updated east plan land use recommendations - denver · 2019-11-16 · draft recommendations: land...

EAST AREA PLANDRAFT RECOMMENDATIONS: LAND USE AND BUILT FORMOCTOBER 2019

East Area Plan | Land Use and Built Form DRAFT OCT 2019

1

In 2040, the East area is home to a multi-cultural yet

cohesive community living together in high quality,

well-preserved neighborhoods. Pedestrian friendly

streetscapes, open spaces, and charming neighborhood

commercial destinations help neighbors meet and

get to know each other, resulting in a close-knit, small

town feel. Colfax Avenue has retained its unique, gritty

character while evolving into a community destination

and a gateway that celebrates the recent arrivals who’ve

come to call the East Area home. Renovated shopfront

buildings, adaptively-reused motels, and distinctive neon

signs intermingle with new mixed-income and mixed-

use, multi-story buildings along the iconic street. New

WHAT’S THE COMMUNITY’S VISION FOR LAND USE AND BUILT FORM IN EAST? development on Colfax Avenue and Colorado Boulevard,

along with some smaller infill of housing such as duplexes

and backyard cottages within residential areas, has

been thoughtfully designed to be compatible with the

historic character of surrounding neighborhoods and

the additional units have helped ease the severe housing

shortage of decades past. As a result, each neighborhood

has a diverse mix of residents, including many seniors

who have been able to “age in place” by downsizing

to smaller, more affordable homes without leaving the

families, friends, and neighborhoods they cherish. The

easy access to high capacity transit, along with essentials

such as groceries, childcare, housewares, and pharmacies,

has reduced car traffic and maintained the quiet,

residential feel of residential areas. Colfax Avenue is the

community’s vibrant main street, even in the evenings

when its lively storefronts and wide, well-lit sidewalks are

filled with families pushing strollers and seniors chatting

on the numerous patios and benches. Blocks along Colfax

that used to feel unsafe at night are now bustling with

teenagers and young adults who love hanging out in the

small plazas where there are always things to do, from

multi-cultural markets, food trucks, games, art installations

and concerts, to quieter areas where students use the free

high-speed internet to study.


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LAND USE AND BUILT FORM CONCEPTSEast Area Plan | Land Use and Built Form DRAFT OCT 2019

3


LAND USE AND BUILT FORM CONCEPTS

Area of Historic Interest

An Area of Historic Interest is a defined area that has been

identified through the neighborhood planning process

as needing additional surveying. These areas include

unique characteristics that may be worthy of some level

of historic preservation. (Photo: Denver Squares, South Park Hill, photo credit: Dick Farley). See Policy L7.

Active Ground Floor Use Area

An Active Ground Floor Use Area is a location where

uses that enliven and animate the sidewalk are

required on the ground floor. These include existing

pedestrian-friendly neighborhood destinations, such

as former streetcar stations, or areas directly adjacent

to a current or planned high capacity transit stations.

Activity may be in the form of ground floor retail

uses with windows and patio seating along the

sidewalk, a small plaza that offers areas for people to

sit, play or gather, or other form of activation that has

a positive contribution to the surrounding street and

sidewalk area. (Photo: Kearney and 22nd, South Park Hill) See Policy L6.

Commercial Character Building Preservation

Commercial Character Building Preservation is a concept to preserve

buildings that are not currently historically protected, but are desired

to be preserved or adaptively reused because they help contribute

to the character of a mixed use area. These properties may or may

not be eligible for landmark designation. They will be preliminarily

identified in the plan, but additional surveying should be completed.

See Policy L8.

Enhanced Design Quality Area

An area where additional standards are recommended in

order to better align new construction with community goals.

Requirements can include guidelines for bulk, massing, building

materials, signage, streetscape, open space, landscaping, improved

transitions between commercial and residential, or other elements

specific to the vision for an area. See Policy L6.

Area of Historic Significance

An Area of Historic Significance is a defined area that has been

identified through previous historic surveys. This area , upon

further study, may be eligible for landmark preservation or other

preservation tools. See Policy L7.

Historic Landmark/District

A Historic Landmark is an individual building or

property whereas a Historic District is a group of

buildings identified by a boundary. Both offer an

additional layer of protection intended to preserve

their history and character. This includes design

review. These include buildings and districts that are

on the national register as well as locally designated.

