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HomeMy WebLinkAbout22180 Gallatin Crossing MSP MOD FINAL Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 1 of 28 Application No. 22180 Type Master Site Plan Modification Project Name Gallatin Crossing Mall Summary This is a modification of the Master Site Plan (MSP) for the Gallatin Mall which the Applicant calls “Gallatin Crossing”. This MSP evaluates a four-phased redevelopment of the 37.43-acre Mall property (“Site”). The redevelopment would include: (1) improvements to the pedestrian and vehicular circulation network throughout the Site; (2) the introduction of non-retail land uses to the Site; (3) would add four single-story commercial buildings to the central parking area; (4) would increase and enhance exterior open space areas; (5) would improve parking areas; and (6) would improve emergency vehicular access and pedestrian connections to adjacent properties, including the abutting City Park. The approximately 370,000 gross square foot commercial development would have 1,820 parking spaces serving both the existing multi-tenant building, the existing stand-alone buildings along the Huffine Lane frontage and along the park boundary, and the four new commercial buildings. Phase 1 redevelopment removes a portion of the eastern section of the single Mall building to create a vehicular and pedestrian pass-through to the medical facility located in the former Penny’s building and which is accessed from the northeast corner of the Mall. The Phase 1 development is the subject of a separate evaluation and staff report (Project No. 22171). Attachment A describes the Applicant’s redevelopment intent and the schedule for the four phases. This application includes a modification to the Comprehensive Sign Plan for the Mall Site which is dated March 2023. Zoning B-2, Community Business Growth Policy Regional Commercial and Services Parcel Size 37.43 acres Overlay District(s) NA Street Address 2825 W. Main Street Legal Description Tract 1, COS No. 467A located in the SW ¼ of Section 11, T2 S, R5 E of P.M.M., City of Bozeman, Gallatin County, Montana Owner Gallatin Mall Group, LLC Applicant Ashley Koenig, Koenig Consulting Representative Jamie Anderson, Grossman Development Group Staff Planner Susana Montana Engineer Simon Lindley Noticing Public Comment Period Site Posted Adjacent Owners Newspaper Legal Ad 4/21/2023 to 5/15/23 4/21/23 4/21/23 NA Advisory Boards Board Date Recommendation Development Review Committee 04/25/23 The application is adequate, conforms to standards, and is sufficient for approval with conditions and code provisions as noted below. Community Development Board as the Design Review Board NA NA Recommendation The application is adequate, conforms to standards, and is sufficient for approval with conditions and code provisions as noted below. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 2 of 28 Decision Authority Director of Community Development Date 5-26-23 Full application and file of record: Community Development Department, 20 E. Olive St., Bozeman, MT 59715 FINDINGS OF FACT AND APPEAL PROVISIONS CERTIFICATE A) PURSUANT to Chapter 38, Article 2, Bozeman Municipal Code (BMC), and other applicable sections of Ch.38, BMC, public notice was given, opportunity to submit comment was provided to affected parties, and a review of the Master Site Plan Modification and Comprehensive Sign Plan (CSP) Modification described in this report was conducted. The Applicant proposed to the City a Master Site Plan (MSP) Modification to permit modifications to parking, the addition of a medical facility and outdoor food service spaced, improvements to parking and pedestrian circulation, and the addition of four commercial buildings within the existing parking lot. The purposes of the MSP review were to consider all relevant evidence relating to public health, safety, welfare, and the other purposes of Ch. 38, BMC; to evaluate the proposal against the criteria of Sec. 38.230.100 BMC, and the standards of Ch. 38, BMC; and to determine whether the application should be approved, conditionally approved, or denied. The purposes of the CSP review were to measure the proposed signage against the relevant standards of the underlying B-2 zoning sign controls. B) It appeared to the Director that all parties and the public wishing to examine the proposed MSP and CSP modifications and offer comment were provided the opportunity to do so. After receiving the recommendation of the relevant advisory body established by Ch. 38, Art. 210, BMC, and considering all matters of record presented with the application and during the public comment period defined by Ch. 38, BMC, the Director has found that the proposed MSP and CSP modifications would comply with the requirements of the BMC if certain conditions were imposed. Therefore, being fully advised of all matters having come before them regarding this application, the Director makes the following decision. C) The Gallatin Crossing Master Site Plan Modification has been found to meet the criteria of Ch. 38, BMC, and is therefore approved, subject to the conditions listed in this report and the correction of any elements not in conformance with the standards of the Title. The evidence contained in the submittal materials, advisory body review, public testimony, and this report, justifies the conditions imposed on this development to ensure that the Site Plan complies with all applicable regulations, and all applicable criteria of Ch. 38, BMC. On this 26th day of May, 2023, Anna Bentley, Director of Community Development, approved with conditions this Master Site Plan Modification for and on behalf of the City of Bozeman as authorized by Sec. 38.200.010, BMC. In addition, the Gallatin Crossing Comprehensive Sign Plan Modification has been found to meet the criteria of Ch. 38, BMC. D) This Director of Community Development’s project decision may be appealed by filing a documented appeal with and paying an appeal fee to the Clerk of the Commission for the City of Bozeman within 10 working days after the date of the final decision as evidenced by the Director’s signature, following the procedures of Sec. 38.250.030, BMC. DIRECTOR OF COMMUNITY DEVELOPMENT Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 3 of 28 RECOMMENDED CONDITIONS OF APPROVAL 1. BMC 38.400.090. Access. The Traffic Impact Study (TIS) Addendum letter from Marvin & Associates dated February 9, 2023, defines the need to eliminate left turns onto Huffine Lane from the western access point to the Mall and this should occur during the Phase 1 development. The applicant must obtain approval from the Montana Department of Transportation (MDT), install the appropriate controls, and obtain final acceptance from MDT prior to issuance of an occupancy permit for Phase 1 of this Master Site Plan, as defined in the aforementioned TIS Addendum letter. 2. BMC 38.400.060.B.4. Level of Service (LOS) Standards. The TIS prescribes dual left turn lanes on the southbound approach to the intersection of Huffine Lane and College Street. This improvement is required to meet the level of service standard per BMC 38.400.060.B.4. The Applicant must obtain approval from MDT prior to final Phase 2 site plan approval, and must install the improvement and obtain final acceptance by MDT prior to issuance of an occupancy permit for any building in Phase 2, as defined in the TIS Addendum letter from Marvin & Associates dated February 9, 2023. 