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HomeMy WebLinkAboutH15 - Carlson Ruggles Report compiled on July 7th 2006 Commission Memorandum REPORT TO: Honorable Mayor and City Commission FROM: Andrew Epple, Planning Director Chris Kukulski, City Manager SUBJECT: Carlson/Ruggles SHR SP/COA/DEV #Z-06041 MEETING DATE: Monday, June 17th 2006 at 6:00 PM. BACKGROUND: Property owner and applicant SxS Land Development, LLC submitted a Site Plan and Certificate of Appropriateness application with deviations, to allow the addition of a two- story, two-bedroom, single-household residence and related site improvements at 416 North Ida Street. Three deviations are requested for this application. Two deviations are required regardless to whether or not the lot is later subdivided, the first from Section 18.16.040, “Lot Area and Width,” to allow two single-household residences on one lot less than the required 10,000-square foot lot area for R-2 zoning, and the second from Section 18.16.050, “Yards,” to allow the new single-household residence to encroach into the required 20-foot rear yard setback. The third deviation is required if subdivision of the lot occurs at a later time, from Section 18.16.040, “Lot Area and Width,” to allow each single-household residence to be located on a lot less than the required 5,000-square foot lot area for R-2 zoning. UNRESOLVED ISSUES: The Department of Planning is not aware of any unresolved issues for the proposed development at this time. RECOMMENDATION: That the City Commission approve the Carlson/Ruggles SHR Site Plan and Certificate of Appropriateness application with deviations (#Z-06041) as conditioned by Planning Staff. FISCAL EFFECTS: The Department of Planning is not aware of any fiscal effects for the proposed development at this time. ALTERNATIVES: As suggested by the City Commission. CONTACT: Please feel free to email Andrew Epple @ aepple@bozeman.net if you have any questions prior to the public hearing. Respectfully submitted, _________________________________ _________________________________ Andrew Epple, Planning Director Chris Kukulski, City Manager CITY COMMISSION STAFF REPORT CARLSON/RUGGLES SHR SP/COA/DEV FILE #Z-06041 Item: Zoning Application #Z-06041, a Site Plan and Certificate of Appropriateness application with deviations, to allow the addition of a two-story, two-bedroom, single-household residence and related site improvements at 416 North Ida Street. The subject property is zoned as R-2 (Residential Two- Household, Medium Density District) and is located within the Neighborhood Conservation Overlay District. Property Owner/ Applicant: SxS Land Development, LLC c/o Stephen B. Carlson & Daniel E. Ruggles PO Box 1797 Bozeman, MT 59715 Date & Time: City Commission Public Hearing: Monday, July 17, 2006 @ 6:00 pm, in the Community Room, Gallatin County Courthouse, 311 West Main Street, Bozeman, MT 59715 Report By: Allyson C. Bristor, Associate Planner Recommendation: Conditional Approval PROJECT LOCATION The subject property is located on the east side of the 400 block of North Ida Avenue, which falls between E. Fridley and E. Orange Streets, and is legally described as less 25’ of the North end of Lots 1, 2 & 3, Block 51, Northern Pacific Addition, Gallatin County, Montana. The property is approximately 9,000 square feet in lot area, is zoned as R-2 (Residential Two-Household, Medium Density District) and is located within the Neighborhood Conservation Overlay District. Please refer to the vicinity map on the following page. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 1 PROPOSAL & BACKGROUND Property owner and applicant SxS Land Development, LLC submitted a Site Plan and Certificate of Appropriateness application with deviations, to allow the addition of a two-story, two-bedroom, single-household residence and related site improvements at 416 North Ida Street. The initial application was submitted on March 14th but was deemed inadequate due to unclear submittal materials. The application was revised and resubmitted on May 5th and deemed adequate for continued review. An existing one-story, single-household residence exists on the 9,000-square foot lot. The structure was built c.1912 and stands as a non-contributing structure in the Neighborhood Conservation Overlay District because of changes in its original design and materials. Three deviations are requested for this application. Two deviations are required regardless to whether or not the lot is later subdivided, the first from Section 18.16.040, “Lot Area and Width,” to allow two single-household residences on one lot less than the required 10,000-square foot lot area for R-2 zoning, and the second from Section 18.16.050, “Yards,” to allow the new single-household residence to encroach into the required 20-foot rear yard setback. The third deviation is required if subdivision of the lot occurs at a later time, from Section 18.16.040, “Lot Area and Width,” to allow each single-household residence to be located on a lot less than the required 5,000-square foot lot area for R-2 zoning. The Development Review Committee (DRC) conducted their final review of the project