(Photo: Home in Montclair Historic District, Montclair) See Policy L7.

Character Home Preservation

Character Home Preservation discourages demolition of existing

houses by allowing additions to existing structures by modifying

certain code requirements, such as modified bulk plane and

building coverage, that otherwise may be preventing additions.

Additional guidelines for demolition, such as a recycling or

reusing building materials is also considered. This concept is

one tool that can be used to preserve traditional neighborhood

character in addition to others recommended. See Policy L4.


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BLUEPRINT DENVER FUTURE PLACES

Note: Future place map and descriptions will be updated based on housing options recommendations currently under discussion (see workshop and online survey)


5

Note: Future place map and descriptions will be updated based on housing options recommendations currently under discussion (see workshop and online survey)

See Blueprint Denver for full place descriptions

Areas where the predominant use is residential. Although they are primarily residential, these areas are supported by a variety of embedded uses needed for a complete neighborhood including schools, libraries, recreation and nodes of commercial/retail uses.

Centers, Corridors and Districts

High and High-Medium Residential Low-Medium Residential

These serve as community destinations and job centers, providing a mix of uses.

These places are predominantly multi-unit buildings, and most are located close to Centers, Corridors and Districts.

Low Residential

These places increase housing options within neighborhoods and serve as transitions to the lower-scale residential places.

These places are predominantly one- and two-unit with ADUs.

9th & Colorado

Colorado & Colfax

Mayfair Town Center

Colfax Avenue

Colorado Blvd. (parts)

Johnson & Wales

Rose Medical Center

COMMUNITY CENTER COMMUNITY CORRIDOR CAMPUS DISTRICTS LOCAL CENTER LOCAL CORRIDOR

Neighborhood Nodes

HIGH LOW-MEDIUM (MULTI-UNIT) LOW-MEDIUM (ROW HOUSE)

Two Unit Residential Single Unit Residential

Community Centers provide a balance of residential, employment and dining/shopping uses. Buildings provide a high degree of ground floor activation and front onto either streets or shared public space.

Community Corridors also provide a balance of residential, employment and dining/shopping uses. Buildings have a distinctly linear orientation fronting the primary street (Colfax and Colorado Blvd.) The most activity and shared public space occurs directly adjacent to transit stops.

Campus Districts include education and medical campuses. They are typically dominated by a single, larger institutional use and provide important jobs to the surrounding community. Supporting retail and residential uses may occur within them. Buildings vary greatly in size and scale, depending on the use.

Local Centers and Corridors provide walkable options for dining, amenities, and entertainment. They may also include some residential and office uses or small, shared open space. They are quieter places, nestled within residential neighborhoods. The scale is intimate with a focus on the pedestrian. The public realm is typically defined by buildings with active frontages.

High Residential provides the highest intensity of residential uses. They may or may not include retail uses, but design treatment and activation of the ground floor along major corridors is important.

HIGH-MEDIUM

High-Medium Residential is predominantly characterized by multi-unit residential structures but also includes a variety of lower-scale residential types. Retail uses may be present on street corners close to centers and corridors.

Low-Medium Residential (Multi-Unit) includes a mix of residential building forms, including low-scale apartment buildings. These often include small courtyard buildings or “walk-up” apartments (accessed via stairs instead of elevators) and are usually surface parked. They may be mixed in with single and two unit houses as well. They provide a transition from single and two unit areas to centers and corridors of higher intensity. They are often located near transit.

Low-Medium Residential (Row House) includes a mix of residential building forms, including row homes. They are 2-3 stories and designed to seamlessly fit in with single and two-unit homes. They sometimes include a private or shared garage for parking cars. They provide a transition from centers and corridors to single and two unit places.

Two Unit Residential includes a mix of single- and two-unit homes, including the duplex form or detached in a tandem house form. They often look and feel like a single unit home. Some forms have two entrances that face the street and some have one prominent entrance and one more discreet entrance from a side street or alley.

Single Unit Residential includes more traditional houses that are setback from the street with front and rear yards and occasionally side yards. They usually include a prominent front entrance with a porch or stoop. They often have pitched roofs although some low-sloping roofs exist as well.

