HomeMy WebLinkAbout1999-10-14 NAC Planning ReportPLANNING REPORT
TO:
FROM:
DATE:
RE: -
FILE NO: 798.02 - 98.02
BACKGROUND
Phase 1, Stage 1
a. Landscaping
b. Lighting
c. Signage
Phase I, Stage 2
NORTHWEST ASSOC IATF:D CON U LTANTS
,..-..,MMLINITY PLANNING
Tom Melena
Scott Richards/Daniel Licht
VSSA has made application for General Plan of Development approval for Phase 1 of
Boutwells Landing, a senior housing and care facility. The City Council has approved,
on April 27, 1999, the rezoning to PUD of Phase 1 and the General Plan of
Development of Stage 1 of Phase 1. The current request is for approval of those
aspects of Phase 1, Stage 1 that have not been previously approved and the remaining
portions of Phase 1 to include the main campus of the overall development.
Phase 1 approvals requested at this time include:
October 14, 1999
Oak Park Heights - Valley Senior Services Alliance (VSSA):
General Plan of Development Phase 1, Boutwells Landing
a. Independent Living - 106 units, 4 stories
b. Assisted Living - 108 units, 4 stories
5775 WAYZATA BOULEVARD, SUITE 555 ST. LOUIS PARK, MINNESOTA 55416
MARKET RESEARCH
CLOSURE
PHONE 612-595-9636 FAX 612-595-9837 E-MAIL NAC WINTERNET.COM
c. Town Center - 2 stories
Including:
Bank Fitness Center
Auditorium Museum
Administration Beauty/Barber
General Store Business Center
Crafts Library
Communal Kitchen
d. Plans to include:
Site Plans
Building Plans & Elevations
Grading and Drainage Plans
Utility Plans
Lighting Plan
Landscape Plan
Signage Plan
CUP for Building Height
Variance for Building Setbacks
A narrative submitted with the application for this phase of development approvals is
found as Exhibit A. The narrative outlines the development program, operations,
parking and traffic issues and the schedule for construction. These issues will be
discussed throughout this planning report.
Attached for reference:
Exhibit A: Boutwells Landing Development Description
Exhibit B: Site Plan
Exhibit 0: Main Campus Site Plan
Exhibit D: Grading Plan
Exhibit E: Main Campus Grading Plan
Exhibit F: Alain Campus Storm Sewer Plan
Exhibit G: Main Campus Utility Plan
Exhibit H: Westerly Four-Plex Planting Plan
Exhibit 1: Easterly Berm and Landscape Plan Near River Hills
Exhibit J: Typical Townhouse Planting Plan
Exhibit K: Main Campus Planting Plan
Exhibit L: Norwich Parkway/Norwich Avenue Planting Plan
Exhibit M: Norwich Parkway/Nolan Avenue Planting Plan
Exhibit N- AA:Campus Floor Plans
Exhibit BB: Building Elevations - Main Campus
Exhibit CC: Independent Building Elevation
Exhibit DD: Assisted Living Building Elevation
Exhibit EE: Sign Plan
Exhibit FF: Lighting Plan
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ISSUES ANALYSIS
Zoning. The area included as Phase 1 has been zoned to PUD District. When zoning as PDT] the underlying � 9
p p rtY City designates an district as the basis for compliance
liance
with the ordinance. In that the principal use is a mixture of residential and business use
the appropriate underlying zoning would be R.B, Residential Business Transitional
District. Within that district, multiple family dwellings are allowed as a permitted use and
nursing homes and similar group housing is allowed as conditional. The Boutwells
Landing project, as being requested for Phase 1 approvals, will comply with the
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conditions set forth in Section 401.28.E.3 related to nursing homes and similar rou p
housing.
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Subdivision. The Final Plat for Boutwells Landing has been approved and is filed with
Washington County. The main campus area is designated as Lot 1, Block 2. The
.adjacent park area is. designated as: Lot 2, Block 2. The .Haase Nature Preserve area is.
designated as Lot 2, Block 3.
