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HomeMy WebLinkAboutStaff Report(*t1"" CITY Or COLLEGE STATION Horne of TexasAP�M University® REZONING REQUEST FOR THE PLAZA AT COLLEGE STATION 12-00500010 REQUEST: R-2 Duplex Residential, R-4 Multi -Family, C-1 General Commercial and C-2 Commercial -Industrial to PDD Planned Development District SCALE: Approximately 11 acres LOCATION: 410 Texas Ave, generally located at the northwest corner APPLICANT: Mitchell & Morgan, LLP, agent for owner PROJECT MANAGER: Jason Schubert, AICP, Principal Planner jchubert@cstx.gov RECOMMENDATION: Staff recommends approval of the request with the following conditions: 1) Remove the modification for a block length waiver and provide two public way projections along Public Way Section C-C to the Texas A&M System property to the southwest; 2) Remove the modification to Public Ways allowing head -in parking around the traffic circle (parallel parking is permitted); 3) Remove the modification to reduce the minimum utility line separation distance from structures to 10 feet. Appropriate design considerations can be made as the site infrastructure is designed and reviewed; a) Require the back of curb sidewalks along Public Way Section C-C be expanded to a minimum of eight feet; 5) Provide the dual right turn lanes on southbound Texas Avenue to westbound University Drive as a mitigation measure for the intersection; and 6) Provide a bus stop with shelter, as approved by the City, in a location approved by TAMU Transit Services for A&M bus service. Planning & Zoning Commission Page 1 of 12 March 1, 2012 Planning & Zoning Commission Page 2 of 12 March 1,2012 S �. / i sy $ o Z O O p p m N m��° z z° OLLI �NCt �, zzZ 0 pt9Ow %M1'Y .�� Q- % ♦ t 5� / -%d.A d / A A N l ' i O u ? 7 ��2U �Sa i \W O Ea m m"o= sWioolN \\ yp E i �� v AvwOiivNs3iavHO w i 7 w ¢¢rc¢a u e Q of Q Z i Ab 38p0W W W NIAlbp O m D Q _ v- 75 v W U o°' - b � 12 �rcmv�o L7�- op 4 0Py _H � m x� - N QQdK¢ Planning & Zoning Commission Page 3 of 12 March 1, 2012 NOTIFICATIONS Advertised Commission Hearing Date: March 1, 2012 Advertised Council Hearing Dates: March 8, 2012 The following neighborhood organizations that are registered with the City of College Station's Neighborhood Services have received a courtesy letter of notification of this public hearing: None Property owner notices mailed: 16 Contacts in support: None Contacts in opposition: One Inquiry contacts: One ADJACENT LAND USES Direction Comprehensive Plan Zoning Land Use Urban & C-1 General Hotel Northwest Redevelopment Commercial Texas A&M University C-U College and Universit Vacant, wooded Urban & Redevelopment C-1 General Hotels, Restaurant, Northeast (across Texas Commercial Gas Station, Office Avenue, major arterial Texas A&M University C-U College and Southeast (across University University Texas A&M polo field Drive, ma or arterial Southwest Texas A&M University C-U College and Texas A&M Student University housing DEVELOPMENT HISTORY Annexation: 1939 Zoning: C-1 General Commercial, C-2 Commercial -Industrial, R-4 Multi - Family, and R-2 Duplex Final Plat: Gorzycki Meadowlands (1936), North Park 1 (1980), remaining portions have not been final platted. Site development: Multiple abandoned developments are located in this area including the former Plaza Hotel, Kettle restaurant, Daylight Donuts, and gas station as well as several abandoned residential structures along the former Meadowland Street. Planning & Zoning Commission Page 4 of 12 March 1. 2012 REVIEW CRITERIA 1. Consistency with the Comprehensive Plan: The subject property is designated as Urban and part of Redevelopment Area II on the Comprehensive Plan Future Land Use and Character Map. The intersection of Texas Avenue and University Drive has also been identified as a Primary Arrival Gateway into the City. The Comprehensive Plan describes Urban as: This land use designation is generally for areas that should have a very intense level of development activities. These areas will tend to consist of townhomes, duplexes, and high -density apartments. General commercial and office uses, business parks, and vertical mixed -use may also be permitted within growth and redevelopment areas. Redevelopment Area II: Texas Avenue, University Drive, and Harvey Road is described by the Comprehensive Plan as: This area includes a number of underperforming land uses that, due to their proximity to two of the busiest corridors in the City, are poised for redevelopment. Much of the area is currently subdivided into small lots, making it difficult to assemble land for redevelopment .... The proximity of existing neighborhoods and the Texas A&M University campus requires careful site planning and appropriate building design. These efforts should be complimentary to the Area V: Hospitality corridor plan, the neighborhood plan for the Eastgate area, and the Texas A&M University Campus Master Plan and should focus on bringing vertical mixed use and other aspects of urban character to this portion of the City. The proposed PDD zoning with associated Concept Plan is consistent with the objectives of the Comprehensive Plan to redevelop and consolidate underperforming properties in this area of the City. The requested rezoning proposes to provide vertical mixed use, high density multi -family, and pedestrian oriented development at the corner of Texas Avenue and University Drive in proximity to the Texas A&M University campus. 