Residential Areas

6


COMMUNITY FEEDBACK

In terms of land use, community members

expressed the desire for a more diverse mix of

land uses – particularly adding businesses that

serve the neighborhood residents and adding

more housing choices.

When asked where redevelopment should occur,

there was strong agreement that Colfax Avenue

around BRT stations was most appropriate.

“The top amenities for me in the East

Area are...”

“What ‘other’ types of housing would

you like to see in the East Area?”

Grocery Shopping

Dining

Other Retail & Entertainment

72%

65%

25%

Accessory Dwelling Units

Live + Work

Duplex

41

33

24

Percentage of times selected as a “top 3” amenity in

online survey

Number of votes by neighborhood

workshop attendees

RECOMMENDATIONS

L1

Ensure compatible development on institutional

sites within neighborhoods.

Institutional uses, such as schools and places of worship,

are typically embedded within residential areas and provide

key services to surrounding residents. When these uses leave

a neighborhood, it can leave a vacant site that has the

potential to provide additional neighborhood services and

more diverse housing options without displacing existing

residents. In addition, new development on existing large

campuses should be designed to compliment the surrounding

neighborhood.

A. In the East area, small vacant institutional

sites should be preserved and reused.

1. Appropriate uses include low-medium

residential and low impact neighborhood-

serving uses, such as childcare, community

meeting space, and non-profit offices.

2. Design standards should ensure

neighborhood compatibility

B. When new development occurs on larger

campuses, including the former VA Hospital,

Rose Medical Center, National Jewish, and

Johnson and Wales University, new public

open space, pedestrian connections, and

pedestrian-friendly building frontages should

be encouraged (See Economy Section for

additional detail.)

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L2

Encourage shared use and activation of

institutional and quasi-public buildings and open

space during off-peak times.

Some neighborhoods in the East area lack smaller,

neighborhood-scaled open space and community facilities.

Allowing shared use of facilities like churches and schools

during off-peak hours could provide these community benefits

in locations where dedicated facilities would be difficult to

provide.

A. Encourage shared use of space on

institutional sites by creating shared use

agreements. Some examples could include:

1. Using playgrounds, gymnasiums, and sports

facilities for public use during non-school

hours. (See Quality of Life recommendations)

2. Using church parking to accommodate nearby

parking needs for adjacent uses.

3. Using school parking lots for neighborhood

events, mobile community gardens or farmer’s

markets. (see Mobility recommendations)

4. Using dedicated areas on school grounds for

community gardens.

5. Encouraging shared use of rooms within these

types of buildings for community uses, such

as book clubs, arts and crafts, presentations,

and adult learning (see Economy

recommendations).

FUTURE PLACESCOMMUNITY FEEDBACK

Community members expressed the desire for

a more diverse mix of land uses – particularly

adding businesses that serve the neighborhood

residents and adding more housing choices.

When asked where growth should be focused,,

there was strong agreement that Colfax Avenue

around transit stops was most appropriate.

“The top amenities for me in the East

Area are...”

“What ‘other’ types of housing would

you like to see in the East Area?”

Grocery Shopping

Dining

Other Retail & Entertainment

72%

65%

25%

Accessory Dwelling Units

Live + Work

Duplex

41

33

24

Percentage of times selected as a “top 3” amenity in

online survey

Number of votes by neighborhood

workshop attendees


7

COMMUNITY BENEFITS

“Community benefit” is a term used throughout the draft

recommendations. It is most often associated with Land Use Policy L3

which seeks to attain certain valuable community needs when new

development occurs. Some examples of “community benefits” for this

purpose are listed below:

1. Affordable Housing – Comprehensive Plan 2040, Blueprint

Denver, and Housing an Inclusive Denver all identify affordable

housing as a vital need throughout out the city. As described

in the draft Economy and Housing recommendations, the East

area is in need of 1,400 affordable units for the lowest income

residents. Without additional affordable housing, the East area

cannot be a complete and inclusive neighborhood.

2. Saving a Character Building – “character buildings” are those

that add significant value to a neighborhood or corridor. They

may or may not be eligible for historic designation, but they are

desired to remain in the community because they contribute

to the character and history of an area. They also often times

are providing affordable commercial or residential space

because they are older.

