Memorandum Planning and Urban Development Department Planning Division

Transcription

1 Memorandum Planning and Urban Development Department Planning Division To: From: Elizabeth Boepple, Chair and Members of the Portland Planning Board Jean Fraser, Planner Date: March 18, 2016 Re: Level III Master Development Plan; 605 Stevens Avenue; Sea Coast at Baxter Woods Associates, LLC, Applicant Project #: CBL: 136 E Meeting Date: March 22, 2016 I. INTRODUCTION Sea Coast at Baxter Woods Associates, LLC have submitted a Level III Master Development Plan (MDP) for 249 dwelling units of senior housing on two lots (approximately 13.5 acres) at the corner of Walton Avenue and Stevens Avenue. The 249 units would be made up of 88 apartments in the converted Motherhouse and 161 dwellings (condos) in five new 4-5 story new buildings nearby, along with 395 parking spaces and approximately 5 acres of open space. The required review is under Section (a)3c(iii) Master Development Plan Review including Standards for Review. An approved Master Development Plan has an approval period of 6 years, which may be extended and/or amended. This is the first Workshop on the MDP and will provide an overview and a focus on traffic, parking, and pedestrian accommodations (the Traffic Engineering Reviewer and the applicants Traffic Engineering Consultant will be at the Workshop to clarify data and answer questions). A second Workshop is planned in April with a focus on Design and Landscape and any residual issues. II. THE SITE The MDP site is part of an approximately 20 acre site that was previously owned by the Sisters of Mercy and included the Motherhouse (now mostly vacant); the Catherine McAuley High School and associated playing fields; and the St Catherine apartments on Walton Street. The MDP does not include the ongoing uses of the School (except the playing field area) and the apartments, but does include the Motherhouse. The site is adjacent to two valued open areas, Evergreen Cemetery and Baxter Woods and located on an arterial street with good public transit. The wider neighborhood is a cohesive and family-focused community with a mix of institutions (including 2 existing senior housing developments, several schools and UNE) and some retail.

2 III. PREVIOUS REVIEWS AND APPROVALS The MDP was submitted after a year of discussions with the Planning Division, Planning Board, members of the public and City Council regarding zoning text and map amendments to guide the appropriate scale of senior housing development on this site. The text and map amendments are outlined in more detail in section V b. below. The associated policy decisions regarding density considerations and associated traffic, parking and visual impacts were the subject of extensive Planning Board and City Council discussion, including hours of public testimony (41 written comments on the rezoning). The MDP submission and review is a middle stage between the rezoning that allowed for this particular use, and the implementation of four phases of senior housing development. The conversion of the Motherhouse as a first phase was approved by the Planning Board in August 2015 to facilitate housing and historic tax credits. The MDP, once approved, would provide a conceptual plan that integrates the existing buildings and uses into the anticipated final build out that includes 5 new buildings with associated access, parking and open space/landscape amenities. The overall review and approval chronology is outlined in the following table: Subject of application Application Date PB Workshop(s) PB Hearing approval Rezone 17 acres from R5 to R6A for senior February 2015 March 2015 housing/congregate care Rezone 13.5 acres to R5A senior April 2015 April 2015 May 2015 housing/congregate care Rezone 7.5 acres to R5A senior housing/congregate care City Council approval July 6, 2015 (amended PB recommendation) Amendment to R5A Text April 2015 April 2015 May 2015 June 15, 2015 Convert Motherhouse (part in R5A) to 88 senior June 2015 July 2015 August 2015 N/A units, incl. 66 units of affordable housing (Ph 1) Subdivision of the entire approx. 20 acre site into 4 June 2015 July 2015 August 2015 N/A lots (THIS APPLICATION) Master Development Plan for Lots 3 & 4 (Motherhouse and land to south and east of Motherhouse (total of 13.5 acres) / February 2016 March 22, 2016 TBD N/A (ANTICIPATED NEAR FUTURE) Phase 1 of senior housing in 21 unit building near Motherhouse (ANTICIPATED FUTURE) A further two phases as outlined in MDP Expected in 2016 Not confirmed N/A N/A IV. PROJECT DATA for Lots 3 and 4 only (Lot #3 is Motherhouse site; Lot #4 is the area to south and east of the Motherhouse- see Background below) Existing Proposed Zoning R5 and R5a Previously amended Uses Vacant Motherhouse; playing fields; open land Senior housing and associated parking and open space; reconfigured playing field Parcel Size 13.5 acres 13.5 acres Dwelling Units none Motherhouse: 88 units (68 efficiency; 20 1-BR) Lot #4: 161 units, all 2BR Building footprint 24,065 sf (Motherhouse) Motherhouse: 24,065 sf Lot #4: 74,188sf Building floor area 102,241 sf (Motherhouse) Motherhouse; 102,241 sf Lot #4: 349,626 sf Impervious Surface 272,946 sf Parking spaces Approx Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 2

