5A - Consideration of changes to the Junior Academy Area Plan
CITY OF BOULDER
PLANNING BOARD AGENDA ITEM
MEETING DATE: November 19, 2009
AGENDA TITLE: Consideration of changes to the Junior Academy Area Plan
REQUESTING DEPARTMENT:
David Driskell, Executive Director of Community Planning and Sustainability
Susan Richstone, Comprehensive Planning Manager
Charles Ferro, Acting Land Use Review Manager
Michelle Mahan, Transportation Engineer
EXECUTIVE SUMMARY:
The purpose of this agenda item is for the Planning Board to consider final approval of
the Junior Academy Area Plan as approved by City Council on October 27, 2009 (sec
Attachment A). On May 21, 2009 Planning Board approved a different version of the
plan (Attachment B). Planning Board and City Council both approve area plans,
therefore, if the Planning Board approves the changes to the plan approved by City
Council on October 27, the area planning process will be complete for the Junior
Academy Area Plan.
Planning Board originally approved the proposed plan on May 21. On September 1, City
Council approved the plan with some significant changes. On October 1, Planning Board
approved the version of the plan approved by City Council with two additional changes
(see Attachment B). 1'he board placed a maximum floor area ratio (FAR) limit in the
"Proposed Zoning" section of the plan (page 4) and replaced the language on
architectural design elements approved by City Council with the less detailed language
the board originally approved in May (page 7).
On October 27, City Council approved the plan as approved by the Planning Board with
one significant change: council removed the entire section "Proposed Zoning."
Initially, a motion was made to eliminate the language referring to FAR limits in the
zoning section, and then a substitute motion passed to remove the entire zoning section.
The motion passed 6-2, with Councilmembers Cowles and Morzel opposed. The effect
of this change is discussed in the analysis section of this memo.
STAFF RECOMMENDATION:
Staff recommends Planning Board adopt the Junior Academy Area Plan as approved by
City Council.
AGENDA ITEM # ,A PAGE 1
ANALYSIS
What is the effect of removing the section "Proposed Zoning".from the plan?
Removing this section of the plan provides less specificity on the recommended zoning
district to be designated on the property. However, the plan includes a recommended
land use designation of Low Density Residential, and any proposed rezoning of the site
would need to be compatible with the comprehensive plan land use designation on the
site. In addition, the plan objectives and redevelopment principles provide guidance for
the zoning and site planning. Removal of the "proposed zoning" section means a wider
array of potential zoning districts remains on the table including: Residential Estate (RE),
Residential Low - 1 (RL-1), Residential - Low 2 (RL 2), a flex district, and potentially a
new zone district. However, some of these districts would not be consistent with the
redevelopment principles. Additionally, at the time of site review, the applicant will need
to demonstrate consistency with the redevelopment principles.
What are the steps to changing the comprehensive land use designation and
rezoning of the property following approval of the area plan's
Where are several potential scenarios that could lead to changes to the land use
designation and rezoning of the property that depend on timing and the specific zoning
option proposed. Below are the two most likely options:
1. Property owner requests a change to the land use designation and rezoning
of the property concurrent with site review.
The property owner has indicated a desire to move forward expeditiously to
submit a concept review for the property once the area planning process is
completed. The concept review provides the opportunity for the property owner
to submit one or several alternative concepts for the site, and for the Planning
Board to provide feedback on the concept(s). Based on that feedback, the
property owner may then submit concurrent applications for a land use
designation change, rezoning and site review. If the concept review includes the
flex zone option, and Planning Board indicates support for a flex district on the
property, staff would bring forward a flex district for Planning Board and City
Council consideration prior to a site review being approved.
2. The property owner or staff request consideration of a land use designation
change as part of the 2010 Major Update to the Boulder Valley
Comprehensive Plan (BVCP).
The city is initiating the 2010 Major Update to the BVCP. Land use changes that
implement approved area plans are routinely considered as part of comprehensive
plan updates. Following approval of a land use designation change on the
property, rezoning of the property could happen as a result of a rezoning request
from the property owner or a city-initiated rezoning effort.