3. BMC 38.410.070. Stormwater Management. Prior to final Phase 2 site plan approval, the Applicant must prove the existing stormwater pond has capacity to contain the first half-inch and the 10-year two-hour storm event, as required per the City of Bozeman Design Standards and Specifications Policy. 4. BMC 38.400.010.A.2 . Access Easement and 38.410.040.A, Block Length. a. The Phase 1 site plan must provide a 30-foot-wide emergency vehicle access easement running north-south through the Mall subject property from a point at the northeast corner of the Site from the Silver Maple Drive connection southward to the Huffine Lane sidewalk (see Figure 6). The Applicant will provide a 24-foot-wide emergency vehicle gated access at this northeast access point. No snow storage may take place on this easement. b. The Phase 1 site plan must also provide a separate pedestrian access easement running north-south through the Mall property from the existing north trail connection in the middle of the Site extending southward to the Huffine Lane sidewalk. The pedestrian access easement satisfies the block length code provision of 38.410.040.A. The northeast and northwest pedestrian access easements are required to provide multi-modal access from existing trails from the abutting property to the north, providing safe and convenient passage for pedestrians through the Site southward to Huffine Lane and westward to the City Park (see Figure 6). 5. BMC 38.400.110.B.1.f. and G and 38.410.040. The Phase 2 site plan application must provide a 10-foot wide pedestrian access easement running east-west through the subject property and abutting the south façade of the Mall building (see Figure 6). 6. BMC 38.400.010.A.2. and 38.400.110.B.1.F. and G. The Phase 4 site plan application must provide a 30-foot wide emergency vehicle access easement running north-south through the subject property from a point at the northwest corner of the Site from the Wilda Lane connection then southward to the Huffine Lane sidewalk (see Figure 6). The northeast and northwest emergency vehicle access easements allow for the effective movement of emergency service vehicles per BMC 38.400.010.A.2. The Applicant will provide a 24-ft wide gated access at these locations for future development and improved access to public utilities to the north. No snow storage may take place on this easement. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 4 of 28 CODE PROVISIONS 1. The Applicant is advised that unmet code provisions or code provisions that are not specifically listed as conditions of approval do not, in any way, create a waiver or other relaxation of the lawful requirements of the Bozeman Municipal Code (BMC) or State law. 2. BMC 38.410.130. Water Rights. Cash-in-lieu of water rights (CILWR) must be paid prior to each phase site plan approval. 3. BMC 38.410.060. Utility Easements. A utility easement granted to the public is required for all public utility mains not located within the public street right-of-way. An easement shall be a minimum of 30 feet wide for one or two utility mains. 4. 38.410.060-Easements. Public utility, private utility, emergency access, pedestrian access, and release and reconveyance of easements will occur with future phase site plans. 5. BMC Table 38.310.040.A and 38.360.060. Per the B-2 zoning designation of the Site, alcohol sales for on- premises consumption requires a Special Use Permit. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 5 of 28 Figure 1: Current Zoning Map Figure 2: Vicinity Map City Pond Park Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 6 of 28 Figure 3-: Gallatin Crossing Mall Site N Trail easement to park “De Facto:”trail to Mall Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 7 of 28 Figure 4-: Redevelopment Entry Concept Figure 5-: Redevelopment New Retail Buildings Concepts Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 8 of 28 Figure 6: Master Site Plan Phase 1 Pedestrian easement Emergency vehicle access easement Phase 4 Phase 2 Phase 1 Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 9 of 28 Figure 7: Circulation Plan Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 10 of 28 Figure 8: Four Phase Areas 1 2 3 4 Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 11 of 28 Figure 9: Details of Four Phase Areas Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 12 of 28 Figure 10: Comprehensive Sign Plan Site Plan Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 13 of 28 ANALYSIS AND FINDINGS Analysis and resulting recommendations 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. Plan Review, Section 38.230.100, BMC In considering applications for plan approval under this title, the Director of Community Development shall consider the following: 1. Conformance with Article 1 - Consistency with the City’s adopted Growth Policy 38.100.040.D Meets Code? Growth Policy Land Use Regional Commercial and Services Yes Zoning B-2, Community Business Yes Comments: The intent of the Regional Commercial and Services land use designation is for “Regionally significant developments” which “may be developed with physically large and economically prominent facilities requiring substantial infrastructure and location near significant transportation facilities. Due to the scale of these developments, location, and transition between lower density uses is important. Residential space should be located above the first floor to maintain land availability for necessary services. Development within this category needs well-integrated utilities, transportation, and open space networks that encourage pedestrian activity and provide ready-access within and adjacent to development. Large community scale areas in this land use category are generally 75 acres or larger and are activity centers for several surrounding square miles. These are intended to service the overall community as well as adjacent neighborhoods and are typically distributed by a one-to two-mile separation.” For a comprehensive list of relevant Bozeman Community Plan “Growth Policies”, please see Attachment B. The B-2 zone is an implementing district for the Regional Commercial and Services land use category. 2. Conformance with Article 1 - All other applicable laws, ordinances, and regulations (38.100.080) Meets Code? Condominium ownership NA Comments: This Site is under single LLC ownership. 3. Conformance with Article 2, including the cessation of any current violations (38.200.160) Meets Code? Current Violations Yes, as a legal nonconforming Site it has deficiencies per Article 4, block size, access, and transportation standards; and Article 5 design, parking, landscaping, exterior lighting, and signage deficiencies. Comments: The current Mall, circa 1980, was built to then-current zoning and building codes. Those standards have evolved and the size of the lot/block, location and configuration of the building on the lot, the location and configuration of parking on the lot, and the façade treatments and signage of buildings, among other standards have changed over the past four decades. The Applicant seeks to strategically place buildings and businesses within the Mall building to attract customers. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 14 of 28 He (as a business entity LLC) seeks to redevelop the Mall Site to (1) “retrofit” the “sea of parking” in front of the Mall building with new 4 retail buildings; (2) provide an attractive, safe and efficient entrance experience; (3) provide outdoor food service destinations at the terminus of this reimagined entrance to the Mall building; (4) add service destinations such as a medical facility; and (5) seeks to provide a safe, convenient and attractive multi-modal circulation network within the Mall Site. Not included within this MSP modification but which could occur in a future redevelopment phase and modification to this Master Site Plan, is the addition of recreation facilities and apartments above commercial spaces. 4. Conformance with Article 2 - Submittal material (38.220) requirements and plan review for applicable permit types (38.230) Meets Code? Master Site Plan (MSP) Yes, with conditions and code provisions. Comprehensive Sign Plan (CSP) Yes Submittal requirements 38.220.100 Yes Phasing of development 38.230.020.B No. of phases: 4 Yes with conditions Comments: Many elements of the Mall are and may remain nonconforming to current transportation and design standards, particularly the size and façade design of the Mall building and the size of the parking lot in front of the Mall building. The redevelopment areas must be brought up to current code standards, including pedestrian pathways, landscaping of parking areas, exterior lighting of parking areas and pedestrian pathways, landscaping of pedestrian pathways, and signage. To the extent that the south-facing Mall building façade is altered, the alterations must be “more conforming” than the current blank wall façade. The proposed MSP modifications bring the Site into greater conformity with current BMC standards. The proposed CSP meets the standards of the underlying B-2 zone. Any additional use permit (Conditional Use Permit) 38.230.120 or (Special use Permit) 38.230.120 Yes, per Code Provision 5. Comments: Per Table 38.310.040.A and 38.360.060 and per the B-2 zoning designation of the Site, alcohol sales for on-premises consumption requires a Special Use Permit. This is relevant to the Phase 1 proposal for outdoor food and beverage service. 5. Conformance with Article 3 - Zoning Provisions (38.300) Meets Code? Permitted uses 38.310 Medical facility, retail, food service Yes Form and intensity standards 38.320 Zoning: Setbacks (feet) Structures Parking / Loading Yes Front Block Frontage Rear or side of buildings Rear 10’ required Side 5’ required Alley NA Comments: This Site is a single lot/Tract under a single ownership. The Mall was developed in 1980 under form and intensity standards in effect at the time. Currently, BMC Article 5 Community Design Framework block frontage standards would not allow the parking lot to be located in “front of” the Mall building. BMC Article 5 Building Massing and Articulation standards would not allow the single Mall building façade and massing to be built longer than 150 feet in length or without windows and entries facing the street. Current design approaches and standards require more pedestrian-friendly storefront treatments (entrances, windows) with parking placed behind or to the side of the buildings they service. However, the Mall building preceded current standards and, per BMC 38.280.040, is deemed a legal nonconforming structure and may remain or may change provided the change results in the building becoming more conforming to current standards. Since 1980, smaller buildings have been built adjacent to the Huffine Lane frontage/property line. These buildings partially screen the large parking lot from view from Huffine Lane and partially screen headlight glare from the Mall parking lot towards passing motorists along Huffine Lane. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 15 of 28 Development of the Phase 1 site plan for a medical facility as a conversion of the former J.C. Penny’s building would improve the existing parking area behind the cinema and bookstore buildings. This parking area must meet current striping, landscaping and exterior lighting standards. In order to be more conforming to Article 4 multi-modal standards, the parking lot design must accommodate a pedestrian access and emergency vehicle access easement from the northeast corner of the Site into the parking area and southward toward Huffine Lane as noted in Conditions 4.a and b and shown on Figure 6. Development of the Phase 2 site plan would add four retail buildings to the center of the common parking area. This new development must meet current BMC standards per BMC 38.230.160 and 38.280.050 and must provide a 10-foot-wide public pedestrian access easement running east-west through the Mall property per Condition 5. [Note: Section 38.230.160 is for the “Reuse, change in use or further development of sites developed prior to the adoption date of the ordinance from which this chapter is derived”; and 38.280.050 is for “Changes to or expansions of nonconforming structures”]. Development of the Phase 3 site plan involves the upgrade of the bookshop and cinema parking lot which would be required to meet current paving, striping, landscaping, drainage and exterior lighting standards per 38.280.050, “Changes to or expansions of nonconforming structures”. Development of the Phase 4 site plan involves a replacement stormwater management facility, upgrades to the parking and loading areas, upgrades to the existing pedestrian trail easement to the City Pond Park, and the addition of an emergency vehicle access point and gate at the northwest corner of the Mall Site and running southward to the Huffine Lane sidewalk per Condition No. 6 per 38.280.050. [BMC 38.280.030, Nonconforming Lots and 050, Changes to Nonconforming Structures] The single lot development is nonconforming with regard to Article 4 block size and access points. New development within the Site must meet current multi-modal access standards or must become more conforming to current standards, particularly for bus, pedestrian and emergency vehicle access and circulation. Changes in the exterior signage of the Mall building and new signage on all buildings within the Mall Site will conform to the new Comprehensive Sign Plan. Lot coverage 100% existing Allowed: 100% Proposed: 100% Yes, as a legal nonconforming structure and block size Building height Single-story existing Allowed: 50’ Proposed: new buildings to be single-story Yes Comments: See Section 5 comments above. Applicable zone specific or overlay standards 38.330-40 NA Comments: NA General land use standards and requirements 38.350 Yes Comments: the current retail, cinema, restaurant uses are principal permitted uses in the B-2 district. The proposed additions of medical office and outdoor food service and additional retail uses are principal uses as well. The addition of sale of alcohol for consumption on-premise requires Special Use Permit approval per 38.360.060. Applicable supplemental use criteria 38.360 Yes with Code Provision 5. Supplemental uses/type Food service establishments may seek the sale of alcohol for on-premise consumption. Yes with Code Provision 5. Comments: On-premise consumption of alcohol requires a Special Use Permit per Section 38.360.060. Wireless facilities 38.370 NA Affordable Housing 38.380.010 NA Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 16 of 28 Affordable housing plan NA Comments: This Master Site Plan Modification has no residential development proposed at this time. Should the Applicant wish to provide residential use as a future redevelopment phase, the MSP must again be modified to reflect the new development and the timing of that phase. 