3 V. BACKGROUND a. Site History The site was the location for a convent in the late 19 th century for the Sisters of Mercy in Portland and originally included a church. Other uses were introduced over the years: A girl s school in 1881 (later expanded into what is known as Catherine McAuley High School in 1971); the expansion of the playing fields at the back were added in the last 10 years; St Catherine s Hall in 1888 as St Joseph s Home for Aged Women, which later became St Joseph s college from 1917 to 1954 (now 18 apartments for Sisters of Mercy and will continue for foreseeable future); Motherhouse, completed in parts between 1909 and 1921, which was the home of up to 300 nuns but was closed about 10 years ago. Motherhouse Building b. Rezoning part from R5 to R5A The applicant initially applied to rezone more of the site from R5 to R6A to allow for 300+ dwellings. During the review the Planning Board received extensive public comment raising concerns that the allowed density (which would have been higher) was out of scale with the surrounding neighborhood, and the lower density R5A zone emerged as an option with both a map amendment and associated text amendments (see Att 8 for the amended dimensional requirements that impact density). In summary the final zone amendments to the R5A zone text were: Adding multifamily and congregate care to the permitted uses, with associated minimum lot sizes; Amend definition of congregate care ; Clarification of the minimum lot area per dwelling (1600 sf) for both uses; Include a maximum structure height of 55 feet; Remove the requirement that the R5A zone be applied through the contract zone provisions; Streamlining the definition of net land area to meet current development review practices; Removal of unnecessary text and placing the dimensional requirements into a table; Amend the Site Plan ordinance regarding Master Development Plans to include the proposed uses. The Planning Board recommendation to the City Council was for all of Lots 3 and 4 to be rezoned to R5A and was informed by the Conceptual Site Plan in Att 6. In response to public comments, the City Council approved a smaller final boundary of the R5A zone (shown right) which allows for a maximum of 249 dwellings on the Lot 3 and Lot 4 site. This number of dwellings was based on the total entire land area of both zones with pro-rata densities. The zone boundaries are not the same as the property or lot boundaries and the data is split out in Att 7. Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 3

4 c. Subdivision into 4 lots The Planning Board approved (August 2015) the creation of an overall Subdivision to define the following 4 lots within the overall site: Lot 1: St Catherines Hall (2.36 acres) Lot 2: Catherine McAuley High School (3.18 acres) Lot 3: Motherhouse (4.39 acres) Lot 4: Open area and fields (9.05 acres) The Master Development Plan is for Lots 3 and 4 (developed for senior housing) as Lots 1 and 2 are anticipated to remain as existing for the period of the Master Development Plan. Lot 2 Lot 1 Lot 3 Yellow dash line is R5A zone boundary Lot 4 d. Review and Approval to Conversion of existing Motherhouse building The applicant received Planning Board approval to the Phase 1 project to rehabilitate the main Motherhouse building for 66 affordable housing units and 22 market rate units - with a mix of 68 studio and 20 single bedroom apartments. The site plan (see right) included: Redesign of the existing high school parking lot to better organize access and parking Creation of a rear main ADA entrance and associated drop-off and parking areas; New walkways to create an interconnected walkway system; Contribution to Stevens Avenue crosswalk improvements; Stormwater measures; Landscaping. VI. EXISTING CONDITIONS The site abuts Baxter Woods and the Deering Pavilion. The north and north-east parts of the site abut an area of single and multifamily homes and the Forest Avenue RP zone is nearby. Evergreen Cemetery is opposite on Stevens Avenue. The existing Catherine McAuley High School is currently accessed by two one-way drives from Walton Street direct into the existing parking lot. There are two small drives with gates on Stevens Avenue that go directly to the front of the Motherhouse. Walton Street is a residential street connecting Stevens Avenue and Forest Avenue, with signals at both intersections. Under the Federal Street Classification system Stevens Avenue is classified as a Minor Arterial (other Minor Arterials in Portland are Warren Avenue and Washington Avenue) and Forest Avenue is classified a Principal Arterial (other principal Arterials in Portland are Brighton Avenue and outer Congress Street). VII. MASTER DEVELOPMENT PLAN PROGRAM The applicant has described the proposal in detail in the cover letter and narrative (Attachment B) and in the Plan set (Plans P1 to P13); in summary the MDP includes (see Conceptual Site Plan below): Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 4