AGENDA ITEM # 5A PACE 2
Appmvcd By:
Davi Driske11, Executive Director
Department of Community Planning and Sustainability
ATTACHMENTS:
A: Junior Academy Area Plan as approved by City Council on October 27, 2009
B: Junior Academy Area Plan as approved by Planning Board on October 1, 2009
AGENDA ITEM # PAGE 3
DR~ ( 1
Junior Academy
Area Plan
-A _4
"TAG" 1 Y'~Y~.' -Z
faw
Prepared by:
` City of Boulder Department of Community Planning
As approved by City Council on
October 27, 2009
f 4--
JuniorAcademy Area Plan - DRAFT
Background Site Analysis
At its meeting of January 13, 2009, Planning Board and City Coun- The site is bound by Dakota Place to the north, Fourth Street to the ,
cil approved a public process to address comprehensive plan land east, the Mapleton Medical Center to the south, and city open space
use designations, zoning, housing types, massing, site access and to the west. A trailhead located immediately north of the site pro-
circulation patterns for the 5.84 acre site of the former junior Acad- vides access to the open space.
emy located at 2641 Fourth Street. The area planning process was
recommended to address City Council's desire for a public process Topographically the site is defined by a steep slope to the west with
for redevelopment sites that have been used historically for public significant views toward the north-west corner of the site and more
or semi-public uses such as schools and churches, and to address the limited views toward the Mapleton Medical Center. The north edge
inconsistency between the Comprehensive Plan land use designa- of the site is defined by the trail head and trail segment while the
tions and zoning. south edge is defined by a drainage ditch. The east edge, facing onto
the established residential neighborhood is defined by a hillside
Three public workshops and an open house were conducted in Janu- rising upward from Fourth Street to the more level benched portion
ary - April, 2009 to help develop a plan that addresses community located toward the center of the site.
concerns and objectives.
Plan Objectives
r i" PA 1
Community Engagement - Engage community members in the area plan-
` a~ ning process, particularly those in the surrounding neighborhood.
asp,
tytisws Nlalor;U~'t, Sensitive Infill
s' - • Support and strengthen the surrounding neighborhood through
.6
appropriate building scale and height; compatible character, archi-
tecture, site design and density of new development; and sensitively
4 ao. x-IS designed and sized rights-of-way.
4th St
C
• Define the acceptable amount of infiil and redevelopment with
Base elevation Indicates height in feet standards for design quality in order to avoid or adequately mitigate
[indicated by V above or below negative impacts and enhance the benefits of additional infill and
base elevation
redevelopment.
R e S i d e n t i a! N e i _9 h p
Continued
Figure 1: Site Analysis Diagram
City of Boulder -2-
Junior Academy Area Plan - DRAFT
Plan Objectives - Continued Existing Boulder Valley Comprehensive Plan
Urban Design Land Use Designations and Zoning
• Integrate new development with the existing neighborhood by relating
positively to public streets, sidewalks and paths; providing opportunities
to walk from the street into the area; and incorporating well-designed The Boulder Valley
P)
functional open spaces. prehensive Plan (BVCP)
• Development of the site should feel like a continuation of the existing Low Density land use designation in-
character along 4th Street. •,e (Residential (LR) dicates the desired future
!Public (PUB); land use for the site and
Environmental Protection - Hillside development will avoid negative environ- provides guidance for
mental consequences to the immediate and surrounding area and the degrad-
ing of views and vistas from and of public areas. zoning. The north half of
the study area parcel is
Access and mobility Q o designated Low Density
• Design new neighborhood streets in a well connected and fine grained a Residential and the south
pattern of streets and alleys that extends the existing street grid to a 5+^S'~ half is designated Public
disperse and distribute vehicle traffic and promote bike and pedestrian S° S' $ '
travel. on the BVCP Land Use
• Mitigate traffic impacts that cause unacceptable community or neigh- Map. The current zoning
aw~~ rr~ filns
borhood impacts or unacceptable reduction in level of service. Include is not consistent with the
strategies to reduce the vehicle miles traveled (VMT) generated by the Figure 2: Existing BVCP Land Use BVCP designation with
development. the western 130 feet of
• Integrate access to the open space trailhead into the neighborhood. the site zoned Public and
• Provide easy and safe access by foot to neighborhood centers, community the rest zoned Low Den-
facilities, transit stops or centers, and shared public spaces and amenities. city Residential (RL-1).
