HomeMy WebLinkAbout2007-04-04 NAC Planning ReportNORTHWEST ASSOCIATED CONSULTANTS, INC.
4800 Olson Memorial Highway, Suite 202, Golden valley, MN 55422
Telephone: 763.231 .2555 Facsimile: 763.231 .2561 planners@nacplanning.com
PLANNING REPORT
TO: Eric Johnson
FROM: Scott Richards
DATE: April 4, 2007
RE:
FILE NO: 798.02 — 07.01
BACKGROUND
Oak Park Heights — Valley Senior Services Alliance (VSSA)
General Plan Review, Planned Unit Development (PUD) —
Care Center
Y
VSSA has made application for a general plan approval of the PUD for a 106 bed skilled
care addition on the Boutwells Landing campus. The proposed general plan approval is
consistent with the concept plan approvals of 2005 that included the following:
6 Care center, 110 bed
O Two level parking ramp and parking lot expansions
• Historic village including school, band shell, and chapel
O City park enhancements, park shelter
• Memory care center, 28 unit, relocated adult and child care
• Conservatory connection to existing Town Center
• Tunnel to business district
Concept plan approval, granted by the City Council at their November 22, 2005
meeting, allowed for approval to extend through December 31, 2008. At this time, only
the care center will be processed as a general plan. The two level parking ramp has
been removed as part of the overall plans and the park shelter in the Autumn Hills park
is under construction. The other elements, including the historic village, memory care
center, conservatory connection and tunnel will be considered at a later date.
In December of 2005, the City Council approved a conditional use permit to move the
historic school house into the Boutwells Landing campus. The final plans for the school
house and the other buildings of the historic village will need to be reviewed as part of a
general plan.
Attached for reference:
Exhibit 1:
Exhibit 2:
Exhibit 3:
Exhibit 4:
Exhibit 5:
Exhibit 6:
Exhibit 7:
Exhibit 8:
Exhibit 9:
ISSUES ANALYSIS
Project Narrative
Existing Conditions
Removal Plan
Certificate of Survey
Layout Plan
Grading & Erosion Control Plan
Utility Plan
Lighting Plan
Landscape Plan
Exhibit 10:
Exhibit 11:
Exhibit 12:
Exhibit 13:
Exhibit 14:
Exhibit 15:
Exhibit 16:
Exhibit 17:
Exhibit 18:
Landscape Details
58 Street Traffic Study
Site Plan
Lower Level Plan
First Floor Plan
Second Floor Plan
Third Floor Plan
Elevations
Colored Elevations /Photos
Project History /Existing Campus. Ten years ago, Lakeview Hospital recognized a
need in the St. Croix Valley for additional older adult housing and services. Three
organizations, Presbyterian Homes and Services; Lakeview Hospital; and Croixdale
Residence, joined together to form Valley Senior Services Alliance (VSSA), a non - profit
organization to meet the needs of older adults in the Valley.
The organization envisioned a community that would provide a continuum of care that
would meet the needs of older adults as they age in the community where they lived
and worked. That vision became Boutwells Landing which now includes:
• Fifty -six village homes (side -by -side townhomes), completed in 2000.
• Ninety-four assisted living apartments in the Commons building, completed in
October 2001 (since July 2004, 29 of these units are dedicated to memory care).
• The Gathering at Boutwells Landing, a residential hospice service in the Commons,
founded in 2004 in partnership between Lakeview Hospital and Boutwells Landing.
• One hundred one units of independent living apartments in the Terrace, completed
in February 2002.
• A Town Center that links the Commons and the Terrace, and provides convenient
services and opportunities for community, both for residents and members of the
larger St. Croix Valley community. Features include a town hall /chapel, a general
market, cafe, museum, bank, barber /beauty shop, educational classrooms, theater,
library, fitness center, two pools, and locker rooms.
• A Boutwells bus to transport residents within Boutwells and into town for shopping,
medical appointments, and other activities. The bus provides more than 350 rides
each month.
• Seventy -eight brownstone units (one level independent living homes) six coach
homes (detached single family homes), and 75 additional village homes (side --by-
side homes).
2
VSSA has recognized from the beginning that to provide the continuum of care, a skilled
nursing care facility would need to be part of the Boutwells Landing complex. The care
center, as now proposed, would be 106 units to be located on the north side of the
existing Town Center. The 28 bed memory care center would be part of a future phase.
Unit Breakdown. The current submittal reflects slight changes to the numbers of units
for each phase of development of the entire complex from the original PUD submittal.