5 A four phase development to create 249 units of senior housing, of which 88 units are approved and are located within the existing Motherhouse building which will be refurbished and converted; Five new buildings, one at 4 stories (between the Motherhouse and Baxter Woods on the Stevens Avenue frontage) and 4 5-story buildings behind the Motherhouse; A total of 395 parking spaces, of which about half are underneath the new buildings; Several acres of open space, with connections to Baxter Woods; Extensive new tree planting with a network of pedestrian walkways. Conceptual Site Plan (Plan P6) showing full build out at the end of Phase 4 VIII. PUBLIC COMMENT A total of 129 notices were sent to property owners within 500 feet of the site and interested parties, and a legal ad was published in the Portland Press Herald on March 14 and 15, A Neighborhood Meeting was held on March 14, 2016 (Invitation in Attachment G) which was attended by about 20 neighbors. As of the time of completing this Memorandum, the Planning Division has not received any written public comments. IX. ZONING ANALYSIS The Master Development Plan proposals comply with the R5 and R5A requirements; the applicant has included this information on Plan P9. and the R5A dimensional standards are included in Attachment 8. It should be noted that the density and open space calculations are based on the R5A requirements but (based on the principle established by the City Council when the R5A area was reduced) the R5 parts of these lots is not built upon but the area is used to calculate the density and open space for a unified development plan. X. STAFF REVIEW A. MASTER DEVELOPMENT PLAN OBJECTIVES The Site Plan ordinance outlines that an approved Master Development Plan (MDP) establishes the general parameters to be adhered to for the development, including the supporting documentation for floor area ratio and/or residential density, general types of uses, building coverage, generalized open space plans and infrastructure systems. It is not a final authorization for development, but it does confer pending proceeding status upon the development with the effect of maintaining the applicability of regulations in effect at the time of the approval for as long as the MDP approval remains valid, including permissible extensions. All Level III site plans for each phase shall be in general conformance with the approved MDP (6 years initially, which may be extended). Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 5

6 B. MASTER DEVELOPMENT PLAN SUBMISSION REQUIREMENTS (Section (e)) Section of the city s site plan ordinance outlines Master Development Plan submittal requirements. The Planning Authority or Planning Board may give direction regarding the form of the information required for the MDP review. The majority of the submission requirements have been met, but further information has been requested on the following: (v) Further modelling and graphics to illustrate how the proposed development will fit into the surrounding building and environmental context, including illustrations showing how the proposal would impact views of the Motherhouse building (eg from Stevens Avenue south of the site) and from Baxter Woods; (x) Further explanation of how drainage will be achieved to avoid any impacts on surrounding uses (xiii) Further information to confirm that the utilities will have the capacity to support the full build out of the site. (see Peer Engineer comments in Attachment 3.) C. MASTER DEVELOPMENT PLAN STANDARDS (Section (a)3.c(iii)) Section of the city s land use code establishes standards under which Master Development Plan applications must be reviewed. Per this section, Master Development Plans shall adhere to the following general requirements and features: a. A designated tract of land consisting of a parcel or parcels of contiguous land or land on both sides of a public street, totaling one (1) acre or more; Staff comments: The 13.5 acre site meets this requirement. b. Developed in a comprehensive, design-integrated manner, according to an overall master development plan; Staff comments: The applicant has submitted a Master Development Plan for Lots #3 and #4 where the proposed senior housing development will be located, and shows how the area integrates with the surrounding area. c. Consistent with the objectives of this ordinance; and d. Consistent with the City s Comprehensive Plan and consistent with City Council approved master plans and facility plans for off-premise infrastructure, including but not limited to, trails, pedestrian and bicycle network, view corridors, environmental management, sewer and stormwater, streets, or other facilities (see Section 15 of the Technical Manual); Staff comments: This is still under review and will be discussed in detail at the second Workshop. e. Developed so as to locate buildings and improvements in a manner that provides usable open space, preserves significant natural features, as defined by the site plan ordinance standards, and preserves existing trees to the maximum extent possible; Staff comments: The Conceptual Site Plan in Plan P6. shows the trees to be preserved, and new trees proposed to be planted, along with an indication that the Stevens Avenue and Baxter Woods frontages will be usable open space areas. Plan P9. Clearly shows the extent of impervious surfaces, wetland and open space, which helps in understanding the areas of usable open space. Further information and discussion on this subject is anticipated at the second PB workshop. f. Ordinance standards for designated landmarks or for properties within designated historic districts or designated historic landscapes, if applicable. When proposed adjacent to or within one hundred (100) feet of designated landmarks, historic districts or historic landscapes, the Master Plan shall be developed so as to be generally compatible with the major character-defining elements of the landmark or portion of the district in the immediate vicinity of the proposed development; Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 6