• Ensure that new development and redevelopment is designed in a man- Research indicates that
ner that is sensitive to social, physical and emotional needs including ac- - -
cessibility to those with limited mobility; provision of coordinated facilities r pt ! the site was zoned single
for pedestrians, bicyclists and bus-riders; and the provision of functional ,,,family residential prior to
landscaping and open space. E I 1971 and was also desig-
• Provide for a safe and efficient transportation network. _ nated Low Density Resi-
< Residenti2I Lowi (RL-9) dential in the 1970 BVCP.
Housing € <
The
• Further the city's affordable housing goals by providing permanently af- s„s current split land
use designation has been
fordable housing consistent with city policies and regulations. q mapped since the 1977
• Encourage a mixture of housing types with varied price ranges and densi- U
ties that fit within the character of the neighborhood. This could include BVCP was approved.
congregate care, duplexes, and triplexes in addition to single family Figure 3: Existing Zoning
detached houses.
City of Boulder -3-
Junior Academy Area Plan - DRAFT
Figure 4: Proposed
Proposed Boulder Valley Comprehensive Plan O5"" BVCP Land Use
Land Use Designation
A Low Density Residential Land Use Designation is proposed consistent Low Density
with the existing low density residential character of the surrounding Residential
neighborhood. The Low Density Residential land use designation (LR)
pakote PI
represents a density of two to six dwelling units per acre.
4th St '
G
~ C D
Redevelopment Principles
1. The hillside area in the northwest portion of the site will be preserved and restored as appropriate.
2. The site shall include a mixture of housing types with varied price ranges affordable to households
Eh (f
Y - with a range of income levels.
3. Single family detached houses will be located along the west side of Fourth Street and will be com-
patible and consistent with the surrounding neighborhood and reflect a continuity with the existing
neighborhood character:
Houses will vary in size and design, and conform with the outcome
- , uabuuuuuuu as of the city's compatible development project.
7. _c_. , j } Re-grading of the site along 4th Street should improve the relative elevation of
new homes to existing houses on the east side of 4th Street.
Garages for houses along 4th Street should be accessed from a rear alley.
Houses should respect 4. Any larger buildings should be located on the southwest portion of the site and
the character of the generally consistent in size and height with buildings to the south, and should be
Mapleton Hill no more than three floors above finished grade.
neighborhood. l,vglyA!r- 1 rn~1,,~i~Vs 5. New buildings should respect and be compatible with the diverse
character of the Mapleton Hill neighborhood. Issues such as solar
- orientation, shading, views and privacy should be addressed in the
' I design process to facilitate the livability of these buildings and for
iiiI~l ~naw4~. adjacent properties.
City of Boulder _ -4-
Junior Academy Area Plan - DRAFT
'r l~- \ '°'Wt'^ ~~li➢I'~ ~SfJ ; F i ' _k
Figure 5: Illustrative 4th Street frontage
Detailed design guidelines will be developed at the time of site review.
} Specific design elements to be encouraged include:
I;,': z ; . • Front porches, defined entries and active rooms facing the street are encouraged to create
ik neighborliness and a friendly street frontage.
Roof massing should be hierarchical, with a clear expression of primary and secondary masses.
- Gable, Gambrel, Hipped and Lift-up dormers are encouraged.
_ Projecting architectural elements are encouraged; however, these elements should be approached
through simplicity of form.
„ Functional bays, turrets, dormers, and gable ends can help to break down the scale of buildings and
! rnrr; soften the transition between houses. Deep eave overhangs and exposed rafter tails are encouraged.
if11L+.
Building materials should reflect the neighborhood character and a diversity of materials is
encouraged including brick, stone, siding, and wood shingles.
as Was
Front Porches are encouraged.
