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Item 5A - 3990 15th St Use ReviewCITY OF BOULDER PLANNING BOARD AGENDA ITEM MEETING DATE: November 21, 2023 AGENDA TITLE Public Hearing and consideration of a Use Review to allow for the Jarrow Montessori Elementary School to replace the former Harmony Pre-School at 3990 15th Street within the Residential - Estate (RE) zoning district. The proposal includes a request for a 25% parking reduction to allow for six parking spaces where eight spaces would otherwise be required. Reviewed under case number LUR2023-00025. Applicants: Harmon Zuckerman, FJGG, P.C. Debbie Senoff-Langford, Jarrow School, Inc. Owner: Jarrow School, Inc. REQUESTING DEPARTMENT / PRESENTERS Planning & Development Services Nuria Rivera-Vandermyde, City Manager Brad Mueller, Director Planning & Development Services Charles Ferro, Development Review Manager Chandler Van Schaack, Principal Planner OBJECTIVE 1. Planning Board hears applicant and staff presentations. 2. Hold Quasi-Judicial Public Hearing. 3. Planning Board action to approve, approve with conditions, or deny. Item 5A - 3990 15th St. Use Review SUMMARY Project Name: Jarrow School Location: 3990 15th Street Size of Property: 13,800 sq. ft. (0.32 acres) Zoning: Residential – Estate (RE) Comprehensive Plan: Residential – Low (LR) KEY ISSUES Staff has identified the following key issues to help guide the board’s discussion: 1.Is the proposal consistent with the Use Review criteria set forth in Subsection 9-2-15(e), B.R.C. 1981? EXECUTIVE SUMMARY The purpose of this item is for Planning Board to review and take action on an application for a Use Review to allow for the Jarrow Montessori School to operate a new private elementary school use in the former Harmony Pre-School building located at 3990 15th Street. The former Harmony pre-school use was approved through Special Review in 1992 and expanded through a Use Review in 1994 to allow for 30 students and 4 full-time staff. A Use Review was approved in 2001 to allow for a second story addition (with no increase in the number of students), as well as a 38% parking reduction to allow for five on-site parking spaces where eight spaces would otherwise be required. Because the proposed private elementary school use is considered a change in use from the previously approved preschool use (now considered a “daycare center” in the land use code), a Use Review is required. Because private elementary school use is a non-residential use in a residential zoning district, the Use Review requires review and approval by the Planning Board at a public hearing. The applicant’s submittal package is provided in Attachment A. STAFF RECOMMENDATION Staff recommends that Planning Board adopt the following motion: Suggested Motion Language: Motion to approve Use Review no. LUR2023-00025 incorporating the staff memorandum, including its attachments, as findings of fact and subject to the recommended conditions of approval. PUBLIC FEEDBACK Required public notice was given in the form of written notification mailed to all property owners within 600 feet of the proposed Use Review, and a sign posted on the property for at least 10 days. All notice requirements of Section 9-4-3, B.R.C. 1981 have been met. In response to the public notice, staff received comments from three neighbors who expressed concerns related to potential traffic and parking impacts and one neighbor who supported the proposal. These comments are included as Attachment C. Item 5A - 3990 15th St. Use Review Quince Ave. Br oa dw ay 15t h St. Figure 1: Vicinity Map BACKGROUND Existing Site/Context The approximately 0.3-acre project site is located in North Boulder on the southeast corner of 15th Street and Quince Ave. Refer to Figure 1 for a Vicinity Map. The subject site is adjacent to low-density residential uses on the south and east, a church across Quince Ave. to the north, and an 8-unit condominium complex immediately to the west across 15th St. Further to the west along Quince Ave. are the Nomad Playhouse and the Lucky’s Market shopping center. The area to the northeast and northwest of the subject site is primarily low-density residential. As shown in the map of the greater vicinity in Figure 2 below, the main Jarrow Montessori School campus is located approximately 0.4 miles to the southwest at 3900 Orange Ct. As shown in Figure 2 on the following page, the project site is comprised of two parcels and is located in the Residential - High 4 (RH-4) zone district, which is defined as: “High density residential areas primarily used for a variety of types of attached residential units, including without limitation, apartment buildings, and where complementary uses may be allowed.” (Section 9-5-2(c)(1)(G), B.R.C. 1981). The Boulder Valley Comprehensive Plan designates the property “HR, High Density Residential”, described below. Jarrow Montessori Main Campus Figure 2: Location of site in relation to main Jarrow Montessori campus Item 5A - 3990 15th St. Use Review Figure 3: Zoning Map As shown below in Figure 3, the site is located with the Residential – Estate (RE) zoning district, which is defined in Section 9-5-2 of the Land Use Code as “Single-family detached residential dwelling units at low to very low residential densities.” Private elementary school uses are allowed in the RE zone district if approved through Use Review. Parking for nonresidential uses in the RE zone is required at a ratio of one space per 300 square feet of floor area. PROJECT DESCRIPTION As described above, the applicant is requesting approval of a Use Review to allow for the Jarrow Montessori School to operate a new private elementary school use for children age 6 to 12 years in the former Harmony Pre-School building at 3990 15th Street. No changes to the existing building are proposed, and the school would operate at the same capacity as the previous preschool use (30 students). Hours of operation would be from 7:30 a.m. to 5:30 p.m., Monday through Friday, with drop-off occurring between 8:00 and 8:30 a.m. and pick-up occurring at 3:30 p.m. The applicant is requesting a 25% parking reduction to allow for six off-street parking spaces to be provided where eight are required by the Land Use Code. The applicant has provided a parking plan outlining the proposed school’s operating characteristics and the strategies they will use to mitigate parking demand. The proposed site plan showing the parking layout and pick-up/ drop- off location is shown below in Figure 4. The Parking Plan is included with the applicant’s submittal materials in Attachment A. Item 5A - 3990 15th St. Use Review Figure 4: Proposed Site Plan As outlined in the Parking Plan, the school anticipates that approximately 7 out of 30 students will be dropped off and picked up by car, with the remainder either walking, bicycling, or being escorted by a staff member from the main Jarrow campus following drop-off of a sibling. As such, the school anticipates that the addition of a sixth parking space (there are only five currently on-site) will be more than adequate to provide parking for staff and for occasional events such as parent-teacher conferences or evening events. The primary strategy the school proposes to use to mitigate parking demand is a pick-up and drop-off system which would be managed in the gravel area abutting the property on the south side Quince