Public Hearing, Consideration and Possible Adoption of Ordinance No.  2019-09:  An ordinance of the City Council of the City of Flagstaff, amending the Flagstaff Zoning Map to rezone approximately 3.34 acres of real property located at 1831 N Jasper Drive on parcel number 101-46-012A from Research and Development ("RD") to Community Commercial ("CC") for the purposes of developing a congregate care facility. (Buron Inc. Zoning Map Amendment requests for property located at 1831 N Jasper Drive)

At the April 16, 2019 Council Meeting:
1) Hold the Public Hearing
2) Read Ordinance No. 2019-09 by title only for the first time
3) City Clerk reads Ordinance No. 2019-09 by title only (if approved above)
At the May 7, 2019 Council Meeting:
4) Read Ordinance No. 2019-09 by title only for the final time
5) City Clerk reads Ordinance No. 2019-09 by title only (if approved above)
6) Adopt Ordinance No. 2019-09

Final Ordinance will be attached prior to Final Agenda.

This staff summary addresses both the McMillan Mesa Village Specific Plan amendment and Direct to Ordinance Zoning Map amendment requested by the developer. These items will be brought before the City Council together but will require separate actions for approval.

A Direct to Ordinance Zoning Map Amendment is requested by Buron, Inc., of approximately 3.34 acres, located at 1831 North Jasper Drive, from the Research and Development (RD) zone to the Community Commercial (CC) zone; and an Amendment to the McMillan Mesa Village Specific Plan to modify the development options and standards for a portion of Development Area “E” to allow a Congregate Care facility land use within an area designated for Business Park uses. The applicant proposes to develop an 88,812 square foot three (3)-story congregate care facility on parcel APN 101-46-012A in accordance with the approved site plan (see attachments).

The Flagstaff Planning & Zoning Commission conducted two (2) public hearings, as required by section 11-10.10.020.J.3, to consider the Direct to Ordinance Zoning Map Amendment and Amendment to the McMillan Mesa Village Specific Plan on March 13, 2019, and on March 27, 2019. The first public hearing was continued. At the second public hearing, the Planning & Zoning Commission voted on two separate motions. The first motion passed by a vote of 4-1 in favor of forwarding a recommendation of approval of the Direct to Ordinance Zoning Map Amendment, subject to conditions, to the City Council. The second motion passed unanimously by a vote of 5-0  in favor of forwarding a recommendation of approval of the McMillan Mesa Village Specific Plan Amendment, subject to conditions, to the City Council. The dissenting vote on the Direct to Ordinance Zoning Map Amendment was in regards to the zoning category and not the land use.

No financial impacts are anticipated with this request.

There are no policy impacts affiliated with this Direct to Ordinance Zoning Map Amendment nor with the associated McMillan Mesa Village Specific Plan Amendment requests.

Council Goals:

• Economic Development - Grow and strengthen a more equitable and resilient economy.
• Transportation and Other Public Infrastructure - Deliver quality community assets and continue to advocate and implement a highly performing multi-modal transportation system.
• Environmental and Natural Resources -  Actively manage and protect all environmental and natural resources.

 Team Flagstaff Goals:

• Strategic Priority #2 - Invest in our people
• Strategic Priority #3 - Foster a resilient and economically prosperous city

Regional Plan Goals:

• A complete analysis of the Regional Plan goals and policies can be found in the attached applicant narrative and in the staff report to the Planning and Zoning Commission.

The parcel in question is a portion of the McMillan Mesa Village Specific Plan, adopted and approved by Ordinance No. 1779 on December 15, 1992. No other Council decisions have been made for this parcel.

The City Council may approve the ordinance as proposed, approve the ordinance with modified conditions, or deny the ordinance.

Located on the northwest corner of the intersection of Gemini Road and Jasper Drive (APN 101-46-012A), the subject parcel is vacant and situated within the McMillan Mesa Village Specific Plan boundaries. The development of McMillan Mesa included utility, infrastructure and road construction improvements as detailed in the Specific Plan and Development Agreement. The improvements required have been completed and the parcel in question is available for development.
 
The McMillan Mesa Village Specific Plan was adopted by Ordinance No. 1779 on December 15, 1992.  The McMillan Mesa Village Specific Plan establishes the type, location, intensity, and character of development, and the required infrastructure for the area.  The plan shapes development to respond to the physical constraints of the site, coordinates the mix of land use intensities, and provides adequate circulation, open space, recreation and other public uses and facilities. The plan is organized into development areas A through J, which generally corresponds to zoning districts and land use categories.  Section V of the plan, which covers development performance standards, establishes the intensity and character of the project development by prescribing development performance standards that are tailored to the unique qualities of the site.  All development within McMillan Mesa Village must comply with the Development Performance Standards and Design Guidelines of the applicable provisions of the Zoning Code with the more restrictive code governing. 
 
The site has an approximate elevation of 7,075 feet and the topography is generally flat with a gentle slope to the southwest towards the traffic circle at the intersection of Gemini Road and North Pine Cliff Drive. On February 26, 2019, the Inter-Division Staff (IDS) approved a site plan (PZ-18-00061-02), a copy of which is attached to this report, for the proposed development subject to successfully obtaining a Direct to Ordinance Zoning Map Amendment (rezoning).  Should the rezoning be denied, the Site Plan as submitted will no longer be approved.

