PZ Recs/Staff ReportSTAFF REPORT
HEARING DATE: February 19, 2013
TO: Mayor & City Council
FROM: Sonya Wafters, Associate City Planner
208-884-5533
SUBJECT: CPAM-12-005 -Cavanaugh (aka Red Tail)
I. SUMMARY DESCRIPTION OF APPLICANT'S REQUEST
E IDIAN~
IDAHO
The applicant, W. H. Moore Co., has applied for an amendment to the comprehensive plan future land
use map (CPAM) to change the land use designation on 16.32+/- acres of land from Medium Density
Residential to Medium-High Density Residential; and 10.77+/- acres of land from Mixed Use
Neighborhood with a Neighborhood Center overlay to Medium Density Residential. See Section VIII,
Analysis, for more information.
II. SUMMARY RECOMMENDATION
Staff recommends approval of the proposed CPAM application based on the Findings of Fact and
Conclusions of Law in Exhibit B of the Staff Report.
The Meridian Planning & Zoning Commission heard these items on Januarv 17, 2013 At the
public hearing, the Commission moved to recommend approval of the subject CPAM request
a. Summary of Commission Public Hearing:
i. In favor: Jonathan Seel
ii. In opposition: None
iii. Commenting: None
iv. Written testimony: Jonathan Seel
v. Staff presenting application: Sonya Wafters
vi. Other staff commenting on application: None
b. Kev Issue(s) of Discussion by Commission:
i. None
c. Kev Commission Change(s) to Staff Recommendation•
i. None
d. Outstanding Issue(s) for City Council:
i. None
III. PROPOSED MOTION
Approval
After considering all staff, applicant and public testimony, I move to approve File Number CPAM-
12-005 as presented in the staff report for the hearing date of February 19, 2013, with the following
modifications: (Add any proposed modifications.)
Denial
After considering all staff, applicant and public testimony, I move to deny File Number CPAM-12-
005, as presented during the hearing on February 19, 2013, for the following reasons: (You should
state specific reasons for denial.)
Cavanaugh CPAM-12-005 PAGE 1
Continuance
I move to continue File Number CPAM-12-005 to the hearing date of (insert continued hearing date
here) for the following reason(s): (You should state specific reason(s) for continuance.)
IV. APPLICATION AND PROPERTY FACTS
A. Site Address/Location:
The subject property is located on the southeast corner of S. Meridian Road (State Highway 69)
and E. Victory Road, in the northwest''/a of Section 30, Township 3 North, Range 1 East.
B. Applicant:
W. H. Moore Company
1940 Bonito Way, Ste. 160
Meridian, Idaho 83642
C. Owner:
Red Tail Communities, LLC
1940 Bonito Way, Ste. 160
Meridian, ID 83642
D. Representative:
Jonathan Seel, W. H. Moore Company
1940 Bonito Way, Ste. 160
Meridian, ID 83642
E. Applicant's Statement/Justification: Please see applicant's narrative for this information.
V. PROCESS FACTS
A. The subject application is for a comprehensive plan map amendment request. A public hearing is
required before the Planning & Zoning Commission and City Council on this matter, consistent
with Meridian City Code Title 11, Chapter 5.
B. Newspaper notifications published on: December 31, 2012 and January 14, 2013 (Commission);
January 28, and February 11, 2013 (City Council)
C. Radius notices mailed to properties within 300 feet on: December 20, 2012 (Commission);
January 24, 2013 (City Council)
D. Applicant posted notice on site by: January 7, 2013 (Commission); February 8, 2013 (City
Council)
VI. LAND USE
A. Existing Land Use(s): This site is currently vacant/undeveloped.
B. Character of Surrounding Area and Adjacent Land Use and Zoning:
North: Victory Road, Fuel facility/convenience store, landscape nursery, zoned C-G; and
residential properties, zoned R-4
South: Undeveloped property, zoned R-8
East: Undeveloped property, zoned R-8 and TN-R
West: Meridian Road (SH 69) and rural residential properties, zoned RUT in Ada County
Cavanaugh CPAM-12-005 PAGE 2
C. History of Previous Actions:
In 2006, this site received annexation and zoning (AZ-06-015) approval with R-8 and C-N
zoning with the Tanana Valley project. A development agreement was required as a provision
of annexation and recorded as Instrument # 106151214.