2. Compatibility with the present zoning and conforming uses of nearby property and with the character of the neighborhood: The existing zoning and conforming uses of nearby property are consistent with the proposed uses. The scale of the proposed uses, however are intended to be developed at a high density and more intensity than the nearby existing fourplex, hotel and restaurant uses. The neighboring developments are developed on more of a suburban scale with surface parking lots and open space while the proposed development utilizes structured parking and has requested reduced setbacks and increased density allowances. One of the adjacent fourplex owners along Hensel Street to the northwest has expressed concern regarding the building mass of proposed development (see attached email) and has also expressed a desire to be included in the request. The concern relates to the potential of a 50-foot tall building approximately 50 feet from the existing fourplex. While there is a large differential in scale, the standard zoning ordinance does not impose restrictions between the same types of use. The adjacent R-4 Multi -Family district does not have height limitations either and could redevelop in a similar scale if it were able to meet place all site requirements on the property. Planning & Zoning Commission Page 5 of 12 March 1, 2012 Representatives of the Texas A&M University System to the southwest have verbally expressed concerns regarding the nature and scale of the proposed development. It is our understanding that the A&M System intends to develop their property with private commercial, retail, residential, and other uses and is concerned about the compatibility between their future development and the proposed development. Thus far, they have expressed an unwillingness to accommodate vehicular, bicycle, or pedestrian connections between the two properties, something that is commonly required between similar types of developments throughout the City. 3. Suitability of the property affected by the amendment for uses permitted by the district that would be made applicable by the proposed amendment: The proposed PDD Planned Development District proposes a vertical mixed use development with a mixture of commercial and multi -family uses. These uses are suitable for the property based on its location within the core of the City and proximity to the Texas A&M University campus. The scale and density of the development factor into the availability of transportation and utility capacity in the area. As described later, the proposed development proposes some transportation improvements and mitigation efforts and acknowledges that utility upgrades will be necessary to provide adequate services to the development. 4. Suitability of the property affected by the amendment for uses permitted by the district applicable to the property at the time of the proposed amendment: The C-1 General Commercial district at the corner of Texas Avenue and University Drive and R-4 Multi -Family district along the former Meadowland Street should be considered suitable, separate uses for the property. The smaller areas of R-2 Duplex Residential and C-2 Commercial -Industrial; however, are not suitable for this area of the City that is designated for redevelopment and intended for high intensity uses. 5. Marketability of the property affected by the amendment for uses permitted by the district applicable to the property at the time of the proposed amendment: Most of the properties should be considered marketable with their current zoning, though the presence of four different zoning classifications on the property constrains the potential for large-scale redevelopment opportunities. 