HomeMy WebLinkAbout2005-09-01 NAC Planning ReportPLANNING REPORT
TO: Eric Johnson
FROM: Scott Richards
DATE: September 1, 2005
RE: Oak Park Heights - Village at Oak Park Heights -- Planned Unit
Development — Comprehensive Plan Review
FILE NO: 798.02 — 05.09
BACKGROUND
NORTHWEST AS C I ATE CONSULTANTS, INC.
4800 Olson Memorial Highway, Suite 202, Golden Valley, MN 55422
Telephone: 763.231 .2555 Facsimile: 763.231 .2561 planners@nacplanning.com
CSM Equities LLC has made application for a PUD concept plan approval to allow the
development of property south of 60 Street North and east of Wal Mart. The subject
site is 22.36 acres and will be developed adjacent to the proposed Norwich Avenue
North, a north /south roadway that will connect 60 Street with 58 Street. The
development is proposed in what was formally the Central Business District that was
rezoned B -4, Limited Business District by the City Council on July 26, 2005. At that
meeting, the City Council also approved a motion to repeal the Central Business District
development moratorium.
The proposed development includes a Lowe's Home Improvement Center as the main
stand alone tenant. The area to the front (north) of the Lowe's is currently proposed
with one retail pad (a bank with drive through), one restaurant pad, and buildings with
multiple retail and restaurant users.
The Comprehensive Plan land use designation of commercial and the B -4, Limited
Business District zoning would accommodate the proposed development. The
development has also been planned to accommodate the proposed placement of
Norwich Avenue and the Oakgreen Village residential project. That concept plan has
been recommended by the Planning Commission but has not been reviewed by the City
Council.
Attached for reference:
Exhibit 1:
Exhibit 2:
Exhibit 3:
Exhibit 4:
Exhibit 5:
Exhibit 6:
Exhibit 7:
Exhibit 8:
Exhibit 9:
Exhibit 10:
Exhibit 11:
Exhibit 12:
Exhibit 13:
ISSUES ANALYSIS
Adjacent Uses. Uses adjacent to the subject site are listed below:
North of Site:
South of Site:
West of Site:
East of Site:
Project Location
Existing Conditions
Preliminary Plat
Conceptual Site Plan
Conceptual Grading Plan
Conceptual Utility Plan
Conceptual Stormwater Management Plan
Conceptual Landscape Plan
Norwich Avenue Plan and Profile
Project Description
Wal Mart Access Easement Statement
Lowe's Elevations
Retail Elevations
Present Zoning:
Present Use:
Present Zoning:
Present Use:
Present Zoning:
Present Use:
Present Zoning:
Present Use:
Stillwater Business Zoning north of Highway 36
60 Street North and Highway 36
B -4, Limited Business District
Undeveloped Area
B -4, Limited Business District and
B-2, General Business District
Applebee's and Wal Mart
B-4, Limited Business District
Undeveloped Area and Xce! Substation
Proposed Project: The proposed development would feature a Lowe's Home
Improvement Center as the primary stand alone tenant. The store would be placed
south of the Xcel power line easement. A retail bank with drive - through, a restaurant
pad, and three separate buildings with small retail and restaurant tenants are planned to
the north of the power line easement near the 6O Street /Highway 36 frontage.
The development would be accessed from Norwich Avenue North which would be
constructed between 58 and 60 Streets at the time of project development. Access
would also be provided from Novak Avenue North to the west. The placement of
Norwich Avenue North is consistent with the concept plan for Oakgreen Village, the
townhome development directly to the east. The Planning Commission, at their June 9,
2005 meeting, recommended approval of the concept plan for the 79 unit townhome
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development. The concept plan has been forwarded to the City Council for review but
not placed on a meeting agenda as per the applicant's request.
The southerly portion of the development site (71.03 feet) has been taken from the
property platted as Boutwell's Landing Outlot A. VSSA has agreed to allow a portion of
this property to be incorporated into the development plans for Lowe's. VSSA
representatives have indicated that they will continue to pursue a mixed office and
residential development for their property north of 58 Street. A concept plan was
approved for development by VSSA in this area but that approval has expired.
Comprehensive Plan. The City Council amended the Comprehensive Plan Land Use
Map as its July 26, 2005 meeting to eliminate the Central Business District land use
designation and replaced it with commercial land use. The subject property is totally
contained within the former Central Business District. The proposed development is
consistent with the new commercial land use designation of this property.
Zoning. The City Council at its July 24, 2005 meeting rezoned all of the area specified
as Central Business District to B -4, Limited Business District. The proposed
development is consistent with the new B -4 District zoning of the property. A planned
unit development is requested to allow joint access and parking of the coordinated
development plan.
Subdivision. A preliminary plat was submitted as part of this application. The plat
would dedicate right -of -way for Norwich Avenue North and create the separate
development parcels. Also, as part of the process, existing right-of-way and utility
easements would need to be vacated. The City will require the applicants to pay fair
market value for the land held by easements and the right -of -way. The development
agreement will specify the amounts and terms of reimbursement for the property. The
preliminary plat and public hearing for the vacations would not occur until the general
plan of development review. At that time, the City will also need to determine what
areas would be subject to park dedication.