A preliminary plat (PP-06-013) for Tanana Valley Subdivision was approved for 105 single-
family residential building lots and 1 commercial building lot on the subject portion of the
Tanana Valley property.
• In 2008, the subject property was rezoned (RZ-07-014) from R-8 to C-N (13.59 acres) and TN-
C (16.49 acres).
A new preliminary plat (PP-07-015) for Cavanaugh Subdivision was approved that included the
subject property. Lots on this site consisted of common area for landscaping and parking, and
building lots for a neighborhood market, condominium units, apartments, vertically integrated
residential lofts above retail, and commercial.
A development agreement modification (MI-07-011) (Instrument # 108065958) was also
approved to address the new neighborhood center plan on this site.
• An 18-month time extension (TE-08-022) on the preliminary plat to obtain the City Engineer's
signature on the final plat for the first phase of development was approved by the Director on
October 15, 2008.
• Another 18-month time extension (TE-10-005) on the preliminary plat to obtain the City
Engineer's signature on the final plat for the first phase of development was approved by City
Council on March 23, 2010.
• A two-year time extension (TEC-11-005) on the preliminary plat to obtain the City Engineer's
signature on the final plat for the first phase of development was approved by City Council on
September 27, 2010 and will expire on August 22, 2013 unless the plat is signed or another
time extension is approved.
D. Utilities:
a) Location of sewer: Sanitary sewer to serve the subject site exists directly adjacent in E.
Victory Road.
b) Location of water: Domestic water to serve the subject site exists directly adjacent in E.
Victory Road.
c) Issues or concerns: The subject site is obligated to pay $1,465.56 per acre to proportionally
offset costs incurred by the City of Meridian for the Victory Road Gap Sewer Project. Said
payment must be received prior to obtaining the City Engineer's signature on any final plat.
E. Physical Features:
1. Canals/Ditches Irrigation: The Ridenbaugh Canal runs along the southern boundary of this
site and the Kennedy canal runs north/south on the east portion of the site.
2. Hazards: NA
3. Flood Plain: This property does not lie within the floodplain or flood way.
Cavanaugh CPAM-12-005 PAGE 3
VII. COMPREHENSIVE PLAN ANALYSIS
CITY OF MERIDIAN COMPREHENSIVE PLAN POLICIES AND GOALS:
EXISTING:
The Future Land Use Map (FLUM) contained in the Comprehensive Plan currently designates the
western 21+/- acres of site as Medium Density Residential (MDR) and the eastern 11+/- acres as
Mixed Use -Neighborhood (MU-N) with a Neighborhood Center (N.C.) Overlay. See Exhibit A.2.
The MDR designation allows smaller lots for residential purposes within City limits. Uses typically
include single-family homes at densities of 3 to 8 dwelling units per acre (pg. 20).
The purpose of the MU-N designation is to assign areas where neighborhood-serving uses and
dwellings are seamlessly integrated into the urban fabric. The intent is to avoid predominantly single-
use developments by incorporating a variety of uses. Land uses in these areas should be primarily
residential with supporting non-residential services. Non-residential uses in these areas tend to be
smaller scale and provide a good or service that people typically do not travel far for and need
regularly. Employment opportunities for those living in the neighborhood are encouraged.
Connectivity and access between the non-residential and residential land uses is critical in MU-N
areas. Tree-lined, narrow streets are encouraged. Developments are also encouraged to be designed
according to the conceptual MU-N plan depicted in Figure 3-1 of the Comprehensive Plan (see pgs.
24-27).
PROPOSED:
The applicant proposes to change the FLUM designation on the western 16.32+/- acres of the site
from MDR to Medium High Density Residential (MHDR). The designation on the eastern 10.77+/-
acres is proposed to change from MU-N with a N.C. overlay to MDR making the total area of the
MDR designated area16.55+/- acres (a portion of the site is already designated MDR and will stay as
such). See ExhibitA.2.
The MHDR designation allows for the development of a mix of relatively dense residential housing
types including townhomes, condominiums and apartments. Residential gross densities should range
from 8 to 15 dwelling units per acre, with a target density of 12 units per acre. These are relatively
compact areas within the context of larger neighborhoods and are typically located around or near
mixed use commercial or employment areas to provide convenient access to services and jobs for
residents. Developments need to incorporate high quality architectural design and materials and
thoughtful site design to ensure quality of place and should also incorporate connectivity with
adjacent uses and area pathways, attractive landscaping and individual project identity (pgs. 20-21).
