cpa14-00004 misc docs

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 January 5, 2015 City of Boise Planning and Development Services P.O. Box 500 Boise, ID 83701-0500 VIA EMAIL RE: CPA14-00004 ST. LUKE S MASTER PLAN The Idaho Transportation Department (ITD) has reviewed the referenced comprehensive plan amendment application for the St. Luke s Master Plan located near the intersection of Ave. B and Warm Springs Ave. in Boise, Idaho north of Hwy 20/26. ITD has the following comments: 1. ITD has no objection to this application and requires no mitig ation. The project does not require access to the State Highway System. 2. Boise City is reminded that any additional development results in additional vehicle trips . The roadway system has limit ed capacity. Any additional vehicle trips increas e congestion and travel delay. If you have any questions, you may contact Shona Tonkin at 334-8341 or me at 332-7191. Sincerely, James K. Morrison Development Services Manager  [email protected]  

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January 5, 2015

City of Boise Planning and Development Services

P.O. Box 500Boise, ID 83701-0500

VIA EMAIL

RE: CPA14-00004 ST. LUKE’S MASTER PLAN 

The Idaho Transportation Department (ITD) has reviewed the referenced comprehensive plan amendment

application for the St. Luke’s Master Plan located near the intersection of Ave. B and Warm Springs Ave. in

Boise, Idaho north of Hwy 20/26. ITD has the following comments:

1. 

ITD has no objection to this application and requires no mitigation. The project does not require

access to the State Highway System.  

2.  Boise City is reminded that any additional development results in additional vehicle trips. The

roadway system has limited capacity. Any additional vehicle trips increase congestion and travel

delay. 

If you have any questions, you may contact Shona Tonkin at 334-8341 or me at 332-7191.

Sincerely,

James K. Morrison

Development Services Manager

 [email protected] 

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December 1, 2014

Jeff Hull, AIA, Director, Architecture and Construction

St. Luke’s Regional Medical Center

190 East Bannock Street

Boise, Idaho 83712

Dear Mr. Hull,

The City of Boise has reviewed the Draft St. Luke’s Master Plan and would like to offer

the following comments and suggestions regarding various aspects of the contents.

The comments are organized by general topic with each section beginning with asummary list of bullet points followed by a more detailed written explanation. We have

also included as an attachment all of the letters of comment we have received to date

from interested parties. With this transmittal, we acknowledge that the initial 45-day

review period has expired. We will be happy to answer any questions you may have as

you consider this information in preparation of your final draft

Study Area/Master Plan Boundary/Land Uses

•  Study area boundaries should be consistent across all topic areas

•  A Master Plan boundary should be established up front in the document

•  All St. Luke’s properties should be accounted for in the plan

There are a number of maps in the document that depict various facilities owned and

operated by St. Luke’s. The maps have several different boundaries and it is unclear

exactly which are the boundaries of the Master Plan itself. Some maps depict St. Luke’s

facilities and ownerships south of Main Street, east of 3rd

  Street and north of Fort

Street. Yet other maps that depict topics including the parking analysis (page 25) and

the long term planned distribution of uses (page 27) do not include all of those outlying

facilities. It would be helpful if a map that showed the actual Master Plan boundary

was included up front. We would also like all St. Luke’s facilities and ownerships to be

accounted for in some way in the Master Plan. Even if land owned by St. Luke’s may

not be proposed for medical related uses, it would be helpful to know the hospital’s

plan for the disposition of those properties. Specifically, the Plan should discuss the

various properties east of Avenue B, the parking lot on the west side of 2nd

 Street, the

properties on 3rd

 Street north of State Street, and the Elks Rehabilitation Hospital on

Fort which we understand is now managed or owned by St. Luke’s.

