To: From: Planning and Zoning Commission Anna Bertanzetti, Planning Director Meeting Date Agenda Category Agenda Item # June 12, 2017 Business 4.b. 1. Public Hearing on a proposed North Park Filing No. 4, Lot 1, Block 1 (Project Sycamore) Site Development Plan Property Location: North of W. 160th Avenue and West of Sheridan Parkway Owner: JP Morgan Chase Bank National Association Applicant: CH2M 2. Consideration of Resolution No. PZ 2017-12 Regarding the Application Summary The applicant, CH2M, is requesting a site development plan (SDP) for a 259,830 square foot data center on 106 acres at the northwest corner of W. 160th Avenue and Sheridan Parkway. The North Park PUD includes uses such as office, retail, service, manufacturing, research and development. The proposed data center facility would be a permitted use as a research and development facilities - including offices, flex space, labs and indoor manufacturing facilities. The building will be located near the southeast quadrant of the site and will be secured with an eight-foot wrought iron fence and gates. Access for the site will be provided from W. 160th Avenue through a secured gate. A vehicle turnaround is provided for vehicles which are denied access to the site. The access from Sheridan Parkway will be gated and will only be used as an emergency access point. The site development plan includes the intended architecture, landscaping, and parking associated with the data center. The building may be developed in phases with the first phase including 183,170 square feet of building area with additional square footage constructed as needs arise. Public improvements related to the site will include completion of the sidewalk around the site (Preble Creek Parkway, Sheridan Parkway and W. 160th Avenue) as well as widening of W. 160th Avenue. Variances are requested as part of the SDP related to minimum parking requirements, landscaping, and architecture from the North Park PUD Plan as detailed in this staff memorandum. The variances are requested due to the unique nature of the use including the significant setbacks, small number of employees in relation to size of building, and security requirements related to visibility near the building. The North Park Design Review Committee (DRC) reviewed these requested variances and has approved all proposed variances (the North Park PUD requires approval of the North Park DRC prior to consideration of the variance by the City and County of Broomfield). Proposed Resolution No. PZ 2017-12 would recommend approval of the site development plan. Prior Council Action The City Council approved the North Park Planned Unit Development Plan and Preliminary Plat on October 13, 2009, ( Resolution No. 2009-107 ). City Council considered a concept review for a data center on February 7, 2017. Alternatives Based on the testimony and evidence presented on the record at the public hearing: If the proposed application complies with applicable Broomfield Municipal Code (BMC) review standards: Recommend the City Council approve the application as is or with conditions. If the proposed plans do not comply with applicable BMC review standards: Postpone action on the resolution and continue the hearing to a date certain; or Recommend the City Council deny the application. Proposed Actions/Recommendations Hold the public hearing. Following and subject to the results of the public hearing, the Planning and Zoning Commission may either Adopt Resolution No. PZ 2017-12 recommending approval with or without conditions; or Adopt Resolution No. PZ 2017-12 recommending denial. Item 4.b. - Page 1
Page 2 I. SUMMARY OF APPLICATION The proposal is for a computer data center facility with two buildings on approximately 106 acres. The building would be up to 259,830 square feet. The first phase of construction would include 183,170 square feet of building area along with associated parking, landscaping, and drives within the fenced site as well as perimeter landscaping and right-of-way improvements. The site is designed for access only from W. 160th Avenue with emergency access only from Sheridan Parkway. Property Owner and Applicant The property owner is JP Morgan Chase Bank National Association, and the applicant is CH2M. Concept Review Plan A concept review was held for the subject property on February 7, 2017. Comments were largely supportive of the use and architectural style for the buildings. There were some questions regarding potential noise and screening of equipment. The applicant has provided details regarding the acoustical screening of rooftop units and generators are fully screened. The applicant was also asked to provide a traffic study, which has been submitted and reviewed by the City Traffic Engineer. The use has minimal traffic impact based on the anticipated 25 employees per eight-hour shift. A potential second building was also removed from the proposal since it is not anticipated at this time. II. ZONING AND