The MDR designation allows smaller lots for residential purposes within City limits. Uses may
include single-family homes at densities of 3 to 8 dwelling units per acre (pg. 20).
The applicant's narrative states that the western portion of the site is planned to develop with a 200-
220 unit apartment complex resulting in a maximum gross density of 17 dwelling units per acre with
a clubhouse and supporting amenities (see Exhibit A.4). The maximum density may be slightly above
the top of the density range anticipated in MHDR designated areas of 15 units per acre; however, the
Comprehensive Plan does note that a "step" up in density may be considered in residential areas (pg.
21). Staff is of the opinion the maximum density proposed by the applicant may be acceptable for this
site, and is consistent with the comprehensive plan, but the step up in density will depend on the site
plan layout and design of the multi-family development in the future.
The eastern portion of the site is proposed to develop with single-family homes at a gross density
under 4 dwelling units per acre consistent with the proposed MDR designation.
Cavanaugh CPAM-12-005 PAGE 4
Staff finds the following Comprehensive Plan policies to be applicable to this property and apply to
the proposed use (staff analysis in italics):
• "Require landscape street buffers for new development along all entryway corridors." (2.01.02E,
pg. 13)
Upon development of the property, a 35 foot wide landscape buffer will be required along S.
Meridian Road, an entryway corridor in accord with the standards listed in UDC 11-3B-7C
Landscape Buffers along Streets.
• "Use the Comprehensive Plan, the Unified Development Code, and the Design Manual to
discourage strip development, and encourage clustered, landscaped business or residential
development on entryway corridors." (2.01.02D, pg. 13)
Future development of this site adjacent to Meridian Road, an entryway corridor, will be
required to comply with UDC landscape and design standards and design guidelines in the
Design Manual in accord with the Comprehensive Plan.
• "Provide for a wide diversity of housing types (single-family, modular, mobile homes and multi-
family arrangements) and choices between ownership and rental dwelling units for all income
groups in a variety of locations suitable for residential development." (3.07.03B, pg. 56)
The future development of single family and multi family residential uses on this site will provide
ownership and rental options for individuals with varying income levels.
• "Locate high-density development, where possible, near open space corridors or other permanent
major open space and park facilities, Old Town, and near major access thoroughfares." (3.07.02L,
pg. 55)
An apartment complex is proposed on the corner of S. Meridian Road, an entryway corridor, and
E Victory Road, an arterial street. The Ridenbaugh Canal runs along the southern boundary of
the site which will be developed as an open space corridor and will contain a section of the City's
multi-use pathway system.
In summary, Staff supports the proposed changes to the FLUM as they are appropriate for this site
and provides a logical juxtaposition of uses in this area.
STATE REQUIRED COMPREHENSIVE PLAN ANALYSIS
Idaho's counties and cities are required by law, Idaho Code 67-6508, to prepare, implement, review,
and update a comprehensive plan which outlines goals and policies for land use. Fourteen elements
which must be addressed in the plan are listed in the Code. It is the detailed ordinances that then spell
out how these policies are to be achieved.
The order in which the following policies are presented implies no order or priority.
a. Community Design
The purpose of this element is to ensure a pattern of planned growth resulting in orderly and
attractive developments within the City of Meridian. The intended use of this property is single-
family and multi-family residential although no specific development is proposed with this
application. To promote quality design, future multi-family development will be required to
comply with the City's design standards contained in the UDC and the guidelines contained in the
Meridian Design Manual.
Cavanaugh CPAM-12-005 PAGE 5
b. Population
The City of Meridian must ensure that population growth is accommodated in an orderly pattern.