3. Affordable Commercial Space or Community Serving Use

– new buildings are often more expensive to rent, especially

due to current high costs of development. According to

community feedback, offering subsidies or smaller spaces

to community-based non-profits, local artists, and existing

local tenants that might otherwise be displaced or other

community-serving commercial enterprises is desired. Adding

community-serving uses, such as grocery stores, childcare,

senior care, social services – to name a few – is also desired.

4. Publicly Accessible Open Space – incorporating publicly

accessible open space, such as small pocket parks, courtyards,

passages or plazas – beyond what is required by code – helps

achieve plan goals for increasing tree canopy, stormwater

management, and improving access to parks and open space.

These elements can also add value to the development.

L3

Encourage the greatest intensity of uses and heights at key intersections along

Colfax Avenue, and within the Mayfair Town Center and the 9th and Colorado

area, with a focus on achieving community benefits.

The vision for the East area includes pedestrian-friendly neighborhoods with a variety of housing

opportunities and vibrant activity near major transit stops. More intense development near

transit is consistent with the goals of this plan to direct growth towards community corridors

and centers. Requiring community benefits ensures new development contributes positively to

the area. Transportation demand management strategies should also be integrated into new

development.

POLICY UNDER DISCUSSION

(SEE WORKSHOP AND ONLINE SURVEY)

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RECOMMENDATIONSBUILDING HEIGHTS


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RECOMMENDATIONS

L4

Encourage renovations or additions instead of demolition in residential neighborhoods.

Renovations and additions help preserve neighborhood character by keeping most of the building intact and

retaining character-defining features such as brick facades, raised front porches, and other period architectural

features. Avoiding demolition can also help preserve mature trees and landscaping and results in less waste.

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A. Update regulations in residential zone districts to

remove barriers to additions and renovations.

1. The following should be considered:

a. Ensure regulations preserve the existing house

in exchange for greater flexibility.

b. Allow penetrations to the bulk plane standard

for dormers and cross gables.

c. Reduce the required separation between the

garage and the main house to enable rear

additions.

d. Reduce rear building setbacks to enable rear

additions

e. Allow building coverage exemptions for the full

footprint of a detached accessory dwelling unit.

f. Encourage energy efficient upgrades such as:

better insulation techniques (higher R-Values),

energy-efficient windows and appliances, and

higher-performing HVAC systems.

g. Encourage green stormwater management

techniques, such as green roofs, increasing

pervious surfaces, bioswales, and rain barrels.

B. Discourage demolition of homes of a certain age

or construction through tools such as requiring

deconstruction and recycling of materials during

demolition.

ZONING AND REGULATIONS

COMMUNITY FEEDBACK

Neighborhood workshops included an exercise

that asked which elements of new construction

in low residential areas were most important to

address. The top four priorities were:

Another correlating concern to new

development is that naturally affordable places

are being lost through redevelopment. Many

single-unit homes are occupied by renters,

leaving tenants at risk for displacement. Newer,

larger homes are also typically more expensive

to purchase. This plan includes several strategies

to address housing affordability (see Housing).

Design-oriented solutions to address affordability

also under discussion (see workshop and survey).

1 MASS & SCALE

HEIGHT

MATERIALS

SIDE SETBACKS

2

3

4


9

RECOMMENDATIONS

L5

Work with neighborhoods to modify zoning standards for new construction to be more consistent with neighborhood character in low residential areas

New construction in low residential areas is sometimes out of context and detracts from neighborhood character due to the mass and scale

of new buildings in contrast to older buildings. Modifying zoning requirements such as setbacks and building coverage can help ensure new

buildings and additions make good neighbors and fit in with the established character of the surrounding neighborhood.

A. Update zoning regulations to create more

contextual standards for massing, scale, and

height.

1. The following should be considered:

a. Reducing building coverage standards,

including exemptions for garages if

inconsistent with the established pattern in the

neighborhood.

b. Reducing looming effects and encourage side

yards. Consider increasing side setbacks, or a

combined minimum setback for both sides

and a one side minimum to allow flexibility in

meeting the increased standard.

c. Reducing the length of two-story side walls.