Avenue. According to the applicant, “This management would mirror the “car line” procedure for student drop-off and pick-up which Jarrow employs at its main campus at 3900 Orange Street. At the main campus, student drop-off, check-in and check-out, pick-up, and traffic flow are monitored by the teaching staff. This procedure has been in effect for many years, and all parents who deliver their kids to school by car are familiar with it.” To facilitate this process, the proposed conditions of approval require the addition of two new “PICK UP AND DROP OFF ONLY; NO PARKING” signs in the gravel area to ensure that no parking occurs in the right-of-way. PROCESS As described above, the proposal would allow the Jarrow Montessori School to operate a private elementary school use for up to 30 students and 4 staff members within the former Harmony Pre-School building at 3990 15th Street. Per Table 6-1, “Use Table,” Item 5A - 3990 15th St. Use Review B.R.C. 1981, private elementary school uses require a use review to operate in the RE zoning district. While the previous pre-school use was in operation at this site for nearly 30 years, because the new elementary school use falls under a different use category and is a nonresidential use within a residential zone district, the application requires a recommendation by staff with a final decision by the Planning Board at a public hearing pursuant to Section 9-2-15(d)(1), B.R.C. 1981. The proposal does not trigger or require Site Review. The proposed replacement of the former pre-school use with a private elementary school will not alter the existing building or site except for the addition of a new parking space and bike racks. Because there is no change in floor area, there is no change in the parking requirement for the site; however, since the original approval of the Harmony Pre-School, which was granted a 38% parking reduction, the Land Use Code has been changed so that the maximum parking reduction that can be requested through the Use Review process is 25%. Therefore, the applicant is proposing to add an additional parking space to stay within the allowable 25% parking reduction. Parking for non-residential uses in the RE zone is calculated at one space per 300 square feet of floor area. The site requires 8 spaces where 6 are provided. ANALYSIS OF KEY ISSUES Key Issue #1: Is the proposal consistent with the Use Review criteria set forth in Subsection 9-2-15(e), B.R.C. 1981? As described above, the proposed non-residential uses must meet the criteria set forth in Subsection 9-2-15(e), B.R.C. 1981. Staff finds that the proposal is consistent with the applicable Use Review criteria. The existing site has been utilized as a pre-school for nearly 30 years and is located within a half-mile of the main Jarrow Montessori Campus, which has been in operation at that location for nearly 60 years. Thus, the proposed use will not change the predominant character of the surrounding area. Additionally, the use provides direct service or convenience to the neighborhood, with over half of the 2022 elementary school student population living within one mile of the proposed project site. The proposed hours of operation and Parking Plan ensure that the use will be reasonably compatible with and have minimal negative impacts on the use of nearby properties. Overall, while the proposed elementary school use represents a change in the age of the student population, the proposed operating characteristics are not changing from the previously approved use, and the addition of one new parking space, a proven pick-up and drop-off procedure managed by staff, additional bicycle parking and a shorter school day will reduce the overall impacts of the proposed use. Refer to Attachment B for staff’s complete analysis of the review criteria. RECOMMENDED CONDITIONS OF APPROVAL USE REVIEW 1. The Applicant shall ensure that the development shall be in compliance with the Applicant’s site plan and Written Statement dated September 7, 2023, all on file in the City of Boulder Planning Department, except to the extent that the development may Item 5A - 3990 15th St. Use Review be modified by the conditions of this approval. Further, the Applicant shall ensure that the approved use is operated in compliance with the following restrictions: a. The Applicant shall operate the business in accordance with the Parking Plan dated September 7, 2023, which is attached to this Notice of Disposition. b. The approved use shall be closed from 5:30 pm to 7:30 am. from Monday – Friday and on weekends except for special events, including but not limited to parent-teacher conferences, school plays, and fundraisers. Special events shall not exceed 15 days per year. c. The use shall be restricted to four (4) full-time staff members and thirty (30) students. d. The Applicant shall provide two 12”W x 18”H “PICK-UP AND DROP-OFF ONLY; NO PARKING” (R-SPUDO) signs that meet the Manual on Uniform Traffic Control Devices (MUTCD) and City of Boulder standards for the gravel pick up/drop off area located along Quince Ave. e. The Applicant shall provide six (6) off-street parking spaces, with five regular spaces and one accessible space. f. The Applicant shall provide at least five (5) short term bicycle parking spaces on the property that meet the standards in Land Use Code 9-9-6(g)(3) and the City of Boulder Design and Construction Standards (DCS) Section 2.11(G)(2). 2. The Applicant shall not expand or modify the approved use, except pursuant to Subsection 9-2-15(i), B.R.C. 1981. 3. This approval is limited to Jarrow School, Inc,, the owner of the property. Any changes in ownership shall be subject to the review and approval of the Planning Director. The purpose of such review shall be to inform such subsequent user of this space that it will be required to operate the school in compliance with the terms of this approval. Approved By: ____________________________________ Brad Mueller, Secretary to the Planning Board ATTACHMENTS Attachment A: Applicant’s Use Review Submittal Materials Attachment B: Staff Analysis of Review Criteria Attachment C: Public Comments Item 5A - 3990 15th St. Use Review Tom Willis Tom Willis 2023.09.07 14:20:28 '00'06- Item 5A - 3990 15th St. Use Review LUR2023-00025 – Jarrow School Use Review Written Statement – Resubmittal September 7, 2023 LAND USE – Please describe the proposed use(s) of the property, including activities conducted on site, number of seats, number of guest rooms, number of residents, number of employees, hours of operation and any other unique operating characteristics. Also, please specify which land use category(ies) in the Schedule of Permitted Land Uses (Section 9-6-1) that most closely describes the proposed use: Applicant’s response: The proposed use of the property is as a private school for up to 30 children aged 6-12 years. The outdoor space on the property would be used for educational purposes (gardening, science, physical education, art), as well as a place for students to have lunch and recreate. It is anticipated that there will be three (3) staff on-site, i.e., two (2) teachers and one (1) administrator. The applicant is, however, requesting approval with a limit of four (4) full-time employees to allow for additional staff assistance if and whenever necessary. Similarly, the hours of operation are anticipated to be 8 AM to 4 PM, Monday through