This development proposal is unique in that it not only requires a Zoning Map Amendment but it requires an Amendment to the McMillan Mesa Village Specific Plan, which is one of two specific plans adopted by the City that include regulatory development standards. The Zoning Map Amendment changes the zoning category from Research and Development (RD) to Community Commercial (CC) and the Specific Plan Amendment changes the allowed land use type to congregate care and amends the Floor Area Ratio from 0.30 to 0.61.

The McMillan Mesa Village Specific Plan amendment, if adopted, would allow a high wage and skilled employment facility to be built within a Regional Plan Employment area. The proposed congregate care facility provides transitional land use and architectural design desired between suburban and employment area type designations. The facility takes advantage of and enhances the transit options available for the community at large and contributes to the community character physically, socially, and economically. The Specific Plan Amendment is in substantial conformance with the goals and policies of the Regional Plan.

At the time this application was submitted Development Area E was a 7.994-acre parcel. It has since been split and the subject parcel is now 3.337-acres in area. The remaining 4.657 acres exist as a separate parcel not part of this application and will retain the existing Research and Development (RD) zoning and existing Specific Plan development area requirements. Included within the application packet is a copy of the approved lot split recorded with Coconino County, Parcel 1, APN 101-46-102A (Exhibit A).
 
The proposed three (3) story building is compliant with the forty-foot (40’-0”) height restrictions of the Specific Plan for development area E. Accessed by a driveway on N Gemini Road and another on Jasper Drive, the proposed 88,812 square foot building on the 3.34-acre (145,328 square foot) parcel renders a Floor Area Ratio of 0.61 (0.61 FAR). The Community Commercial zone allows a FAR of 2.5. Yet, the McMillan Mesa Specific Plan Development Area standards for this site allow uses other than Business Park a FAR of 0.30 (0.30 FAR). The Specific Plan amendment seeks to increase the FAR to 0.61 for this specific project proposal, on this specific lot, subject to the amendment approval (See attached Planning Exhibit: “Development Area E1” and “Development Area E2”).  The separation of the original Development Area E into E1 and E2 has the effect of increasing the maximum floor area permitted for each area.  However, overall development within the Specific Plan boundaries has been decreased through other plan amendments.  Overall, there is a net decrease in density and intensity within plan boundaries. The completed and approved Site Plan review ensures that all architectural standards, pedestrian connectivity, civic space, landscaping requirements, and other components are in compliance with the Flagstaff Zoning Code and meet multiple goals and policies of the Flagstaff Regional Plan 2030. All on-site (private) infrastructure will be completed under Grading and Drainage and Building Permit applications.
 
The assisted living dwelling units include sleeping, living, eating, permanent cooking and sanitation areas. Most of these units are studio or (1) bedroom units. The unit mix and associated bed counts are clarified in the following table:
 
      ASSISTED LIVING UNIT TYPE        -        NO. UNITS        -     NO. BEDS
              Studio                                                        14                             14
              1 Bedroom                                                 40                             40
              2 Bedroom                                                   6                             12___                  
                                                                 Total:       60 UNITS                 66 ROOMS
 
Memory care residents of the facility are provided a sleeping area and bathroom which each share common dining and activity centers as well as a library/media center and secured partially covered exterior patio. Private and common dining areas, a lounge, bistro, activity center, barber, spa, salon and fitness center amenities are included for assisted living residents.
 
The Community Commercial (CC) zone permits a maximum building height of sixty feet (60’-0”) while the more restrictive McMillan Mesa Village Specific Plan limits building height for this parcel to forty feet (40'-0") maximum. The highest ridgeline of the proposal is shown at thirty-five feet (35'-0") on the architectural elevations and building sections (Sheets A5-A8). An outdoor courtyard serving private recreation, relaxation, and common areas needs for residents is sheltered within the building footprint. 
 
The applicant has elected to pursue an amendment to the Zoning Map by Direct Ordinance with a Site Plan per Section 10-20.50.040.D (pg. 20.50-5). The “Direct Ordinance with a Site Plan” process provides an applicant with a shorter Zoning Map Amendment process with fewer steps. The process requires the applicant to submit fully developed site plans with all supporting information required for Site Plan Review concurrently with the Zoning Map Amendment application. Once the Zoning Map Amendment is approved by the Council, the applicant can proceed directly to construction plans and building permit review. In compliance with the “Direct Ordinance with a Site Plan” process, the applicant has obtained Site Plan approval in conjunction with this application. This Zoning Map Amendment will be conditioned specifically to the use of Congregate Care Facility as proposed and shown on the approved site plan (PZ-18-00061-02).

None

Community benefits and considerations related to this request are addressed in more detail in the attached Planning & Zoning Commission Staff Report dated March 6, 2019.

The applicant held one neighborhood meeting regarding this proposal.  The meeting was held November 14, 2018, after the official submittal of these applications at Flagstaff NACET, 2225 N Geminin Road, and was attended by four (4) interested citizens. The questions asked related to increased traffic, project height and contextual design, site resources, proposed re-zoning, and site parking disbursement. A second neighborhood meeting was waived based on the positive reception for the project from the first meeting and based on the low attendance generated at the first neighborhood meeting. As of the writing of this report, staff has received no emails regarding this case.
 
Public hearings before the Planning and Zoning Commission and City Council are conducted in conjunction with requests for Direct to Ordinance Zoning Map Amendments and Specific Plan Amendments.  In accordance with State Statute, notice of the public hearing was provided by placing an ad in the Daily Sun, posting notices on the property, and mailing a notice to all property owners within one-thousand (1000’-0”) feet of the site excluding rights-of-way. This mailing radius exceeds the required three hundred (300’-0”) radius indicated in the Zoning Code.