Lot Area. The area of the main campus rot is 694,393 square feet. The Zoning
Ordinance requires at least 1 ,000 square feet of lot area per unit of elderly housing.
The lot could support 694 units of housing. At complete build out of all phases of the
main campus, 340 total units are proposed.
Setbacks. The Zoning Ordinance under the R -B District requires 30 foot front and
'rear yards and 10 foot side yard setbacks. Additionally, one of the conditions for
approval of nursing homes and other similar housing requires a doubling of the setback
requirements. As such, the front and rear yard setbacks would be 60 feet and the side
yards 20 feet. Ail of the buildings proposed for the main campus would be at least 70
feet from the right - of-way of surrounding streets. A setback of 10 feet is required for all
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parking areas from the right-of-way. Alt of the proposed parking areas are at least 20
feet from the adjacent rights -of -way.
The independent living complex will be constructed on the property line adjacent to the
City park. As part of the PUD, the City can consider a variance of 20 feet from the
setback requirements for the encroachment on the west property line. If the structure
was located in compliance with the westerly side yard requirement, the impacts to the
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Boutwells Landing townhomes and River Mills neighborhood would be increased. One
of the original goals in the main campus development was to move the structure as far
west as possible and to step the building heights to minimize the impact on the
neighborhood. Therefore, some flexibility to the westerly setback may be appropriate.
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A zero setback, as proposed, is problematic in terms of access to the area between the
southwest and northwest wings of the independent living structure. A zero setback also
would impose the full measure of the building's height and mass to the park, which may
not be desirable. As such, the building should be located not closer than 10 feet from
the westerly property line, The Planning Commission and City Council should review the
variance criteria specified in Section 401.04.A to determine the justification for a
variance.
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Zoning Ordinance Section 401.04.A.5 states that a variance from the terms of this
Ordinance shall not be granted unless it can be demonstrated that:
a. Undue hardship will result if the variance is denied due to the existence of special
conditions and circumstances which are peculiar to the land, structure, or building
involved and which are not applicable to other lands, structures or buildings in the same
district.
1) Special conditions may include exceptional topographic or water conditions or, in
the case of an existing lot or parcel of record, narrowness, shallowness,
insufficient area or shape of the property.
2) Undue hardship caused by the special conditions and circumstances may not be
solely economic in nature, if a reasonable use of the property exists under the
terms of this Title.
3) special conditions and circumstances causing undue hardship shall not be a
result of lot size or building location when the lot qualifies as a buildable parcel.
b. Literal interpretation of the provisions of this Ordinance would deprive the applicant of
rights commonly enjoyed by other properties in the same district under the terms of this
Ordinance or deny the applicant the ability to put the property in question to a
reasonable use.
c. The special conditions and circumstances causing the undue hardship do not result from
the actions of the applicant.
d. Granting the variance requested will not confer on the applicant any special privilege that
is denied by this Ordinance to other lands, structures or buildings in the same district
under the same conditions.
e. The request is not a result of non - conforming lands, structures or buildings in the same
district.
f. The request is not a use variance.
g.
The variance requested is the minimum variance necessary to accomplish the intended
purpose of the applicant.
h. The request does not create an inconvenience to neighboring properties and uses.
Building Height. The Zoning Ordinance specifies a building height maximum of 35
feet in all zoning districts except for the 1, Industrial District (45 foot height requirement).
Additionally, Section 401.15.0 of the Zoning Ordinance allows the City to vary from the
height standards by CUP for those structures that exceed 45 feet in height or more than
five feet from the district requirements. Building heights of the structural elements of the
main campus, the independent living structure and the assisted living structure that
exceed requirements are proposed as follows:
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Main cam . us
Center Tower Structure
Two Side Towers
Independent Living
Assisted Living
To Midpoint
of Gable*
42 feet
50 feet
48 feet 9 inches
48 feet 9 inches
* Defined building height in Oak Park Heights Zoning Ordinance /Uniform Building
Code.