Friday, but the applicant is requesting approval with for 7:30 AM to 5:30 PM, Monday through Friday, to permit administrative work and occasional after-school activity. Note that the requested limits are the limits which apply to the current Harmony Preschool use. One unique operating characteristic of the proposed elementary school is that it would be a satellite of the Jarrow Montessori School, which has its main campus at 3900 Orange Court, which is just on the other side of Broadway from the subject property. This will allow teachers, administrators, students, and parents to walk between the subject property and the main campus (the distance is about one-third of a mile). Having all of the resources of the Jarrow Montessori School so close by will allow the school on the subject property to have flexibility in a variety of functional areas, including overflow parking. The land use category in the Schedule of Permitted Land Uses (Section 9-6-1) that most closely describes the proposed use is “Private elementary, middle, or high school,” which category falls under the heading of PUBLIC AND INSTITUTIONAL USES: Community, Cultural, and Educational. Jarrow School Inc. is a 501(c)(3) nonprofit entity. Item 5A - 3990 15th St. Use Review NARRATIVE Jarrow School Inc. (“Jarrow”) proposes to repurpose the existing Harmony Preschool as an elementary school serving students ages 6-12 (the “School”). The School would be a satellite location and quite walkable to the nearby main campus of the Jarrow Montessori School at 3900 Orange Court (the “Campus”). It would provide a small and intimate educational setting for up to 30 students. Jarrow is requesting the same maximum student count, hours of operation, number of staff, and parking reduction as is currently permitted under the approved Harmony Preschool Use Review. Jarrow anticipates that the impacts of the School would be less intense than the impacts of the current, approved use, for several reasons. For one thing, the elementary school day is shorter than the preschool day, as classes are generally finished by 3:30 PM daily (the Harmony Preschool hours of operation involved parents picking children up as late as 5:30 PM). Also, Jarrow makes a strong commitment to serving the local community and has many families who live within walking distance of the Campus and the subject property. Elementary school-age children in North Boulder more often walk and bike to school than do preschool-age children, so the number of car trips generated by the proposed School use should be less than the current preschool use. The foregoing is borne out by the Boulder Revised Code, which permits private elementary schools – the category into which the School fits – via Use Review but requires daycare centers – the category into which the Harmony Preschool fits – to meet not only the Use Review criteria but also a set of more stringent Specific Use Standards. No expansion of the subject property is being requested, and the location of the School would allow it to take advantage of the resources on the Campus. Therefore, the School would not need to be entirely self-sufficient or self-contained and would not need to increase the intensity of its use at the subject property. Jarrow serves families in the North Boulder community and provides vital services for the care of children aged 18 months through 6th grade. The need to expand early childhood services has increased dramatically in the past few years, as many daycare providers went out of business during the pandemic and have not been able to resume their business operations either due to financial circumstances or inability to find qualified teachers. This situation is now exacerbated by the fact that many parents now must return to their offices for work, driving additional need for childcare. An early childhood curriculum-based program is needed more than ever. The trend over the last three years has been a precipitous increase in demand for early childhood curriculum-based programming in the North Boulder community, but Jarrow’s ability to meet this demand on the Campus is limited due to classroom space. There is currently a 60- child waitlist for children aged 18 months to 3 years. Jarrow receives inquiries daily, so the need for this vital service only continues to grow. The number of spots available for new applicants in the toddler and early childhood programs is outstripped by the demand for such spots, as shown in the table below (note that the data for the 2023-24 school year is still being collected): Item 5A - 3990 15th St. Use Review Jarrow’s current enrollment includes 38 children aged 18 months to 3 years, 80 preschool children aged 3-6, and approximately 50 elementary students divided into two groups: first to third graders and fourth to sixth graders. Moving the latter group of the eldest students to the subject property would open up classroom space to serve an additional 25 or so early childhood, toddler, and preschool children on the Campus. This would be a “win-win” for Jarrow and the community for multiple reasons, including: •The Campus playground and classrooms are set up and designed to accommodate the needs of younger children. •For licensing purposes, the Campus and the staff working there are already qualified to ensure the safety and health needs of younger children. •The building on the subject property is more conducive to elementary students especially given its outdoor environment. For example, the current playground equipment at the subject property no longer meets Colorado ECE licensing requirements for younger children, but it does meet licensing requirements for the use of older children and can therefore be reused. •Our older children will be able to walk to Campus, for example, to engage in arts programming, and walking in the neighborhood will increase these children’s sense of themselves as part of the community while at the same time helping them cultivate their own independence. •The use of Campus to provide additional spots for younger children will buffer the community from the impact of the closing of the Harmony Preschool. Finally, the traffic and parking situation would be improved by the conversion of the Harmony Preschool to the proposed School. As to traffic, the building on the subject property is ideally situated for easy drop-off in the morning and pick-up in the afternoon. Many of our students walk or ride their bikes to school. Some would be dropped off and collected from Campus and would make the approximately 7-minute walk from there to the subject property, which would further decrease the traffic impact at the subject property. Overall, the traffic impact of the proposed use is anticipated to be less than what is currently experienced. As to parking, the five (5) off-street parking spaces currently provided at the subject property would be sufficient to support the parking needs of the proposed on-site staff and the occasional delivery or visitor. The existing preschool use was granted a 38% parking reduction, and no reports of parking issues have come to our attention. However, Jarrow is proposing to add a parking space, so that it would provide a total of six (6) off-street parking spaces, necessitating a parking reduction of only 25%. Item 5A - 3990 15th St. Use Review ***The following is information provided by Jarrow School Inc. to