proposal on June 21, 2006, and unanimously recommended approval of the project as conditioned by Administrative Design Review (ADR) Staff. This application does not meet the thresholds established in Section 18.62.010.A.2.e of the UDO to warrant review by the Design Review Board. ZONING DESIGNATION & LAND USES The subject property is zoned R-2 (Residential Two-Household, Medium Density District). As stated in the Bozeman Unified Development Ordinance, the intent of the R-2 residential district is to provide for one- and two-household residential development that presents few or no #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 2 #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 3 development constraints and that additionally respects the residential quality and nature of surrounding areas. The following land uses and zoning are adjacent to the subject property: North: Single-Household Residence, zoned as R-2; South: Single-Household Residence, zoned as R-2; East: Single-Household Residence and Commercial/Retail (Zak Zakovi’s art studio), zoned as R-2; West: Single-Household Residence and Two-/Three-Household Residence, zoned as R-2. ADOPTED GROWTH POLICY DESIGNATION The development proposal is in conformance with the Bozeman 2020 Community Plan including the “Residential” land use designation. This classification designates places where the primary activity is urban density living quarters. Other uses that complement residences are also acceptable, such as parks, low intensity home based occupations, fire stations, churches and schools. The dwelling unit density expected within this category varies and a variety of housing types should be blended to achieve the desired density, with large areas of single type housing discouraged. Additionally, all residential housing should be arranged with consideration given to the existing character of adjacent development. REVIEW CRITERIA & STAFF FINDINGS Section 18.28.050 “Standards for Certificates of Appropriateness” A. All work performed in completion of an approved Certificate of Appropriateness shall be in conformance with the most recent edition of the Secretary of Interior’s Standards for the Treatment of Historic Properties with Guidelines for Preserving, Rehabilitating, Restoring and Reconstructing Historic Buildings (Published 1995), published by U.S. Department of the Interior, National Park Service, Cultural Resource Stewardship and Partnerships, Heritage Preservation Services, Washington, D.C. (available for review at the Department of Planning). The Secretary of Interior Standards’ Guidelines are considered in the architectural design review discussion below. Because the existing single-household residence is deemed “non- contributing,” the Guidelines only examine the proposed construction and its appropriateness for the surrounding neighborhood. B. Architectural appearance design guidelines used to consider the appropriateness and compatibility of proposed alterations with original design features of subject structures or properties, and with neighboring structures and properties, shall focus upon the following: 1. Height; ADR Staff is conditioning the proposed house to not exceed 29 feet in height from finished grade. The height measurement shall not be taken from the finished floor. Staff finds its acceptable to build a two-story house on the lot, but does not want the two-story to be too excessive with relation to the surrounding neighborhood along North Ida Avenue, which are predominately one-story in height (except for the intrusive apartment complex across the street). #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 4 2. Proportions of doors and windows; ADR Staff is conditioning the proposed house to remove the glass block on the front elevation. Staff is acceptable of glass block on the other elevations, but only at basement level. 3. Relationship of building masses and spaces; The proposed construction is drastically increasing the building mass on the property. The existing residence is 915 square feet in building footprint and falls at only 10-percent in lot coverage. However, the typical for the surrounding neighborhood (especially along North Ida Avenue to the south of the property) are small undersized lots. If subdivision occurs of the property, the existing residence will cover 20 percent of the lot area and the proposed construction will cover 30 percent of the lot area. Both percentages are below the maximum 40 percent for R-2 zoning. Early in the project review, ADR Staff and the applicant agreed to set the proposed construction back further from the front property line and line up with the front plane of the existing house. The encroachment into the required 20-foot rear yard setback is supportable because of the front yard space it creates along North Ida Avenue. 4. Roof shape; The proposed gable roof form is traditional and appropriate for the surrounding neighborhood. 