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HomeMy WebLinkAbout19527 DRB Staff ReportPage 1 of 14 19527 Billings Clinic Planned Unit Development Concept Review Date: Design Review Board, February 26, 2020 Project Description: A concept planned unit development for a medical mixed use campus on 58 acres. A portion of the property is zoned B-2 and another is within the county. Project Location: Western corner of East Valley Center Road and North 27th Avenue. Lot 2A, Minor Subdivision 221E Recommendation: Provide comments on concept PUD Report Date: February 20, 2020 Staff Contact: Sarah Rosenberg, AICP, 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 medical mixed use campus on 58 acres along East Valley Center Road, in between North 27th Avenue and Davis Lane. The majority of the site is zoned B-2, however, there is a small portion on the west side of the project that is located within the county. This portion will need to be annexed in prior to Preliminary PUD. The site is presently vacant. The PUD concept plan envisions a 20-year phased development. Phase one of the campus will consist of an ambulatory center with urgent care, multi-specialty physician group practice, and an outpatient surgery center. Infrastructure improvements including internal streets, water and sewer mains will be completed with Phase 1. Subsequent phases have not been identified with this application. 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 19527 Billings Clinic PUD Concept Review Page 2 of 14 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 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 February 26, 2020. 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 ........................................ 8 SECTION 3 - STAFF ANALYSIS AND COMMENTS ....................................................................... 8 APPENDIX A – PUD INTENT STATEMENTS .............................................................................. 12 APPENDIX B - PROJECT SITE ZONING AND GROWTH POLICY ................................................. 13 APPENDIX C - OWNER INFORMATION AND REVIEWING STAFF ............................................. 14 ATTACHMENTS ........................................................................................................................ 14 19527 Billings Clinic PUD Concept Review Page 3 of 14 SECTION 1 - MAP SERIES Page 4 of 14 Development Areas 19527 Billings Clinic PUD Concept Review Page 5 of 14 Height Relaxation Map 19527 Billings Clinic PUD Concept Review Page 6 of 14 Open Space Network 19527 Billings Clinic PUD Concept Review Page 7 of 14 Proposed Utility Page 8 of 14 SECTION 2 - REQUESTED RELAXATION / DEVIATIONS / VARIANCES a. BMC 38.320.050. Relaxation for building height to allow for up to 135 feet. b. BMC 38.560. Relaxation to allow a maximum allowance for signage allowed per building rather than per lot. 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 Regional Commercial and Services. This project proposes a medical mixed use campus which is in conformance with the growth policy. The regional commercial and services land use designation description in the growth policy states, “Bozeman is a retail, education, health services, public administration, and tourism hub and provides opportunities for these activities for a multi-county region. Often the scale of these services is larger than would be required for Bozeman alone. Because of the draw from outside Bozeman, it is necessary that these types of facilities be located in proximity to significant transportation routes. Since these are large and prominent facilities within the community and region, it is appropriate that design guidelines be established to ensure compatibility with the remainder of the community. Opportunity for a mix of uses which encourages a robust and broad activity level is to be provided. Residential space should not be a primary use and should only be included as an accessory use above the first floor. Any development within this category should have a well-integrated transportation and open space network which encourages pedestrian activity, and provides ready access within and to adjacent development.” 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 mixed use medical campus development will provide regional services in close proximity to where people live and work as well as provide services to the surrounding 19527 Billings Clinic PUD Concept Review Page 9 of 14 area. The development consists of 58 acres that will allow for a larger mixed-use development, such as medical services and complimentary commercial, retail and residential uses that are becoming increasingly in demand as the city continues to grow. The mixed-use development on the subject property is likely to support existing and future residential development by providing an economic base for the developing area. Additionally, commercial centers in the vicinity will be supported by directing a new blend of medical and related uses in a new medical campus or ‘center’ of mixed land uses. Goal LU-2: Designate centers for commercial development rather than corridors to encourage cohesive neighborhood development in conjunction with non-motorized transportation