Residential and commercial developments must be easily served by City infrastructure and public
services. Necessary services are currently available to the subject site and should still be available
upon development of the site.
c. Housing
The City of Meridian is charged with ensuring an adequate and attractive living environment
which meets the needs of City residents of different ages, family sizes, lifestyles, and income
levels. To accomplish this, the plan identifies areas appropriate for residential development and
areas not appropriate. The majority of this site is already designated for residential uses and the
applicant proposes to change the land use designation on the remainder of the site to also
accommodate residential uses. The planned single-family and multi-family residential use of the
site will provide for a variety of housing options.
d. Economic Development
Meridian's economic base has been gradually shifting over the last 20 years from afarming-based
economy to a retail, service, and manufacturing-based economy. During this time, local policy
with regard to the types of lands needed to support the economic and employment needs of the
community has also changed. The Comprehensive Plan forecasts the need to continually adjust
the provision of commercial lands in order to gradually broaden economic opportunity throughout
the City.
The subject property is currently identified as appropriate for medium density residential uses as
well as mixed use neighborhood serving commercial uses. Because the site is located on the
corner of a state highway and an arterial street and access is limited by the UDC and ACHD,
Staff is of the opinion residential uses may be more appropriate than commercial uses on this site.
e. Public Services, Facilities, and Utilities
City water and sewer service is available to the subject property. Because this property is already
within the City limits, public services such as police and fire protection are currently provided to
this property.
f. School Facilities and Student Transportation
The purpose of this element is to direct new residential development to areas with adequate
school facilities and student transportation. No comments have been received from the Meridian
School District to determine if the school facilities and student transportation in this area are
adequate to serve additional residents. According to the school districts' boundary map, Mary
McPherson elementary, Lake Hazel middle, and Mountain View high schools will serve
development on this site.
g. Transportation
The purpose of this element is to promote an efficient and safe transportation system within the
City. Because the existing plan for the site is medium density residential and mixed use
neighborhood commercial, Staff is of the opinion the proposed FLUM amendment to medium
and medium-high density residential would not negatively impact transportation within this area
of the City as it would most likely generate less traffic than commercial uses and create less
congestion at the intersection of Meridian and Victory Roads.
Cavanaugh CPAM-12-005 PAGE 6
h. Natural Resources
The purpose of this element is to promote conservation of areas of natural significance, where
appropriate. Staff is not aware of any natural resources that exist on this site that would be
impacted by the proposed development.
i. Special Areas
The subject amendment does not directly impact any lands designated for open space, natural
resources, or scenic areas, nor does the parcel contain any known significant or sensitive natural
resources.
j. Hazardous Areas
The purpose of this element is to ensure regulation of development in hazardous areas, such as
floodplains, unstable slopes, etc. Staff is unaware of any hazardous areas on this site.
k. Recreation
Recreation resources within Meridian include 18 developed City parks totaling approximately
240 acres. The City is in the process of developing new park facilities. The City also maintains
several pathways. This site is not formally designated for recreational purposes.
1. Land Use
The Comprehensive Plan Future Land Use Map is a graphic representation of applicable policies
and goals of Meridian's Comprehensive Plan. The Map has been prepared to identify suitable
areas for future residential, commercial, and industrial development. The Map is designed to be a
projection of growth patterns for the City. Therefore, the Map is to be used as a guide for
decisions regarding request for land use changes.
Staff is of the opinion the proposed single-family and multi-family residential use of the site is
consistent with the existing medium density residential and proposed future land use designations
of medium and medium-high density residential.
m. Implementation
The City provides the necessary staff and facilities to administer and enforce the policies and
goals of the Comprehensive Plan. The City of Meridian Planning Department will administer the
Comprehensive Plan and its policies through the Unified Development Code. The Planning &
Zoning Commission is also authorized by the Council to review, approve and make
recommendations on proposals affecting the public's interest in land use. The City Council is the
ultimate decision making authority on most land use applications.
n. Property Rights
The purpose of this element is to ensure that the land use policies, restrictions, conditions, and
fees do not unconstitutionally violate private property rights, and establish a consistent review
process that enable the City to ensure that any proposed actions will not result in an
unconstitutional taking of private property without due process of law. Staff believes that the
requested Comprehensive Plan Land Use Map change would not unconstitutionally violate
private property rights. A neighborhood meeting was held on December 3, 2012 of which three
people attended (see sign-up sheet included in application).