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Page 2 of 7

________________________________________________________________________________

Traffic Impact Study/ Roadways and Intersections

•  TIS summary should include ADT not just peak hour trips

•  Describe all proposed intersection improvements and timeline for construction of each

•  Include CIP Plus intersection designs where known

• 

Show Fort/Avenue B Roundabout in Master Plan illustrations

•  Provide modeling and feasibility assessment for Avenue B lane reduction concept

We are aware that ACHD has accepted the traffic impact study. The TIS included detailed data

regarding the surrounding roadway network and how the expansion of the St. Luke’s campus will

impact roadways over the next 20 years, with an emphasis on peak hour data. It would be helpful for

some readers if average daily trip generation could also be included in the data. We suggest that the

traffic impact summary could provide the total number of trips that will be generated by the

development and include a simple map diagram showing what the existing counts are and what the

future projected counts will be on all of the surrounding roadway segments and intersections. This

information would paint a very simple and accurate picture for everyone that is interested in thisarea’s future growth.

The traffic impact study notes that there are a number of intersections and roadway segments that wil

operate at a poor level of service in 2024 and 2035 (the majority of them will be LOS F). Many of these

intersections and roadways are not programmed in ACHD’s Capital Improvements Plan for improvement.

The study has identified the improvements that should be made to mitigate the impacts of the proposed

development but has not proposed a timeline for these improvements to occur. Typically the City and

ACHD require that mitigation occur with (or before) the development to ensure the infrastructure can

accommodate the proposed development. It would be very helpful to provide a detailed summary with

key findings and recommendations that identifies each intersection and roadway that will requiremitigation with a proposed timeline as to when the improvements will occur. The Master Plan should

depict the “CIP Plus” intersection designs to the extent that they are currently known and understood.

The traffic impact study indicates that the closure of Jefferson Street will require pedestrians and bicyclists

to divert from their normal travel routes (primarily Jefferson Street) and suggests they will relocate to the

north to utilize State Street. While some will divert to the north, it is reasonable to expect an equa

number of individuals will divert to the south to utilize Bannock Street simply due to the fact that Bannock

Street has approximately 30% of the vehicular traffic that State Street does and provides continuous

bicycle facilities (lanes or sharrows) through the entire downtown core.

The Master Plan depicts a variety of possible intersection treatments, including roundabouts, at various

locations around the campus but stops short of actually incorporating those designs into the Plan. Boise

PDS believes that the feasibility of a roundabout at the intersection of Fort, Reserve and Avenue B is clear

enough that this should be included as a recommendation in the plan, and the maps associated with the

overall campus land use plan and road network should depict the roundabout.

The possibility of reducing Avenue B to three lanes has been suggested by some members of the public

and City Council as a tradeoff for closure of Jefferson Street. The idea is that reducing the roadway to

three lanes will allow room within the right-of-way for wider bicycle and pedestrian facilities along both

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Page 3 of 7

________________________________________________________________________________

sides of Avenue B, will reduce traffic volumes on Avenue B by causing some through trips to divert to other

streets in order to avoid congestion, and will result in a narrower and easier to cross street section for

bikes and pedestrians. However, this concept has not been modeled to the level of detail that will allow an

accurate understanding of how reduction of capacity on Avenue B will redistribute trips onto other loca

roads in the vicinity and what the impact to those roads will be. In anticipation that there will continue to

be questions about this possibility, Boise PDS is suggesting that St. Luke’s consider conducting the

necessary traffic modeling analysis to answer the questions about lane reduction impact and feasibility. If

the modeling shows that the road can be reduced without creating undue impact on surrounding

roadways, planned bicycle facilities or St. Luke’s operational needs, then St. Luke’s should consider making

such a recommendation in the Master Plan, along with showing concepts for how the affected

intersections and bike lanes would be designed.

Bicycle Facilities

•  Explain why Cycle Track concept was dropped

• 

Show more design detail for bike/ped facilities, particularly at problematic intersections such as1

st/State and Main/Idaho/Ave. B

•  Show plan for improved bike/ped access through Bannock Street

•  Upgrade pedestrian crossing on Main to Pedestrian Hybrid Beacons

A key challenge of the Master Plan involves how to replace the function that Jefferson serves today (and

would potentially serve at a higher level in the future) for bikes and pedestrians, if Jefferson is removed

from the system. The future role of Jefferson is significant due to the fact that the current plan of record

for downtown bicycle routes (the Downtown Boise Implementation Plan – DBIP) identifies Jefferson as the

key east-west facility. Early conversations with St. Luke’s included the concept of a cycle track around the

hospital that would collect cyclists from Jefferson and give them a safe and relatively high speed routearound the hospital with connections to other bike routes and destinations on all sides of the campus.