options. The development is required to have a neighborhood center per BMC 38.410.020 which requires an area to be comprised of a park, square, green, plaza, transit stop, neighborhood commercial center, civic use or any combination of these. This will be required to be part of the preliminary PUD submittal. Goal LU-4: Sustainability, Natural Environment and Aesthetics – Ensure adequate review of individual and cumulative environmental and aesthetic effects of development to preserve the viewsheds, natural functions and beauty which are a fundamental element of Bozeman’s character. Design and development in a quantifiably sustainable manner are desirable. This PUD application proposes to utilize Sustainable Design and Construction and Low Impact Development (LID) as part of their Performance Point requirement. Some of the solutions that the applicant is proposing include landscaped swales, bioretention, landscape drainage features, fixtures that reduce water consumption, landscape irrigation features, and open loop ground water heating and cooling systems. The western portion of the property along Davis Lane contains wetlands. The applicant is proposing to maintain and protect the wetlands and incorporate it into an open space/park. The DRC is requesting a viewshed study to be submitted with the preliminary PUD due to the relaxation request to allow for taller structures within the development. Goal C-2: Community Circulation – Create a circulation system both vehicular and pedestrian that is fully connected, integrated and designed for ease of use. The DRC is requesting an exhibit with the preliminary PUD that demonstrates the connectivity between the buildings, pedestrian circulation, open spaces, and streets. The development is proposing transit stops throughout the site to create alternative transportation options. 19527 Billings Clinic PUD Concept Review Page 10 of 14 With the preliminary PUD, a detailed map must emphasize on street orientation, grid, and the types of streets. Dependent on the layout, this could result in a relaxation for block length and width dependent on the street layout. The DRC would not be in support of a relaxation for block length and width as there are alternative approaches to minimizing block length like pedestrian access easements. The development should strive to create adequate and efficient circulation, shared use pathways, innovative parking solutions, and alternative transportation methods. Goal C-4: Design Guidelines – Create illustrated design guidelines to give clear direction in design and review of residential and non-residential neighborhoods without unduly constraining architectural style and innovation. A Development Manual/Design Guidelines is required to show how the overall development creates a superior outcome. Although this project is located on the outskirts of town near I- 90 and promotes regional services, this project has the opportunity to create an urban appearance on a site. A Community Design Framework Master Plan is required with the preliminary PUD to identify proposed block frontages that will exist throughout the development and how the buildings relate to the street frontage and edge. Diverting from typical suburban development will help with enhancing the urban appearance and environment that will assist in satisfying the goals of the growth of Bozeman. Goal E-3: Help address climate change by taking steps towards reducing the City’s greenhouse gas emissions. As stated above, the development proposes using LID and Sustainable Design & Construction techniques to achieve PUD performance points. Medical uses typically are higher users of water consumption and a larger emitter of greenhouse gases. The DRC has requested further information on sustainable measures that help address climate change. 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 applicant’s proposal for Performance Points include additional open space, LID, sustainable design and construction, wayfinding, and public transportation. In order to achieve these points, the DRC reviewed the relaxation requests and how the performance 19527 Billings Clinic PUD Concept Review Page 11 of 14 requirements are to be met onsite. The DRC is requesting further information on performance point’s techniques and how it creates a superior outcome to the code. Relaxations: The applicant is requesting two relaxation requests, one for building height and another for maximum signage allowed. The DRC is requesting more information on how the applicant proposes to mitigate for building height and how it could impact open space, views to the mountains, and the shadows the building casts and the impacts it has. Staff is also requesting a comprehensive sign for the relaxation request to allow a maximum allowance for signage per building rather than per lot. The DRC has also identified another possible relaxation for an alternative street section, but needs further details on the street sections proposed. 