5. Scale; The scale of the proposed construction is quite larger than the pattern seen on the North Ida Avenue streetscape (except for the large, intrusive apartment complex across the street). To help the two-story design seem smaller in scale, Staff is conditioning the applicant to remove the second story area that is located directly above the front porch Staff believes that the currently proposed front wall of the new house is too excessive for the streetscape that is predominately one-story in height and simple in building form (square plan). The front wall of the proposed construction shall just be the one-story front porch. 6. Directional expression; The proposed construction is appropriately oriented toward North Ida Avenue, and supplies a walkway and stair entry to the front porch to emphasize a connection with pedestrian traffic. 7. Architectural details The proposed construction is incorporating traditional materials and details, while the existing residence is retaining original materials and design throughout the project. ADR Staff is conditioning the removal of the proposed carport in front of the garage door. Carports were typically seen attached to houses post-1950 and in this particular case, does not correlate well with the traditional form of the proposed construction. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 5 8. Concealment of non-period appurtenances, such as mechanical equipment All mechanical equipment must be screened. Ground-mounted equipment shall be screened from all views by either dense plant material or a solid wall. Rooftop mechanical equipment shall be either fully screened by incorporating the equipment into the roof form or be fully hidden behind a parapet wall. 9. Materials and color scheme ADR Staff is conditioning the applicant to provide a color and material palette of the proposed construction prior to COA final approval. C. Contemporary, nonperiod and innovative design of new structures and additions to existing structures shall be encouraged when such new construction or additions do not destroy significant historical, cultural or architectural structures, or their components, and when such design is compatible with the foregoing elements of the structure and the surrounding structures. As described above and below, ADR Staff finds the design of the proposed construction, with the conditions of approval, as compatible with the foregoing elements of the surrounding residential neighborhood. D. When applying the standards of subsections A-C, the review authority shall be guided by the Design Guidelines for the Neighborhood Conservation Overlay District which are hereby incorporated by this reference. When reviewing a contemporary, non-period, or innovative design of new structures, or addition to existing structure, the review authority shall be guided by the Design Guidelines for the Neighborhood Conservation Overlay District to determine whether the proposal is compatible with any existing or surrounding structures. The Introduction, Chapters 2, 3, and 4 and the Appendix of the Design Guidelines for the Neighborhood Conservation Overlay District apply to this project, as the project is new infill and construction in the Neighborhood Conservation Overlay. Chapter 2: Street Patterns: Guideline 1: Respect historic settlement patterns. As conditioned by ADR Staff, the proposed construction will have the same front yard setback as the existing residence on site. Chapter 3: Hierarchy of Public and Private Space: Guideline 3: Orient the front porch to the street. The proposed front porch is appropriately oriented toward North Ida Avenue. ADR Staff is conditioning the applicant to remove the second story area that is located directly above the front porch to better address the streetscape. Staff believes that the currently proposed front wall of the new house is too excessive for the streetscape that is predominately one- story in height and simple in building form (square plan). A one-story front porch provides human scale to the new construction, as well as offers interest to pedestrians. Chapter 3: Building Mass and Scale: Guideline 2: On larger structures, step down a building’s heights toward the street. As conditioned by ADR Staff, the applicant shall remove the second story area that is #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 6 located directly above the front porch. The second floor mass of the proposed construction shall sit behind the front plane of the one-story front porch. A building’s height should be stepped down toward the street to convey a human scale. Chapter 3: Building Mass and Scale: Guideline 4: The front wall of a new structure should not exceed two stories in height. As conditioned by ADR Staff, the applicant shall remove the second story area that is located directly above the front porch. Staff believes that the currently proposed front wall of the new house is too excessive for the streetscape that is predominately one-story in height and simple in building form (square plan).that will The front wall of the proposed construction shall just be the one-story front porch. Section 18.28.070 “Deviations from Underlying Zoning Requirements” Section 18.28.070 specifies the required criteria for granting deviations from the underlying zoning requirements. In the discussion below, ADR Staff has evaluated the applicant's request in