7 Staff comments: Although the Motherhouse building is considered of historic and architectural interest, the building is not yet designated a landmark and is not located in a Historic Preservation District. It is understood that the applicant is pursuing its designation as a Landmark on the National Register and that this may require the preservation of some existing site elements. Such a designation would also require Historic Preservation review of one or more of the new buildings nearest to the Motherhouse. The site is opposite and within 100 feet of Evergreen Cemetery, which is an Historic Landscape, so the proposals for the frontage along Stevens Avenue will be reviewed by the Historic Preservation Program Manager. g. An efficient use of land which properly considers topography and protects significant natural features including, but not limited to, waterways, wetlands, floodplains and wildlife; Staff comments: This aspect is still under review; no issues have been identified to date. h. An efficient use of land demonstrating full coordination of its own site development and surrounding context including, but not limited to, the land uses and functions contemplated, architecture, open space and pedestrian networks, vehicular access and circulation, and all other infrastructure; Staff comments: This requirement is still under review. i. Linked and coordinated with surrounding land uses, infrastructure and off-site public facilities, including but not limited to the public school system, where appropriate, in a manner that is safe, efficient, non-injurious to the public, and an improvement or benefit to the public where possible; and j. Designed with sizing of street and other infrastructure systems to accommodate the overall service demand of the Master Plan; k. Designed to create a street grid pattern that reflects average city block sizes of the neighborhood for street connectivity; Staff comments: This subject will be presented and discussed in greater detail at this PB Workshop. The following outlines the initial staff comments: Impact on surrounding streets The applicants consulting traffic engineer has submitted a Traffic Impact Study (Att. H.) that considers trip generation, impact on intersections, accidents and sightlines. The consultant will be giving a presentation at the PB Workshop to further explain the anticipated impacts. Tom Errico, the City s Traffic Engineering reviewer, will also be at the PB Workshop to provide further elaborate on his initial comments below (Attachment 2): The applicant submitted a preliminary trip generation analysis that was based upon data from the Trip Generation Manual, Institute of Transportation of Engineers (ITE). The estimate was based upon Land Use Code 252 Senior Adult Housing. I requested additional information on the ITE Land Use development type and is the data based upon current developments. Additionally, I requested the applicant provide local data for comparison. The applicant provided information that indicates the most recent publication provided by ITE does include current developments sites. Additionally, the applicant provided actual trip generation data collected at the Highlands in Topsham, which indicates similar trip levels as ITE. Based upon the applicant s analysis the project would be expected to generate 97 trips entering and exiting during the Weekday AM Peak hour and 87 trips entering and exiting during the Weekday PM Peak hour. A meeting with the applicant was held on March 9, 2016 to discuss the outcome of the trip generation analysis and for the City to provide guidance on the study area for a traffic impact study. Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 7

8 Based upon the trip generation estimate, the project does not meet trip threshold requirements for a Traffic Movement Permit (TMP). The TMP threshold is 100 trips. Please note the following: During the Rezoning review process there were trip generation estimates that indicated a TMP would be required. That conclusion was based upon a development scenario with a greater number of dwelling units. Given that this project will be constructed in phases, I have recommended that a traffic monitoring study be required as a condition of approval with the intent of surveying actual traffic levels following occupancy of each phase, and if that study identifies higher trip generation levels, a TMP may be needed. The applicant is responsible for the preparation of a comprehensive traffic impact study for the proposed project. A traffic study was submitted on March 15, The traffic impact study reviewed impacts to the public street system including the Stevens Avenue/Walton Street, Stevens Avenue/Pleasant Avenue, Forest Avenue/Walton Street and Site Drive intersections. This type of study would likely be the same under a TMP submittal. Preliminary comments will be provided at the Workshop on March 22, The applicant will be requested to confirm the measures that will be implemented to reduce vehicle trips, such as car share vehicles; van service for local trips; bicycle facilities, etc. that would be considered to be a component of a Senior Housing development that would have been reflected in the developments surveyed by ITE for use in estimating trip generation. Fire Access Deputy Chief Gautreau met with the developers and architects in February and explained his concern that the emergency access to the larger proposed building in the rear of the project had limited fire department emergency vehicle access. He suggested that possibly an additional fire lane would address this access problem. The applicants confirmed they would address this comment as part of the next iteration of the plans. Internal Circulation/Public Transit/Bicycles The applicant has proposed a full turn access on Walton Street and a one way system in front of the Motherhouse that allows a right out and right in only. This was proposed to address concerns about congestion and safety in Stevens Avenue and direct vehicles to the signaled turn locations. The circulation is shown in Plan P7 and at right: Circulation Plan (Plan P7) Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 8