STATUS OF THE DEVELOPMENT Zoning, PUD Plan and Preliminary Plat The site is zoned Planned Unit Development (PUD). The North Park PUD Plan was approved on October 13, 2009. The PUD Plan included 937 acres for a mixed-use development generally located between Interstate 25 and the Community Ditch, south of State Highway 7. Uses permitted in North Park include office, services, retail, manufacturing, research and development uses. The proposed computer data center facility would be a permitted use as a research and development facilities - including offices, flex space, labs and indoor manufacturing facilities. The North Park PUD included a binder with detailed design requirements and development standards. The binder also outlines requirements for the North Park Design Review Committee (DRC). The North Park DRC reviews the plans for conformance with the PUD. Broomfield staff participates in the DRC as a non-voting member. The North Park DRC must review any variance from the PUD prior to consideration by the City and County of Broomfield through the public hearing process. The North Park DRC has reviewed the proposed plans and has approved the plans as well as the requested variances. Item 4.b. - Page 2
Page 3 Status of the Development The table below shows the progress of development in North Park. Summary Status of Development for North Park Project Parcel Location Land Use Status Acres Medical Office Building Prospect Ridge Academy K-8 Prospect Ridge Academy 9-12 North Park Manufacturer Project Project Sycamore The Villas at North Park (KB Homes) North Park Flex Office Southeast corner of State Highway 7 and Palisade Parkway (Alignment) West of northwest corner of Sheridan Parkway and Preble Creek Parkway North of Preble Creek Parkway and west of Sheridan Parkway West of southwest corner of Sheridan Parkway and Preble Creek Parkway South of Preble Creek Parkway and West of Sheridan Parkway Sheridan Parkway and Preble Creek Parkway East of Sheridan Parkway and North of W. 160th Avenue Medical Office Building Public Charter School Public Charter School Office, manufacturing, research and development Concept Review Completed (January 2010). Has not proceeded. Building Size (Square Feet) or Units 6.97 100,000 sf Construction Completed 6.0 45,470 sf Construction Completed Expansion of parking lot and sport fields expected to be completed in late 2017. Concept Review Completed (July 2012). Not Moving Forward 6.75 60,000 sf 5.1 80,000 sf Data Center Subject Proposal 106 259,830 sf Single-Family Attached (Duplex) Office Flex Under Construction 9.75 98 units SDP Approved, Construction Documents in Review 9.1 152,794 sf (Phase I) III. APPLICABLE CITY AND COUNTY OF BROOMFIELD PLANS Relationship to Comprehensive Plan and Financial Plan Comprehensive Plan The Broomfield Comprehensive Plan designation for the proposed development is Mixed-Use Commercial. The map provided on the following page shows the portion of the Comprehensive Plan Land Use Map pertaining to the subject property and surrounding area. The Mixed-Use Commercial category is depicted in the 2016 Comprehensive Plan Update and is intended primarily for commercial, employment, and multifamily or single-family attached residential uses. The proposed use is consistent with the Comprehensive Plan. Item 4.b. - Page 3
Page 4 Goals and Policies The proposed project would help meet the following Comprehensive Plan goals: Goal LU-A: Mix of Land Uses - Plan for an appropriate mix of land uses that ensures connectivity, livability, environmental sustainability, and economic vitality. Goal LU-B: Mixed-Use Development - Encourage and support mixed-use developments that provide the benefits of more compact, denser development with a mix of living, shopping and working environments. Goal ED-B: Commercial Vitality - Maintain and enhance the vitality of commercial, industrial and retail sectors in order to provide employment and tax base. Neighborhood / Area Plan The North Park PUD Plan is located within the I-25 Sub-Area Plan. Council adopted the I-25 Sub-Area Plan in 1999. Item 4.b. - Page 4
Page 5 Broomfield s Sub-Area Plans are designed to help achieve several common goals: Create a quality Gateway Image that conveys the desired vision for the Broomfield community; Establish a balance of complementary land uses; Maintain economic stability for the City through value-creation and value-retention; Provide a means for coordinating planning for infrastructure; Promote meaningful dialog among landowners, governmental agencies, and others to facilitate communication, cooperation, and successful development results; and Fulfill intergovernmental commitments made through agreements. Relationship to Urban Renewal Plan In 2009, Council adopted the North Park Urban Renewal Plan with the goal of implementing the Comprehensive Plan and Sub-Area Plan by assisting with the elimination of development barriers in the area. The barriers are characterized principally by