Consider a maximum dimension for two-story

walls before a change in plane or limit the

percentage of a wall plane that can be at the

minimum side setback.

d. Reducing the appearance of building scale and

promote compatible roof forms by considering

the following:

i. Set a maximum dimension for a flat or low-

sloping roof to discourage out of character

3-story houses

ii. Modify bulk plane standards to encourage

pitched roofs in neighborhoods where it is

the traditional roof form.

iii. Modify bulk plane standards to provide

exceptions for cross gables and dormers.

This would provide an alternative to flat

roofs and accommodate more floor area in a

sloped roof form.

iv. Modifying bulk plane standard to maintain a

1-1.5 story height in the front portion of lots

in areas where these heights are prevalent.

In exchange, taller building heights in the

rear portion of the lot may allow additions

while helping to preserve the established

scale of the neighborhood at the street.


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10

c. Inviting and accessible plazas, greens and other

types of public open spaces integrated with

well-designed green stormwater management.

(See Quality of Life section)

d. Healthy trees with well designed green

stormwater management. (See Quality of Life

section)

e. Enhanced streetscape amenities such as café

seating, benches, healthy, pedestrian-scaled

lighting, bike/scooter parking, and curbside

management. (see Mobility section)

C. Prepare standards and guidelines for sensitive

transitions adjacent to low residential areas.

1. Primary elements to consider include:

a. Adjusting side setbacks to be more compatible

with front setbacks of buildings on side streets.

b. Increased upper story step-backs.

c. Four-sided façade treatments and contextual

building materials.

RECOMMENDATIONS

L6

Encourage high-quality design and character preservation in Centers and Corridors.

With most new growth directed to Centers and Corridors (mixed use areas), new development should advance the vision for high quality design, a diversity of small,

locally owned businesses, compatibility with adjacent residential neighborhoods, and preservation of unique, existing commercial buildings that contribute to the

East area’s character.

A. Modify regulations to improve design quality in

Centers and Corridors.


a. Ground floor design treatment and activation

standards

b. Parking locations and design

c. Materials

d. Transitions to lower scale residential and historic

districts

e. Streetscape and open space design

f. Creative design solutions and flexibility

B. Strengthen standards for ground floor active uses

areas


a. Limiting residential units on the ground floor

b. Discourage parking on the ground floor and

upper levels fronting primary streets.

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d. Parking and loading location and design.

e. Ventilation and refuse container location.

f. Lighting.

g. Enhanced landscape buffers, including an

option to create agreements with adjacent

property owners to install enhanced

landscaping on their property.

h. Transitional uses to provide buffers, such as

allowing a house adjacent to a restaurant to be

converted into a small low-impact office(e.g.

a small non-profit) if the residential building is

preserved.

i. Solar energy access.

j. Balcony and window design to enhance

privacy.

k. Landscaped facades, such as climbing vines,

“green screens”, and balcony planters.


11

Mobilize next steps for preserving historic buildings

and neighborhood character in residential areas.

Some portions of the East area have unique architecture and

patterns that could benefit from additional character protection,

such as Landmark or Conservation Overlay districts. The city’s

Discover Denver program surveys neighborhoods to identify

buildings or areas that are historically, architecturally or culturally

significant to Denver’s history and may warrant such protection.

A. For areas identified as an “Area of Historic

Significance,” partner with Historic Denver to

engage residents on the creation of a historic

district.

B. Identify additional incentives to encourage

property owners to designate, such as:

a. Technical assistance writing designation

applications

b. Additional financial incentives, such as fee

reductions

c. Alternative preservation tools, such as

conservation easements or private covenants

C. For areas identified as “Areas of Historic Interest,”

encourage Discover Denver to prioritize these

areas for the next survey phase and, based on

the findings, consider next steps for character

preservation (e.g., historic district or conservation

overlay).

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RECOMMENDATIONSZONING AND REGULATIONS

L7


12

Reduce regulatory barriers to make it easier to reuse existing buildings that contribute to the character of Colfax and encourage a higher level of preservation for historically

significant buildings.

The plan’s vision for the Colfax corridor is to preserve its unique character while allowing it to evolve to better serve the community’s needs. Facilitating the adaptive reuse of existing buildings can help achieve both

of these goals, however current regulations make that difficult in some circumstances. Other tools, such as a landmark district, may also be appropriate to accomplish the vision.

A. Establish an Adaptive Reuse Ordinance that

reduces existing barriers to reusing structures.

