Title
A PUD Concept Plan for the Overlook at Centennial & Fillmore project illustrating the framework for a mixed use development, located northeast of the Centennial Boulevard and Fillmore Street intersection.
(Quasi-Judicial)
Related Files: CPC MPA 04-00043-A6MJ20, CPC PUZ 20-00119, and CPC PUP 20-00120
Presenter:
Daniel Sexton, Principal Planner, Planning & Community Development
Peter Wysocki, Director, Planning & Community Development
Body
Summary:
Owner: Turtle Creek Grandview Office, LLC
Developer: Evergreen Devco, Inc.
Representative: NES Colorado, Inc.
Location: Northeast of the Centennial Boulevard and Fillmore Street intersection
The project includes concurrent applications for a major master plan amendment, PUD zone change and PUD concept plan. The major amendment to the Hill Properties Master Plan changes the land use designation from Office and Hospital to Residential and Open Space. The zone change request would change the current zoning from PUD (Planned Unit Development) to PUD (Planned Unit Development for the uses of Residential and Parks; with a maximum density of 15-24.99 dwelling units per acre and a maximum building height of 75 feet). The proposed PUD concept plan illustrates the layout for the envisioned residential and park uses as well as site access points and dimensional standards.
Background:
The requested major amendment to the Hill Properties Master Plan (see “Master Plan Amendment” attachment) changes the land use designation from Office and Hospital to Residential and Open Space for the 43.1 acres of land associated with the Overlook at Centennial & Fillmore project. This change in master planned land use designations will be the first introduction of residential uses, a less intense use then previous uses, within the master planned area. City Planning staff notes that an amendment was approved in 2015 that changed the master plan land use designation for the project site from Neighborhood Commercial, Office and General Industrial to the more intensive Hospital and Office uses. While this change alters the envisioned land use trajectory for the master planned area, which previously focused on commercial, hospital, and commercial uses, the incorporation of residential uses into the area creates a more dynamic land use pattern on the mesa. The higher density residential uses being proposed, which are anticipated to range from 15-24.99 dwelling units per acre, will provide additional rooftops that will support the current and future commercial uses. The siting of the residential and open space uses also affords a more gradual transition and buffer between the single-family and multi-family residential uses developed to the north and the commercial uses developing along Centennial Boulevard and West Fillmore Street.
The submitted zone change request proposes to rezone the project site from PUD (Planned Unit Development for the uses of Hospital, Office, Medical Office, and General Commercial; with a maximum gross floor area of 1,850,000 square feet and a maximum building height of 165 feet) to PUD (Planned Unit Development for the uses of Residential and Parks; with a maximum density of 15-24.99 dwelling units per acre and a maximum building height of 75 feet). (see “PUD Zone Change” attachment) The Applicant has proposed a maximum building height (75 feet) and density range (15-24.99 du/ac) that will govern the future build-out of the project area. These development standards are comparable with the established development parameters for the surrounding area. The requested zone also establishes an envisioned mix of residential and park uses. The proposed mix of uses, as discussed above, alters the land use direction for the Hill Properties neighborhood, but are not dissimilar to those land uses already found within the immediate area. More specifically, there are established park sites and single-family and multi-family residential developments located to the north of the project site and surrounding the larger neighborhood. Together, the proposed dimensional standards and land use controls outlined above mitigate the project’s impacts and meets the applicable City Code standards for a zone change request.
The Applicant’s proposed PUD Concept Plan for the Overlook at Centennial & Fillmore project (see “PUD Concept Plan” attachment) illustrates the layout for the envisioned residential and park uses as well as dimensional standards and site access points. The proposed layout of the envisioned land uses placed the residential use (24.1 acres) adjacent to Centennial Boulevard and the park use (18.7 acres) on the eastern site of the project area. The placement of uses takes into account both the developability of the site and the desire of the City’s Parks, Recreation, and Cultural Services Department to secure additional open space/parkland adjacent to an existing open space to the north (known as “Landslide Open Space”). The Applicant has proposed a maximum building height for the project area of 75 feet, which is a reduction from the 165-foot height limit set for the previously envisioned hospital use in 2017. At 75 feet, the proposed building height is also a reasonable transition from the 30-foot and 45-foot building height limits to the north and the 40-foot and 60-foot building height limits to the south. The manner for calculating the above referenced maximum building height will follow the methodology set forth in City Code Section 7.2.201 Definitions Enumerated - Building Height (Nonhillside Zone).