add context around the Jarrow Montessori School and its history and mission: 1.The Jarrow Story. Jarrow Montessori (www.jarrow.org) was established in 1964 by a small group of parents who wanted to give their children and the community a special educational opportunity: Montessori education. These parents purchased the 3900 Orange Court property on behalf of the school, and the school was established as a tax-exempt organization under section 501(c)(3) of the Internal Revenue Code. Jarrow currently serves 165 children aged 18 months to 12 years on its beautiful 3-acre campus in the heart of North Boulder. Jarrow is licensed by the State of Colorado and accredited by the American Montessori Society, upholding standards of excellence and quality. Jarrow is committed to creating a nurturing, safe environment in which we treat all members of the Jarrow community with the utmost respect and dignity and are sensitive to individual children’s needs. All employees are expected to model upstanding behavior for the children at our school. Accordingly, the children and all adults must be treated respectfully and kindly, and our faculty and staff are expected to model respectful language and techniques of constructive conflict resolution. Jarrow expects faculty and staff to promote the safety and well-being of the students at all times. 2.The Jarrow Mission: Jarrow Montessori School nurtures the development of the whole child through high-quality Montessori education. Our community supports each child’s joyful discovery of self in the journey to becoming a confident lifelong learner and compassionate citizen. a.Peace Education – Maria Montessori wrote that “establishing lasting peace is the work of education.” With acceptance of the commonly shared belief that children are the key to promoting peace, it is the adults’ responsibility to help children on this journey. Both parents and teachers play a vital role in providing guidance and role modeling for children in alternative ways of thinking and acting. Peace education is a vital and integrated part of school life. We help children develop an awareness of and respect for the dignity and diversity of life in general. It extends to respecting all living things and embracing our individual responsibility to care for the environment in which we live. b.Diversity, Equity, Inclusion and Justice – Jarrow Montessori School honors and values a learning community with diverse backgrounds, perspectives and traditions. Experiencing and understanding diversity in a safe and positive environment enhances and enriches the educational experience. Jarrow commits to promote a community that is accepting, inclusive and respectful. c.Outcomes for Students: i.Nurturing self-respect, respect for others, empathy, integrity, responsibility, compassion, fairness, lifelong learning and a commitment to service for the community. ii.Positive and productive social and emotional skills including resiliency, perseverance, independence, self-discipline, stewardship Item 5A - 3990 15th St. Use Review and the ability to resolve conflict and advocate for themselves and others. iii. Learning skills that support their ability to live in a world of constant change. These include flexibility, creative problem solving, critical thinking, intellectual curiosity, independent thinking, ability to find and evaluate information and to collaborate in a diverse community. iv. An understanding of the ways in which differences in individual traits, qualities or beliefs may lead individuals or groups to be stereotyped either positively or negatively and how this divides humanity and is the basis for conflict. v. The awareness, knowledge, skills and confidence to advocate for an inclusive community and a culture of social justice, respect and equity. vi. The awareness that all life is interdependent and even small decisions must be examined from the perspective of environmental sustainability. In conclusion, the Jarrow Montessori School requests approval of a Use Review to allow a private elementary school use on the RE-zoned parcel at 3990 15th Street, with a 25% parking reduction. This use would allow Jarrow to continue to serve the community with excellent Montessori education and preserve the preschool spots for parents of young children who would otherwise have a harder time finding daycare and early childhood education in the wake of the closing of the Harmony Preschool after 30 years of service in North Boulder. Jarrow believes that its application meets all of the requisite criteria for Use Review approval as demonstrated below: Item 5A - 3990 15th St. Use Review CRITERIA FOR REVIEW No use review application will be approved unless the approving agency finds all of the following: (1) Consistency with Zoning and Non-Conformity: The use is consistent with the purpose of the zoning district as set forth in Section 9-5-2, "Zoning Districts," B.R.C. 1981, except in the case of a non-conforming use; a. Applicant’s response: The Schedule of Permitted Land Uses (Section 9-6-1) provides that the proposed use, i.e., “Private elementary, middle, or high school,” may be permitted in the RE zoning district pursuant to approval of a Use Review. (2) Rationale: The use either: (A) Provides direct service or convenience to or reduces adverse impacts to the surrounding uses or neighborhood; (B) Provides a compatible transition between higher intensity and lower intensity uses; (C) Is necessary to foster a specific city policy, as expressed in the Boulder Valley Comprehensive Plan, including, without limitation, historic preservation, moderate income housing, residential and non-residential mixed uses in appropriate locations, and group living arrangements for special populations; or (D) Is an existing legal non-conforming use or a change thereto that is permitted under Subsection (f) of this Section; a. Applicant’s response: the proposed use would (A) Provide a direct service or convenience to the neighborhood, in that it would allow local families an additional, nearby option for educating and caring for their children. It would also reduce adverse impacts to the surrounding uses, in that the proposed elementary school is anticipated to have less traffic, parking, and time of operation impacts in comparison with the existing preschool use. The proposed use would also (B) Provide a compatible transition between higher intensity and lower intensity uses, in that the surrounding uses include the Victory Apostolic Church, the Nomad Playhouse, Lucky's Market and multifamily housing to the west and single-family housing to the east of the subject property. The proposed use (C) Is necessary to foster a specific city policy, as expressed in the Boulder Valley Comprehensive Plan, including, without limitation, 1.20 Definition of Adequate Urban Facilities & Services; Sustainable Urban Form Definition; 2.10 Preservation & Support for Residential Neighborhoods; 2.17 Variety of Centers; 8.08 Health & Well-Being. (3) Compatibility: The location, size, design, and operating characteristics of the proposed development or change to an existing development are such that the use will be reasonably compatible with and have minimal negative impact on the use of nearby properties or for residential uses in industrial zoning districts, the proposed development reasonably mitigates the potential negative impacts