light of these criteria. A. Modifications shall be historically appropriate for the building and site in question and the adjacent properties; ADR Staff finds the addition of a second single-household residence as appropriate for the undersized site in question. Whether or not subdivision happens for the subject property in the future, the deviations for lot area allow for the redevelopment of a lot that is currently underutilized and an ideal place for inappropriate outdoor storage (cars, trailors, etc.). The existing pattern along North Ida Avenue is generally undersized lots with houses occupying approximately 20 percent of the lot area in building coverage. Staff finds the rear yard encroachment as historically appropriate because it allows the front plane of the proposed construction to match the existing residence on site. Together, the front yard setbacks will be unified in depth. It is the determination of the Historic Preservation Office and ADR Staff that, with conditions of approval, the project generally meets Criteria A of Section 18.28.070 “Deviations from Underlying Zoning Requirements,” of the Bozeman Unified Development Ordinance. B. Modifications will have minimal adverse effect on abutting properties or the permitted uses thereof; All vehicular access for the proposed residence shall occur in the front drive and attached garage. Front drives, rather than rear access off the alley is typical for North Ida Avenue, largely because an alleys do not exist behind most of the small houses. Adequate parking is provided for the proposed two-bedroom house (one in the garage and one stacked in the front drive). The rear yard encroachment will have no adverse effect on abutting properties. The existing residence is encroaching, and the proposed residence will not go beyond that established pattern. It is the determination of the Historic Preservation Office and ADR Staff that, with conditions of approval, the project generally meets Criteria B of Section 18.28.070 “Deviations from Underlying Zoning Requirements,” of the Bozeman Unified Development Ordinance. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 7 C. Modifications shall assure the protection of the public health, safety and general welfare. With the conditions outlined by Staff, a paved drive approach off North Ida Avenue is required. Sidewalk is not required because of Ida’s existing small right-of-way (less than 60 feet). It is the determination of the Historic Preservation Office and ADR Staff that, with conditions of approval, the project generally meets Criteria C of Section 18.28.070 “Deviations from Underlying Zoning Requirements,” of the Bozeman Unified Development Ordinance. Section 18.34 “Site Plan and Master Site Plan Review Criteria” In considering applications for site plan approval under this title, the Planning Director, City Commission, DRC, and when appropriate, the ADR Staff, the DRB or WRB shall consider the following: A. Conformance to and consistency with the City’s adopted growth policy; The development proposal is in conformance with the Bozeman 2020 Community Plan including the “Residential” land use designation. This classification designates places where the primary activity is urban density living quarters. Other uses that complement residences are also acceptable, such as parks, low intensity home based occupations, fire stations, churches and schools. The dwelling unit density expected within this category varies and a variety of housing types should be blended to achieve the desired density, with large areas of single type housing discouraged. Additionally, all residential housing should be arranged with consideration given to the existing character of adjacent development. B. Conformance to this title, including the cessation of any current violations; The application is in general compliance with the requirements set forth in the Bozeman Unified Development Ordinance. Any areas not addressed in the applicant’s proposal have been identified as code provisions that must be addressed on the Final Site Plan (FSP). C. Conformance with all other applicable laws, ordinances, and regulations; Please reference the “Standards for a Certificate of Appropriateness” and “Deviations from Underlying Zoning Requirements” sections of this report, as they address conformance with other applicable regulations. D. Relationship of site plan elements to conditions both on and off the property; With the conditions outlined by the DRC and ADR Staff, the elements of the site plan including the architectural design, landscaping, circulation, orientation, mass, and height is compatible with the surrounding neighborhood and arranged in an appropriate manner for lots within R-2 zoning and the Neighborhood Conservation Overlay District. E. The impact of the proposal on the existing and anticipated traffic and parking conditions; All vehicular access for the proposed residence shall occur in the front drive and attached garage. Front drives, rather than rear access off the alley is typical for North Ida Avenue, largely because alleys do not exist behind most of the small houses. A paved drive approach off North Ida