Explore the following:

1. Modify standards to be more proportional to

the proposed project and site conditions while

ensuring consistency with the vision and goals of

this plan. Consider the following modifications:

a. Land dedication requirement for Colfax right-

of-way when it would result in a lot being less

than 75-feet deep.

b. Alley access rules.

c. Streetescape improvements prior to BRT

implementation

d. Parking requirements for structures more than

50 years old.

2. International Existing Building Code provisions,

including health, fire, and change of use

B. Evaluate the corridor for historic and cultural

significance

1. Initiate a study to determine eligible properties,

include Character Buildings in evaluation.

RECOMMENDATIONS COLFAX AVENUE

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L8


WHAT BUILDINGS SHOULD BE PRESERVED?

In the East Area, there is only one historic landmarked structure just off Colfax and there are no historic districts that exist along Colfax today. However, there are quite a few

buildings that contribute to the character and history of the corridor that should be encouraged to remain. Buildings Types to consider include:

• One and Two-Story “Main Street” Storefronts – these are usually brick construction, although some have been painted. They offer good “form” that is similar to the

future vision for Colfax.

• Older Residential Structures and Storefront Additions – there are a few older homes that are still residential uses or have converted to commercial. Some have additions

to the front yards that bring new storefronts to the street. These buildings contribute to the history and help tell the story of Colfax’s evolution.

• Motor Court Motels and Googie Architecture – re clustered along the eastern edge of the study area. Some have the potential to provide quality examples of

Googie architecture and have forms and proportions that could facilitate common courtyards

In addition to buildings, a big part of what makes this area of Colfax Avenue unique today is the cultural significance. This area is home to a large immigrant population and has

numerous ethnic restaurants.

2. Consider a Transfer of Development Rights

program as an incentive to encourage property

owners to participate in a historic district.

3. Work with Historic Denver, and the Business

Improvement Districts to establish criteria and

goals, as well as operational aspects of the

program.

4. Establish design standards and guidelines so that

new development responds appropriately to the

history and character.

13


COLFAX AVENUE

Repurpose Commercial Alleys that Intersect With

Colfax as Pedestrian-Friendly Spaces

Alleys are underutilized public spaces that have the potential to be

improved as shared or pedestrian-only spaces and can function as

much-needed public open space. They can be activated by adjacent

buildings with windows, doors, lighting, benches, café seating and

public art. If opened up, they may provide more affordable “back

door” commercial spaces for new small businesses.

A. Work with Business Improvement Districts and

Arts and Venues to create an “Activate Alleys”

program that provides financial or technical

assistance to property owners for public art and

public realm enhancements.

1. Identify financial assistance to property owners

relocating utilities within alleys that intersect with

Colfax.

2. Modify standards so that improvements over utility

easements for amenities like seating, lighting, and

public art are encouraged.

B. Where redevelopment occurs along an alley,

encourage enhanced design solutions and small

commercial spaces to help activate these spaces

and make them feel safer.

1. Include design guidelines for alleys in the

guidelines for centers and corridors (see Land Use

recommendations) .

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L9 L10 L11

Amend sign regulations to allow creative solutions to

signs that fit the character of Colfax.

Signage along Colfax is part of its history. Allowing more flexibility

for signs can help preserve the corridor’s unique character while also

benefitting its businesses.

A. Work with the community to identify desirable

iconic, vintage features of existing Colfax signs.

Features to consider should include blade, roof,

illumination, and mural signage.

B. Modify regulations to encourage preservation

of existing desirable signage and new signs that

reflect Colfax’s unique urban design character.

Discourage low utilization of land and auto-oriented

uses near future BRT stations.

Drive-thrus and other small buildings with large parking lots near

transit stations are incompatible with this plan’s vision for a vibrant

and walkable Colfax corridor. Restricting these types of development

will encourage more efficient use of land, ensuring more residents,

employees, and business patrons benefit from proximity to transit.

A. Consider modifications to regulations to

discourage drive-thrus and encourage multi-

story, mixed use development, such as:

1. Updating limitations on the drive thru building

form to include high capacity transit station

proximity.

2. Changing the current minimum height in MS-5 or

higher from 24 feet to two stories.


RECOMMENDATIONS

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updated east plan land use recommendations - denver · 2019-11-16 · draft recommendations: land...

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