inadequate street patterns, lack of adequate and convenient access, unusual topography, and lack of adequate infrastructure. A principal goal of the plan is to extend infrastructure and services to facilitate redevelopment of the area by private enterprise. Separate Urban Renewal Site Plan approvals are not required by the North Park Urban Renewal Plan. IV. AREA CONTEXT Property Location The detail map on the following page shows the proposed development boundary over an aerial photograph. Sheridan Parkway is located east of the site. The west side of the property is bounded by the Community Ditch. Preble Creek Parkway and W. 160th Avenue are the north and south boundaries of the site. The Anthem neighborhood is located west of the property on the west side of the Community Ditch. Prospect Ridge Academy (Elementary, Middle and High Schools) and the Villas at North Park (paired homes) are located north of Preble Creek. Extraction Oil and Gas has indicated their intent to request oil and gas wells south of the subject site. Item 4.b. - Page 5
Page 6 Surrounding Land Uses ADJACENT USE/ZONING COMPREHENSIVE PLAN DESIGNATION North School and Residential/PUD Mixed-Use Commercial and Neighborhood Residential South Undeveloped and Oil/Gas Wells/PUD Open Lands East Undeveloped/PUD Mixed-Use Commercial West Residential and Open Lands/PUD Neighborhood Commercial and Open Lands Item 4.b. - Page 6
Page 7 Description V. CURRENT APPLICATION DETAILED DESCRIPTION AND STAFF REVIEW The site development plan is for a data center facility with one building of up to 259,830 square feet to be constructed in phases. The first phase for the site would include 183,170 square feet as well as associated landscaping, parking, and drives within the fenced area at the southeast quadrant of the site as well as perimeter landscaping and right-of-way improvements. The proposed facility would be a secure campus with gate access and security fencing (eight feet in height, wrought iron). The building is located to provide significant setbacks from adjacent roadways and residential uses. The building is located over 250 feet from W. 160th Avenue, 300 feet from Sheridan Parkway, and approximately 900 feet from the Preble Creek Parkway right-of-way to the west. Background/Base Data Property Owner Applicant Property Location Property Size Current Zoning Proposed Zoning Current Land Use Proposed Land Use Comprehensive Plan Designation JP Morgan Chase Bank National Association CH2M West of Sheridan Parkway and North of W. 160th Avenue 106 acres PUD PUD Undeveloped Data Center Mixed-Use Commercial Land Use Summary The following page includes a composite land use summary for the proposed development. NORTH PARK PROJECT SYCAMORE COMPOSITE LAND USE SUMMARY Land Use Sq. Ft. of Site Coverage Acres of Site Coverage % Total Projected Construction Value Building 259,830 5.9 5.6% Parking and Drives 228,469 5.2 0.5% Open Lands 4,142,840 95.1 89.7% Total 4,631,139 106.2 100% Site Layout The proposal includes one building in the southeast quadrant of the 106-acre site. The campus is secured with fencing and gates. Parking for the building is located on the south side of the building. The applicant is proposing significantly greater setbacks than required for the building per the North Park PUD (see table below). The majority of the site will remain native grasses. Trees will be planted around the perimeter and berms will be constructed at the corner of W. 160th Avenue and Sheridan Parkway to add visual interest at the corner. Item 4.b. - Page 7
Page 8 Setbacks per PUD Required Proposed Sheridan Parkway 30 feet 452 feet W. 160th Ave 30 feet 452 feet Preble Creek Parkway 20 feet 825 feet Community Ditch 30 feet 745 feet Access and Circulation The plan shows the access into the campus from W. 160th Avenue. A gate will be located at this access and a turnaround is provided for vehicles not granted access into the facility to safely route them back to W. 160th Avenue. This gate will be key entry and remote access. A secondary access point will be provided from Sheridan Parkway. The secondary access point will be limited to emergency access only. The applicant is coordinating with emergency services to ensure access gates meet their requirements for access. A traffic study was submitted as part of the site development plan review. An improvement agreement will be reviewed by the City Council concurrent with the SDP to outline the responsibilities and timing for public improvements to the adjacent roadways. The applicant is responsible for installation of the sidewalk around the perimeter of the site (Preble Creek Parkway, Sheridan Parkway, and W. 160th Avenue). The west half of Sheridan Parkway is already constructed and the proposal does not generate enough traffic to warrant installation of the east half of Sheridan Parkway. It is anticipated the east half of Sheridan Parkway will need to be constructed as development is proposed adjacent to the east