from nearby properties; a. Applicant’s response: the proposed use would be reasonably compatible with and have minimal negative impact on the use of nearby properties. The existing Harmony Preschool has been demonstrably compatible with the neighborhood since its inception approximately 30 years ago, and the proposed Jarrow Montessori Item 5A - 3990 15th St. Use Review elementary school is anticipated to have less traffic, parking, and time of operation impacts in comparison with the existing preschool use. (4) Infrastructure: As compared to development permitted Section 9-6-1, “Schedule of Permitted Land Uses," B.R.C. 1981, in the zone, or as compared to the existing level of impact of a nonconforming use, the proposed development will not significantly adversely affect the infrastructure of the surrounding area, including, without limitation, water, wastewater, and storm drainage utilities and streets; a. Applicant’s response: the proposed use would not adversely affect the infrastructure of the surrounding area, in that the existing preschool use is adequately served by water, wastewater, and storm drainage utilities and streets, and the proposed development involves no increase in water use or wastewater production, no improvements which would increase impervious surface or storm drainage, and no addition traffic, parking, or loading which would negatively impact streets. (5) Character of Area: The use will not change the predominant character of the surrounding area; a. Applicant’s response: the proposed use would not change the predominant character of the surrounding area. Elementary school use is permitted in the RE district upon approval of a Use Review, and the purpose of Use Review is to demonstrate that a use which is not among the predominant uses in a neighborhood is nonetheless, or can be made, appropriate in the proposed location. Here, the proposed elementary school is substantially similar to the existing preschool use, which was approved pursuant to a 1994 Use Review and has been demonstrably compatible with the neighborhood since its inception. In addition, the proposed Jarrow Montessori elementary school is anticipated to have less traffic, parking, and time of operation impacts in comparison with the existing preschool use. (6) Conversion of Dwelling Units to Non-Residential Uses: There shall be a presumption against approving the conversion of dwelling units in the residential zoning districts to non-residential uses that are allowed pursuant to a use review, or through the change of one non-conforming use to another non-conforming use. The presumption against such a conversion may be overcome by a finding that the use to be approved serves another compelling social, human services, governmental, or recreational need in the community including, without limitation, a use for a day care center, park, religious assembly, social service use, benevolent organization use, art or craft studio space, museum, or an educational use. a. Applicant’s response: the above criterion is not applicable, in that the applicant is not proposing to convert any dwelling units to a non-residential use. Item 5A - 3990 15th St. Use Review LUR2023-00025 – Jarrow Montessori Use Review Parking Plan Resubmittal – September 7, 2023 SUMMARY The subject property is 2,110 square feet in size. The parking requirement for the proposed use is calculated as one off-street parking space per 300 square feet. This amounts to a parking requirement of 7.03 parking spaces, but because decimals are rounded up, the parking requirement is eight spaces. The existing off-street parking, which is just five spaces, was more than sufficient to meet the demand of the previous Harmony Preschool use. Jarrow Montessori is proposing a 25% parking reduction to allow six off-street parking spaces where eight would otherwise be required. This is one more parking space than is currently provided, and it represents a 25% parking reduction, which is permissible under Use Review. Staff will require two or fewer spaces per day. Therefore, there would generally be at least four parking spaces available for visitors, late drop-offs, and deliveries. PARKING PLAN There are currently five off-street parking spaces on the subject property, as shown on the site plan marked “Existing Conditions,” which plan shows the spaces as currently striped. These five spaces are in the area marked “ASPHALT PARKING LOT” on the site plan and are approximately 60-degree, head-in spaces. There are four regular spaces and one accessible space. As shown on the site plan marked “Potential Reconfiguration,” the area marked “ASPHALT PARKING LOT” would be reconfigured to support six head-in, 90-degree parking spaces, with five regular spaces and one accessible space. The parking area would be re-striped accordingly. The following are responses which demonstrate compliance with the Parking Reduction Criteria in Land Use Code Section 9-9-6(f)(3): (A) The parking needs of the use will be adequately served through on-street parking or off- street parking; a. Applicant’s Response: The staffing program for the satellite campus involves two elementary school teachers on location. These two teachers would be the only Jarrow staff requiring parking at 3990 15th Street. Therefore, on a regular basis, the six off-street parking spaces will be more than adequate to meet the parking demand. Even taking into consideration late drop-offs, visitors, and deliveries, it is not anticipated that the proposed use of the subject property would create any additional on-street parking demand. Jarrow anticipates occasional but infrequent Item 5A - 3990 15th St. Use Review need for additional parking. Such need might arise due to parent-teacher conferences (which are held two times per year) or evening events. At these times, Jarrow will be able to offer six parking spaces in the asphalt parking area, on-street parking, and potentially additional parking in what is programmed as the gravel drop-off and pick-up area on Quince Avenue. (B) A mix of residential uses with either office or retail uses is proposed, and the parking needs of all uses will be accommodated through shared parking; a. Applicant’s Response: this criterion does not apply to the proposed use, which does not mix residential with office or retail uses. (C) If joint use of common parking areas is proposed, varying time periods of use will accommodate proposed parking needs; or a. Applicant’s Response: this criterion does not apply to the proposed use, which does not contemplate common or joint use parking. (D) The applicant provides an acceptable proposal for an alternate modes of transportation program, including a description of existing and proposed facilities, proximity to existing transit lines, and assurances that the use of alternate modes of transportation will continue to reduce the need for on-site parking on an ongoing basis. a. Applicant’s Response: Jarrow Montessori expects that less than 25% of the students at 3990 15th Street will arrive and/or depart every day by car. With seven or fewer students expected to be dropped off by car every day, and with 2 or fewer staff requiring parking on a daily basis, it is not anticipated that the proposed elementary school use will result in the blocking of any public street or any increase in on- street parking demand. It is expected that there will be