HomeMy WebLinkAboutMemo_205 W. Main_Affordable Housing DevelopmentMEMORANDUMTO:Aspen Historic Preservation Commission FROM:Amy Simon, Planning DirectorKevin Rayes, Planner RE:205 W. Main Street | Historic Preservation Conceptual Major Development | Relocation | Certificates of Affordable Housing Credits | Growth Management Quota System | Special Review | Transportation and Parking Management PUBLIC HEARINGMEETING DATE:November 16, 2022- PUBLIC HEARING CONTINUED FROM OCTOBER 26, 2022Applicant/Owner: Conservation Housing Partners LLC, c/o Michael Brown605 W. Main Street, Suite 2, Aspen, CO 81611Representatives: Clauson Rawley Associates, Inc. (FKA Stan Clauson Associates, Inc.)Location: Street Address:205 W. Main Street Legal Description:
Lots H and I and the East fifteen (15’) feet of Lot G, Block 52, City and Townsite of Aspen, Pitkin County, Colorado Parcel Identification Number: PID# 2735-124-54-003Current Zoning & Use: Mixed Use (MU), Single Family HomeProposed Zoning & Use: Mixed Use (MU), Multi-family Affordable Housing Summary: The applicant requests Conceptual Major Development, Relocation, Certificates of Affordable Housing Credits, Growth Management Quota system, Special Review, and Transportation and Parking Management to develop nine affordable housing units on the subject property. The existing historic resource is to be moved towards the northeast corner of the site, with new development to be placed along the alley and the west side of the property. Two of the units will be located within the landmark structure, four of the units will be located within the west building, and three units are proposed in an alley structure. Staff recommends approval of the project, subject to the conditions listed in the proposed resolution.
UPDATE FROM OCTOBER 26
On October 26th, HPC reviewed the application to develop affordable housing on the subject property and voted to continue the project for restudy. HPC’s feedback was related to the massing of the new building proposed at the front of the property, adjacent to the historic resource. The applicant studied reducing a portion of the third floor of the north-facing building façade by pulling the massing away from Main Street by 14 feet, 6 inches to the benchmark gridline for which HPC provided as a reference point. The applicant also studied an alternative design for which the front façade of the building is pulled back 9 feet from the originally presented location. Staff finds that both options are successful and responsive to the feedback provided by HPC as both options meet the provisions of the Land Use Code. The details related to each option are broken down below:
Option 1: Pull Back Front Façade by 14 ft. 6 inches (Per HPCs Feedback)
Unit Size
The 2-bedroom unit previously proposed on the third floor of the new building will be reduced from 866 sq. ft. Net Livable Area to a 1-bedroom unit with a Net Livable Area of 561 sq. ft.
Floor Area Ratio
The resulting Floor Area comes to 1.01:1 or 7,586 sq. ft compared to the original proposal of 1.1:1 for a total of 7,500 sq. ft.
Option 2: Pull Back Front Façade by 9 ft. (Alternative Approach for Consideration)
Unit Size:
The 2-bedroom unit previously proposed on the third floor of the new building will be reduced from 866 sq. ft. Net Livable Area to a 1-bedroom unit with a Net Livable Area of 641 sq. ft.
Floor Area Ratio
The resulting Floor Area comes to 1.02:1 or 7,667 sq. ft compared to the original proposal of 1.1:1 for a total of 7,500 sq. ft.
REQUEST OF THE HISTORIC PRESERVATION COMMISSION:
The Applicant is requesting the following approvals from the Historic Preservation Commission:
Major Development (Section 26.415.070.D)to demolish a small non-historic addition to the Victorian, as well as three non-historic sheds, and to construct two new detached buildings which form an “L” shape along the rear and west sides of the historic resource.
Relocation (Section 26.415.090) to move the historic resource onto a new basement.
Growth Management (Section 26.470.050.B) & (Section 26.470.070.4) to develop nine affordable housing units on the property.
Special Review (Section 26.430.040.A) to allow an increase in maximum floor area.