The current existing and proposed unit count is as follows:
EXISTING 1 PROPOSED HOUSING UNITS
Phase 1 (Existing)
Independent Living 91 units
Alzheimer /Dementia Care 12 units
Assisted Living 89 units
Duplexes 44 units
Quadraplexes 8 units
TOTAL 244 units
Phase 11 (Existing)
Independent Living 78 units
Duplexes 81 units
TOTAL 159 units
Phase 111 (Proposed)
Care Center (Current Request) 106 units
Assisted /Memory Care 28 units
TOTAL 134 units
TOTAL PROJECT UNITS 537 units
Proposed Project. The 106 unit care center will be connected to the Town Center, the
Commons assisted living building, and the Terrace independent living building. The
design will be start of the art, including private resident rooms with bathrooms,
kitchenettes, and sitting areas. VSSA will be required to locate and purchase existing
nursing home beds from areas of the State that have a surplus of beds. The State will
need to approve the move of nursing home beds. It is recognized that the St. Croix
Valley community has a shortage of this type of housing. The new care center would be
Medicare /Medicaid certified, create 150 -170 new jobs, and provide Lakeview Hospital
with a specialty unit for physical and occupational therapy and home care.
The new facility will provide expanded education facilities to meet the growing needs for
residential, staff and community based programs. There is a significant expansion of
meeting room capacity for the City. The daycare facilities in the Town Center would be
moved to the lower level of the new building. The plans should be revised to include the
plans for the outdoor play area. The plans also show the future underground tunnel that
will provide access from the lower level under 58 Street to the future parking lots and
3
retail areas adjacent to Highway 36. The tunnel has already been conceptually
approved and final approvals would be considered at a later date.
The building is three stories and would match the architecture of the existing Town
Center, Commons and Terrace buildings. At the highest point, a tower element of the
building will be 60 feet. The midpoint of the highest roof gable of the main structure will
be at 42 feet. A variance from building height is being requested as part of this process.
Zoning. The area has been zoned PUD District. When zoning property as PUD, the
City designates an underlying district as the basis for compliance with the ordinance. In
that the principal use is a mixture of residential and business use, the appropriate
underlying zoning has been designated as 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 will comply with the conditions set forth in Section 401.28.E.3 related to
care centers and similar group housing.
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. There are no changes to the property description as a
result of this new development.
Lot Area. The area of the main campus lot 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, 404 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
care centers 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.
The care center will be set back approximately 90 feet from the 58 Street right -of -way.
A setback of ten feet is required for all parking areas from the right-of-way. All of the
proposed parking areas for the care center are at least 20 to 30 feet from adjacent
rights --of -way.
Parking. Currently, 290 standard stalls and 17 accessible stalls have been
constructed for the Boutwells Landing main campus. The approved PUD also included
an additional 55 stalls that would be held as proof of parking to be constructed with
subsequent plans.
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 the project is as follows:
4
Existing Units (Phase 1) Independent Living
Elderly Housing — one stall required per unit 91 X 1 = 91
Existing Units (Phase 1) Assisted Living / Alzheimer
Five spaces plus one for each three beds 101 = 3 + 5 = 39
Existing Units (Phase 1) Town Center
Three spaces plus one space for each 200 square feet
27,923 -- 10% = 25,131 - 3 = 129
Existing Units (Phase II Constructed) Independent Living
Elderly Housing —one stall required per unit 78 X 1 = 78
Proposed Units (Phase 111 Proposed)
Care Center -- five spaces plus one for each three beds
100-3 +5 = 40
Total Requirement for All Main Campus 377
The proposed plans include a total of 334 standard stalls, 22 accessible stalls and 14
proof of parking stalls for a total of 370. Although the proposed stalls are slightly less
than the requirements, the office space requirement has been applied to the Town
Center to establish a parking standard. This requirement is likely higher than what is
required for the Town Center element of the complex. There is adequate space on site
to require additional stalls, but staff would not support increasing the number of
constructed or proof of parking stalls. The overall parking requirements will be reviewed
with the final phase which includes the memory care center and adjustments to the
parking will be required to meet the overall needs of the complex. The parking deficit
can be addressed within the PUD approvals.
A parking ramp had been proposed as part of the concept plan review for this portion of
the Boutwells Landing campus. With the current unit count and the parking that would
be provided on site, it does not appear that the ramp will be necessary. The plans also
show the possibility of a tunnel under 58 Street and the addition of parking to the north
if the need arises.
Access. As part of the parking lot changes, the access drive from 58 Street into the
north side of the main campus will be moved approximately 40 feet to the west of the
current driveway location. The City Engineer has reviewed the proposed driveway
location and does not see a traffic or sight line issue.