6. Availability of water, wastewater, stormwater, and transportation facilities generally suitable and adequate for the proposed use: The existing Plaza site is served by 12-inch waterlines along Texas Avenue and University Drive. Per discussions with the applicant, additional information will be needed through fire demand modeling on existing available capacity. Once this has been analyzed by the applicant, the City can better understand the proposed locations, potential required up -sizing, and the potential required re -alignment of existing waterlines within/near the proposed development. The existing Plaza site is served by an 8-inch gravity sanitary sewer collection line that spans from University Drive to the existing Hensel Park Lift Station. This respective lift station then pumps sanitary sewer flow to the 'Northeast Trunkline' via a 12-inch force main. The 'Northeast Trunkline' conveys this flow to the Carters Creek Wastewater Treatment Plant. Using the City of College Station's sanitary sewer modeling software and the proposed build -out sanitary sewer demands submitted by the applicant, the City has determined that there is not adequate capacity in the existing 8-inch sanitary sewer line that spans from this respective development to the existing Hensel Park Lift Station. The City has, however, concluded that there is existing available capacity in the Hensel Park Lift Station/force main as well as the 'Northeast Trunkline'. Because of this, this development Planning & Zoning Commission Page 6 of 12 March 1, 2012 would need to include off -site sanitary sewer improvements to provide additional collection system capacity. Drainage is generally to the south and west within the Wolf Pen Creek and Burton Creek Drainage Basins, respectively. Stormwater and other public infrastructure improvements required with site development shall be designed and constructed in accordance with the BCS Unified Design Guidelines. As part of the rezoning application, a Traffic Impact Analysis (TIA) was submitted. Because of the expediency with the approval process and in order to accommodate the applicant's timeline, up to date traffic counts were not conducted instead the applicant utilized a previous analysis conducted in 2011 by HDR the applicant's traffic consultant, of the intersection at Texas Avenue and University Drive. This analysis was presented to the Bryan/College Station MPO. Based on that analysis, the TIA utilized the traffic counts and the intersection operation analysis. The TIA indicated that the intersection of Texas Avenue and University Drive is operating at a Level of Service (LOS) E. Utilizing a scale of LOS "A" thru LOS "F" with "A" being the best LOS "free flow traffic" and LOS F being the worst LOS "bumper to bumper traffic" and LOS "D" being the acceptable LOS the intersection is operating at unacceptable LOS. With that in mind the goal was to provide mitigation strategies that would not prevent the intersection of University Drive and Texas Avenue operate at a worse LOS. The following mitigation strategies have been identified: • An additional left turn bay will be added to University Drive eastbound to northbound Texas Avenue, creating a dual left configuration by modifying the existing raised median. • On University Drive, a right turn deceleration lane will be built to meet TxDOT design criteria. The raised median will also be extended north beyond the proposed driveway location. These mitigation items are at the request of TxDOT and concurred by City staff. • Both the Brazos Valley Transit District and TAMU Transit have indicated that they would not alter their routes to provide service within the proposed site. However, both transit providers have routes along University Drive and Texas Avenue. In order to mitigate traffic at the intersection of University Drive and Texas Avenue, staff has recommended the applicant work with both transit providers regarding bus stops along University Drive and Texas Avenue in close proximity to the proposed site. Furthermore, pedestrian and bicycle accommodations within the site be provided and directed toward the transit areas. • The former Meadowland Street intersection at University Drive will be closed and the existing median break in University Drive closed as well. This is at the direction of TxDOT and concurred by City staff. • To meet the block length requirements for the site, two stub outs westbound to TAMU property west of the proposed site are required. Ultimately this would also serve as an alternative route to University Drive and Texas Avenue, somewhat relieving traffic at that intersection. It is anticipated that TAMU property will be redeveloped to include commercial, retail, and residential uses. These connections also provide important bicycle and pedestrian route alternatives. Planning & Zoning Commission Page 7 of 12 March 1, 2012 Through the TIA, the applicant has evaluated the effect of an additional right turn lane on southbound Texas Avenue to westbound University Drive. Room for the construction of the second right turn lane would be available with the proposed right-of-way of 7.5 feet along Texas Avenue. Based on the analysis, the additional right turn lane does not change the LOS from "E," it does decrease the AM Peak delay by 2.4% and the PM Peak delay by 2.0%. Though