Special Review (Section 26.430.040.I) to vary subgrade living area from the dimensional standards prescribed in the Land Use Code and APCHA development Guidelines.
Transportation & Parking Management (Section 26.515.010) to meet onsite parking and Transportation Mitigation standards and Special Review to waive cash-in-lieu for remaining parking requirements.
Certificates of Affordable Housing Credit (Section 26.540) to issue the Certificate of Affordable Housing Credit.
BACKGROUND:
205 W. Main Street is a landmarked property located within the Mixed-Use (MU) zone district and the Main Street Historic District. The property contains aVictorian-era single-family dwelling andnon-historic shed structures on a 7,500 sq. ft. lot. The dwelling was constructed circa 1890 and moved to its current location in 1949, where the Chisholm family made it their long-time home. Theoriginal design and materials of the resource are substantially intact,, including wood siding and shingles in the gables, a porch with original decorative features, and a dormer as originally constructed.Much of the outdoor vegetation appears consistent with the historic landscape from the time the cottage was relocated.
PROJECT SUMMARY:
The applicant proposes to develop nine affordable housing units on the property. These units are not required for mitigation purposes and are intended to generate Certificates of Affordable Housing Credits, which can be used to meet mitigation requirements for other projects.
The dwelling units will be housed in three different structures. Two of the units will be located within the historic resource, four of the units will be located within a proposed building located adjacent to the historic structure, and three of the units will be in a new structure located at the rear of the property. A mix of one, two and three-bedroom dwelling units are proposed.
Both new buildings are detached from the landmark structure. All improvements will comply with the setback and height standards prescribed within the Mixed-Use (MU) zone district. A total of seven off-street parking spaces are proposed at the rear of the property.
Pending approval of this application, a total of 24.3 Affordable Housing Certificates will be generated, which is consistent with the Land Use Code (Table I).STAFF COMMENTS:
Staff comments are broken down below, based on code section. Each topic is addressed in further detail in an associated exhibit to this memo.
Conceptual Major Development and Relocation:
To develop this property as multi-family housing, the applicant proposes to site the historic resource prominently at a street intersection, free-standing and exposed to view/public enjoyment on all sides, and in a traditional landscaped setting abutted with grass, planting beds and outdoor living space. Staff supports the plan to re-position the Victorian. It is not original to this site and there is not a strong historic context on this block-face. The building will have high public visibility and will be among a small group of Victorian homes preserved in Aspen with no addition.
New construction is to be placed to the rear and side of the historic home. No site plan related variations are needed for this project. Staff finds the amount of unbuilt area in the form of front and side setbacks, and the common space between the structures, to create the site porosity called for in the design guidelines. In addition, the public right-of-way on the east side of the lot is to be converted from head in parking to a lawn with grass and street trees, which will restore a historic landscape condition that has been lost for many years.
Staff does recommend some restudy, clarified in the exhibit and resolution, to ensure that the walkway approaching the resource is appropriately scaled, and that the landscape is simple and designed for functional use by residents.
Placement of parking and other infrastructure needs at the rear of the lot is appropriate. The applicant proposes demolition of some clearly not historic sheds that are currently in this area.Further information on the plan for stormwater management is being prepared by the applicant and will be presented to HPC.
Specifics of building restoration, building materials, landscape and lighting will be addressed at Final, however staff has identified one massing related restoration opportunity to be guaranteed now, which is the removal of a section of over-framed roof at the rear of the structure, to restore the original roofline.
Regarding the proposed new structure, staff finds that compatibility is achieved along the Main Street and First Street frontages, particularly where gable roofs of a similar height and proportion to the Victorian’s are placed adjacent to the resource. Additionally, the strong front porch relationship on Main and the uniform first floor plate height carried through the development achieves an appropriate scale relationship. Although there is third floor living space in the new structure, where it is closest to the historic resource it is entirely encompassed in a pitched roof with no sidewalls. Clearly the new development is larger than the resource. This is permitted by the zone district. The key is to mitigate impacts, which has been pursued by both the site plan choices and the architectural design.