Traffic. As part of the general plan submittals, the project engineer provided a traffic
study indicating the increase in vehicle traffic visibility from the campus expansion. The
findings shown by AM peak hour and PM peak hour are as follows:
5
Vehicle Count: AM Peak Hour
Existing total peak hour volume from site
Estimated future volume to 58 Street from site
Estimated increase to 58 Street from site
Vehicle Count: PM Peak Hour
Existing total peak hour volume from site
Estimated future volume to 58 Street from site
Estimated increase to 58 Street from site
45 vehicles
68 vehicles
23 vehicles
71 vehicles
119 vehicles
48 vehicles
The increase resulting from the expansion does not appear to be substantial. The City
Engineer should comment on the traffic study and potential impact to 58 Street and
Oakgreen Avenue.
Loading Dock /Trash Handling. The loading dock and trash handling area for the
campus will not be changed from the current location. The addition of a generator and
enclosure adjacent to the loading dock will significantly screen the area. Additionally,
the berm area between 58 Street and the loading dock area will be re-- landscaped with
pine, spruce, and existing trees. The generator enclosure is shown with the building
elevation plan.
Mechanical Screening. The existing chiller of the heating and air conditioning system
will be removed from the parking lot area and incorporated into the new building roof
structure. As indicated, the existing generator will be moved and enclosed with a brick
structure to match the building. The plans also show three electrical transformers and
four propane tanks between the new building and the new generator location. The
propane tanks will no longer be needed and will not be placed underground in this
location as first proposed. The transformers will be screened by landscaping.
Landscaping. A landscape plan has been submitted as part of the application. The
plan indicates extensive landscaping along the north edge of the site on the berms
adjacent to 58 Street. The parking lot islands and areas in front of the building will also
be heavily landscaped. The landscape plans will be subject to review and approval of
the City Arborist.
As part of the conceptual landscape plan, the area between the main campus building
and the pond within the City park is shown to be re- graded and planted in prairie
grasses. VSSA representatives have requested to pay for the conversion of these
areas into prairie plantings and to establish a more definitive edge between the mowed
grass areas and the area that slopes to the pond. VSSA will need to submit a detailed
plan and work with the City Engineer on the re- grading and the City Arborist in
establishing the prairie grass area.
Grading and Drainage. Grading and drainage plans have been submitted for the
general plan of development review. As part of the plan, a rainwater garden has been
established on a large parking lot island northeast of the new building. The grading and
5
drainage plans shall be subject to review and approval of the City Engineer and Browns
Creek Watershed District.
Utility Plans. The utility plans shall be subject to review and approval of the City
Engineer.
Sidewalks /Trails. The plans indicate the addition of trails and sidewalks as part of the
project. A sidewalk connection from the parking lot on the west side of the site will be
extended to the existing bituminous trail in the Autumn Hills park. Sidewalks will be
constructed in front of the building to assist in providing connections into the entrances
from the parking lots. A trail will be constructed on the east side of the campus to
connect the 58 Street trail to the existing sidewalk on the south side of the site.
Lighting. A lighting plan has been submitted with the locations of fixtures on the
building and in the parking lots. The same parking lot fixtures will be utilized that
features a lens that does not meet City standards. As part of the PUD, the fixture will be
allowed. The photometric plan for the site would meet all City requirements. The plan
does not indicate fixture styles for the building mounted lights. All building fixtures shall
meet City lighting standards and be approved by city staff before installation.
Signage. The plans indicate one new site sign to be located at the new entry drive.
The sign would match the existing monument sign. The sign would be allowed by the
Zoning Ordinance. No wall signage is proposed for the building expansion.
Building Design. The Boutwells Landing project would be subject to Design
Guidelines requirements in that it is a residential /commercial use within a PUD. The
building design and materials are identical to the existing campus building which
features a combination of brick, EIFS, large window areas, and metal balcony railings.
The building will be capped off with pitched roofs, a tower at the entrance, and a clock
tower. A Porte cochere will also be provided at the building entrance to provide a
covered loading and unloading area for residents and their guests.
The construction of the care center will complete the primary view of the campus from
58th Street. This portion of the complex will no longer be the back door, but rather
provide an inviting entrance to the campus. The building architecture and materials will
be consistent with the City's Design Guidelines.
With the construction of the care center, an internal court yard will be created in the
center of the campus. Access to the yard for maintenance purposes will be made by a
corridor on the east side of the building. A trash room and areas for loading and
unloading is provided adjacent to the corridor.
Depending upon funding, VSSA plans to completely cover the internal court yard area
to make a conservatory in this area. That will be subject to a future general plan review
and approval.