the applicant has not proposed this improvement as a form of mitigation, staff recommends it be included in the required mitigation measures to help reduce the impact of this development on the intersection. SUMMARY OF CONCEPT PLAN The requested rezoning and associated Concept Plan propose a vertical mixed use and multi- family redevelopment at the intersection of Texas Avenue and University Drive. The vertical mixed use area consists of more than 60,000 gross square feet of ground floor general commercial uses with multi -family units above. The multi -family area consists of multi -story buildings oriented along the side and rear of the development along the former Meadowland Street. The applicant proposes building heights ranging up to 70 to 80 feet or eight stories. The development is proposed in two phases with the vertical mixed use and some of the multi -family buildings developed in the first phase with the remainder of multi -family areas along the former Meadowland Street and Hensel Street in the second phase. For the most part, parking will be provided in three proposed parking garages located in different areas of the development. All existing buildings, including the former Plaza Hotel tower, will be demolished before a building permits will be issued for new construction. The development will use the dimensional standards of the C-1 General Commercial zoning district for the commercial uses and R-6 High Density Multi -Family zoning district for the residential uses. Additional description, standards and improvements by the development will be provided later. Meritorious Modifications This area is designated as a Redevelopment area in the Comprehensive Plan which acknowledges some role for the City may be necessary to encourage redevelopment. Some modifications result from the intended urban nature of the proposed development and some are due to the suburban style of some of the applicable development regulations. The applicant is requesting the following meritorious modifications or alternatives to standard ordinance requirements: 1. Zoning District Standards — UDO Section 5.2 "Residential Dimensional Standards" and Section 5.4 "Non -Residential Dimensional Standards": An increase to the maximum residential unit density from 30 units per acre to 60 units per acre is proposed by the applicant. While this increase in density can be supported, it is necessary to ensure that adequate infrastructure and transportation facilities including vehicular, bicycle, and pedestrian are provided for the development and surrounding area. As will be described, staff is recommending against some of the proposed modifications that may be detrimental to these facilities. The applicant requests to reduce minimum building setbacks for the C-1 General Commercial and R-6 High Density Multi -Family based zoning districts to 5 feet along all property lines with the understanding that sufficient easements for utilities will be provided. The standard building setbacks are 25-foot front setback, 7.5-foot side setback, 15-foot side street setback, and 15-foot rear setback for the C-1 district and 20-foot rear setback for R-6. Planning & Zoning Commission Page 8 of 12 March 1. 2012 2. Use — UDO Section 6.2.0 "Use Table": The P-MUD Planned Mixed Use District is the base zoning district for uses for the development with Health Care, Medical Clinic being added as a permitted use and Country Club, Duplex, Fuel Sales, Fraternal Lodge, Golf Course/Driving Range, Parking as a Primary Use, Single -Family Detached, Sexual Oriented Businesses, and Shooting Range (Indoor) uses removed from the permitted list. 3. Parking — UDO Section 7.2 "Off -Street Parking Standards": The applicant proposes the standard shopping center ratio of 1 parking space per every 250 gross square feet of commercial use (1:250), though not required to provide additional parking if more than 25% of these areas are utilized as intense commercial uses. The applicant also proposes the minimum residential parking requirement be reduced to one parking space per bedroom. The current ordinance requires one space per bedroom for three and four bedroom units though some additional parking is provided with one and two bedroom units (1.5 spaces/ bedroom). Also, up to 5% of the parking spaces in the garage may be compact parking spaces. This parking reduction can be supported if sufficient transit, bicycle, and pedestrian facilities are provided. 