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HomeMy WebLinkAbout19319 DRB Staff ReportPage 1 of 13 19319 Bridger Meadows Planned Unit Development Concept Review Date: Design Review Board, September 11, 2019 Project Description: A concept planned unit development for a major subdivision that contains 27 single-family residential lots. Project Location: 185 Endurance Lane, S31, T01 S, R06 E, C.O.S. 885, Tract NW4SE4, 12 AC. The project is zoned R-1, Residential Low Density. The project does not lie within an Overlay District. Recommendation: Provide comments on concept PUD Report Date: October 2, 2019 Staff Contact: Sarah Rosenberg, Associate Planner 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 residential development on 12 acres along Boylan Drive and north of Commercial Drive. The site is zoned R-1 and is presently vacant. The PUD concept plan is for the development of a two phase project to construct 27 houses, including three which would be dedicated as affordable housing. Six of the acres would be developed for the houses while the other six acres would be preserved as prime riparian habitat and wetlands that border the City’s East Gallatin River Park to the west. 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 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 DRC has found that 19319 Bridger Meadows Concept PUD Staff Report Page 2 of 13 the proposed development and relaxations do not meet this intent and therefore are not in support of the application. The Development Review Committee reviewed the application and provided comments on the application (attached). The Design Review Board will consider the application on October 9, 2019. 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 .................... 6 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 ................................................................................................................... 13 19319 Bridger Meadows Concept PUD Staff Report Page 3 of 13 SECTION 1 - MAP SERIES 19319 Bridger Meadows Concept PUD Staff Report Page 4 of 13 19319 Bridger Meadows Concept PUD Staff Report Page 5 of 13 19319 Bridger Meadows Concept PUD Staff Report Page 6 of 13 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES a. BMC 38.400.010.A.2. Relaxation for the 60 foot right of way and distance on cul-de-sac road length. b. BMC 38.400.010.A.5. Relaxation to allow for a cul-de-sac at a street that is longer than 150 feet. c. BMC 38.400.020. Relaxation from primary access as a private street. d. BMC 38.410.020. Relaxation from the requirements of a Neighborhood Center. e. BMC 38.400.110. Relaxation to require sidewalks on both sides of the street. f. BMC 38.410.040. Relaxation to block length. g. BMC 38.420.020. Relaxation to allow for wetlands to be designated as parklands. h. BMC 38.420.060. Relaxation that requires parkland to have 100 percent of its perimeter on public or private streets or roads. i. BMC 38.410.100. Relaxation to allow for encroachment into the watercourse setback. j. BMC 38.370.070. Relaxation of pricing of affordable housing to allow for the AMI for a two-bedroom unit to be used for a three person household. k. BMC 38.380.130. Relaxation to allow for incentives for lower-priced homes to be available for homes priced at 80% AMI. 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. The following comments are provided 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 residential. This project proposes residential use which is in conformance with the growth policy. The residential land use designation description in the growth policy states, “This category designates places where the primary activity is urban density dwellings. Other uses which complement residences are also acceptable such as parks, low intensity home based occupations, fire stations, churches, and schools. High density residential areas should be established in close proximity to commercial centers to facilitate the provision of services and employment opportunities to persons without requiring the use of an automobile. Implementation of this category by residential zoning should provide for and coordinate intensive residential uses in proximity to commercial centers. The residential 19319 Bridger Meadows Concept PUD Staff Report Page 7 of 13 designation indicates that it is expected that development will occur within municipal boundaries, which may require annexation prior to development. The dwelling unit density expected within this classification varies between 6 and 32 dwellings per net acre. A higher density may be considered in some locations and circumstances. A variety of housing types can be blended to achieve the desired density. Large areas of single type housing are discouraged. In limited instances the strong presence of constraints and natural features such as floodplains may cause an area to be designated for development at a lower density than normally expected within this category. All residential housing should be arranged with consideration of compatibility with adjacent development, natural constraints such as watercourses or steep slopes, and in a fashion which advances the overall goals of the Bozeman growth policy. The residential designation is intended to provide the primary locations for additional housing within the planning area.” 