The buildings have been designed such that the highest elements are to the west and
center of the main campus with decreasing elevations down to one story for the
dementia unit on the east. Review of the conditional use permit criteria specified in
Section 401.03A7 pf the : Zoning .Ordinance is as follows: .
a. Relationship to the specific policies and provisions of the municipal
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Comprehensive plan.
Comment: The project is in conformance with the provisions and policies of the
Comprehensive Plan.
b. The conformity with present and future land uses of the area.
Comment: The project has been planned as a PUD with particular attention paid
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to the existing residential neighborhoods and future commercial area to the north.
c. The environmental issues and geographic area involved.
Comment: The environmental issues have been addressed.
d. Whether the use will tend to or actually depreciate the area in which it is
proposed.
Comment: It is anticipated that the project will enhance the surroundin g area.
The building heights should not adversely impact the area.
e. The impact on character of the surrounding area.
Comment: In that those highest elements of the structure are set back from
existing and proposed single family neighborhoods, the character will not be
impacted.
f. The demonstrated need for such use.
Comment: VSSA has demonstrated the need for the facility.
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To Peak
50 feet
53 feet
55 feet
55 feet
g
Traffic generation by the use in relation to the capabilities of streets serving the
property.
Comment: The traffic impacts should not have an adverse impact on 58th Street
or other local streets.
h. The impact upon existing public services and facilities including arks school
streets, utilities and the City's service capacity.
Comment: The project should not have an adverse effect on existing services
and facilities.
1. The proposed use's conformity with all performance standards contained (in the
Zoning Ordinance).
Comment: The performance standards and the project's compliance are
reviewed in detail in this planning report.
Operations/Traffic. Boutwells Landing is anticipated to have a total of 95 on -site full
time equivalent employees. Daytime hours will constitute the peak shift with 40 -45
employees at the main campus. In a later phase, the skilled care will require more
around the clock employees. The communal kitchen will be used to prepare meals. for
residents of Boutwells Landing, Lakeview Hospital, croixdale, and Meals on Wheels.
The meal deliveries for the auxiliary sites and programs will be by truck. According to
the applicant, the project will have approximately 500 employees at full build out of
planned uses. The applicant should provide additional information regarding the
number of employees both by use and by construction phase.
Boutwells Landing employees will park in the lot northwest of the main campus.
Delivery vehicles will load and unload from the receiving dock on the northeast side of
the main campus. All access to the employee parking lots and the loading docks will be
off of 58th Street. VSSA anticipates 22 truck deliveries per week with one -third being
semi- trailer trucks and the balance smaller delivery or trash trucks. There will also be
about 40 visits per day to the offices of the Lakeview Hospital home health care agency
located at the lower level of the assisted living facility.
Parking. The site plans indicate a total of 269 surface parking stalls and 80
underground garage stalls to be constructed under the independent living building. Of
these stalls, the site plans indicate that 294 stalls would be constructed in conjunction
with this phase and 55 surface stalls would be held as proof of parking to be
constructed with subsequent phases for this facility.
The Zoning Ordinance Includes parking requirements for the category of sanitariums,
convalescent home, rest home, nursing home, or day nurseries; for elderly housing and
for offices. The parking requirements for each aspect of project is as follows:
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Pro e ct
Independent Living
Elderly Housing - one stall required per unit
l06 units xl
Assisted Living
Five spaces plus one for each three beds
1083 +5m
Skilled Care
Five spaces plus one for each three beds
96 ÷ 3 +5=
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Parking
Requirement
106
41
Town Center
Three spaces plus one space for each 200 SF
27,923 -.10% =25,131 ÷ 200 +3= 129
Total Requirement for Phase 1 276
Parking Provided for Phase 1 294
37
Dementia
Five spaces plus one for each three beds
30 +3 +5= 15
Total Requirement for Phases 1 and 2 328
Parking Provided for Phases 1 and 2 349
The plans do not include disability designated stalls. Disability designated stalls will be
required on site and should be included on a revised site plan.