4. Transportation — UDO Section 7.3 "Access Management and Circulation", Section 8.2.G "Blocks", and Section 11.2 "Defined Terms"- Public Way: The applicant proposes some modifications to transportation related requirements: • Three driveways exist along Texas Avenue and six driveways along University Drive, including the former Meadowland Street. Though the proposed Concept Plan consolidates these to one driveway on Texas Avenue and one driveway on University Drive, the proposed driveways do not meet minimum spacing standards. The applicant requests the proposed spacing be acceptable and the concept has been agreed by TxDOT. • The maximum block length in Urban designated areas is 660 feet with a maximum block perimeter of 2,000 feet. Based on these dimensions, two street/public way projections are required along the Public Way Section C-C toward the Texas A&M System property to the southwest. The applicant has requested a waiver to not require these connections. Staff is not supportive of this modification as these alternative routes will help reduce the concentration of traffic movements at the intersection of Texas Avenue and University Drive. Though the Texas A&M System has not been supportive of any type of connection between the two developments, they are in the process of developing a master plan for a private development of commercial, retail, residential, and other uses which will be subject to similar requirements. • Public Ways are defined with certain dimensional and design criteria. The applicant requests to reduce the maximum curve radius from a 200-foot radius to a 45-foot radius, allow sidewalks to be back of curb instead of three feet off, allow road -side zone of less than eight feet in Public Way Section C-C with minimum six-foot sidewalk back of curb (see attached cross sections), and allow head -in parking around the traffic circle. Staff is supportive of the radius and sidewalk location requests, though does not support the head -in parking around the traffic circle or the six-foot sidewalk at the back of curb along Public Way Section C-C. Based on the current layout the traffic circle will be critical for vehicular circulation and allowing head -in parking movement in this area would not be appropriate. As provided elsewhere on the Public Way, parallel parking spaces are permitted. The six-foot back of curb sidewalk is narrower than any other minimum back of curb sidewalk and does not provide adequate room for the required landscape plantings. Planning & Zoning Commission Page 9 of 12 March 1, 2012 5. Signs — UDO Section 7.4 "Signs": Instead of using this Section as the basis for signage, the applicant proposes to utilize the signage permitted in Wolf Pen Creek (UDO Section 5.6.A.11 Signs) with the following modifications: • Signs may be approved administratively by staff with appeals to staff's interpretations being able to considered by the Design Review Board; • Wayfinding signage (LIDO Section 7.4.AA Campus Wayfinding Signs) is permitted for this development; and • Projections signs may be used for identification signage for the general area and not count against the attached signage square feet unless they contain copy of the individual business. Projection signs may be oriented toward the public rights -of -way or public ways and one permitted per tenant per public way frontage. 6. Landscaping — LIDO Section 7.5 "Landscaping and Tree Protection": Instead of using this Section as the basis for landscaping, the applicant proposes to utilize the Northgate standards contained in LIDO Section 5.6.B.9 "Landscape and Streetscape Standards" with the following modifications: • The street trees along Texas Avenue and University Drive may be placed outside of TxDOT right-of-way. Street trees along Public Way Sections A -A and B-B shall be 50 feet on center with alternating planting areas spaced at 50 feet on center consisting of non -canopy trees, hedges or seasonal plantings. The Public Way Section C-C will have planting areas of 25 feet on center consisting of non -canopy trees, hedges, or seasonal plantings; ® Building and Site Lighting shall still comply with LIDO Section 7.10 Outdoor Lighting Standards; and • The Street Lights section is not applicable as lights are owned and maintained by property owner. 7. Architecture — UDO Section 7.9 "Non -Residential Architecture Standards": Instead of using this Section as the basis for architecture standards, the applicant proposes to utilize the Northgate standards contained in LIDO Section 5.6.B.4 "Building Design Standards' except that residential dwelling units in a building with less than 12 units may have access through a parking area or garage. All subsections (Building Orientation and Access, Building Transparency, Architectural Relief, Roof Type, Exterior Building Material, Exterior Building Colors, and Canopies/Awnings) shall apply to all non-residential and residential buildings. 