[Al
Figure 6:
r 1 Illustrative 4th
Street section
~ VM
City of Boulder -5-
S +1
JuniorAcademy Area Plan - DRAFT V
Access Plan
Site access options are limited due to terrain and adjacent property
ownership. Steep terrain and city Open Space to the west preclude 17
the possibility of vehicular through access, any access proposed to I~
the south in alignment with Concord Avenue would require nego-
tiation with the adjacent property owner, and access possibilities to ep
the north are limited due to the steep grade of Valley View Drive/ d
Dakota Place and the location of an existing public trail. There- 1 ID
fore, all available access options are served b 4th Street on the east L -
side of the property. Two alternatives for principal site access are C a C1 ❑ tDa~ 0 q Q 1 ~ ~ .I
illustrated in Figures 11 and 12. o o a
D M Q o
o Ocf~ O
• Option 1: A primary access in alignment with Dewey Av- ° M _ dC3
enue along with a secondary emergency only access near the
north or south edge of the property; or Figure 7: Access Option 1
• Option 2: Two primary accesses in alignment with the alleys
on the east side of 4th Street.
I
Option 1 would provide less points of conflict between pedestrians,
bicyclists, and vehicles. It would also provide alignment with the
existing intersection, meeting vehicle driver expectations. Option OP
2 would add an additional conflict point, but also may disperse
0
traffic on 4th Street and slightly decrease the amount of traffic on
Dewey. In order to enhance pedestrian and bicycle access through
o
the site, both options would require pedestrian and bicycle access 58% °
in alignment with Dewey. D ❑[Q E❑ Qo Q Q
p Q CO° ❑ O i
a o a~ o CS _ o
t Y
. aH
Figure 8: Access Option 2
City of Boulder -6-
DRAFT
jun ior Acade
4
ea' a-.-
7 Y. 17<,
`.A
- Prepared by:
City of Boulder Department of Community Planning
J
n
As approved by Planning Board on
I. -Y
October 1, 2009
a
ti
Junior Academy Area Plan - DRAFT
Background Site Analysis
At its meeting of January 13, 2009, Planning Board and City Coun- The site is bound by Dakota Place to the north, Fourth Street to the
cil approved a public process to address comprehensive plan land east, the Mapleton Medical Center to the south, and city open space -
use designations, zoning, housing types, massing, site access and to the west. A trailhead located immediately north of the site pro- 10
circulation patterns for the 5.84 acre site of the former junior Acad- vides access to the open space.
emy located at 2641 Fourth Street. The area planning process was
recommended to address City Council's desire for a public process Topographically the site is defined by a steep slope to the west with
for redevelopment sites that have been used historically for public significant views toward the north-west corner of the site and more
or semi-public uses such as schools and churches, and to address the limited views toward the Mapleton Medical Center. The north edge
inconsistency between the Comprehensive Plan land use designa- of the site is defined by the trail head and trail segment while the
lions and zoning. south edge is defined by a drainage ditch. The east edge, facing onto
the established residential neighborhood is defined by a hillside
Three public workshops and an open house were conducted in Janu- rising upward from Fourth Street to the more level benched portion
arI - April, 2009 to help develop a plan that addresses community located toward the center of the site.
concerns and objectives.
Plan Objectives
SkenP - . i - Sri°o
e a• • 1 io , ,
s ' Community Engagement - Engage community members in the area plan-
• r . -0~ ,
• y Wing process, particularly those in the surrounding neighborhood.
o~~;ev`s Malor~rl%~~ Sensitive Infill
` s' - • Support and strengthen the surrounding neighborhood through
w
R"11' ; r appropriate building scale and height; compatible character, archi-
tecture, site design and density of new development; and sensitively
designed and sized rights-of-way.
u a' •aa' 4th St
• Define the acceptable amount of infill and redevelopment with
Base elevation Indicates height in feet standards for design quality in order to avoid or adequately mitigate
indicated by T" above or below negative impacts and enhance the benefits of additional infill and
base elevation
redevelopment.