While the cycle track concept is briefly discussed, it is not addressed in any level of detail and appears to

no longer be a recommendation in the plan. Instead, the current recommendation is for a system of

shared lanes, striped on-street bike lanes and sidewalks to accommodate the current and future bicycle

and pedestrian demand, with an emphasis on State, Main and Idaho Streets handling the majority of east-

west bike traffic, and bike lanes on Avenue B moving bikes north and south.

A 10-foot multi-use sidewalk is proposed along the perimeter of the site on Broadway Avenue, Fort Street

and State Street in lieu of what had previously been suggested as a true cycle track. Wider sidewalks and

pathways can provide a comfortable network for pedestrians but often times do not function well whenbicycles are introduced to the pathway. Multi-use pathways also provide unexpected conflict points fo

drivers at street intersections, high volume driveways and terminus points. It is important to show how

the proposed pedestrian and bicycle facilities will accommodate the needs of the entire area and the

details on how these facilities will tie into the existing roadway, pedestrian and bicycle networks. Pages 28

through 32 depict these basic facilities and discuss in general terms some treatments such as bike boxes

that may be appropriate. However, the network is not planned or designed to the level of detail where

actual effectiveness can be determined.

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________________________________________________________________________________

For example, we would like to see more detail regarding the intersection design for State Street and 1s

Street. This is a critical intersection because it serves as a key entrance to the new hospital parking garage

yet will also be traversed by cyclists as the northern alternative to the closed Jefferson Street route. We

would like to see exactly how cyclists and pedestrians interact with automobiles at this intersection in

terms of signalization, signage and lane delineation. How would the multi-use sidewalk versus a true cycle

track work on this street?

It is also unclear how an east-bound cyclist on Main Street gets onto the bike lane or wide sidewalk on

Avenue B around the campus in order to access Jefferson or Bannock Streets east of Avenue B. One

suggestion would be to consider a new bike lane in place of the micro path between Main and Idaho that

would lead to Bannock Street on the east side of the MSTI building. Throughout the planning area, the

Master Plan should detail how cyclists actually make connections through intersections. This may also

entail planning for the feasibility of bike lanes on connecting streets that are outside the campus

boundary. The DBIP may be modified to shift bike lanes from Jefferson to these other streets if the

feasibility can be proven through this Master Plan.

Another item that should be detailed is how bicycle travel can be improved through the campus on

Bannock, as has been suggested by the City Council. A dimensioned plan should be provided that

delineates potential bike and pedestrian pathways through this portion of the campus, as well as means of

minimizing conflicts. It may be necessary to provide a different outdoor plaza area for some of the current

users to free up space for cyclists and pedestrians to move through the corridor. In addition, completion

of a previously planned pedestrian bridge from the existing 1st

 Street parking garage to the main Hospita

building may also help minimize ground level conflicts during shift changes. Bike lane striping on the

Bannock service drive out to Avenue B may also be desirable as would a signalized cross-walk on Avenue B

at Bannock.

We recommend that the Master Plan team consider upgrading to coordinated Pedestrian Hybrid Beacons

(PHB’s) at the pedestrian crossings to the garage on the south side of Main Street. It will also be important

include interim bicycle and pedestrian designs that can be installed in the short term while the longer term

“CIP Plus” final roadway and intersection improvements are still in the process of being funded prior to

construction.

Transit

•  Prepare a future bus transit plan and/or statement of intent

•  Account for possible Circulator route on Idaho and Main

The Master Plan includes a map and description of existing transit routes and stops but does not include

any planning for future transit facilities. The Plan should express both a philosophy for future transit

service as well as a conceptual future transit plan based on the proposed distribution of uses and proposed

circulation system. Also, the Downtown Circulator is exploring a route to St. Luke’s on Main and Idaho

The Master Plan should discuss potential interface between St. Luke’s facilities and a Circulator along that

route.

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Page 5 of 7

________________________________________________________________________________

Parking Facilities

•  Explore shared parking garage with Elks

•  What is the long term future of the surface parking lots on 2nd

 Street and on the south side of Main

Street?