Staff supports the proposed new structures as the appropriate gestures towards the historic resource have been made. Compatibility is being achieved by the new structure referencing the historic building, but not copying it, through form, materials and fenestration.
Growth Management, Special Review and Certificates of Affordable Housing Credits:
As previously mentioned, a total of nine units are proposed for development. Two of the units will be located within the landmark structure (“Bldg. A”), four of the units will be located within a newbuilding adjacent to the historic landmark (“Bldg. B”), and three units will be located within a new building located at the rear of the property (“Bldg. C”). A mix of one, two and three-bedroom dwelling units are proposed.
As represented in Tables I-III, eight of the nine units fall slightly below the minimum unit size standards required by APCHA.
Additionally, the Code discourages more than fifty percent of Net Livable Area to be located below grade. Four of the nine units exceed this threshold by a slight margin.
When minimum unit size is not met, or when more than half the livable area of a unit is located below grade,alternativeamenitiesthatcontribute towards livability may be considered. Unit size may be reduced by up to twenty percent and subgrade area may exceed fifty percent if a mix of the following amenities are provided:
Significant storage space located outside the unit:
As represented in TableIV, a total of nine external storage units are proposed. The units vary in size between approximately 11 sq. ft. to 21 sq. ft. Staff has included a condition of approval that prioritizes the larger storage areas for use by the three-bedroom dwelling units and the smaller storage areas for use by the two-bedroom dwelling units.
Number of Storage Units
Approximate
Unit Size (per unit)
3
~11 sq. ft.
2
~13 sq. ft.
2
~18 sq. ft.
2
~21 sq. ft.
Efficient, flexible layout with limited hall and staircase space:
While the floorplan of each unit is unique, staff finds that the general layout of the units provide an efficient use of space. Each bedroom has its own closet, each unit will include a washer and dryer, and the kitchen and general living area of each unit is large enough to accommodate multiple tenants.
Availability of site amenities, such as pool or proximity to park or open space:
The property includes several shared open areas as well as private open space. As depicted in Figure 4, some of the units contain outdoor decks and patios. The front yard also provides valuable common outdoor area.
The application makes representations that the space between buildings may function as an area for tenants to congregate, grill and socialize, which is something that staff supports as an on-site amenity. With that said, staff does encourage the applicant to consider the practicality of how the space between buildings might be used. For example, the area between the historic resource and the rear building will likely be shaded for much of the day. Ice buildup may cause hazardous walking conditions or render the space unusable during winter months. Ice-melt might be an appropriate option for this area.Additionally, this space is located adjacent to the windows and window-wells of several dwelling units. The noise from social gatherings may adversely impact the well-being of tenants located in adjacent units. Noise-reducing glass or other noise mitigation featureswithin this area might be worthy of consideration.
Lastly, the prime location of this property cannot be overstated. As depicted in Figure 6, 205 W. Main is located 0.2 miles (or four minutes walking) from the Commercial Core (CC). The property is located one block from Paepcke park and is adjacent to the RFTA bus line. The proximity to jobs, public transportation,recreation, and other services is perhaps the most notable contributor towards the livability of these units.
Affordable Housing Credits:
Pursuant to Land Use Code Section 26.540.050.6, a multiplier of 1.2 FTEs is applied to affordable housing units located within a historic resource. This multiplier recognizes the additional costs related to preservation efforts of designated structures. Tables V and VI breakdown the number of credits generated within the historic resource and the credits generated from the two additions.
Proposed Certificates (within new buildings)
Total
One Bedroom
1 unit x 1.75 FTEs
1.75 FTEs
Two Bedroom
3 Units X 2.25 FTEs
6.75 FTEs
Three Bedroom
3 Units x 3.00 FTEs
9 FTEs
Total Proposed
17.5 FTEs
Transportation and Parking Management –The City’s parking regulations are the result of professional parking studies, Council consideration, and public input, and they are applied objectively to all development types. Pursuant to Land Use Code Section 26.515.060.C, Transportation & Parking Management, one parking unit is required for each AH dwelling unit; in this case, nineparking units for ninedwelling units.