Avenue is required Adequate parking is provided for the proposed two- #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 8 bedroom house (one in the garage and one stacked in the front drive). F. Pedestrian and vehicular ingress and egress; Primary pedestrian and vehicular ingress and egress will occur at the front of the houses. The pedestrian is emphasized with the front porch oriented toward the street. G. Landscaping, including the enhancement of buildings, the appearance of vehicular use, open space, and pedestrian areas, and the preservation or replacement of natural vegetation; As conditioned by ADR Staff, a landscape plan is required upon FSP submittal. H. Open space; Open space is provided for each residence in the supplied side and rear yards. I. Building location and height; As described in the “Standards for a Certificate of Appropriateness” section of this report, the proposed scale of the new construction is appropriate and in proportion for the surrounding residential neighborhood. J. Setbacks; As described in the “Deviations from Underlying Zoning Requirements” section of this report, the deviation for lot area and the encroachment into the required rear yard is justified because of the historic pattern of the houses along North Ida Avenue. K. Lighting; All proposed lighting on site shall conform to the requirements outlined in the Bozeman Unified Development Ordinance. L. Provisions for utilities, including efficient public services and facilities; The location of existing water and sewer mains, as well as nearby fire hydrants, shall be properly depicted on the FSP materials. M. Site surface drainage; Site surface drainage will be reviewed by the Engineering Department upon FSP submittal. N. Loading and unloading areas; The loading and unloading areas will likely occur at the front porch and front drive areas. O. Grading; Grading proposed for the new construction will be reviewed by the Engineering Department upon FSP submittal. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 9 P. Signage; Non-applicable. Q. Screening; All mechanical equipment must be screened. Ground-mounted equipment shall be screened from all views by either dense plant material or a solid wall. Rooftop mechanical equipment shall be either fully screened by incorporating the equipment into the roof form or be fully hidden behind a parapet wall. R. Overlay district provisions; The site falls within the Neighborhood Conservation Overlay District. Therefore, the project is subject to review under the “Standards for a Certificate of Appropriateness,” as defined in Chapter 18.28 of the Bozeman Unified Development Ordinance. S. Other related matters, including relevant comment from affected parties; Non-applicable. T. If the development includes multiple lots that are interdependent for circulation or other means of addressing requirement of this title, whether the lots are either: a. Configured so that the sale of individual lots will not alter the approved configuration or use of the property or cause the development to become nonconforming; b. The subject of reciprocal and perpetual easements or other agreements to which the City is a party so that the sale of individual lots will not cause one or more elements of the development to become nonconforming. Non-applicable. PUBLIC COMMENT The Department of Planning did not receive public comment in regards to this project. RECOMMENDED CONDITIONS OF APPROVAL Based on the following analysis, Administrative Design Review Staff and the Development Review Commission find that this Site Plan and Certificate of Appropriateness application with deviations is in general compliance with the adopted Growth Policy and the Unified Development Ordinance. The following conditions of approval are recommended: Conditions of Approval 1. Prior to Final Site Plan approval, the proposed alley vacation shall be approved by the City of Bozeman. The applicant shall submit written verification of the alley vacation to the Department of Planning, which will be added to the application on file. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 10 2. Prior to Final Site Plan approval, the applicant shall submit a modified site plan and modified elevations of the proposed house to the Department of Planning, which shows the following: a. Building footprint providing 20 feet of front yard setback (eaves and stairs may encroach into the 20-foot front yard no more than 5 feet); b. Removal of the awning “carport” in front of the garage door c. Removal of the second floor area that is directly located above the front porch; d. Consistent finished floor to finished grade heights; e. Building height not exceeding 29 feet from finished grade; f. Removal of glass block at the basement level on the west (front) elevation; and g. No more than a 5-foot encroachment into the rear yard setback. All modified materials shall be subject to final design review and approval by Administrative Design Review Staff. 3. Prior to Final Site Plan approval, the applicant shall provide a color palette and sample materials board to the Department of Planning, for final design review and approval by Administrative Design Review Staff. 