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 proposal for a residential development is consistent with the surrounding neighborhoods. A relaxation will be required for the density requirements since it is based on net density which is the buildable unit of land. R-1 density requirements is 5 dwellings per net acre. Since multiple lots are located within the floodplain, they should be eliminated as the DRC is not in support of creating buildable lots within the floodplain. Objective LU-4.1: Protect important wildlife habitats, and natural areas which provide for beneficial functions such as floodplains. This project is proposed to the east of Glen Lake Rotary Park and to the south of Bridger Creek Park which have been preserved and maintained to protect a natural area that is a fundamental element of Bozeman’s character. Although the applicant proposes to preserve a portion of the wetlands and floodway and maintain its natural state, a significant amount of the development is located within this natural area which would have a significant impact on it. Objective LU-4.3: Encourage the creation of well-defined residential neighborhoods. Each neighborhood should have a clear focal point, such as a park, school, other open space, or community facility, and shall be designed to promote pedestrian convenience. Parkland is required with this application. The applicant proposes to construct a 6 acre park on the western portion of the development. The proposed location of the park is not 19319 Bridger Meadows Concept PUD Staff Report Page 8 of 13 well-defined and does not have adequate public access for pedestrian convenience. There is minimal parking and pedestrian connection to the park resulting it appearing as if it were a private park and inaccessible to the public. Objective C-2.1: Require adequate and efficient circulation in all subdivisions and site plans and provide connectivity between developments and major destinations for both the pedestrians and vehicles, including human powered vehicles. As the project is proposed, access to the development would be from the drive access through the Links Condominiums development to the east. This drive access is proposed to be the primary access to the development. An easement is required from the Links to use the drive access. The applicant has not demonstrated that a recorded easement exists. A secondary access to the south that is proposed to be an emergency service access is not adequate for public and secondary access to the development. Both of these entrances to the development and proposed park do not satisfy this objective. Goal H-3: Encourage an adequate supply of affordable housing and land for affordable housing. Any subdivision that proposes ten or more market-rate homes require 10% of the development to be designated as affordable housing or provided as cash-in-lieu. The Bridger Meadows development proposes 27 lots, three of which would be designated as affordable housing lots. Lots 22, 23, and 24 are proposed to be single household attached homes which would satisfy this requirement. However, a relaxation is required as three or more townhouse or rowhouse units are not allowed in the R-1 zone district per BMC 38.310.030.A. Goal E-1. Continue protecting critical lands as valuable resources for the Community. Each of the objectives within this goal stress on protecting, restoring, and enhancing critical lands. This includes watercourses, wetlands, buffers, and floodplains. It is important as this development progresses to ensure that the critical lands are maintained. The Engineering Division found that the applicant has failed to demonstrate the environmental impacts and life safety considerations that the development has on the critical lands based on the analysis provided in the application. The development requires a relaxation to allow for development within the watercourse setback and the floodplain. The DRC is not in support of the relaxation to construct within the watercourse setback of the floodway. Goal R-1: Provide for accessible, desirable, and adequately maintained public parks, open space, trail systems, and recreational facilities for residents of the community. 19319 Bridger Meadows Concept PUD Staff Report Page 9 of 13 The lack of public access to the proposed park and lack of frontage does not meet this goal. Performance Points: With a PUD, Section 38.430.090.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. The intent of a PUD is to promote maximum flexibility and innovation of development projects. The project does not adequately display how the use of a PUD goes above and beyond so that greater opportunities for high quality housing or recreation exists. The DRC determined that the proposed modified standards do not create an environment, landscape quality and character superior to that produced by the existing standards. In order to achieve these points, the DRC reviewed the relaxation requests and how the performance requirements are to be met onsite. The applicant has failed to demonstrate how the proposed PUD plan benefits the community at large and how they achieve the performance points. The proposal does not satisfy the PUD performance requirement nor is the DRC in support of any of the relaxations. Environmental Impacts: A portion of the development is proposed to be constructed in the watercourse setback. A relaxation was requested by the applicant, however, staff is not in support of it at this time as more information is needed. The applicant desires to construct in the floodway. New structures are prohibited to be constructed in the floodway pursuant to the City’s floodplain regulations BMC 38.600.240.A.1. Should a PUD relaxation be granted by the approval authority to place fill within the watercourse setback, the applicant is advised that prior to preliminary plat or preliminary PUD approval, it will be required to obtain approval of a Conditional Letter of Map Revision Based on Fill (CLOMR-F) from FEMA. Parkland: Two relaxations are requested for parkland. The first is to allow wetlands to be designated as parkland and the second is to allow a reduction of parkland frontage requirements. Both of these relaxations require a recommendation from the Recreation Parks Advisory Board. The DRC is not in support of these relaxations as they stand since the park has insignificant public access to the site and is located within the floodplain and watercourse setback. The parkland is not developable due to these restraints, so the project does not demonstrate how the development is superior to that produced by existing standards. A parks plan is required to satisfy the requirements for a Neighborhood Center per BMC 38.410.020. 