In terms of pedestrian and vehicular access, the Applicant incorporated improvements along Centennial Boulevard and the proposed private drive extending into the site from the Centennial Boulevard/Grand Market Point intersection. The pedestrian improvements will consist of sidewalks along Centennial Boulevard and a trailhead and trail improvements within the envisioned open space. The roadway improvements will consist of two new “Full Movement Access” intersections along Centennial Boulevard. All intersection and roadway improvements will be analyzed and designed through future development plan submittals. Further discussions of proposed roadway improvements and potential traffic impacts can be found later in this report under the Traffic subsection.
As an infill development, the Applicant’s proposal is a good fit for the surrounding area. City Planning staff find this to be true because the proposed residential and park uses function as a transitional land use between the residential uses to the north and the commercial uses developed or envisioned to the west and south. The development to the west, commonly referred to as Grandview Marketplace Development, contains a mix commercial uses with various service type businesses (i.e. grocery store, retail, restaurants, and other service establishments). The project site and general area are also services by Mountain Metro bus service (Routes 2 and 17), which supports the development of a greater mix of uses. (see “Context Map” attachment) The above discussed development parameters and envisioned supportive land uses mitigate the impacts of this infill development and reinforce why this project will be a compatible with the surrounding neighborhood.
The project applications have been evaluated for conformance with the City’s current comprehensive plan (herein referred to as “PlanCOS”), adopted in January 2019. According to PlanCOS, the project site is identified as an Established Suburban Neighborhood. (see “PlanCOS Vision Map” attachment) The Overlook at Centennial & Fillmore project is consistent with one of the core values of PlanCOS, which reinforces the important of encouraging the infill development proposals. One of the “Big Ideas” in the Vibrant Neighborhood Chapter 2 of PlanCOS is entitled “Reclaim Neighborhood Space”, which has goal VN-3 that states:
“Through neighborhood plans, associations, and partnerships, empower neighborhoods to reinvest in order to create community, vibrancy, and to address their specific vision and needs.”
To do this, PlanCOS suggests, “New development should focus on safe connections into and within these neighborhoods”.
A “Big Idea” from Chapter 4, entitled “Embrace Sustainability”, has Goal TE-4 that states:
“Focus on productively developing and redeveloping areas already in, nearby, or surrounded by the city in order to preserve open spaces, maximize investments in existing infrastructure, limit future maintenance costs, and reduce the impacts of disinvestment in blighted areas.”
A policy for this goal further reinforces that development should “Prioritize development within the existing City boundaries and built environment (not in the periphery).”
Adaptive and responsive land use change is one of the core values of PlanCOS. On balance with this perspective, City Planning staff has determined that the project’s land use, location and site design meets the overall intent of this idea.
The Majestic Landscapes theme (in Chapter 7 of PlanCOS) is also an important consideration. Although this project will result in more areas with vertical development and less perceptual open space, staff recommends that the resulting plan supports several of the Majestic Landscapes Big Ideas including “Providing Parks for the People”, “Engaging with Our Landscapes”, and “Complete our Creeks”. Accessible and connected parks and trails facilities are being provided.
The project supports the City’s Strategic plan goals of building community and collaborative relationships and provides a platform for the building of neighborhoods and communities through the infill development of a vacant parcel with a complimentary residential project. The development of additional residential units in this area will support existing communities and commercial and residential land uses in the area and strengthen the Colorado Springs economy through the orderly growth of the corridor.
Previous Council Action:
City Council previously took action on this property in the 2017 when the property was zoned.