The Mixed-Use zone district requires sixty percent of parking mitigation to be met with off-street parking, resulting in a minimum of 5.4 on-site spaces.The remaining forty percent of parking mitigation may be met via cash-in-lieu or through a combination of cash-in-lieu and off-street parking.
The applicant proposes to provide seven onsite parking spaces, which exceeds the minimum required.1 As represented in Figure 7, the spaces are accessed from the rear alley. Additionally, each dwelling unit may receive one on-street parking pass from the Parking Department.
As previously mentioned, because this property is located within the Aspen Infill Area, basic services, jobs, and outdoor activities can be accessed by walking, biking, or using public transportation. The central location of this property offers a high level of mobility and accessibility to destinations throughout Aspen and DownValley without relying on a car.Staff finds that seven on-site spacesmeet code requirements and will provide sufficient parking for the tenants who choose to own a car.
The remaining two parking units are required to be met via cash-in-lieu. The applicant has requested a parking waiver from the Historic Preservation Commission instead of meeting the cash-in-lieu provision. Pursuant to Land Use Code Section 26.515.080, Special Review, the Historic Preservation Commission may vary or waive off-street parking requirements based on the following:
The transportation, mobility, and off-street parking needs of the residents, customers, guests and employees of the project have been met, taking into account potential uses of the parcel, the projected traffic generation of the project, any shared parking opportunities, expected schedule of parking demands, the projected impacts on the on-street parking of the neighborhood, the proximity to mass transit routes and the downtown area and any special services, such as vans, provided for residents, guests and employees.
An on-site mitigation solution meeting the requirements and guidelines is practically difficult or results in an undesirable development scenario.
Existing or planned on-site or off-site facilities adequately serve the needs of the development, including the availability of street parking.
Special Review to Waive Parking Fee-in-Lieu. On-site parking reductions are permitted for designated historic properties unable to contain the number of parking spaces required by the underlying zoning due to the existence of a historic resource. In these circumstances, alternative mitigation in the form of cash-in-lieu, pursuant to Chapter 26.515, may be accepted by HPC for commercial development. HPC may waive cash-in-lieu for residential development.
In addition to the review criteria listed in Chapter 26.515, the parking reduction and waiver of payment-in-lieu fees may be approved upon a finding by the HPC that it will enhance or mitigate an adverse impact on the historic significance or architectural character of a designated historic property, an adjoining designated property or a historic district.
Parking waivers are generally considered when an off-street parking space blocks the view or negatively impacts the integrity of a historic resource. While adequate on-site parking mitigationhas been provided, staff does not support waiving the remaining cash-in-lieu that is required. The revenue derived from this funding source helps to fund RFTA, parking enforcement, and other transportation needs. The tenants of this development will likely use and benefit from the various transportation services provided in Aspen. Full mitigation should be provided to help fund these essential services.
RESIDENTIAL DESIGN STANDARDS
The Residential Design Standards found at Section 26.410 of the Municipal Code apply only to the new structures proposed for this site. RDS review is an administrative process which does not require public notice or evaluation by HPC. The standards applicable to multi-family development are limited and staff has verified compliance.
DRC REFERRAL COMMENTS:
The application was referred out to other City departments who have requirements that will significantly affect the permit review. The applicant responded to initial feedback from these departments by revising their application to what is being presented to HPC. Following is a summary of topics that may require further study before HPC Final review or as part of the building permit process. All are expected to be resolvable.
Engineering:
A conceptual utilities plan is required to show where a transformer to support the development will be placed. A single-phase transformer with a 5x5 vault may be needed. An easement to accommodate the transformer with 3’ clear zones surrounding the sides and back of the transformer and 10’ clear in the front shall be required. Alternatively,the applicant may work with the COA Electric Department to determine available capacity in the transformer in the alley to the west.