7
Building Height. The elevation diagrams indicate the building heights for the buildings
and tower elements. The height to the center point of the highest roof is proposed at 42
feet. The building height requirement is 35 feet. A variance is required to exceed the
building height of the roof. The tower feature is proposed at a maximum height of 59
feet, 6 inches. The Zoning Ordinance allows exceptions for towers, although they are
not permitted to exceed 45 feet in total height or exceed the maximum height of the
building by more than five feet. Exceptions to this maximum are made by conditional
use permit. The City may consider the tower exception as part of the PUD.
A variance was granted for the existing Boutwells Landing buildings. For comparison,
the midpoint of the highest roof is at 49 feet, 8 inches on the northeast elevation of the
existing building.
Variance. Variance criteria is provided in Section 401.04 of the Oak Park Heights
Zoning Ordinance. The Planning Commission and City Council should review the
following criteria and conditions to determine if the variance is justified.
Review Criteria. The Planning Commission and City Council shall make a finding
of fact that the proposed action will not:
a. Impair an adequate supply of light and air to adjacent property.
b. Unreasonably increase the congestion in the public street.
c. Have the effect of allowing any district uses prohibited therein, permit a
lesser degree of flood protection than the flood protection elevation for the
particular area, or permit standards which are lower than those required
by State iaw.
d. Increase the danger of fire or endanger the public safety.
e. Unreasonably diminish or impair established property values within the
neighborhood, or in any way be contrary to the intent of this ordinance.
f. Violate the intent and purpose of the Comprehensive Plan.
g .
Violate any of the terms or conditions of Item 5, below.
Conditions for Approval. 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.
8
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.
Comment. In response to the criteria and conditions listed above, the primary hardship
to this variance is that three story institutional buildings, with what is required for space
needs and construction, cannot fit within a building height requirement of 35 feet.
Additionally, the mass of the buildings requires gabled roofs, dormers, and tower
elements to break up the facades and make the buildings more visually pleasing. A
variance was granted previously for other portions of the campus. The care center will
be at a lower height than the existing building. City planning staff recommends that the
building height variance be approved.
911 Calls. At City staff request, VSSA was asked to provide information on 911 calls
and how the addition of the care center will impact that call volume. The response from
VSSA representatives is as follows:
1) In December of 2006, Presbyterian Homes changed the dial "9"
program on our telephone system and eliminated this dialing
requirement. The goal was to reduce accidental calls made by
residents to 911. We tracked 911 calls for the three months prior to
the change and subsequent three months after the change. Our
9
data indicates a reduction from 61 to 40 calls, a 34 percent
reduction in 911 calls.
2) In relation to our new skilled project application, we have examined
our most recent new skilled facility in Bloomington. This is a facility
of similar size (100 beds) and our records indicate the facility
generates an average of 16 calls per month. We are continuing to
analyze data logs from other facilities to confirm this rate.
Development Contract. A development contract amendment will be required as part
of this PUD approval. The issue of payment in lieu of taxes for the care center will need
to be addressed in the contract. The contract shall be subject to review and approval of
the City Attorney.
CONCLUSION /RECOMMENDATION
Based upon the submittals and review herein, City staff recommends approval of the
general plan of development /PUD and a building height variance for the addition of a
care center to the Boutwells Landing campus. The general plan approvals are
recommended with the following conditions:
1. The approvals allow for 14 proof of parking spaces and an allowance of a seven
parking stall deficit from Zoning Ordinance requirements.
2 The City Engineer shall approve all driveway locations from 58 Street.
3. The City Engineer shalt comment on the traffic study and potential impact of the
expansion on 58 Street and Oakgreen Avenue.
4. The four propane tanks shall be removed from the site plans and not be installed
unless approved by the City.
5. The landscape plan is subject to review and approval of the City Arborist.
6. The site plan shall be revised to include plans for the outdoor play area subject to
review and approval of City staff.
7 The applicant shall provide additional plans for the grading and installation of
prairie grasses on the east side the Autumn Hills park. The plans shall be
subject to review and approval of the City Engineer and City Arborist.
8 The grading and drainage plans shall be subject to review and approval of the
City Engineer and Browns Creek Watershed District.
9 The utility plans shall be subject to review and approval of the City Engineer.
10
10. The applicant shall be allowed to install freestanding Tight fixtures that include a
non - conforming lens to match the existing site fixtures on site. A detailed lighting
plan for the building light fixtures shall be submitted for City staff approval prior to
installation.
11. Alt signage installed on site shall comply with the requirements of the Zoning
Ordinance.
12. The Planning Commission and City Council should comment on the building
architecture and materials.
13. The Planning Commission recommends and City Council approves a building
height variance to the mid point of the highest roof of 42 feet.