Financial Implications:
The Budget Office of the Finance Department conducted a Fiscal Impact Analysis (FIA) with a ten-year time horizon to understand the estimated expenditures and revenues attributed to the Hill Properties Master Plan amendment application. The result of the FIA was a positive cumulative cashflow for the City. The addition of the high density residential is extensive and dense enough to defray the cost of increased level of service. Also, due to the nature of the prior land uses, City revenues would experience a net growth due to this amendment. (see “Fiscal Impact Analysis” attachment)
City Council Appointed Board/Commission/Committee Recommendation:
At the City Planning Commission meeting held on December 17, 2020, the project applications were discussed under the New Business portion of the agenda. Formal presentations were made by City Planning staff and the applicant to explain the project. The Planning Commission discussed the proposal with staff and the applicant. The Planning Commission ultimately voted 8-0-1 (with Commissioner Graham absent) to approve the project applications.
Stakeholder Process:
The public notification process consisted of providing notice to surrounding homeowners associations and adjacent property owners within 1,000 feet of the site, which included the mailing of postcards to 145 property owners on two occasions: during the internal review and prior to the Planning Commission hearing. The site was also posted during the two occasions noted above. City Planning staff did not receive any public comments regarding this project.
Staff sent copies of the plan set and supporting documentation to the standard internal and external review agencies for comments. Commenting agencies included Colorado Springs Utilities, Colorado Geological Survey, City Engineering, City Traffic, City Fire, City SWENT, City Parks, Council of Neighborhood Organizations (CONO), District 11, Police, and E-911. All comments received from the review agencies have been addressed. As an infill project within an established neighborhood, City Planning staff notes that the following review agency provided project specific comments:
Ø Colorado Geological Survey - Colorado Geological Survey reviewed and accepted the proposed concept plan, geological hazard report and envisioned land uses. Standard notes were applied to the entitlement documents to acknowledge the geological hazard analysis and documented hazards on the site. Future development plan and final subdivision plat applications will require a more details site specific geological hazard and slope stability analysis. (see “CGS Letter” attachment)
Ø City Finance - The Budget Office of the Finance Department conducted a Fiscal Impact Analysis (FIA) with a ten-year time horizon to understand the estimated expenditures and revenues attributed to the Hill Properties Master Plan amendment application. The result of the FIA was a positive cumulative cashflow for the City. The addition of the high density residential is extensive and dense enough to defray the cost of increased level of service. Also, due to the nature of the prior land uses, City revenues would experience a net growth due to this amendment. (see “Fiscal Impact Analysis” attachment)
Ø City Traffic - The City’s Traffic Engineering Division reviewed and accepted the proposed site design and layout, and the accompanying Master Traffic Impact study for the project. The submitted study assessed current and projected traffic volumes based on the proposed land uses along Centennial Boulevard and West Fillmore Street, and concluded there to be adequate roadway capacity. The remitting of funds will be required for the existing and proposed signals on Centennial Boulevard.
Ø City Parks - The new residential units trigger the Park and School Land Dedication Ordinance (PLDO). Parkland Dedication is anticipated to satisfy the approximate 7.95 acre estimated obligation. The obligation will be finalized with the future development plan and final subdivision plan applications.
Ø School District 11 - No comments were received from the School District 11. As such, City Planning staff will require the payment of fees in lieu of land dedication for the new residential units.
Alternatives:
1. Uphold the action of the City Planning Commission;
2. Modify the decision of the City Planning Commission;
3. Reverse the action of the City Planning Commission; or
4. Refer the matter back to the City Planning Commission for further consideration.
Recommended Action
Proposed Motion:
CPC PUP 20-00120
Approval the PUD concept plan for the Overlook at Centennial & Fillmore project, based upon the findings that the PUD concept plan meets the review criteria for establishing a PUD concept plan, as set forth in City Code 7.3.605, and meets the review criteria for establishing a concept plan, as set forth in City Code 7.5.501(E).
Summary of Ordinance Language
N/A