a very small population of students arriving by car. Last year, Jarrow had an enrollment of 20 students in its 4th to 6th grade program, which is the program that would be re-located to 3990 15th Street for the 2023-24 school year. Of those 20 students, 11 (or 55%) live within one mile of 3990 15th Street, and most of these students bike or walk to school already. Eight students live within three miles of the proposed new satellite location. Given the demographics of Boulder and the student population on which Jarrow has drawn over the years, it is not anticipated that this pattern will change. If about 55% of students continue to be drawn from nearby as is currently the case, Jarrow expects that approximately 16 of the proposed capacity of 30 students will walk or bike to and from school each day. About seven students have younger siblings who will be attending school on the main campus or are children of Jarrow Item 5A - 3990 15th St. Use Review staff – these students will be dropped off at the main campus and then escorted by a staff member on foot over to 3990 15th Street. The remaining approximately seven students would be dropped off directly at the satellite location by car between 8:30-8:45AM. Student drop-off and pick-up would be managed in the gravel area on the south side Quince Avenue. This management would mirror the “car line” procedure for student drop-off and pick-up which Jarrow employs at its main campus at 3900 Orange Street. At the main campus, student drop-off, check-in and check-out, pick- up, and traffic flow are monitored by the teaching staff. This procedure has been in effect for many years, and all parents who deliver their kids to school by car are familiar with it. Due to the foregoing, drop-off and pick-up is a very efficient operation at Jarrow and is anticipated to be as or more efficient at 3990 15th Street. The “car line” procedure involves a staff member who monitors and directs traffic, and signs students in. Parents will drive east on Quince and drop off their kids in the aforementioned gravel area. The students then go directly through the north gate to enter the building. Each drop-off takes less than one minute. The majority of the students who would be attending school at the 3990 15th Street location have previously attended school on the main campus, and their parents are used to the “car line” procedure. Therefore, Jarrow does not anticipate that there will be much of a learning curve in implementing that procedure at the subject property and expects to be able to achieve at least the same level of efficiency in drop-off and pick-up as it does on its main campus. Pick-up logistics would mirror the drop-off process, with the students being picked up between 3:30-3:45PM. Students with siblings on the main campus or who are the children of a staff member would be dismissed at 3:00PM and return to the main campus, accompanied by a staff member. In addition, some Jarrow students, including some who are dropped off by car in the mornings, are involved in after school activities in the neighborhood and have permission from a parent to walk home independently, so there are sometimes fewer students needing to be picked up than were dropped off on a given day. Therefore, Jarrow expects the majority of the students at 3990 15th Street to walk home from school and not require pick-up. Late arrivals and pickups would be expected to park in the parking lot off of 15th Street and bring their kids inside the building for check-in. In general, Jarrow’s experience is that late drop-offs and pick-ups are relatively few in number. Item 5A - 3990 15th St. Use Review Table 9-8 in Land Use Code Section 9-9-6(g) requires that uses like the proposed school provide five off-street bicycle spaces per classroom, with half of the spaces being long-term and half being short-term. Jarrow does not see a need for any long- term spaces, as there is no residential component to the proposed use, and students, staff, and others biking to school will also generally bike home from school. If any long-term bicycle storage is needed, there is a large shed on the subject property which could be used for that purpose. Therefore, Jarrow is also amenable to a condition requiring, as a parking reduction mitigation strategy, the provision of the required five off-street bicycle spaces as short-term spaces. Item 5A - 3990 15th St. Use Review CRITERIA CHECKLIST AND COMMENT FORM 3990 15th St. – LUR2023-00025 USE REVIEW SECTION 9-2-15 Criteria for Review: No use review application will be approved unless the approving agency finds all of the following: √ (1) Consistency with Zoning and Non-Conformity: The use is consistent with the purpose of the zoning district as set forth in Section 9-5-2(c), "Zoning Districts Purposes," B.R.C. 1981, except in the case of a non-conforming use; The proposal would allow the Jarrow Montessori School to operate a private elementary school use for up to 30 students and 4 staff members within the former Harmony Pre- School building at 3990 15th Street. Per Table 6-1, “Use Table,” B.R.C. 1981, private elementary school uses require a use review to operate in the RE zoning district. While the previous pre-school use was in operation at this site for nearly 30 years, because the new elementary school use falls under a different use category and is a nonresidential use within a residential zone district, the application requires a recommendation by staff with a final decision by the Planning Board at a public hearing pursuant to Section 9-2- 15(d)(1), B.R.C. 1981. The proposal does not trigger or require Site Review. (2) Rationale: The use either: √ (A) Provides direct service or convenience to or reduces adverse impacts to the surrounding uses or neighborhood; The current proposal provides a direct service to the surrounding neighborhood by allowing the existing Jarrow Montessori School, which has served the neighborhood and greater Boulder community for nearly 60 years from its main campus location at 3990 Orange Ct. (approximately 0.4 miles to the southeast of the subject site), to provide a “satellite” location for elementary school students age 6 to 12, thereby expanding educational opportunities for local families. Per the applicant’s written statement, the primary reason for the satellite campus is to allow for the main campus to expand its early childhood and toddler student population, which is currently at its maximum capacity with substantial waitlists. Jarrow’s current enrollment includes 38 children aged 18 months to 3 years, 80 preschool children aged 3-6, and approximately 50 elementary students divided into two groups: first to third graders and fourth to sixth graders. Moving the latter group of the eldest students to the subject property would open up classroom space to serve an additional 25 or so early childhood, toddler, and preschool children on the main Campus. The overall effect of the proposed satellite campus would be to allow for the main Jarrow Montessori campus to Item 5A - 3990 15th St. Use Review serve a greater segment of the local population in need of early childhood and toddler school services while ensuring that the older elementary school students would still be in close proximity to the existing campus, thereby facilitating the sharing of resources between the two school sites and minimizing disruption to existing