilized by a single tenant, shall exceed 75,000 square feet. The applicant requests relaxation of standards for large-scale retail size. While this request may be considered by the review authority, other aspects of large-scale development code must still demonstrate conformance in the PPUD. Code provisions identified during DRC review and related to report sections on building design and connectivity include: 1. Section 38.22.180.C.5. Design criteria and development standards. Large-scale retail. C.5 requires such a project to meet the City’s design criteria and development standards contained in Article 17 of Chapter 38, as relates to entryway corridor overlay district locations, and including the general design objectives and guidelines contained in the City’s Design Objectives Plan. Said design criteria and development standards shall be exceeded through design practices such as additional architectural detailing, exceptional landscape design, improved public spaces, use of renewable energy and/or recycled construction materials, and provisions for alternative modes of transportation. The review authority shall determine whether established design criteria and development standards have been exceeded based on a recommendation from the Design Review Board. 2. Sec.38.22.180.C.6. Adaptability for re-use/compartmentation. The building design shall include specific elements for adaptation for future multi-tenant reuse, compartmentalized building systems, adaptable facades, multiple entrances, site design that complements multiple entrances, and modulation or division of the exterior and interior designs to define separate future uses. The PPUD should show how this requirement will be met. 3. Sec.28.22.180.D.1. Rehabilitation plan. A rehabilitation or redevelopment plan must be provided and approved by the review authority. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 26 of 28 Please refer to the Entryway Corridor review above. In addition, Staff finds the application meets the intent of the Large Scale retail design standards and site development guidelines. APPENDIX A –PROJECT SITE ZONING AND GROWTH POLICY Zoning Designation and Land Uses: The property is zoned B-2 (community business). The intent of the B-2 community business district is to provide for a broad range of mutually supportive retail and service functions located in clustered areas bordered on one or more sides by limited access arterials. Please note that this lot is not part of the Gallatin Center Development (Target, Ross, Bob Ward’s, etc.). Adopted Growth Policy Designation: The Future Land Use map of the Bozeman 2020 Community Plan identifies two designations for the subject area. The existing Costco property is designated as “Regional Commercial and Services.” This classification provides opportunities for activities that serve a multi county region, such as retail, education, health services, public administration, and tourism. The proposed area to be annexed to the existing property is designated as “Community Commercial Mixed Use”. This classification states that activities within this land use category are the basic employment and services necessary for a vibrant community. Establishments located within these categories draw from the community as a whole for their employee and customer base and are sized accordingly. A broad range of functions including retail, education, professional and personal services, offices, residences, and general service activities typify this designation. In the “center-based” land use pattern, Community Commercial Mixed Use areas are integrated with significant transportation corridors, including transit and non-automotive routes, to facilitate efficient travel opportunities. The density of development is expected to be higher than currently seen in most commercial areas in Bozeman and should include multi-story buildings. A Floor Area Ratio in excess of .5 is desired. It is desirable to allow residences on upper floors, in appropriate circumstances. Urban streetscapes, plazas, outdoor seating, public art, and hardscaped open space and park amenities are anticipated, appropriately designed for an urban character. Placed in proximity to significant streets and intersections, an equal emphasis on vehicle, pedestrian, bicycle, and transit circulation shall be provided. High density residential areas are expected in close proximity. Including residential units on sites within this category, typically on upper floors, will facilitate the provision of services and opportunities to persons without requiring the use of an automobile. 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 27 of 28 The Community Commercial Mixed Use category is distributed at two different scales to serve different purposes. Large Community Commercial Mixed Use areas are significant in size and are activity centers for an area of several square miles surrounding them. These are intended to service the larger community as well as adjacent neighborhoods and are typically distributed on a one mile radius. Smaller Community Commercial areas are usually in the 10-15 acre size range and are intended to provide primarily local service to an area of approximately one-half mile radius. These commercial centers support and help give identity to individual neighborhoods by providing a visible and distinctive focal point. They should typically be located on one or two quadrants of intersections of arterials and/or collectors. Although a broad range of uses may be appropriate in both types of locations the size and scale is to be smaller within the local service placements. Mixed use areas should be developed in an integrated, pedestrian friendly manner and should not be overly dominated by any single land use. Higher intensity employment and residential uses are encouraged in the core of the area or adjacent to significant streets and intersections. As needed, building height transitions should be provided to be compatible with adjacent development. The properties located directly north, south, and east are designated as “Community Commercial Mixed Use”, and “Regional Commercial and Services”. The vacant land to the west is designated as “Residential.” APPENDIX B – OWNER INFORMATION AND REVIEWING STAFF Owners: Cutthroat Partners, LLC, 300 East Griffin Drive, Bozeman, MT 59715 and Costco Wholesale Corporation, 999 Lake Drive, Issaquah, WA 98029 Applicant: Peter Kahn, Costco Wholesale Corporation, 999 Lake Drive, Issaquah, WA 98029 Representatives: Steve Bullock, MG2, 1101 2nd Avenue, Seattle, WA 98101 and Clint Little, DOWL, 2090 Stadium Drive, Bozeman, MT 59715 Report By: Tom Rogers, Senior Planner APPENDIX C –PLANNED UNIT DEVELOPMENT INTENT 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: 17412 DRB Staff Report for the Costco Addition Planned Unit Development (PUD) Page 28 of 28 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; 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. ATTACHMENTS The full application and file of record can be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715.