6a. Conformance with Article 4 - Community Design Provisions: Transportation Facilities and Access (38.400) Meets Code? Streets 38.400.010 Yes, with Conditions 1, 2, 4, 5 and 6. Street and road dedication 38.400.020 NA Access easements Yes, with Conditions 4, 5 and 6 and Code Provision 4. Level of Service 38.400.060 Adequate Transportation grid is adequate to serve the proposed redevelopment. Yes, with Condition 2 and Code Provision 4. Comments: A Streamline bus stop is located at the main entrance to the Mall building and would remain with the redevelopment of the Site. The emergency access and pedestrian access easements are necessary to better satisfy the block length standards of 38.410.040.A-blocks size and orientation and the relation to developed areas code 38.400.010.A.2 for the convenient and efficient movement of emergency services. Sidewalks 38.400.080 Yes, with Code Provision 4. Comments: Existing streets in the vicinity of the Mall may be improved as a result of the traffic generated by the Mall redevelopment per this Master Site Plan, along with other development in the area using those facilities. If Special Improvement Districts (SIDs) are established to finance and implement needed improvements, the Applicant would participate in those funding districts on a pro-rata basis. Drive access 38.400.090 Access to the Site: Currently, 3 access points are provided from Huffine Lane for general vehicle access. Emergency vehicle access from the north of the Site would be provided with Phases 1 and 4 per Conditions 4, 5 and 6. Yes, with Conditions 4, 5 and 6. Fire lanes, curbs, signage and striping Yes with Condition 4. Comments: As noted in Conditions 1 and 2, the traffic study prescribes improvements to the Huffine Lane access points to accommodate increased vehicular traffic, and assure safe multi-modal movements at these access points. These improvements would be required and provided with each applicable Phased development, as needed. Street vision triangle 38.400.100 Yes, with Conditions 1, 2 and 6. Transportation pathways 38.400.110 Yes, with Conditions 1, 2, 4, 5 and 6. Pedestrian access easements for shared use pathways and similar transportation facilities Yes, with Conditions 4, 5 and 6. Public transportation 38.400.120 Yes Comments: The Streamline bus stops at the Mall building entrance. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 17 of 28 6b. Conformance with Article 4 – Community Design Provisions: Community Design and Elements (38.410) Meets Code? Neighborhood centers 38.410.020 NA Comments: NA Lot and block standards 38.410.030-040 Yes, as a legal nonconforming Site. Midblock crossing: rights of way for pedestrians alternative block delineation Yes, as a legal nonconforming Site. Comments: The Phase 2 redevelopment which would bring 4 new buildings to the middle of the Mall parking lot would also provide a pedestrian public access easement in an east-west orientation along the main Mall building (see Figure 6 and the discussion in Section 5 above). If the development is adjacent to an existing or approved public park or public open space area, have provisions been made in the plan to avoid interfering with public access to and use of that area Yes, with Condition 5 and Code Provision 4. Provisions for utilities including efficient public services and utilities 38.410.050-060 Yes, with Code Provision 3. Easements (City and public utility rights-of-way etc.) Yes, with Code Provision 4. Water, sewer, and stormwater Yes, with Condition 3 and Code Provision 4. Other utilities (electric, natural gas, communications) Yes, to be decided with each Phase site plan. CIL of water rights (CILWR) Yes, with Code Provision 2 Comments: CILWR to be paid by the Applicant prior to site plan approval for each phase of development. Municipal infrastructure requirements 38.410.070 Yes, with Code Provisions 2 and 3. Comments: Infrastructure to be improved to City standards with each Phase of development. Grading & drainage 38.410.080 Yes, with Condition 3. Location, design and capacity of stormwater facilities Yes, with Condition 3. Stormwater maintenance plan Yes, with Condition 3. Landscaping: native species, curvilinear, 75% live vegetation 38.410.080.H To be decided with each phase Site Plan submittal Comments: Although the current Mall Site does not meet parking lot or pedestrian walkway landscaping requirements, each phase of development will require upgrades to current standards. Watercourse setback 38.410.100 NA Watercourse setback planting plan 38.410.100.2.f NA Comments: NA 6c. Conformance with Article 4 – Community Design Provisions: Park and Recreation Requirements (38.420) Meets Code? Parkland requirements 38.420.020.A NA Cash donation in lieu (CIL) 38.420.030 Improvements in-lieu Comments: Park Frontage 38.420.060 Park development 38.420.080 Recreation pathways 38.420.110 Park/Recreational area design Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 18 of 28 Comments: No residential development is proposed and, therefore, no parkland is required. 7a. Conformance with Article 5 – Project Design: Block Frontage Standards (38.510) Meets Code? Block frontage classification Mixed Block Frontage along the Huffine Lane property line. Yes, as a legal nonconforming building. Departure criteria NA Comments: As noted above in Section 5, the Mall Site was built in 1980 before current Community Design Framework Block Frontage standards were established. The main Mall building does not meet storefront transparency standards of Table 38.510.030.D or the maximum façade with of 38.530.040.E. Any substantial alteration to the main Mall building must be more conforming to current standards per 38.230.160. The emergency access and pedestrian access easements are necessary to better satisfy the block length code provision (38.410.040.A-blocks size and orientation) and the relation to developed areas code provision (38.400.010.A.2) and for the convenient movement of emergency services. 