Boutwells Landing is proposed to have one access to Norwich Parkway on the south
side of the site. Two accesses to 58th Street are proposed on the north side of the
building. According to the City Engineer, there is insufficient distance between the
access points and the 58th Street/Norwich Parkway intersection to allow two accesses.
The eastern access point to 58th Street should be eliminated and the western access
redesigned such that delivery trucks may circulate into the receiving area. The revised
site plan will also need to provide adequate area for tractor trailers to back into the
receiving area. Also, the grading plan incorrectly illustrates a previous proposal for one
access to 58th Street and one to Norwich Parkway to the east, which should be
corrected.
The areas around the parking lots could be enhanced with three to four foot berms
between the edge of the lots and the rights -of -way of Norwich Parkway and 58th Street.
Although the parking lots will be heavily landscaped, the berms will enhance the view of
the buildings by reducing the visual impact of the parking areas.
Minimum Floor Area. The Zoning Ordinance requires that elderly housing have the
following minimum floor area per unit:
Efficiency Units
One Bedroom
440 square feet
520 square feet
As proposed, the independent living complex will be constructed with at least 725
square feet for the smallest one bedroom unit. Guest rooms will be 319 square feet but
are not considered full time living units. The assisted living complex will be efficiency
units of at feast 495 square feet . and one bedroom units of at least 588. square feet.
Building Design. The Boutwells Landing project would be subject to Design
Guidelines requirements in that it is a residential /commercial use within a PUD Zoning
District. The buildings, as designed, would meet and exceed the Design Guidelines
requirements for new structures.' The building facades will be constructed of three
Grade 1 materials including brick, stucco, and glass. Additionally, these materials
would comprise more than 65 percent of the building facades. The buildings have good
articulation, are highly detailed, and will be constructed with high quality materials. The
main campus and its resident wings will be architecturally significant and a landmark
structure for Oak Park Heights.
The plans are not detailed enough to indicate where mechanical systems will be
located. The Design Guidelines require that all roof, wall and ground mounted
mechanical equipment be located inside or fully screened. The applicants will also be
required to submit building material boards to the City in advance of the Planning
Commission and City Council meetings in which the project will be considered.
Landscaping. The landscape plans, as submitted, address all of Phase 1. The
landscape plans are tied to the tree protection plan in that the amount of landscaping .
should determine compliance with the City's Tree Protection Ordinance. The City
Arborist shall review and approve all landscape plans.
Grading and Drainage. The primary grading and drainage plan for Phase 1 has been
approved by the City and much of the grading has been completed. A more detailed
grading and drainage plan has been submitted to the City for the main campus. The
grading and drainage plans are subject to review and approval of the City Engineer and
applicable watershed districts.
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Utility Plans. Utility plans for the main campus have been submitted to the City. The
City Engineer will review and approve all utility plans for the ro■ect.
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Park improvements. VSSA has not provided any more detailed site lans for
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park than what had been approved for the concept plan. Details on the park shelter,
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parking lot, tot lot, wetland bridge and landscaping will need to be discussed by the
Planning Commission, Parks Commission, and City Council with VSSA representatives.
p es.
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General plan approvals for the park will not be granted at this time but held. until a
decision has been made by the City.
us
Sidewalks /Trails. The site plans do not indicate linkages between the main campus
sidewalk system and the trail system. These linkages should be made so that residents
do not need to walk through the parking lots to access the trail system. Linkages to the
0
trails from the sidewalks should be made at a minimum on the north side, south side
. and west side of the main campus.
' '
Lighting. The lighting plan approvals for Phase 1 have been deferred until this
general plan review. The lighting plan indicates the fixtures along the roadways, within
the parking lots, on the paths to Autumn Ridge and River Hills and to highlight the
entrance signage. Staff has recommended previously that fixtures be included through
the park and g
p nd over the wetland bridge to the parking area and shelter. The Planning
Commission, Parks Commission and City Council should determine if lighting Is to be
located along this path.