S t d e n t i a l e i g h h
continued
IR e
Figure 1: Site Analysis Diagram
City of Boulder -2-
Junior Academy Area Plan - DRAFT
Plan Objectives - Continued Boulder Valley Comprehensive Plan Land Use
Urban Design Designations and Zoning
• Integrate new development with the existing neighborhood by relating
positively to public streets, sidewalks and paths; providing opportunities
to walk from the street into the area; and incorporating well-designed The Boulder Valley C
functional open spaces. prellensive Plan (BVCP)
• Development of the site should feel like a continuation of the existing Low Censity land use designation in-
character along 4th Street. me Residential (LR)I dicates the desired future
Public (pua)! era land use for the site and
Environmental Protection - Hillside development will avoid negative environ-
mental consequences to the immediate and surrounding area and the degrad- Ad St provides guidance for
ing of views and vistas from and of public areas. < zoning. The north half of
the study area parcel is
Access and mobility 9 u designated Low Density
• Design new neighborhood streets in a well connected and fine grained - Residential and the south
pattern of streets and alleys that extends the existing street grid to i sms~m half is designated Public
disperse and distribute vehicle traffic and promote bike and pedestrian sms;
travel. on the BVCP Land Use
• Mitigate traffic impacts that cause unacceptable community or neigh Map. The current zoning
borhood impacts or unacceptable reduction in level of service. Include is not consistent with the
strategies to reduce the vehicle miles traveled (VMT) generated by the Figure 2: Existing BVCP Land Use BVCP designation with
development. the western 130 feet of
• Integrate access to the open space trailhead into the neighborhood. the site zoned Public and
• Provide easy and safe access by foot to neighborhood centers, community the rest zoned Low Den-
facilities, transit stops or centers, and shared public spaces and amenities. sity Residential (RL-1).
• Ensure that new development and redevelopment is designed in a man- Research indicates that
ner that is sensitive to social, physical and emotional needs including ac-
cessibility to those with limited mobility; provision of coordinated facilities j publ1e (P) I the site was zoned single
for pedestrians, bicyclists and bus-riders; and the provision of functional family residential prior to
landscaping and open space. < 1971 and was also desig-
• Provide for a safe and efficient transportation network. ~I nated Low Density Resi-
iN
Housing Residential Low 1 (RL-1)dential in the 1970 BVCP.
4 q' The current split land
• Further the city's affordable housing goals by providing permanently af- 59.31
SwSt use designation has been
fordable housing consistent with city policies and regulations. ;4 mapped since the 1977
• Encourage a mixture of housing types with varied price ranges and densi-
BVCP was approved.
ties that fit within the character of the neighborhood. This could include I a~5 : congregate care, duplexes, and triplexes in addition to single family Figure
3: Existing Zoning
-1~ detached houses.
City of Boulder -3-
Junior Academy Area Plan - DRAFT
Proposed Boulder Valley Comprehensive Plan
Land Use Designation {
A Low Density Residential Land Use Designation is proposed consistent
with the existing low density residential character of the surrounding
neighborhood. The Low Density Residential land use designation Flex
represents a density of two to six dwelling units per acre. '
(mixed density housing) ~ P ; s
OS-A
0
RI,-1
Low Density D CO C1 El ❑O o q g o
Residential o o C3 oO El r
(L R) Dakota Pi ❑ = O In
° i~ o a~ a LJ
s
4thSl Figure 5: Proposed Zoning
a o
L_J
K Q ~
O ,
Figure 4: Proposed BVCP Land Use Mix of Residential _
Proposed Zoning Senior Living Buildings ~Ip
Retain the existing RL-1 zone along Fourth Street for approximately one
„ , Single Family Detached Homes
quarter of the site and zone the remainder to a flex district' consistent along 4th street f
with the low density land use designation. This would allow a mix of in Character With Neighborhood
housing types including congregate care. The flex zone should use the
intensity, form and bulk standards of the RL-1 district and the R-4 use C D Cc C1 ~ C~ o ❑ EJ ~
module. Development under RL-1 zoning will be subject to the FAR limits o C:] =o M`CD °
that result from the city's compatible development project. Development a Q F-1 CD ❑
a
in the area shown as a "flex district" will have flexibility with regard to the Q 0 °CD
FAR if the development supports the redevelopment principles and is sub-
stantially a congregate care facility. Any FAR over .55 will be considered Figure 6: Redevelopment Concept
only if all affordable housing units are located on site, and will be limited
to .65 FAR overall.