19319 Bridger Meadows Concept PUD Staff Report Page 10 of 13 Development Guidelines: With a PUD, Section 38.430.070.D.2 BMC requires development guidelines for all phased PUD’s. This project is proposed as two phases requiring development guidelines. Development guidelines are required with the pre-application review. Affordable Housing: Bridger Meadows is proposing that it will meet the current requirements of the City of Bozeman Affordable Housing Ordinance by providing three affordable housing lots. They are requesting a relaxation to allow for incentives for lower-priced homes to be available for homes priced at 80% AMI and to allow for the AMI for a two person bedroom unit to be used for a three person household. This is still under review as the City Commission is currently considering permanently revising the ordinance. Automobile Connections: Vehicular access is proposed through two connections, one through the Links Condominiums from Birdie Drive to the east and one from Commercial Drive to the south which would be considered an emergency access point. The DRC requires that a recorded access easement be provided that meets applicable standards to ensure that physical and legal access is granted through the Links project site. Both the Engineering Division and the Fire Department noted that the proposed secondary access from Commercial Drive cannot contain a gate across the local street and as designed, does not meet standards for connectivity or secondary access. Pedestrian Circulation: The applicant is requesting a relaxation from the requirement to have sidewalks on both sides of the street. Given that the development has residential homes on both the north and south sides of the development, sidewalks are required on both sides of the street to provide pedestrian connectivity throughout the development. 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 open space areas. The watercourse setback and wetland area is under separate landscape standards that must be adhered to. APPENDIX A – PUD INTENT STATEMENTS Sec. 38.430.010. 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: 19319 Bridger Meadows Concept PUD Staff Report Page 11 of 13 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 BMC (Intent of the Unified Development Code). APPENDIX B - PROJECT SITE ZONING AND GROWTH POLICY Zoning Classification 19319 Bridger Meadows Concept PUD Staff Report Page 12 of 13 The subject property is zoned “R-1” (Residential Low Density District). The intent of the R-1 residential low density district is to provide for primarily single-household residential development and related uses within the city at urban densities. These purposes are accomplished by: 1) Providing for a minimum lot size in developed areas consistent with the established development patterns while providing greater flexibility for clustering lots and housing types in newly developed areas. 2) Providing for such community facilities and services as will serve the area's residents while respecting the residential character and quality of the area. Adopted Growth Policy Designation The property is designated as “Residential” in the Bozeman Community Plan. It states, “This category designates places where the primary activity is urban density dwellings. Other uses which complement residences are also acceptable such as parks, low intensity home based occupations, fire stations, churches, and schools. High density residential areas should be established in close proximity to commercial centers to facilitate the provision of services and employment opportunities to persons without requiring the use of an automobile. Implementation of this category by residential zoning should provide for and coordinate intensive residential uses in proximity to commercial centers. The residential designation indicates that it is expected that development will occur within municipal boundaries, which may require annexation prior to development. The dwelling unit density expected within this classification varies between 6 and 32 dwellings per net acre. A higher density may be considered in some locations and circumstances. A variety of housing types can be blended to achieve the desired density. Large areas of single type housing are discouraged. In limited instances the strong presence of constraints and natural features such as floodplains may cause an area to be designated for development at a lower density than normally expected within this category. All residential housing should be arranged with consideration of compatibility with adjacent development, natural constraints such as watercourses or steep slopes, and in a fashion which advances the overall goals of the Bozeman growth policy. The residential designation is intended to provide the primary locations for additional housing within the planning area.” APPENDIX C - OWNER INFORMATION AND REVIEWING STAFF Owner: Bangtail Partners LLC PO Box 10195 Palo Alto CA 94303 Applicant: Bridger Center, LLC, 1450 Cherry Drive, Bozeman, MT 59715 Representative: Thomas W. Murphy, 1450 Cherry Drive, Bozeman, MT 59715 Report By: Sarah Rosenberg, AICP, Associate Planner 19319 Bridger Meadows Concept PUD Staff Report Page 13 of 13 ATTACHMENTS PUD Concept Plan Development Review Committee Memorandum September 20, 2019 The full application and file of record can be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715.