Cavanaugh CPAM-12-005 PAGE 7
VIII. ANALYSIS
A. Analysis of Facts Leading to Staff Recommendation:
COMPREHENSIVE PLAN MAP AMENDMENT (CPAM): The applicant proposes to amend the future
land use map (FLUM) contained in the Comprehensive Plan to change the land use designation
on 10.77+/- acres of land from Mixed Use Neighborhood (MU-N) with a Neighborhood Center
(N.C.) overlay to Medium Density Residential (MDR); and 16.32+/- acres from Medium Density
Residential (MDR) to Medium High Density Residential (see Exhibit A.2).
The applicant plans to develop the western portion of the site with amulti-family complex
consisting of 200 to 220 dwelling units. A clubhouse and supporting amenities are also planned.
Upon submittal of development application(s), the applicant plans to request consideration of a
"step" up in density in the proposed MDHR designated area to a maximum of 17 units per acre as
noted in the Comprehensive Plan (pg. 21).
The applicant plans to develop the eastern portion of the site with single-family detached homes
with a density under 4 dwelling units per acre consistent with the proposed MDR land use
designation.
Because this site lies on the corner of a state highway (SH 69/Meridian Road) and an arterial
street (Victory Road), access to the site is restricted. The Idaho Transportation Department (ITD)
and UDC 11-3H-4B prohibits access to SH 69/Meridian Road; UDC 11-3A-3 limits access to
arterial and collector streets; and Ada County Highway District (ACRD) limits access to Victory
Road. For these and other market-related reasons, residential designations for this site on the
Future Land Use Map seem to be more appropriate.
Please see the analysis included above in Section VII and the Findings in Exhibit B below for
more information.
Staff recommends approval of the subject CPAM application.
IX. EXHIBITS
A. Drawings
1. Vicinity Map
2. Applicant's Proposed Changes to FLUM
3. Existing & Applicant Proposed Future Land Use Map Designations
4. Conceptual Site Plan
B. Required Findings from Unified Development Code
Cavanaugh CPAM-12-005 PAGE 8
Exhibit A1: Vicinity Map
Cavanaugh CPAM-12-005 PAGE 9
Exhibit A.2: Applicant's Proposed Changes to FLUM
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Cavanaugh CPAM-12-005 PAGE
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Cavanaugh CPAM-12-005 PAGE 12
B. Required Findings from Unified Development Code
1. COMPREHENSIVE PLAN AMENDMENT FINDINGS
Upon recommendation from the Commission, the Council shall make a full investigation and
shall, at the public hearing, review the application. In order to grant an amendment to the
Comprehensive Plan, the Council shall make the following findings:
a. The proposed amendment is consistent with the other elements of the Comprehensive Plan.
The Commission finds that the proposed changes to the Future Land Use Map are consistent
with elements of the Comprehensive Plan as detailed in Section VII above.
b. The proposed amendment provides an improved guide to future growth and development of
the city.
The Commission finds that the proposal to modify the Future Land Use Map to allow for
single-family and multi-family residential uses on this site will be compatible with future
adjacent residential uses.
c. The proposed amendment is internally consistent with the Goals, Objectives and Policies of
the Comprehensive Plan.
The Commission finds that the proposed amendment is internally consistent with the Goals,
Objectives, and Policies of the Comprehensive Plan (see Section VII for detailed analysis).
d. The proposed amendment is consistent with the Unified Development Code.
The Commission finds that the proposed amendment is consistent with the Unified
Development Code. A rezone application will need to be submitted by the applicant
consistent with the anticipated land uses and the amended FLUM.
e. The amendment will be compatible with existing and planned surrounding land uses.
The Commission finds the proposed amendment will be compatible with future single-
family residential uses and uses allowed in the TN-R zoning district surrounding the site to
the east and south.
f. The proposed amendment will not burden existing and planned service capabilities.
The Commission finds that the proposed amendment would not burden existing and planned
service capabilities in this area of the city. Sewer and water services are available to be
extended to this site.
g. The proposed map amendment (as applicable) provides a logical juxtaposition of uses that
allows sufficient area to mitigate any anticipated impact associated with the development of
the area.
The Commission finds the planned single-family and multi-family residential development
of this property is consistent with the proposed map amendment, will not significantly
impact development in this area and provides a logical juxtaposition of uses.
h. The proposed amendment is in the best interest of the City of Meridian.
For the reasons stated in Sections VII and VIII and the subject findings above, the
Commission finds that the proposed amendment is in the best interest of the City.
Cavanaugh CPAM-12-005 PAGE 13