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 multiple phases which is required at preliminary PUD submittal. Pedestrian and Bicycle Circulation: Consideration should be given to identifying pedestrian and bicycle circulation throughout the site. This could be in the form of pedestrian bridges, wider sidewalks, protected bike lanes, cycle tracks, and other forms of multi-use paths. Bicycle racks are required and should include a number of covered spaces near key building entrances or open spaces. Automobile Connections: Based on the map provided by the applicant, it appears that there will be access from the existing streets of East Valley Center Road, North 27th Avenue, and Davis Lane. The development proposes a future local road on the south side of the development. The DRC discussed the need for a stronger street grid and road connection through the site. An infrastructure master site plan is proposed for the development which will help assist with street layout, block length and width, and street classifications. The parking areas are proposed to be in the form of surface parking and parking structures. Consideration should be given on how the layout of the surface parking lots can be redeveloped as pad sites for future buildings as trends, parking, and uses change. The DRC also recommends incorporating a car share program or charging stations through the development. 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. Landscaping: At the concept level, the application does not delineate in detail the amount of landscape features that are intended. Common site furniture and outdoor plaza design should exhibit commonalities of theme and design. Public art is recommended in all plaza 19527 Billings Clinic PUD Concept Review Page 12 of 14 areas and near building entrances. The watercourse setback and wetland area is under separate landscape standards that must be adhered to. 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. 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. An open space network is proposed to connect to the adjacent Cattail Lake Park to the south and incorporate multi-use paths that will be dispersed into the campus. Consideration should be given to shade structures/ elements, landscape features, outdoor furniture, lighting, seating areas, and outdoor vendor areas in these areas. Building Design: The application proposes performance points for sustainable design and construction. Further consideration should be given on sustainable measures, building orientation, development patterns, and energy efficiencies. This type of design is highly supported by staff. More information on building design will be required with the PUD Development Manual. Service and Utility Areas: Limited information was provided with the concept plan on utility services. 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. 38.430.010. 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: 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; 19527 Billings Clinic PUD Concept Review Page 13 of 14 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 “B-2” (Community Business District). 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 19527 Billings Clinic PUD Concept Review Page 14 of 14 arterial streets. Multi-household dwellings, townhouses, and apartments are allowed as a secondary use due to their complementary nature and ability to enhance the walkability of these districts. Design standards emphasizing pedestrian oriented design are important elements of this district. Use of this zone is appropriate for arterial corridors, commercial nodes, and/or areas served by transit. Adopted Growth Policy Designation The project site has a future land use designation of Regional Commercial and Services. The regional commercial and services land use designation description in the growth policy states, “Bozeman is a retail, education, health services, public administration, and tourism hub and provides opportunities for these activities for a multi-county region. Often the scale of these services is larger than would be required for Bozeman alone. Because of the draw from outside Bozeman, it is necessary that these types of facilities be located in proximity to significant transportation routes. Since these are large and prominent facilities within the community and region, it is appropriate that design guidelines be established to ensure compatibility with the remainder of the community. Opportunity for a mix of uses which encourages a robust and broad activity level is to be provided. Residential space should not be a primary use and should only be included as an accessory use above the first floor. Any development within this category should have a well-integrated transportation and open space network which encourages pedestrian activity, and provides ready access within and to adjacent development.” APPENDIX C - OWNER INFORMATION AND REVIEWING STAFF Owner: Billings Clinic, 2800 10th Avenue North, Billings MT 59101 Donald & Cecilia Vaniman, 5020 Westlakd Road, Bozeman, MT 59718 Applicant: Billings Clinic, 2800 10th Avenue North, Billings MT 59101 Representative: Sanderson Stewart, 1300 North Transtech Way, Billings, MT 59102 Report By: Sarah Rosenberg, AICP, Associate Planner ATTACHMENTS PUD Concept Plan Development Review Committee Memorandum February 3, 2020. The full application and file of record can be viewed at the Community Development Department at 20 E. Olive Street, Bozeman, MT 59715.