8. Infrastructure — Section 3.3.A "Applicability," and BCS Unified Design Guidelines: The applicant proposes some modifications to infrastructure related requirements: • Most of the property is platted though a couple areas are still tracts of land. The applicant has requested that building permits may be issued on these tracts prior to the platting of these areas with the provision that a temporary blanket easement be placed on the property and the property platted/repatted once all utilities are constructed and relocated and before Certificates of Occupancy are issued for the buildings; and • The applicant has requested to reduce the utility line separation distances from structures to a minimum of 10 feet. Staff is not supportive of this modification at this point as additional design details are necessary to make this determination. Staff could consider this type of modification when the site infrastructure is being designed. Planning & Zoning Commission Page 10 of 12 March 1, 2012 Community Benefits and Additional Enhancements The applicant has identified the following community benefits, additional enhancements or improvements: 1. Implementation of the Comprehensive Plan through redevelopment of an underperforming, blighted area that is designated as a Primary Arrival Gateway and described by the Comprehensive Plan as an area that should "focus on bringing vertical mixed -use and other aspects of urban development to this portion of the City." All existing buildings will be demolished before building permits will be issued for any new construction. 2. The Northgate Building Design Standards (UDO Section 5.6.B.4) apply to all buildings, residential and non-residential. Currently there are no architectural requirements for residential buildings outside of the Northgate District. 3. The Northgate Bicycle Parking Standards (UDO Section 5.6.B.7) apply to the development except that the design of the bicycle rack design is determined by the owner and approved by the City and bicycle parking may be located within the parking garage areas. Currently there are no bicycle parking (bike rack) requirements for residential developments outside of the Northgate District. 4. Installation of a bus stop shelter as approved by the City internal to the site to promote transit usage and another along University Drive to utilize District bus service. Bus stops or bus shelters are not required by standard ordinance. 5. The Northgate Dumpster and Mechanical Equipment Standards (UDO Section 5.6.B.10) shall apply with the exception that vegetation may also be used as a screening tool. 6. The Northgate Outside Storage and Display Standards (UDO Section 5.6.B.13) shall apply to the development. 7. The parking garage on Texas Avenue is wrapped with general commercial use on ground floor and residential above and the other parking garages along the former Meadowland Street are wrapped with multi -family uses. 8. An eight -foot bicycle and pedestrian route is proposed along the majority of the southwest property line to connect multi -family buildings and two parking garages to University Drive to allow easier bicycle and pedestrian movements from the development toward the Texas A&M University campus. 9. Mitigation for the Texas Avenue and University Drive intersection is proposed through a variety of transportation improvements including a dual left turn lane will be added University Drive eastbound to Texas Avenue northbound, the median break for the former Meadowland Street will be closed, multiple driveways will be consolidated into one driveway on Texas Avenue and one driveway on University Drive, the median on Texas Avenue will be extended north past the proposed Public Way driveway, and a deceleration lane will be added to the proposed Public Way driveway on University Drive. STAFF RECOMMENDATION Staff recommends approval of the request with the following conditions: 1) Remove the modification for a block length waiver and provide two public way projections along Public Way Section C-C to the Texas A&M System property to the southwest; 2) Remove the modification to Public Ways allowing head -in parking around the traffic circle (parallel parking is permitted); Planning & Zoning Commission Page 11 of 12 March 1, 2012 3) Remove the modification to reduce the minimum utility line separation distance from structures to 10 feet. Appropriate design considerations can be made as the site infrastructure is designed and reviewed; 4) Require the back of curb sidewalks along Public Way Section C-C be expanded to a minimum of eight feet; 5) Provide dual right turn lanes on southbound Texas Avenue to westbound University Drive as a mitigation measure for the intersection; and 6) Provide a bus stop with shelter, as approved by the City, in a location approved by TAMU Transit Services for A&M bus service. SUPPORTING MATERIALS 1. Application 2. Rezoning Map 3. Concept Plan 4. Public Way Cross Sections 5. Email from Kevin Burgess, 6. Traffic Impact Analysis (will adjacent land owner be provided prior to meeting) Planning & Zoning Commission March 1, 2012 Page 12 of 12