A conceptual drainage plan and report is required to determine appropriate site mass and scale and demonstrate the site can still accommodate stormwater requirements onsite. A full conceptual drainage plan and report as outlines in the URMP will be required at HPC detailed review.
The site is not in a sidewalk deferred zone and a sidewalk will be required on First Street. The sidewalk shall be 5 ft. wide with a 5 ft. landscape buffer.
Existing head-in parking shall be removed and replaced with the COA standard street cross section with parallel parking.
Zoning:
The BBQ as depicted in plan sheet A1.02 shall not be located between a street and a structure if built in with a hard gas line. Pursuant to Land Use Code Section 26.575.020.e.5.m, there shall be a structure between the street and the BBQ.
Pursuant to Land Use Code Section 26.575.020.e.5.t, Wildlife Resistant Trash and Recycling EnclosuresWildlife-resistant trash and recycling enclosure located in Mixed-Use zone districts are not exempt from setback requirements and shall comply with zone district requirements for utility/trash/recycle areas.The minimum side yard setback is five feet. If the trash enclosure area has a roof, it shall count as Floor Area and shall meet setback standards. If it is a fenced area (max 6 ft. tall fence), it will not count as Floor Area and may be located within setback.
Pursuant to Land Use Code Section 26.575.020.d.2, Vertical Circulation, elevators count as Floor Area on every level except the topmost level that the elevator serves.
Parks:
Several healthy mature trees have a mitigation value of $38,000 (subject to change at the time of building permit). A Tree Removal Permit shall be required at the time of Building Permit.
The proposed development shall not impact the roots of the trees to remain on-site. The City Forester may require air-spading to expose roots.
The applicant shall remove crab apple trees and plant back species as directed by City Forester.
Additional trees shall be planted as determined by the City Forester at the time of building permit.
If sidewalk, curb, and gutter are to be replaced, a root barrier at edges of the curb and north side of walk may be required.
Tree protection fencing shall be required for the trees located along S. First Street.
APCHA All bedrooms shall contain a closet.All units shall contain kitchen appliances.All units shall include a washer and dryer.If the units are to remain as rental units, all units must be sold to a qualified Pitkin County employer approved by APCHA prior to purchase. An approved deed restriction provided by APCHA will need to be signed by each owner at the time of purchase and recorded. The deed restriction will require minimum occupancy (at least one person per bedroom). If the tenants are all adults, all must be working full time within Pitkin County as stipulated in the APCHA Regulations.
RECOMMENDATION
Staff supports the project, and the achievement of community goals through the preservation of a historic resource and development of affordable housing units, a by-right use within the Mixed-Used (MU) zone district, in the infill area, supported by adopted City regulations and policies. The project is within the development rights available to the site. Staff recommends the following motion:
“HPC finds this application to comply with the requirements and limitations of the Land Use Code related to Conceptual Major Development, Relocation, Growth Management, Certificates of Affordable Housing Credits, Special Review and Transportation and Parking Management as well as the dimensional requirements of the Mixed-Use (MU) zone district and hereby approves the application subject to the conditions listed in Resolution X, Series of 2022.” ATTACHMENTS:Resolution #___, Series of 2022Exhibit A.1 – HP Guidelines Criteria Exhibit A.2 – Relocation Criteria Exhibit A.3 – Growth Management Review Criteria | Staff Findings Exhibit A.4 – Certificates of Affordable Housing Credits | Staff FindingsExhibit A.5 – Special Review | Subgrade Living Area | Staff Findings Exhibit A.6 –Special Review | Floor Area | Staff Findings Exhibit A.7 – Transportation & Parking Management | Staff Findings Exhibit A.8 – Special Review | Fee-in-lieu for Parking | Staff Findings Exhibit B – DRC Referral Comments Exhibit C – Public Comments
Exhibit D.1 – November 16 Amendment to Application
Exhibit D.2 – October 26 Major Development Application