side of Sheridan Parkway. The applicant is responsible for improvement of the north half of the W. 160th Avenue right-of-way adjacent to their site. W. 160th Avenue is a modified rural cross section with one lane in each direction, on-street bike lanes, and detached sidewalk on the north side of the street. Parking The applicant has shown approximately 87 parking spaces. The applicant has indicated this is the forecasted parking need for each building based on benchmarking of similar facilities. The site is estimated to have 25 employees per eight-hour shift plus occasional visitors. Large portions of the internal building space will be utilized for technological equipment and space designated for offices will only occupy a small portion of the building. The North Park PUD Plan did not anticipate this type of data center use and therefore a parking ratio for a data center is not specified in the PUD plan. A variance is requested as part of a site development plan to allow for the proposed parking based on the intended use. The North Park DRC has reviewed this variance and has approved the variance request. If a variance is not granted, the site would require 197 parking spaces based on the uses of 17,000 square feet of office buildings and 243,000 square feet of warehouse. Item 4.b. - Page 8
Page 9 Architecture Although the PUD would allow up to a 100-foot tall building, the proposed building would have an overall height of approximately 22 feet. The main entry faces W. 160th Avenue and will feature glass and metal accents. The remaining building features scored concrete walls in gray with metal screens. One of the comments from the concept review was for the applicant to ensure any noise impacts are mitigated. Acoustical panels have been added to the roof mounted equipment. The use of acoustical screens and significant setbacks of over 899 feet from the nearest residential use will ensure noise is mitigated. The applicant is requesting three variances from requirements of the PUD plan design guidelines due to the scale of the building (each variance is listed below as well as the applicant s justification in italics). The North Park DRC has supported the requested variances based on the changes made to the architecture since the concept review: 1. Base Treatments - The North Park PUD requires facades to have a recognizable base consisting of three of the specified elements in the PUD. The applicant was able to incorporate two of the required elements, but was unable to incorporate a third option since other options were more appropriate for commercial application such as modular storefront on first floor, change in window pattern from first floor to upper floors, and raised planters along 20% of the foundation. 2. Top Treatments - The North Park PUD requires buildings with flat roofs to have a recognizable top consisting of two required elements. Landscaping The applicant has included a stepped parapet (changes in parapet height), but the applicant feels the building design could not incorporate a three dimensional cornice, sloping roof, or change in material at the roofline, which are the other options available to meet this requirement. The applicant is proposing perimeter landscaping and limited on-site landscaping. Trees are proposed in informal clusters along the west and north sides of the site to help provide a visual buffer to the residential area and Broomfield Community Trail. The applicant has requested a landscape variance related to tree stocking. Tree stocking is the required landscaping within 100 feet of a building or structure. The data center is a secure site with specific requirements related to visibility within and near the fenced area. The site is setback over 250 feet from roadways and the site is secure with only authorized visitors able to enter the site. For these reasons, the North Park DRC has approved the variance request. The applicant is also requesting a variance from required bufferyard planting. Bufferyard is a term used in the North Park PUD related to perimeter landscaping for a site. The bufferyard requirements address tree and shrub planting densities based on the width of a bufferyard. Lower densities of landscaping are allowed for larger bufferyards. The applicant is requesting a variance since the bufferyard requirements in the PUD anticipate bufferyards between ten to fifty feet and did not anticipate bufferyards of over 250 feet in width as proposed with this SDP. The variance requested would allow a reduction in the number of trees and shrubs within bufferyards based on the significant width of buffering (over 250 feet). Item 4.b. - Page 9