4. This project shall be constructed as approved and conditioned in the Certificate of Appropriateness with deviations application. Any modifications to the submitted and approved drawings shall invalidate the project's approval unless the applicant submits the proposed modifications for review and approval by the Department of Planning prior to undertaking said modifications. 5. The Final Site Plan shall be adequately dimensioned/scaled and a legend of all line- types utilized shall be provided. 6. Existing and proposed easements and right-of-way located on or adjacent to the project site shall be properly depicted upon the Final Site Plan. Distinguish between proposed and existing easements. 7. The sizes and locations of public utility mains and services adjacent to the project site shall be properly depicted and labeled, as well as nearby fire hydrants. Distinguish between proposed and existing mains and services. 8. Proposed water and sewer services shall maintain a minimum horizontal separation of 10’ from trees. 9. Sewer and water services shall be shown on the Final Site Plan and approved by the Water and Sewer Superintendent. City of Bozeman applications for services shall be completed by the applicant. 10. A street cut permit shall be obtained prior to construction of water/sewer services. 11. An encroachment permit shall be obtained from the Engineering Department prior to storing construction related materials and/or refuse in a public street right-of-way. 12. A paved drive access shall be provided from Ida Street for the proposed dwelling; provide a note on the Final Site Plan to this effect. #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 11 13. A property access deviation must be requested if standards of Section 18.44.090.D.3 of the Unified Development Ordinance are not satisfied with the Final Site Plan layout. 14. A Boundary Survey Exhibit shall be provided with the Final Site Plan and certified by a Registered Land Surveyor in the state of Montana. Property boundaries shall be labeled on the exhibit with bearings and distances which will reflect those to be recorded with the Amended Plat subsequently prepared for the project through use of a subdivision exemption. Final Site Plan boundaries must correspond with those appearing on the Boundary Survey Exhibit. 15. The applicant shall submit a construction route map dictating how materials and heavy equipment will travel to and from the site in accordance with Section 18.74.020.A.1 of the Unified Development Ordinance. This shall be submitted as part of the Final Site Plan for site developments, or with the infrastructure plans for subdivisions. It shall be the responsibility of the applicant to ensure that the construction traffic follows the approved routes. 16. All construction activities shall comply with Section 18.74.020.A.2 Unified Development Ordinance. This shall include routine cleaning/sweeping of material that is dragged to adjacent streets. The City may require a guarantee as allowed for under this section at any time during the construction to ensure damages or cleaning that are required are complete. The developer shall be responsible to reimburse the City for all costs associated with the work if it becomes necessary for the City to correct any problems that are identified. Code Provisions ƒ Per Section 18.34.130.A, “Final Site Plan,” no later than six months after the date of approval of a preliminary site plan or master site plan, the applicant shall submit to the Department of Planning seven (7) copies of a Final Site Plan. The Final Site Plan shall contain all of the conditions, corrections and modifications approved by the Department of Planning. ƒ Per Section 18.38.060, “Yard and Height Encroachments,” eaves and gutters may not extend more than 2.5 feet into a required side yard setback. ƒ Per Section 18.42.130, “Fences, Walls and Hedges,” all new fences must conform to code requirements. ƒ Per Section 18.42.150, “Lighting,” if installed, all lighting shall comply with said Section requirements. ƒ Per Section 18.44.100, “Street Vision Triangle,” trees which are located in the street vision triangle and which preexisted the adoption of this title may be allowed to remain, provided the trees are trimmed such that no limbs or foliage exist below a height of ten feet above the centerline grades of intersecting streets. ƒ Per Section 18.64.100, “Building Permit Requirements,” a Building Permit must be obtained prior to the work, and must be obtained within one year of Final Site Plan approval. Building Permits will not be issued until the Final Site Plan is #Z-06041 Carlson/Ruggles SHR SP/COA/DEV Staff Report 12 approved. CONCLUSION Administrative Design Review Staff and the Development Review Committee reviewed the Carlson/Ruggles SHR Site Plan and Certificate of Appropriateness application with deviations, and as a result recommend to the City Commission conditional approval of said application with the conditions and code provisions outlined above. Attachments: Applicant’s Submittal Materials Report Sent To: SxS Land Development LLC, PO Box 1797, Bozeman, MT 59715