drop-off and pick-up routines for parents. The proposal would also reduce adverse impacts to the surrounding uses, in that the proposed elementary school is anticipated to have less traffic, parking, and time of operation impacts in comparison with the existing preschool use due to its shorter school day, older student age (the applicant indicates the over half of their 2022 elementary school population lives within a mile of the school site and routinely walks or bikes to school) and more efficient drop-off/pick-up routine (Montessori uses a teacher-managed “car line” procedure wherein parents drop kids off at the curb rather than parking and escorting the children in themselves, as was the case with Harmony Pre-School). (B) Provides a compatible transition between higher intensity and lower intensity uses; (C) Is necessary to foster a specific city policy, as expressed in the Boulder Valley Comprehensive Plan, including, without limitation, historic preservation, moderate income housing, residential and non- residential mixed uses in appropriate locations, and group living arrangements for special populations; or (D) Is an existing legal non-conforming use or a change thereto that is permitted under subsection (f) of this section; √ 3) Compatibility: The location, size, design, and operating characteristics of the proposed development or change to an existing development are such that the use will be reasonably compatible with and have minimal negative impact on the use of nearby properties or for residential uses in industrial zoning districts, the proposed development reasonably mitigates the potential negative impacts from nearby properties; The current proposal is to replace a preschool use, which was in operation at the project site for nearly 30 years, with a private elementary school use. No change to the number of students (30) or staff (4) are proposed, and no changes to the existing building are proposed. The site will also remain the same except for the addition of an off-street vehicular parking space and the addition of new bike racks. New signage will also be provided in the proposed pick-up/drop-off area on the south side of Quince Ave. to improve traffic safety and prevent parking in the right-of-way. The applicant is requesting the same hours of operation as the previous use (7:30 am to 5:30 pm), although the new school has a shorter school day than the previous use (pick-up occurs at 3:30 pm; the extra hours are to allow for occasional after-school activities, deliveries, Item 5A - 3990 15th St. Use Review clean-up, etc.). Overall, with the proposed improvements to the site and no substantial changes to the previously approved operating characteristics (except reducing the length of the school day and employing a more efficient drop-off/pick-up routine), staff finds that the proposed use will be reasonably compatible with and have minimal negative impact on the use of nearby properties. √ (4) Infrastructure: As compared to development permitted under Section 9-6-1, "Schedule of Permitted Uses of Land," B.R.C. 1981, in the zone, or as compared to the existing level of impact of a non-conforming use, the proposed development will not significantly adversely affect the infrastructure of the surrounding area, including, without limitation, water, wastewater, and storm drainage utilities and streets; All of the existing infrastructure required to serve the proposed school is already in place, and no addition infrastructure will be necessary to serve the proposed development. Criterion met. √ (5) Character of Area: The use will not change the predominant character of the surrounding area or the character established by adopted design guidelines or plans for the area; and As mentioned above, the project site has been the location of the Harmony Pre-School for nearly 30 years. In addition, the existing Jarrow Montessori School main campus, which is located approximately 0.4 miles to the southeast at 3990 Orange Ct., has been in operation at that location for nearly 60 years. As such, the proposed elementary school would be in keeping with the established character of the neighborhood, which has historically supported both the main Jarrow Montessori Campus as well as the former pre-school use. Because no physical changes to the existing building are proposed, there will be no visual impacts to the existing neighborhood character, and because Jarrow Montessori has been an established part of the neighborhood fabric for nearly 60 years, the organization is well-equipped to ensure that the operating characteristics of the proposed use are in keeping with the established protocols that have served the neighborhood for multiple generations. N/A (6) Conversion of Dwelling Units to Non-Residential Uses: There shall be a presumption against approving the conversion of dwelling units in the residential zoning districts set forth in Subsection 9-5-2(c)(1)(a), B.R.C. 1981, to non-residential uses that are allowed pursuant to a use review, or through the change of one non-conforming use to another non-conforming use. The presumption against such a conversion may be overcome by a finding that the use to be approved serves another compelling social, human services, governmental, or recreational need in the community including, without limitation, a use for a day care center, park, religious assembly, social service use, benevolent organization use, art or craft studio space, museum, or an educational use. Not applicable, as the proposal does not include any conversion of dwelling units to non- residential uses. Item 5A - 3990 15th St. Use Review Section 9-9-6(f)(3) Parking Reduction Criteria: Upon submission of documentation by the applicant of how the project meets the following criteria, the city manager may approve reductions of up to and including twenty-five percent of the parking requirements of this section (see Tables 9-1, 9-2, 9-3 and 9-4), if the manager finds that: √ (A)The parking needs of the use will be adequately served through on-street parking or off-street parking; The current request is to allow for the substitution of an existing pre-school use with a new private elementary school use. The existing building, which is not being changed, is 2,110 square feet in size, with a non-residential parking requirement of eight (8) spaces. The previous use was granted a 38% parking reduction to allow for five spaces to be provided where eight are required. The approved parking reduction was granted with a requirement that the pre-school maintain four off-site parking spaces at the nearby church. The current proposal includes a request for a 25% parking reduction to allow for six parking spaces where 8 are required. The applicant is proposing to add one additional parking space to the existing parking area as well as new bicycle racks. The proposed elementary school would serve up to 30 students age 6 to 12 as well as up to 4 full-time staff members. Per the applicant’s written statement, there will usually only be two teachers and one administrator parking on-site each day. In addition, the school uses a “car line” procedure for drop-off and pick-up, where parents drop their kids off in a designated curb-side area without parking, and the children are then escorted into school by a staff member. The drop-off/pick-up location is located in a gravel area on the south