Page 10 A berm has been proposed at the corner of Sheridan Parkway and W. 160th Avenue to provide additional visual interest and screen the security fencing. Renewable Energy/Photovoltaic Field A potential renewable energy field (solar arrays) is proposed on the west side of the site occupying approximately 25 acres. The photovoltaic field is a future phase and details are not included at this time. An amendment to the SDP will be needed to finalize the solar panel placement. Solar panels would be approximately eight to ten feet in height. The solar arrays will be designed to maximize solar absorption and therefore will not be reflective. Airport Proximity An avigation easement is in place for a portion of the property and also extends west into the Anthem residential development. The proposed building is located outside the easement area. The building is similar in height to single-family residential units and will not require special review by the Federal Aviation Administration. Drainage The proposed grading shown with the site development plan is consistent with the overall master drainage plan for the North Park development which includes a stormwater detention pond adjacent to Sheridan Parkway. The stormwater pond will be contoured to add visual interest and seeded with a native seed mix utilized for other stormwater ponds within North Park. Signs Since the site is secure, the signage proposed is not significant. One monument sign is proposed at the main entrance from W. 160th Avenue. The sign is 40 square feet, five feet in height, and is simple in design but complementary to the building architecture. VI. STAFF REVIEW OF KEY ISSUES Staff has identified the following key issue with the proposal: The applicant is requesting five variances: reduce parking from 197 spaces to 87 parking spaces, remove the requirement for tree stocking (planting within 100 feet of building) due to security concerns, reduce the required planting densities within the bufferyards based on the significant site setbacks in excess of 250 feet, and vary the top and base treatment requirements for the building due to the scale of the building.. The applicant s variance requests are supported by the North Park DRC, and such support is required prior to consideration of a variance by the Planning and Zoning Commission and City Council through the public hearing process. The applicant believes these variances are justified by the scale of the buildings, placement of the building with significant setbacks from surrounding buildings, and unique nature of the use (most of the building is utilized for equipment with limited floor area reserved for employees). Many of the design requirements within the North Park PUD are geared toward multi-family, commercial, and office projects and their application to light industrial buildings is challenging. Item 4.b. - Page 10
Page 11 VII. APPLICABLE MUNICIPAL CODE PROVISIONS The Planning and Zoning Commission reviews the SDP based on the following provisions of the Broomfield Municipal Code: Site Development Plan 17-38-010 - Intent. The purpose of this chapter is as follows: (A) To provide for necessary commercial, recreational, and educational facilities conveniently located to housing; (B) To provide for well-located, clean, safe, and pleasant industrial sites involving a minimum of strain on transportation facilities; (C) To insure that the provisions of the zoning laws which direct the uniform treatment of dwelling type, bulk, density, and open space within each zoning district will not be applied to the improvement of land by other than lot-by-lot development in a manner which would distort the objectives of the zoning laws; (D) To encourage innovations in residential, commercial, and industrial development and renewal so that the growing demands of the population may be met by greater variety in type, design, and layout of buildings, and by the conservation and more efficient use of open space ancillary to said buildings; (E) To encourage a more efficient use of land and of public services, or private services in lieu thereof, and to reflect changes in the technology of land development so that resulting economics may inure to the benefit of those who need homes; (F) To lessen the burden of traffic on streets and highways; (G) To encourage the building of new neighborhoods incorporating the best features of modern design; (H) To conserve the value of the land; (I) To provide a procedure which can relate the type, design, and layout of residential, commercial, and industrial development to the particular site, thereby encouraging preservation of the site's natural characteristics; and (J) To encourage integrated planning in order to achieve the above purposes and the directives of the current master plan. (Ord. 725 1, 1987) 17-38-180 Site development plan; hearing and notice; planning and zoning commission. The planning and zoning commission shall hold a public hearing on the site development plan. Notice shall be given in accordance with the provisions of chapter 17-52. (Ord. 725 1, 1987; Ord. 1111 33, 1995; Ord. 1935 41, 2011) 17-38-190 Site development plan; recommendation; planning and zoning commission. Within thirty days of the conclusion of its public hearing, the planning