9 Tom Errico, the Traffic Engineering Reviewer, comments (Att 2): City staff continues to review and provide comments on pedestrian, bicycle, and transit improvements in conjunction with this project. In conjunction with the Motherhouse project, improvements associated with transit and crosswalks (location and ADA compliance) were required. The MDP includes a relocated crosswalk location and associated links that are based on the discussions with the City and METRO. Parking The Parking Diagram (Plan P8 and at right) shows a total of 395 parking spaces, of which 212 spaces are on the surface and 183 are beneath the buildings. The allocation of the surface parking is shown as colorcoded on the Parking Diagram. The proposals outlined in the Master Development Plan are based on the approved parking ratio for the Motherhouse (73 dedicated parking spaces for the 88 units) and on the zoning requirement for the rest of the area (2 parking spaces per unit). The objective is to ensure that the proposed parking levels will not result in overflow parking to streets outside of the site. Staff generally consider that the parking is adequate, but would suggest that this be monitored and that the later phases be revised to address the actual parking demands. Utilities; Stormwater; other These aspects will be covered in the second PB Workshop, although it should be noted that the Peer Engineer David Senus is generally in agreement with the approach being taken to stormwater management (Att. 3).. l. Designed as to create a cohesive identity through building scale, massing, and articulation; use of quality exterior materials, architectural detailing at pedestrian scale; consistency of design and materials for streetscape and pedestrian amenities; framing of outdoor open space and linkages; a clear conveyance of the function and significance of various buildings, entrances, and features; and to generally comply with design and development standards of the zone in which it is located; Staff comments: The submission in this PB Memo includes Elevations (Plan P11), Renderings giving an indication of architecture and materials (Plan P12) and existing and perspective views from three vantage points (Plan P13). These are under review, and it is anticipated that additional material will be submitted as requested, with all of the submissions to be discussed in detail at the second PB Workshop. m. Inclusive of provisions for the ownership and maintenance of usable open space as appropriate; Staff comments: The submission includes the draft Condominium Documents that outline the management arrangements for the MDP area. Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 9

10 n. For areas proposed as future development phase(s), the proposed interim conditions shall be managed and maintained to ensure stable, safe and attractive site conditions. Staff comments: The applicant has submitted a Phasing Diagram as extracted below (Plan P5): XI. NEXT STEPS 1. Address staff, Planning Board and public comments; 2. Submit further information as outlined in the PB Memorandum; 3. Revise proposals for consideration at a second PB Workshop in April. ATTACHMENTS MEMORANDUM ATTACHMENTS 1. Fire Department comments 2. Traffic Engineer comments 3. Peer engineer Comments 4. Department of Public Services comments 5. City Arborist comments 6. Conceptual Site Plan shown to PB and CC at Rezone Hearings Lots AND zoning data table based on R5A zone boundaries 8. Dimensional Requirements of the R5A Zone PUBLIC COMMENTS (None received to date) APPLICANT S SUBMITTAL A. Master Development Plan Development Review Application (+see amended data sheet) B. Cover Letter and Narrative (from Rick Licht, Licht Env Design) C. RTI D. Draft Condo Docs APPLICANT S SUBMITTAL (CONTINUED) E. Financial Capability F. Utilities G. Neighborhood Meeting Invitation H. Traffic Impact Study PLANS P1. Cover Sheet P2 Draft Subdivision Plat P3 Overall Existing Conditions Plan P4 Neighborhood Context Plan P5 Phasing Diagram P6 Conceptual Site Plan (full build out) P7 Circulation Plan (full build out) P8 Parking Diagram (full build out) P9 Open space Calculations (full build out) P10 Concept Stormwater and Utilities Plan (full build out) P11 Elevations (3 sheets) P12 Renderings of alternative indicative materials P13 Existing & Proposed Perspective Views Workshop I \PB Memo\PB Memo MDP 605 Stevens Senior Hsg.docx 10