14. As part of the PUD approvals, the Planning Commission recommends and the
City Council approves the allowance for tower elements that do not exceed 60
feet in height.
15. The City Council should comment on the frequency of 911 calls generated by the
Boutwells Landing campus.
16. A snow removal and storage plan shall be submitted by the applicant.
17. The Police Chief and Fire Chief should comment on any safety vehicle access
issues of the access points, driveways, or of the general site plan,
18. A development contract amendment shall be executed subject to review and
approval of the City Attorney.
11
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Boutwell Landin,
TREE QUANTITIES
Prepared by: FFE, Inc.
Tree Number
26336
26337
26338
26339
26340
26341
26342
26343
26344
26345
26346
26347
26348
26349
26350
26351
26352
26353
26354
26355
26356
26357
26358
26359
26360
26361
26362
26363
26364
26365
26366
26367
26368
26369
26370
26371
26372
26373
26374
26375
26376
26377
26378
26379
26380
26381
dre Center
Tree Type
Cottonwood
Black Cherry
Black Cherry
Black Cherry
Black Cherry
Black Cherry
Cottonwood
Cottonwood
Cottonwood
Green Spruce
Green Spruce
Green Spruce
Black Cherry
Black Cherry
Black Cherry
Maple
Green Spruce
Blue Spruce
Green Spruce
Blue Spruce
Blue Spruce
Cottonwood
Cottonwood
Cottonwood
Cottonwood
Cottonwood
Green Spruce
Green Spruce
Blue Spruce
Green Spruce
Green Spruce
EIm Clump
EIm Clump
Elm Clump
Green Spruce Dbl
Green Spruce
Blue Spruce
Blue Spruce
Blue Spruce
Green Spruce
Blue Spruce
Blue Spruce
Black Cherry
Black Cherry
Black Cherry
Cottonwood
Tree Diameter
(INCH)
6
6
6
6
6
6
6
6
6
6
6
6
6
4
4
3
8
8
10
8
8
4
6
6
8
4
4
4
8
4
6
6
6
6
4
6
8
8
8
2
8
8
6
6
6
6
Dead Tree
(1NCH)
•
Tree Removed
6
6
6
6
6
6
4
4
8
8
10
8
8
4
4
4
4
6
8
8
8
2
8
6
6
6
Ho
1 of 3 02/07/2007
Prepared by: FFE, Inc.
Boutwell Landir
TREE QUANTITIES
26384
26385
26386
26387
26388
are Center
Tree Number Tree Type
26382 Cottonwood 8 8
26383 Cottonwood 4 4
Cottonwood 6
Cottonwood 8
Cottonwood 10
Cottonwood
Cottonwood
Tree Diameter
(INCH)
26390 Cottonwood 6 6
26391 Cottonwood 6 6
26392 Cottonwood 6 6
26393 Cottonwood 6 6
26394 Blue Spruce 8 8
26395 Green Spruce 8 8
26396 Green Spruce 8 8
26397 Green Spruce 8 8
26398 Green Spruce 8 8
26399 Green Spruce 4
26400 Green Spruce 4
26401 Green Spruce 4
26402 Green Spruce 4
26403 Green Spruce 4
26404 Green Spruce 4
26405 Green Spruce 4
26406 Green Spruce 4 4
26407 Green Spruce 4 4
26408 Green Spruce 4 4
26409 Green Spruce 4 4
26410 Green Spruce 4 4
26411 Green Spruce 4 4
26412 Green Spruce 4 4
26413 Green Spruce 4 4
26414 Green Spruce 4 4
26415 Green Spruce 4 4
26416 Green Spruce 4 4
26417 Green Spruce 4 4
26418 Green Spruce 4 4
26419 Green Spruce 4 4
26420 Green Spruce 4 4
26421 Green Spruce 4 4
26422 Green Spruce 4 4
26423 Green Spruce 4 4
26424 Green Spruce 4 4
26425 Green Spruce 4 4
26426 Cottonwood 6 6
26427 Cottonwood 6 6
26428 Blue Spruce 6 6
2 of 3
6
6
Dead Tree
(INCH)
Tree Removed
02/07/2007
Prepared by: FFE, Inc.
Boutwell Landin
TREE QUANTITIES
Tree Number
26429
26430
Ire Center
Tree Type
Blue Spruce
Blue Spruce
Tree Diameter
(INCH)
6
6
3 of 3
Dead Tree
(INCH)
Tree Removed
6
6
02/07/2007
f
NORWICH AVENUE
r
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8
2L202
Nosponn Ot701 I
LiCENSE No.
02/15/2007
212 mamma
aLva 1
€11.0
SSP
22-0
RtIzo
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