7b. Conformance with Article 5 – Project Design: Site Planning and Design Elements (38.520) Meets Code? Design and arrangement of the elements of the plan (e.g., buildings, circulation, open space and landscaping, etc.) so that activities are integrated with the organizational scheme of the community, neighborhood, and other approved development and produce an efficient, functionally organized and cohesive development Yes, with Conditions 4, 5 and 6. Relationship to adjacent properties 38.520.030 Yes, with Conditions 4, 5 and 6. Non-motorized circulation and design systems to enhance convenience and safety across parking lots and streets, including, but not limited to paving patterns, pathway design, landscaping and lighting 38.520.040 Yes, with Conditions 1, 2, 4, 5, and 6 and Code Provision 4. Comments: To assure compliance with current Article 4 multi-modal access and circulation standards, the Site, particularly with the Phase 1, Phase 2 and Phase 4 site plans, must be brought up to current code standards providing safe pedestrian travel throughout the Site, safe pedestrian connection to adjacent properties to the northeast and nnorthwest and safe emergency vehicle access from properties north of the Mall Site should south access points along Huffine Lane be blocked. Design of vehicular circulation systems to assure that vehicles can move safely and easily both within the site and between properties and activities within the general community 38.520.050 Yes, with Conditions 1, 2, 4, 5, and 6 and Code Provision 4. Internal roadway design 38.520.050.D Yes, with Conditions 4, 5, and 6. Comments: Internal public access for pedestrians and emergency vehicles from the north is essential to bring the Site up to current block size and access standards and for public safety and convenience. On-site open space 38.520.060 Yes Total required 2% Yes, as a legal nonconforming Site. Total provided To be decided per Phase 2 site plan To be decided and provided per each phase site plan. Comments: The development of Phase 2 additional retail or commercial buildings will require sufficient usable open space areas to meet 38.520.060.C standards. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 19 of 28 7d. Conformance with Article 5 – Parking (38.540) Meets Code? Parking requirements 38.540.050 369,451 square feet of retail and food service building space in the Mall Site To be determined with each Phase site plan. See Attachment C for theoretical parking calculations. Parking requirements residential 38.540.050.A.1 NA Reductions residential 38.540.050.A.1.b NA Parking requirements nonresidential 38.540.050.A.2 1:300 sf for retail space, 1:60 sf for restaurant space Reductions nonresidential 38.540.050.A.2.c NA Provided off-street 1,820 spaces proposed for the entire Mall Site Provided on-street NA Bicycle parking 38.540.050.A.4 To be determined with each Phase site plan Meets Code? To be decided with each phase site plan Comments: Secure bicycle racks at a ratio of 10% of the number of vehicle parking spaces required must be provided. The current bicycle parking supply does not meet current standards and new development, including the upgrades to parking lots, must meet current code standards. Loading and uploading area requirements 38.540.080 To be determined with each Phase site plan. First berth – minimum 70 feet in length, 12 feet in width, 14 feet in height Additional berth – minimum 45 feet in length Comments: Each phase of redevelopment of the Site must meet loading zone requirements. 7e. Conformance with Article 5 – Landscaping (38.550) Meets Code? Mandatory landscaping requirements 38.550.050 Yes, as a legal nonconforming site condition. New development must meet current code standards. Drought tolerant species 75% required Parking lot landscaping Additional screening Street frontage Street median island Acceptable landscape materials Protection of landscape areas Irrigation: plan, water source, system type Residential adjacency Location and design of service areas and mechanical equipment 38.520.070 To be decided per each phase site plan. Comments: To be decided per each phase site plan. 7c. Conformance with Article 5 – Project Design: Building Design (38.530) Meets Code? Compatibility with, and sensitivity to, the immediate environment of the site and the adjacent neighborhoods and other approved development 38.530.030 Yes, as a legal nonconforming site and Mall building. Building massing and articulation 38.530.040 Yes, as a legal nonconforming site and Mall building. Building details, materials, and blank wall treatments 38.530.050-070 Yes, as a legal nonconforming site and Mall building. Comments: Redevelopment of the Mall building(s) or parking lot areas must be either upgraded to be more conforming or, if deemed a substantial upgrade, must be brought up to current BMC standards. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 20 of 28 Comments: Landscaping of pedestrian pathways and parking lots must be brought up to current code standards with each phase of redevelopment of the Site. Landscaping of public lands 38.550.070 NA Comments: NA 7f. Conformance with Article 5 – Signs (38.560) Meets Code? Allowed SF/building 38.560.060 Yes Proposed SF/building 369,451 square feet of retail and food service building space in the Mall Site To be determined for each Phase site plan Comments: The existing Mall building and the external buildings on the Mall Site have business signage. Many of them meet current signage standards, some may be deemed legal nonconforming signs based on the year they were installed and permitted. This Master Site Plan Modification application includes a request for modification to the existing approved Comprehensive Sign Plan per 38.560.080. Section 38.560.110 addresses signage for indoor shopping mall complexes with more than 100,000 square feet of ground floor area; new signage must meet those standards. The March 2023 revised Comprehensive Sign Plan addresses existing nonconforming signage that may remain as long as the existing business remains in the Mall building but must conform to the BMC/B-2 standards when the business changes or the business seeks to change the sign element. 7g. Conformance with Article 5 – Lighting (38.560) Meets Code? Site lighting (supports, cutoff, footcandles, temperature) 38.570.040 Yes, as a legal nonconforming site condition. Building-mounted lighting (supports, cutoff, footcandles, temperature) 38.570.040.B Yes, as a legal nonconforming site condition. Comments: Each phase of the redevelopment of the Mall Site must meet current exterior lighting standards. Existing nonconforming light fixtures would be replaced with code-complying fixtures. 8. Conformance with Article 6 – Natural Resource Protection Meets Code? Floodplain regulations 38.600 NA Wetland regulations 38.610 NA Comments: There are no floodplain areas nor wetland areas on the Site. 9. Relevant Comment from Affected Parties (38.220) Meets Code? Public Comment Yes Comments: Public notice was posted on the property on April 21, 2023 and was mailed to adjacent property owners on that same date. As of the date of this report no comments were received. 10. Division of Land Pertaining to Subdivisions (38.240-Part 4) Meets Code? Subdivision exemptions NA Required easements Yes, per Code Provisions 1 and 4. Comments: Public utility easements shall be provided per Code Provision 4. Public access easements would be provided per Conditions of Approval 4, 5, and 6 and Code Provision 4. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 21 of 28 Attachment A: Applicant’s narrative “Project Summary The Gallatin Crossing Mall redevelopment began in 2020 with the permitting and construction of the Whole Foods Market located along Huffine at the former Fuddruckers restaurant site. The existing site is approximately 37.43 acres in area and is currently an existing retail mall. The City has requested that the remaining phases fall under a Master Site Plan review. The proposed development will be completed in four phases. The phases define the areas or scope of work and will run concurrently with phases overlapping in the schedule. • Phase 1 – Fall 2022 – Consists of the Healthcare and Food Hall portions of the existing mall and related site work. • Phase 2 – Spring 2023 – Consists of the 4 pad buildings (Pad C through F) totaling 49,192 SF and related site work. • Phase 3 – Spring 2024 consists of parking improvements for Barnes & Noble & the Cinema. • Phase 4 – Fall 2025 – Consists of future redevelopment of the West side of the mall and related site work. Plans to demolish approximately 25,500 SF of the mall have been approved by the Building Department. This demolition will make way for a new drive aisle between the proposed medical use and Barnes & Noble. Pad building C is a 1-story commercial structure located adjacent to the mall at the northeast corner of the Whole Foods Parking area. This building is a total of 12,000 SF. It is anticipated that this building could have up to a total of 4 tenants. Pad building D is a 1-story commercial structure located adjacent to the proposed roundabout at the southeast corner of the Whole Foods Parking area. This building is a total of 12,000 SF. It is anticipated that this building could have up to a total of 4 tenants. Pad building E is a 1-story commercial structure located adjacent to the mall at the Northwest corner of the Barnes & Noble Parking area. This building is a total of 11,080 SF. It is anticipated that this building could have up to a total of 4 tenants. Pad building F is a 1-story commercial structure located adjacent to the proposed roundabout at the southwest corner of the Barnes & Noble Parking area. This building is a total of 12,006 SF. It is anticipated that this building will have 1 tenant. In addition to the new pad buildings, there are numerous upgrades to the mall, its façade and the surrounding landscaping and hardscape as shown in the plans. A 36,878 SF renovation to the existing JC Penney building for a future healthcare user and a 15,174 sf renovation to the mall for a future food user is also proposed. Façade upgrades to this building are shown in the plan set. Upgrades to the parking lot include new curbing and landscaping as well as 90 degree parking (in lieu of angled parking) for the phase 2 & 3 parking lots. Other infrastructure upgrades include new utility connections to the new buildings and an upgraded stormwater drainage system. Site Plan Narrative A. General Site Information and Context The project site is approximately 37.43 acres and is located between a residential neighborhood to the north, Huffine Lane/W. Main Street to the south, and Commercial Development to the east and west. The applicant is proposing (4) 1- story commercial buildings along with associated parking lot and infrastructure upgrades. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 22 of 28 B. Block Frontages The proposed building design will be required to conform to various block frontages including internal roadway storefront block frontage, landscape block frontage, and mixed use block frontage. The plan included in the Appendix shows the pathways for the proposed pedestrian, vehicle and public bus routes. No public rights of way will be formed to accommodate any of these routes. All the site streets and sidewalks will remain private. We feel that these pathways and the development of the three distinct shopping areas meets the spirit of the Blocks requirement to ensure a high level of multimodal connectivity, traffic safety and ease of traffic control. This site has been intentionally designed to accommodate the special needs of the use contemplated, which is a mixed-use commercial center with offerings to meet the needs of new and future generations of shoppers. Weather protection has been provided by the selection of durable materials located within 3 ft of final grade. Site Circulation & Parking The proposed development provides for pedestrian circulation through all areas of the site and is connected to the existing sidewalks on Huffine Lane, as well as a pathway to the adjacent Bozeman Pond area and the residential neighborhood to the north. The proposed plan includes a new traffic circle in lieu of the existing “T” intersection which will greatly improve vehicular circulation in the mall. Aside from the traffic circle, vehicular circulation within the mall will remain similar to existing conditions. There are 1,561 proposed parking spaces provided for the entire mall parking spaces to serve the 393,481 SF of mall GLA. Refer to the Appendix for Gallatin Crossing Parking spreadsheet [see Attachment C to this staff report]. Bike racks are provided adjacent to the 4 pad buildings and in other key areas, refer to site plans. The project is providing a total of 55 bike parking spaces which exceeds code. The Gallatin Crossing mall is currently served by the Streamline Bus. It stops adjacent to the front entry by the food court. A bus stop sign will be provided adjacent to the proposed redeveloped front entry for the bus to continue to provide service to Gallatin Crossing. There is no formal agreement in place between Gallatin Crossing and Streamline. Site Considerations a. Utilities Existing utilities are available within the project limits to serve the Proposed Project. These utilities are within existing easements as shown. Refer to Site Plans for utility connection locations to the proposed buildings. b. Grading and Drainage The site has been graded to provide for positive drainage away from the proposed buildings – Refer to Site plans. The property generally slopes from south to north, and is currently drained by a series of storm catch basins around the perimeter of the Mall. These catch basins collect and convey runoff to an existing detention pond in the northwest corner of the property. These existing catch basins will be left intact to continue to collect runoff from the rest of the mall property. However, stormwater runoff from the area proposed for re-development will be conveyed to two retention ponds and four Stormtech infiltration systems for storage and treatment. The new stormwater drainage system for the re-development area is provided and shown on the enclosed plans. The satellite businesses (Petco, Whole Foods, Rocky Mountain Bank, and Taco Bell) along the southern perimeter of the Mall property currently drain to a series of retention swales in the landscaped areas around these businesses. With the exception of Rocky Mountain Bank, the drainage features for the satellite businesses along Huffine Lane will not be disturbed by the proposed redevelopment Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 23 of 28 project. These drainage systems are expected to continue to function in their current condition. Grading around the buildings and ADA parking spaces is designed to meet ADA accessibility requirements. Roof scuppers and downspouts are provided on the building structures in order to connect directly to underground collection system. Refer to the stormwater report for more detail. c. Pedestrian Circulation Circulation is provided throughout the site and provides for accessible routes for all pedestrians. Refer to the site plans showing pedestrian sidewalks