We learned through the Fort Boise Study initiated by PDS that the Elks Rehabilitation Hospital may

eventually need more parking supply. It was suggested that perhaps St. Luke’s and the Elks could share a

common parking facility located near Fort Street. The Master Plan does not address this possibility. Could

the new garage on 1st

 street possibly fulfill this role? Also, what is the future of existing surface lots within

the study area; specifically the lots on 2nd

  Street and Main Street? Could these lots eventually be

converted to other uses?

Historic Resources 

• 

Discuss historic structure relocation sites and strategies

We believe that the issue of historic resources is significant enough that it warrants its own section in the

Master Plan rather than just inclusion in the appendix. The Master Plan should identify significant historic

buildings and discuss the possibilities for relocation of the most significant buildings to another location,

possible reuse of structures and partnerships.

Building Design Standards 

•  Limit building design strategies to historic Boise campus examples rather than suburban examples

• 

Augment Sustainability section with additional ideas related to storm water, landscaping, etc.

The Master Plan tells the story of St. Luke’s and how it has expanded locally as well as into surrounding

communities. The original Boise campus has established a strong historical context of architectural styling

As such, the Master Plan should advocate building design standards that derive from the Boise campus

rather than from surrounding campuses where facilities are more suburban instead of urban in nature and

don’t have the history of the existing facility.

For example, the Magic Valley Medical Center uses a much deeper and consistent EIFS cornice band on its

facility than the Boise facility. Integrating this into the downtown campus would be inappropriate othe

than for use as an accent to highlight a section of the building (See images on page 41 showing examples

of appropriate locations for additional cornice depth in Boise). We would suggest the removal of the

images on page 41 of the Meridian and Magic Valley facilities for the above mentioned reason.

We believe sandstone is used on the Boise campus as an accent material and should be listed as an

appropriate material for new construction as well.

Page 39 discusses entrances and states that the “entrances are protected from the elements” however the

images shown minimally recess the entry doors and would not effectively protect pedestrians from the

weather. More effective images showing the weather protections provided would be appropriate.

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________________________________________________________________________________

Though mentioned in the document and shown in images on page 40, the recessing of the windows from

the face of the brick to provide shadow lines and break up the building façade is very important and should

be highlighted and strongly encouraged in the text. The adjacent photo shows relief of the columns at the

lower levels where detailing can be seen by the pedestrian. This too should be emphasized to show the

quality and detailing that is part of the St. Luke’s Boise campus history and should be carried on to future

buildings.

On page 40 under the heading of Flat Roofs and Parapets, it states there is usually a “turn-down vertica

leg” at the building corners. To ensure that anyone working on this project in the future is clear on the

meaning of this feature, it would be helpful to call it out more clearly through one of the images on page

41 either through discussion in the caption and/or an additional line drawing emphasizing the feature.

The mechanical grilles section should also discuss the appropriate location for the placement of the grilles

The two images provided are excellent and show the grilles and mechanical equipment should be located

well above and way from the pedestrian spaces. This will all for comfort of the pedestrians while walking

along the buildings.

The canopy discussion on page 42 is interesting. The Boise facility uses canopies that are integrated into

the architecture and stretch out over the entry ways where the Magic Valley facility uses the stand alone

canopy for patient drop-off. Maintaining consistency with the Boise facility would be more appropriate

than introducing another element from a suburban facility.

The ornamental section shows two towers. The ornamental metal work is probably not on the Boise

campus whereas the image on the right hand side of page 42 is clearly a Boise example as it uses the brick

cut away corners, reveals in the brick work with emphasis on proportions and the little bit of lighter color

material at the corner to emphasize the vertical. This should be continued on the Boise campus without

the integration of the metal ornamentation.

Other Issues/Questions

•  What is the long-term operating plan for Life Flite? How can noise impacts be minimized?

•  What is the plan for public art?

•  The short sustainability section could be expanded to include best practices related to landscaping,

stormwater treatment and other measures.

•  On Page 28, it would be helpful to pull the map legend off the map in order to show what happens east

of Avenue B.