City of Boulder -4-
Junior Academy Area Plan - DRAFT
Access Plan
Site access options are limited due to terrain and adjacent property
ownership. Steep terrain and city Open Space to the west preclude
the possibility of vehicular through access, any access proposed to
the south in alignment with Concord Avenue would require nego-
tiation with the adjacent property owner, and access possibilities to
the north are limited due to the steep grade of Valley View Drive/
Dakota Place and the location of an existing public trail. There-
fore, all available access options are served by 4th Street on the east 58%, 2%
side of the property. Two alternatives for principal site access are
o~C3 illustrated in Figures 11 and 12. J D Do ~ ,n ~ O~ -00 C"o 8 ° D
0 C:] 91
❑
• Option 1: A primary access in alignment with Dewey Av- ° a JD O ❑ _ o~
enue along with a secondary emergency only access near theL
north or south edge of the property; or Figure 7: Access Option 1
• Option 2: Two primary accesses in alignment with the alleys C?
on the east side of 4th Street.
Option 1 would provide less points of conflict between pedestrians,
bicyclists, and vehicles. It would also provide alignment with the
existing intersection, meeting vehicle driver expectations. Option ' OP
2 would add an additional conflict point, but also may disperse
traffic on 4th Street and slightly decrease the amount of traffic on
Dewey. In order to enhance pedestrian and bicycle access through /
the site, both options would require pedestrian and bicycle access 580/0 _ 3.
in alignment with Dewey. D ❑ ❑ ❑c ❑ Q or M o li
oo 'C~ o~
a CD ED Figure 8: Access Option 2
y
City of Boulder -5-
Junior Academy Area Plan - DRAFT
Redevelopment Principles
1. The hillside area in the northwest portion of the site will be preserved
and restored as appropriate.
2. The site shall include a mixture of housing types with varied price Iris 3
ranges affordable to households with a range of income levels.
3. Single family detached houses will be located along the west side of
Fourth Street and will be compatible and consistent with the surround
ing neighborhood and reflect a continuity with the existing neighbor-
hood character:
i
• Houses will vary in size and design, and conform with the outcome
of the city's compatible development project.
• Re-grading of the site along 4th Street should improve the relative - _
elevation of new homes to existing houses on the east side of 4th _
Street. .
• Garages for houses along 4th Street should be accessed from a rear
alley. Houses should respect `
4. Any larger buildings should be located on the southwest portion of the the character of the
site and generally consistent in size and height with buildings to the Mapleton Hill i=<{:
south, and should be no more than three floors above finished grade. neighborhood. c
5. New buildings should respect and be compatible with the diverse
character of the Mapleton Hill neighborhood. Issues such as solar
orientation, shading, views and privacy should be addressed in the ~ddvd~~~w
design process to facilitate the livability of these buildings and for L.
adjacent properties.
Figure 9:
Illustrative 4th
f
Street section
City ofBoulder -6-
Junior Academy Area Plan - DRAFT
r~. .I ~ ~ ~~`€'uj~i' /~Y~~"~J'1 A ~ , ,!Y- ;rxwf ~ ~ ~ r-~• 1' ~ , ! ~ ~I
i.7 z
Figure 10: Illustrative 4th Street frontage
• z
Detailed design guidelines will be developed at the time of site
review. Specific design elements to be encouraged include:
Front porches, defined entries and active rooms facing the street
are encouraged to create neighborliness and a friendly street
frontage.
Front Parches are Roof massing should be hierarchical, with a clear expression of pri-
y encouraged. mary and secondary masses. Gable, Gambrel, Hipped and Lift-up
dormers are encouraged.
Projecting architectural elements are encouraged; however, these
it .R{f1116'' - elements should be approached through simplicity of form.
Functional bays, turrets, dormers, and gable ends can help to
break down the scale of buildings and soften the transition be-
y f tween houses. Deep eave overhangs and exposed rafter tails are
encouraged.
Building materials should reflect the neighborhood character and
a diversity of materials is encouraged including brick, stone, siding,
and wood shingles.
I II,1J- ~ ~ "S
City of Boulder -7-
I