in the project area no greater than 200’ apart. Where necessary, crosswalks and ADA ramps are provided. The interior site circulation system connects to the local pedestrian network via proposed public sidewalks and allows for connectivity to the surrounding area including the recreation area to the west and the residential area to the north. d. Accessibility Provisions The site is fully accessible to shoppers and will meet the current requirements for site and building access. Accessible parking spaces are shown on the site plans located meet applicable codes. e. Fences and Railings The proposed development does include new perimeter fencing to fill in the gaps along the north property line adjacent to the residential areas. Fall protection will be provided for any retaining walls greater than 30” as required by code. f. Trash Enclosures Trash enclosures are provided for the pad buildings in various locations. g. Snow Storage The shopping Mall has historically provided areas within the surface parking lot for snow storage. Refer to site plans [per Conditions of Approval 4 and 6, snow storage cannot take place abutting the emergency vehicle access gates or on pedestrian trails or walkways.]. h. Commercial Open Space/ Pedestrian Open Space The Project Area affected by the four phases is 14.1 Acres (613,899 SF) requiring total usable open space of 12,278 sf. We propose the areas south of the new mall entry and east of the Food Hall entry as usable open space. This area exceeds 24,580 SF. Refer to site plans. i. Construction Management The Applicant has not yet selected a construction manager for the remaining project. Once selected, they will adhere to the following: • All construction traffic must follow the designated construction traffic route shown in site plans on sheet C1.0 • Any topsoil that is on-site will be stockpiled at the start of the project. The topsoil will be redistributed once the building exteriors are complete. (approximately 1 year) • All spoils from mass grading and/or foundation excavation will be stockpiled at the start of the project until the buildings are backfilled. j. Site Adjacencies Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 24 of 28 The proposed project is the redevelopment of an existing 37 acre retail site. No new ‘streets’ are being proposed and all work is existing internal parking roadway work. The site has public access on the south to Huffine Lane and the other three sides are private property or public parks. The proposed development has the following uses adjacent to the site: a. North – Residential neighborhood (Donna Ave) and Wilda Lane. Other than Huffine Lane, Wilda Lane is the only other public ROW that is adjacent to the property. An approach in the Phase IV site plan has been provided for future connection. A utility easement exists in the northeast corner extending water and sewer to an adjacent private piece of property. The adjacent property has no ROW or public access easements in place and a future traffic connection is not provided in the Gallatin Crossing redevelopment plan [see Condition No. 4 for public access standards]. b. West – Commercial retail and recreation area (Bozeman Pond). It is being considered to extend Laramie Drive from the west through the park to the Gallatin Crossing property. Once a proposed extension plan for Laramie Drive is provided, a corresponding Gallatin Crossing plan can be developed. c. East – Vacant Commercial building (Future Town Pump Development) The Town Pump is being developed independently and no pedestrian or vehicular connection is planned to Gallatin Crossing. d. South (Huffine Lane/W. Main Street) – Commercial retail/mixed use. (Bozeman Gateway Center) E. Parkland Not applicable [no residential component is proposed at this time] F. Site Lighting The Proposed Project Area Site Plan will be lit to City of Bozeman requirements and standards using pole mounted lighting fixtures. The majority of the existing fixtures in the Project Area will need to be upgraded/relocated based on new drive aisles / 90 degree parking. The existing site lighting will remain in the areas to the rear of the mall where parking is not changed. Refer to sheets ES100 and ES200, showing Photometrics for the Project Area as well as additional lighting details. G. Building Design The proposed building design will be required to conform to various block frontages including internal roadway storefront block frontage, landscape block frontage, mixed use block frontage. The overall building heights vary as measured from final grade elevations – Refer to the elevations. The proposed pad buildings are “stepped” with existing grade to reduce the overall building heights. They provide parapet screening of roof mounted mechanical equipment as required. Refer to sheet A101-C which shows site line studies. The building exterior design modulates in both surface area and materials to establish a strong architectural language that provides spatial identity and interest. The modulated facades, use of material colors also aid in providing a series of repeating architectural expressions to the overall building. The common area spaces and retail are of complimentary materials and contain larger proportions of glazing to increase visibility and connection of interior space to the exterior environments. The existing monument sign for the mall will be updated and remain at its current location (signalized intersection at the site drive). Proposed building signage can be found on the Comprehensive Sign Plan in the Appendix [The Comprehensive Sign Plan will be reviewed in a separate staff report with a decision by the Director of Community Development]. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 25 of 28 H. Landscaping Landscape has been provided in all areas of the Project Area, consistent with the BMC requirements. Shade trees have been located throughout the parking areas at required spacing. Landscape materials proposed are consistent with the local climate and have been designed to conserve irrigation water upon successful maturation of the plantings. An irrigation well has been installed near the northeast corner of the Whole Foods building. A second irrigation well will be installed behind the Barnes & Noble store. Refer to Landscape irrigation general notes have been provided to aid a design/build contractor. The irrigation will provide for successful growth and maturity of the proposed design. Refer to landscape drawings for additional information. I. Traffic The Gallatin Crossing Redevelopment is currently proposed for the existing mall property north of Main Street (Huffine Lane) in Bozeman, MT. A previous study for planned additions to the Gallatin Valley Mall was completed in November 2029 by Abelin Traffic Services. That study addressed impacts associated with the addition of approximately 45,800 square feet of commercial retail space along with reconfiguration of internal traffic circulation patterns. Since that time, a 30,000 square foot grocery store (Whole Foods) was constructed within the property the original plan was modified to include four additional commercial buildings totaling 49,192 sf of retail space along with demolition of part of the unoccupied portion of the mall to accommodate construction