side of Quince Ave., which also has abundant on-street parking available. As such, there will be little to no on-site parking demand generated by parents. In addition, the school serves a large number of local families, with an estimated 55% of 2022 students living within a mile of the subject site and routinely walking or biking to school. Finally, several of the elementary school students have siblings attending the main Jarrow Montessori Campus, which is approximately 0.4 miles away and accessible by an established network of sidewalks. These students will be able to be dropped off at the main campus and then escorted by a parent or a staff member from the main campus to the subject site. Overall, the existing parking served the previous use for nearly 30 years with no major documented impacts to the neighborhood, so the proposal to add an additional parking space combined with the new drop-off/pick-up procedures, the ability of a large percentage of students to utilize alternate modes of travel to access the site, and the proximity of the main campus to serve as an additional drop-off/pick-up location as needed ensure that the parking needs of the use will be adequately served through on- street or off-street parking. N/A (B)A mix of residential uses with either office or retail uses is proposed, and the parking needs of all uses will be accommodated through shared parking; N/A (C)If joint use of common parking areas is proposed, varying time periods of use will accommodate proposed parking needs; or Item 5A - 3990 15th St. Use Review √ (D)The applicant provides an acceptable proposal for an alternate modes of transportation program, including a description of existing and proposed facilities, proximity to existing transit lines, and assurances that the use of alternate modes of transportation will continue to reduce the need for on-site parking on an ongoing basis. The applicant has provided a Parking Plan outlining the proposed operating characteristics and strategies to reduce parking demand. These are outlined in the response to criterion (A) above. Section 9-9-6(f)(6), Parking Reduction With a Concurrent Use Review: If a proposed use requires both a review pursuant to Section 9-2-15, "Use Review," B.R.C. 1981, and a public hearing, the city manager will make a recommendation to the approving agency to approve, modify and approve, or deny the parking reduction as part of the use review approval. Item 5A - 3990 15th St. Use Review From:CATHERINE V DARDIS To:Van Schaack, Chandler Subject:Narrow Montessori Scool Date:Wednesday, May 31, 2023 10:38:09 AM External Sender Dear Mr. Van Schaack, I am writing you regarding Jarrow Montessori Elementary School moving into Harmony Preschool as I live at 1605 Quince Ave. I am opposed to this as the traffic on Quince Ave between 19th and Broadway is already horrendous. People routinely drive 50-60 MPH down Quince despite the cities attempt to narrow the street and post 20 MPH signs. I would agree with this proposal if you can get the city to add 3-4 speed bumps on Quince. Otherwise, please don’t do this to the homes on Quince Ave. Already hoards of middle school children walk up and down this street twice a day during the school year. Someone is going to be killed on this street. Sincerely, Catherine Dardis 303-817-1669 Item 5A - 3990 15th St. Use Review From:Richard Lopez To:Van Schaack, Chandler Cc:Jeannie DeMarinis Subject:LUR2023-00025 Jarrow School Date:Tuesday, June 13, 2023 11:17:36 AM External Sender My wife and I own the property at 1525 Quince Ave. We have no objections to the proposed repurposing of Jarrow School. Thank you Rich -- Lopez Law Office PO Box 312 Jamestown, CO 80455 303 415 443 0775 phone lopezlawofficeco@gmail.com I will continue practicing law through 2023 as I wind down a few remaining cases. Rich NOTICE: This communication (including attachments) is covered by the Electronic Communication Privacy Act, U.S.C. 18 Sections 2510-2521, is confidential, and may contain privileged information. 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Item 5A - 3990 15th St. Use Review From:Ramona Corvin-Brown To:Van Schaack, Chandler Subject:Fw: Review #LUR2024-00025 Date:Thursday, August 3, 2023 4:56:02 PM External Sender Sending again Sent from Yahoo Mail for iPhone Begin forwarded message: On Wednesday, July 12, 2023, 7:34 PM, Ramona Corvin-Brown <ramonacorvinbrown@yahoo.com> wrote: Dear Mr. Van Schaack, I am Not in support of the conversion of Harmony pre-school to Jarrow elementary school. I do have the following questions in regards to the rezoning request for an Elementary school: Pre-school has various drop off times based on parents work schedule and the current car drop off is Not concentrated on any given street nor at any specific time. With approval and assistance of City of Boulder, 15th Street was redesigned to mitigate traffic and enhance neighborhood walking with narrowed street for traffic slowdown, No on street parking and double wide sidewalks on the west side to accommodate strollers and kids bikes. How will an Elementary school drop off be handled given the street constraints and assuming class sessions start and end each day at specific times? What additional accommodations/land adjustments are being requested or made in order to accommodate elementary age children versus preschool children? What kind of elementary students will attending this offsite Jarrow Elementary school (focused study such as performing arts, special needs, etc,)? Jarrow already has a large campus. Why can’t it expand on land already owned? Has it been considered to have the house returned as a family affordable home that it once was and is so desperately needed in Boulder? Sincerely, Ramona Corvin Sent from Yahoo Mail for iPhone Item 5A - 3990 15th St. Use Review From:Sue B To:Van Schaack, Chandler Subject:Use Review at 3990 15th St Date:Tuesday, August 8, 2023 1:05:01 PM External Sender Hi Chandler, Hope you are well and enjoying summer. I'm writing about the proposed zoning change for the property at 3990 15th St, which I received a letter about in the mail. I've been away taking care of a family health issue so just getting to this now, hope it's not too late for comments. My house is half a block away from this property and I have some serious concerns about the traffic that will increase if an elementary school goes in here. The current pre-school has low enrollment and the traffic is already busy at times. Knowing the much larger enrollment at Jarrow, I fear that building an elementary school at this site will irrevocably change the nature of the neighborhood. This is a quiet residential neighborhood with very narrow streets. Getting in and out of our Orchard Park neighborhood could become quite impossible during drop-off and pick-up times at the much larger school. I think the current Residential zoning works because of the narrow yet dense streets in the area. With a large amount of cars brought into the area for school parents, students and teachers - and possibly buses, I could imagine quite literally getting boxed into our neighborhood, not able to leave, and the streets around the school becoming gridlocked. There just isn't any extra room for cars to pass. It just doesn't make sense. Thanks for taking the input. Best, Susan Barlow 1490 Periwinkle Drive Boulder, CO 80304 Item 5A - 3990 15th St. Use Review