The proposed fixture style does not provide a full "cutoff" as required by Section
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401.15.B.7 of the Zoning Ordinance. The ordinance does allow the City Council to
make exceptions to this requirement for architectural /historical light fixtures.
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Additionally, the City Council can allow the flood lights for ro as signage osed for the
proposed
project. The Planning Commission should recommend and the City Council determine
if the proposed light fixture is acceptable. Additionally, the applicant should provide a
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photometric plan for staff review to assure compliance with the ordinance for g lare.
Signage. The signage proposed for Boutwells Landing consists of two signs
identifying the development, both which are compliant with the City's requirements for
. "receiving" Y q
monument signage. A receiving" sign is also proposed for identification purposes and
a "Haase Nature Preserve" sign is proposed for the westerl y wetland area. These sig ns
are also compliant with the monument signage requirements. The City will need to
determine the location of a park sign and if the same type and style of monument will be
used.
Development Contract. Based upon the plans submitted and the approvals required,
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any changes required to the development contract should be reviewed by the City
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Attorney and made concurrent with the motion for approval of this general p
lan phase.
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CONCLUSION AND RECOMMENDATIONS
Our office, having completed review of the submitted materials, finds the applicants
request for general plan of development of Phase 1, Stage 1 plans; Phase 1, Stage
plans; conditional use permit for building height; and the variance for building setbacks
acceptable subject to the conditions found below. The general plan approval of the park
details would not be included at this time, but would require additional staff review and
Parks Commission, Planning Commission, and City Council approval at a later date.
The approvals are subject to the following conditions:
1, Approval is granted for Phase 1, Stage 1 landscaping, lighting and signage
plans; Phase 1, Stage 2 plans (except for park plan); a conditional use permit for
building height; and a 10 foot variance for building setbacks.
2. Ali site plans as incorporated into the October 14, 1999 planning report shall be
made a part of the general plan of development approval.
3. The site plan is revised such that the Boutwells Landing building is set back not
less than 10 feet from the west property line.
4. A total of 294 parking stalls including 80 underground garage stalls shalt be
constructed in conjunction with Phase 1. Fifty -five surface stalls would be held
as proof of parking to be constructed with subsequent phases for this facility.
5. A revised site plan shall be submitted with the disability designated stalls as
required by the State of Minnesota.
6. The site plan shall be revised to provide only one access to 58th Street, subject
to review and approval of the City Engineer.
7. Three to four foot berms shall be constructed and landscaped between the
parking lots and the right-of-way of 58th Street as approved by City staff.
8. Mechanical system plans shall be submitted for review and approval by City staff.
9. Building material boards shall be submitted to the City in advance of the Planning
Commission and Council meetings in which the project will be considered.
10. The City Arborist shall review and approve all landscape plans.
11. The grading and drainage plans for the project are subject to review and
approval of the City Engineer and applicable watershed districts.
12. The City Engineer shall review and approval all utility plans for the project.
10
13. sidewalk to trail linkages shall be provided at multiple locations from the main
campus as approved by City staff.
14. The Planning Commission and Parks Commission shall recommend and the City
Council shall determine if trail lighting is to be required through the park and over
the wetland bridge to the parking area and shelter.
15. The Planning Commission should recommend and the City Council determine if
the proposed light fixture and flood lighting is acceptable.
16. A full photometric plan for site lighting is to be submitted subject to review and
approval of City staff.
17. Any changes to the development contract resulting from general plan review
shall be subject to the • City Attorney review, . and approvals shall be made
concurrent with the motion for general plan of development approval of Phase 1.
18. The conditions of approval of the general plan of development approved by the
City Council at their April 27, 1999 meeting shall apply to the entire Phase 1 of
the Boutwells Landing project.
19. Comments from the City Council, Planning Commission, Parks Commission, and
City staff.
pc: Kris Danielson
Skip Sorenson
Barb Barry
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