of a 35,000-sf medical clinic [totaling 114,192 sf of additional commercial space]. Please refer to the traffic impact study prepared by Marvin & Associates. This TIS addresses total subdivision development impacts for current year 2022 traffic operating conditions along with future traffic conditions on the adjacent street network. The study methodology and analysis procedures within this study employed the latest technology and nationally accepted standards in the area of site development and transportation impact assessment. Recommendations made within this report are based on accepted standards and the professional judgment of the author. J. Water Rights The project has existing water rights. The proponent understands that a calculation agreed upon by both the City and the proponent will occur for payment-in-lieu of water rights. The calculation is based on annual demand for volume of water the proposed development will require. We anticipate that the calculation for the tenants will be calculated by the City based on like uses. Included in the Appendix is correspondence with Griffin Nielsen supporting our ability to defer payment of the CILWR per BMC 38.410.130. Similar to the Whole Foods phase, the developer will work with the City to determine the fees related to cash-in-lieu. Also included attached are Sanitary sewer flow projections for the project. K. Departures The proposed development is not seeking any Departures from the design standards.” Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 26 of 28 Attachment B: Bozeman Community Plan Growth Policies Relevant to this Application. 22180 Gallatin Crossing Master Site Plan MOD Relevant Community Plan policies BASIC PLANNING PRECEPTS/PRINCIPLES APPLIED IN THIS PLAN • Urban design should integrate residential and commercial land use activities, multimodal transportation, and open spaces. Transportation infrastructure is vital in supporting desired land use patterns. Therefore, the two must be coordinated. Future infrastructure should favor interconnected multimodal transportation networks (i.e. infrastructure for bicycle, pedestrian, and transit modes of transport in addition to automobiles). • Diverse uses of land should occur relatively close to one another. • The City intends to create a healthy, safe, resilient, and sustainable community by incorporating a holistic approach to the design, construction, and operation of buildings, neighborhoods, and the City as a whole. Developments should contribute to these goals and be integrated into their neighborhood and the larger community. • The needs of new and existing development coexist and they should remain in balance; neither should overwhelm the other. • Infill development and redevelopment should be prioritized, but incremental compact outward growth is a necessary part of the City’s growth. • Gathering places and open spaces, including parks and trails, should be in convenient locations to those they serve. Quality and function is superior to quantity alone. THEME 2 | GOALS, OBJECTIVES, AND ACTIONS Goal N-1: Support well-planned, walkable neighborhoods. N-1.8 Install, replace, and maintain missing or damaged sidewalks, trails, and shared use paths. N-1.9 Ensure multimodal connections between adjacent developments N-1.10 Increase connectivity between parks and neighborhoods through continued trail and sidewalk development. Prioritize closing gaps within the network. THEME 3 | GOALS, OBJECTIVES, AND ACTIONS Goal DCD-1: Support urban development within the City. DCD-1.5 Identify underutilized sites, vacant, and undeveloped sites for possible development or redevelopment, including evaluating possible development incentives. DCD-1.6 Investigate expansion of existing or creation of new urban renewal areas to encourage redevelopment of key properties. DCD-1.7 Coordinate infrastructure construction, maintenance, and upgrades to support infill development, reduce costs, and minimize disruption to the public. DCD-1.9 Promote mixed-use developments with access to parks, open space, and transit options. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 27 of 28 Goal DCD-3: Ensure multimodal connectivity within the City. DCD-3.1 Expand multimodal accessibility between districts and throughout the City as a means of promoting personal and environmental health, as well as reducing automobile dependency. DCD-3.2 Identify missing links in the multimodal system, prioritize those most beneficial to complete, and pursue funding for completion of those links. DCD-3.3 Identify major existing and future destinations for biking and walking to aid in prioritization of route planning and completion. DCD-4.4 Differentiate between development and redevelopment. Allow relaxations of code provisions for developed parcels to allow redevelopment to the full potential of their zoning district. THEME 3 | A CITY BOLSTERED BY DOWNTOWN AND COMPLEMENTARY DISTRICTS Our City is bolstered by our Downtown, Midtown, University and other commercial districts and neighborhood centers that are characterized by higher densities and intensities of use. Thoughtful city planning provides a host of advantages from economic vitality to environmental health to overall quality of life. Many of Bozeman’s neighborhoods have a concentration of housing with a variety of housing types that support nearby commercial centers. The City intends to look inward by prioritizing infill. Concentrated development uses land more efficiently, may reduce infrastructure costs, and reduces the overall amount of road surface and need for parking lots, improving overall access to parks, schools, and shops. Access is ultimately improved and places are connected through a variety of transportation options. Concentrated development makes sense for our pocketbooks and overall health. When it comes to promoting a walkable, bikeable, safe, affordable, and energy-efficient community, density and design matter. Preventing sprawl and increasing resource efficiency depend on an intensity of urban life found in our commercial centers. Innovative design and planning include ideas like pocket neighborhoods, smaller housing, green alleys, urban agriculture, and creativity in our public spaces. THEME 5 | GOALS, OBJECTIVES, AND ACTIONS Goal M-1: Ensure multimodal accessibility. M-1.1 Prioritize mixed-use land use patterns. Encourage and enable the development of housing, jobs, and services in close proximity to one another. M-1.2 Make transportation investment decisions that recognize active transportation modes and transit as a priority. M-1.3 Develop service standard levels for multimodal travel. M-1.4 Develop safe, connected, and complementary transportation networks for pedestrians, bicyclists, and users of other personal mobility devices ( e-bikes, electric scooters, powered wheelchairs, etc.). Goal M-2: Ensure multimodal safety. M-2.1 Work with the Public Works Department, Police Department, and other partners to provide education on safe travel behaviors and rules. M-2.5 Develop safe crossings along priority and high utilization pedestrian and biking corridors. Staff Report Gallatin Crossing Mall Master Site Plan Modification Application 22180 May 23, 2023 Page 28 of 28 Attachment C: Applicant’s Theoretical Mall Parking Calculations