• 

Does the Master Plan contemplate expanding the implementing Health Services zoning district to any

other properties and/or are any amendments to the HS district standards needed?

There are a variety of questions and suggestions that do not fit neatly into broader categories. This is just a

listing of several thoughts that came to mind as PDS reviewed this Master Plan.

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________________________________________________________________________________

Public Comments Received

To date, PDS has received 35 written e-mails from the public, all of which are attached to this letter. All of

the comments discuss the proposed vacation of Jefferson Street. Some of the letters suggest that the

street should remain open by bridging it with the building, while other letters suggest that the hospital

expansion should occur to the south or east. None of the letters support closure of the street. The over

riding sentiment expressed is that safe and convenient bicycle and pedestrian routes through the campus

are needed.

Other comments have mentioned concern about expansion of the Life Flite operation with increased noise

impacts on the East End, concern about encroachment of employee parking in the East End, concern about

how bicycles and pedestrians would maneuver through or cross a proposed roundabout on Fort Street

and suggestions that St. Luke’s should expand their Meridian facility rather than the Boise facility. One

commenter asked for an origin-destination study to show where their employees come from.

We will continue to forward public and agency comments to you as we receive them. Thank you for theopportunity to comment on this initial draft.

Sincerely,

Hal Simmons

Planning Division Director

Attachments:

1. Index of Public Comments Received as of December 1, 2014

2. Public Comments Received as of December 1, 2014

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Legal Notice of Public Hearing

Legal notice is hereby given that the BOISE CITY PLANNING & ZONINGCOMMISSION will hold a public hearing on FEBRUARY 9, 2015 at 6:00 P.M. in

the BOISE CITY HALL COUNCIL CHAMBERS, 3RD

 FLOOR to hear the item(s)

described below. You are invited to attend the hearing and offer your comments

for consideration. Written testimony should be submitted at least 5 days prior to

the hearing. Your testimony should identify the file number.

CPA14-00004 / St. Luke’s Health System/ St. Luke’s Master PlanComprehensive Plan amendment to adopt by reference an update to the St.Luke’s Master Plan. A copy of the final draft master plan and supportingdocuments is available on the City’s website at the following location:

http://pds.cityofboise.org/planning/st-lukes-master-plan/ 

Legal Notice of Public Hearing

Legal notice is hereby given that the BOISE CITY PLANNING & ZONING

COMMISSION will hold a public hearing on FEBRUARY 9, 2015 at 6:00 P.M. in

the BOISE CITY HALL COUNCIL CHAMBERS, 3RD

 FLOOR to hear the item(s)

described below. You are invited to attend the hearing and offer your comments

for consideration. Written testimony should be submitted at least 5 days prior to

the hearing. Your testimony should identify the file number.

CPA14-00004 / St. Luke’s Health System/ St. Luke’s Master PlanComprehensive Plan amendment to adopt by reference an update to the St.Luke’s Master Plan. A copy of the final draft master plan and supportingdocuments is available on the City’s website at the following location:http://pds.cityofboise.org/planning/st-lukes-master-plan/ 

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* The hearing begins promptly at 6:00 P.M. Items scheduled for hearing may be approved on a CONSENT AGENDA if there is no one present to express opposition at6:00. Also, items may be heard in any order - not necessarily that listed on the agenda. 

** If you have any questions or comments about traffic/transportation issues, you may call the Ada County Highway District at 387-6100.

Any questions regarding this item

should be directed to

HAL SIMMONS at 384-3830 or at

[email protected].

Please identify file number

CPA14-00004 in the subject

heading if sending an e-mail.

Boise State University

Fort Boise Park

Pioneer Cemetery

Robert Noble Park

Logan/Reserve ROW

E   W  a r  m  S   p r  i  n g s  A v  e 

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St. Luke's proposed master boundary

* The hearing begins promptly at 6:00 P.M. Items scheduled for hearing may be approved on a CONSENT AGENDA if there is no one present to express opposition at6:00. Also, items may be heard in any order - not necessarily that listed on the agenda. 

** If you have any questions or comments about traffic/transportation issues, you may call the Ada County Highway District at 387-6100.

Any questions regarding this item

should be directed to

HAL SIMMONS at 384-3830 or at

[email protected].