and zoning commission shall adopt a resolution of approval, disapproval, or conditional approval. If the recommendation is for conditional approval, the conditions under which the site development plan would be acceptable shall be set forth. (Ord. 725 1, 1987; Ord. 1111 34, 1995; Ord. 1935 42, 2011) 17-38-220 Review standards. The recommendation of the planning and zoning commission and the decision of the city council shall be based on whether the applicant has demonstrated that the proposed site development plan meets the following standards: (A) The proposal should be consistent with the intent of this chapter as set forth in section 17-38-010 above. (B) The proposal should identify and mitigate potential negative impacts on nearby properties. (C) The proposal should identify and maximize potential positive impacts on nearby properties. (D) The proposal should include adequate facilities for pedestrians, bicyclists, and motorists. (E) The proposal should include adequate public improvements (both on and off site) to be provided in a timely fashion. (F) The proposal should optimize conservation of energy, water, and other resources on a site-specific scale. (G) The land uses within the plan should be compatible with one another and with nearby properties. (H) The proposal should provide for open area at a rate of not less than forty percent of the developable site in residential areas and twenty-five percent in other areas as provided in section 17-38-240 below. (I) The proposal should include any common areas serving the site, and adequate provisions should be made for the ownership and maintenance of such areas. (J) The proposal should justify any proposed deviations from the Broomfield Municipal Code in terms of the overall quality of the plan. (K) (L) The proposal should be consistent with the approved PUD plan. For residential-use PUD plans and site development plans, the proposal should be consistent with adopted uniform standards. (Ord. 725 1, 1987; Ord. 1098 2, 1994; Ord. 1111 36, 1995; Ord. 1364 4, 1998; Ord. 1935 54, 2011) 17-38-240 - Required. (A) In residential areas of a PUD plan, at least 40% of the developable site shall be open area. (B) In commercial and industrial areas of a PUD plan, at least 25% of the developable site shall be open area. (C) For the purpose of this section, the "developable site" does not include areas to be dedicated to the city for streets, parks, or other purposes. (Ord. 725 1, 1987; Ord. 1364 6, 1998) Item 4.b. - Page 11
PLANNING AND ZONING COMMISSION RESOLUTION NO. PZ 2017-12 A RESOLUTION RECOMMENDING APPROVAL OF THE NORTH PARK FILING NO. 4, LOT 1, BLOCK 1 (PROJECT SYCAMORE) SITE DEVELOPMENT PLAN RESOLVED BY THE PLANNING AND ZONING COMMISSION OF THE CITY AND COUNTY OF BROOMFIELD, COLORADO Section 1. The Planning and Zoning Commission finds that: 1.1 An application for North Park Filing No. 4, Lot 1, Block 1 (Project Sycamore) Site Development Plan located at the northwest corner of W. 160th Avenue and Sheridan Parkway has been submitted. 1.2 Said application was considered during a public hearing held June 12, 2017. 1.3 Proper notice was given in accordance with chapter 17-52 of the Broomfield Municipal Code. 1.4 Said application was in conformance with the applicable requirements of the Broomfield Municipal Code Section. 1.5 Said application includes certain variances from the Broomfield Municipal Code provisions. Section 2. This Resolution constitutes the written report, findings and decision of the Broomfield Planning and Zoning Commission. Section 3. Recommendation. On the basis of the above, the Broomfield Planning and Zoning Commission approves recommends approval of the application. PASSED by on June 12, 2017. Chairman Planning and Zoning Commission Secretary Planning and Zoning Commission Item 4.b. - Page 12
PLANNING AND ZONING COMMISSION RESOLUTION NO. PZ 2017-12 A RESOLUTION RECOMMENDING DENIAL OF THE NORTH PARK FILING NO. 4, LOT 1, BLOCK 1 (PROJECT SYCAMORE) SITE DEVELOPMENT PLAN RESOLVED BY THE PLANNING AND ZONING COMMISSION OF THE CITY AND COUNTY OF BROOMFIELD, COLORADO Section 1. The Planning and Zoning Commission finds that: 1.1 An application for North Park Filing No. 4, Lot 1, Block 1 (Project Sycamore) Site Development Plan located at has been submitted. 1.2 Said application was considered during a public hearing held June 12, 2017. 1.3 Proper notice was given in accordance with chapter 17-52 of the Broomfield Municipal Code. 1.4 Said application was in conformance with the applicable requirements of the Broomfield Municipal Code Section. Section 2. This Resolution constitutes the written report, findings and decision of the Broomfield Planning and Zoning Commission. Section 3. Recommendation. On the basis of the above, the Broomfield Planning and Zoning Commission recommends denial of the application. PASSED by on June 12, 2017. Chairman Planning and Zoning Commission Secretary Planning and Zoning Commission Item 4.b. - Page 13