Please identify file number

CPA14-00004 in the subject

heading if sending an e-mail.

Boise State University

Fort Boise Park

Pioneer Cemetery

Robert Noble Park

Logan/Reserve ROW

E   W  a r  m  S   p r  i  n g s  A v  e 

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                                                                                                                                                                                             S                                                                                                                                                                                              B

                                                                                                                                          r                                                                                                                                          o                                                                                                                                             a  

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St. Luke's proposed master boundary

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ORTH SITE POSTINGS-JANUARY 9 20

POSTING LOCATIONS

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TYPICAL SITE POSTING

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Planning Division Transmittal-St. Luke’s Master PlanFile Number: CPA14-00004 Hearing Date: FEBRUARY 9, 2015

X-Ref:  Hearing Body: Planning and Zoning Commission

Address:  ST. LUKE'S DOWNTOWN Transmittal Date:  12/30/14

Applicant:  ST. LUKE'S

  Submit comments at least 10 Calendar Days prior to the hearing date listed above so your comments can beincluded in the project report. For Administrative Levels & Final Subdivision Plats, please comment within 7Calendar Days of the transmittal date.

 

If responding by e-mail, please send comments to [email protected] and put the file number in thesubject line.

 

Paper copies are available on request. Please call 384-3830 and have the file number available. If you encounterproblems with the electronic transmittals or want to provide feedback, please call 384-3830.

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December 30, 2014

Re: Request for Comment-CPA14-00004 (St. Luke’s Master Plan) 

To Whom It May Concern:

You are receiving this correspondence due to your role as a representative of a

neighborhood association, position with a public agency, or potential interest in planning

efforts associated with the St. Luke’s Campus.

As you may be aware, St. Luke’s has been working on an update to their master plan. This

document is adopted by reference in the Boise City Comprehensive Plan (Blueprint Boise),and as a result, the changes require a Comprehensive Plan Amendment. This application

was submitted to Boise City on October 17, 2014 and underwent an initial 45-day public

review process. The draft master plan was modified by St. Luke’s in response to comments

and a final draft plan has now been submitted for additional public review and public

hearing. A copy of the final revised draft master plan and supporting documents is available

on the City’s website at the following location:

http://pds.cityofboise.org/planning/st-lukes-master-plan/ 

This application has been scheduled for a public hearing by the Planning and Zoning

Commission on February 9, 2015.

Comments and questions should be directed to Hal Simmons at (208) 384-3830 or

[email protected]. Comments on the plan should be submitted no later

than 5:00 p.m. on January 30, 2015.

Sincerely,

Hal SimmonsPlanning Director

Boise City Planning and Development Services

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December 31, 2014

Jeff HullSt. Luke’s Health System

190 E. Bannock St.

Boise, ID [email protected] 

(sent via email)

Re: CPA14-00004 / 190 E. Bannock St.

Dear Mr. Hull:

Your application has been scheduled to be heard before the Boise City Planning and

Zoning Commission on Monday, February 9, 2015, at 6:00 P.M.,  Boise City Hall

Council Chambers on the third floor of City Hall. It will be necessary for you or yourdesignated representative to attend. Agency comments on your application will be

uploaded to PDS Online as they become available.

A project report will be ready for your review at PDS Online five (5) working days prior

to the hearing date at: www.cityofboise.org/pds/  

The Ada County Highway District may also conduct public meetings regarding the

application. If you have questions about the traffic that this development may generateor the impact of that traffic on streets in the area, please contact the Ada County

Highway District at (208) 387-6170. In order to expedite your request, please haveready the file number indicated on this notice.

If you have any questions, please contact Hal Simmons in this department at(208) 384-3853.

Sincerely,

Cody Riddle

Manager, Current PlanningBoise City Planning and Development Services

CR/wmcc: Gary Sorensen / Hummel Architects, PLLC / [email protected] (sent via email)

East End Neighborhood Association / Attn: Bob Bennett /  [email protected] (sent via email)

 North End Neighborhood Association / Attn: Derek Hurd / [email protected] (sent via email)Downtown Boise Neighborhood Association / Attn: Tami Chafin / [email protected] (sent via email)