Street Access. Access for the development would be from Novak Avenue North and
Norwich Avenue North. The plans indicate the construction of Norwich Avenue North
between 60 Street North and 58 Street. Norwich has been designed to meet the
City's specifications for the drive /turn lanes but has only been planned with an 80 foot
right -of -way. The concept plan recommendation for the residential development to the
east (Oakgreen Village) included a condition that a 100 foot right -of -way be provided for
Norwich to allow for adequate screening and landscaping between differing land uses.
The plans as submitted indicate the close proximity of the proposed residential
development to Norwich and the commercial development to the west. It is suggested,
at a minimum, that 100 feet of right -of --way be provided for Norwich Avenue from the
northerly Xcel power line easement south to 58 Street. CSM is also working with the
property owner to the east for a potential commercial development proposal. If the
entire area is developed as commercial, an 80 foot right -of -way for Norwich would be
adequate.
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The project developers are working with Wal Mart to allow for a cross connection at the
front of the buildings to provide joint access. The City would encourage that discussion
and it is highly recommended to be implemented as part of the expansion of Wal Mart
and construction of the Lowe's store.
Traffic Analysis. The applicant has provided a traffic impact study for the proposed
development. The City Engineer will provide a review of the traffic study in a separate
report.
Trails /Sidewalks. The concept plans do not provide an internal system of
sidewalks /trails or indication of trail connections along Norwich Avenue North. With the
residential concept plan for Oakgreen Village, the City had recommended private
sidewalks on the residential side of Norwich and a public sidewalk on the west of
Norwich. The Planning Commission and Parks Commission should comment on the
private and public sidewalk/trail system for this development. As part of the general
plan of development, the applicant shall indicate the private and public trail system
plans for the area.
Setbacks. A 35 foot drainage and utility easement was established as part of the
Haase Addition plat on the north property line of the development. The buildings and
parking have been setback south of this easement area. The B -4 District requires 40
foot front yard setbacks, 10 foot side yard, and 20 foot rear yard setbacks. The
buildings along 60 Street North are setback at 35 foot and 30 foot distances from the
right-of-way. The buildings on Novak are proposed to be setback 20 feet from the right -
of -way but a 40 foot setback would be required by the B -4 District. The City has the
ability, through the PUD process, to vary from the B -4 District requirements. The
Planning Commission and City Council should comment on this issue. Alt of the other
setback distances for buildings and parking are met.
Fencing /Screening. The rear of the Lowe's store adjoins property that is
undeveloped and owned by VSSA. Formerly approved concept plans for the VSSA
property have included multi story mixed commercial and residential buildings. A 20
foot landscape area with a six foot board on board fence is proposed in the concept
plan as a screen to the rear of the store and the loading dock areas. In one area,
adjacent to the loading dock in the southwest corner of the store, the setback area is
reduced to 10 feet. Staff has significant concerns with the width of the setback areas
and the preliminary screening plan that has been submitted. It is recommended that at
least 30 feet of setback be provided with berms, fencing and plantings. Experience with
plan review for the previous Lowe's store review indicated that the roof of the store will
contain numerous heating and air conditioning units and other mechanical equipment.
As part of the general plan of development review, the applicants will need to address
ways in which the building mechanicals, as well as the rear of the building and loading
areas, can be effectively screened.
Additional setbacks and landscaping should also be proposed along Norwich Avenue.
Increasing the right -of -way to 100 feet, from 58 Street to the north line of the Xcel
power line easement, will assist in providing the separation and adequate area for
4
boulevard plantings to assist in screening the development from the potential residential
neighborhood to the east.
Landscape Plan. A conceptual landscape plan has been submitted for this project.
An existing tree inventory and preservation plans will need to be prepared for the
property for review at the general plan of development stage. The plan indicates
significant landscaping around building pads, at the parking lot perimeters, and within
parking lot islands. It is suggested that all of the parking lot islands be increased in size
to at least 15 feet in width to assure survivability of the plant material. The landscape
plan and tree preservation plans shall be subject to review and approval of the City
Arborist at the general plan of development stage.
Grading, Drainage and Utility Plans. Conceptual grading, drainage and utility plans
have been submitted. The City Engineer shall comment on any issues with the plans at
the concept plan stage. A stormwater pond has been provided within the development
to address runoff issues. Alt grading, drainage and utility plans shall be subject to
review and approval of the City Engineer.
Parking. According to Section 401.15.F of the Zoning Ordinance, shopping centers
must provide six parking spaces per each 1,000 square feet of gross floor area. As part
of the approvals for the other Lowe's location on Highway 5, the City accepted a parking
ratio of one space per 290 square feet of gross floor area. The current proposal
includes a slightly smaller building footprint of 141,591 square feet. With the 10 percent
reduction in gross square footage for calculating parking stalls, the net building square
footage is 127,432 square feet. The applicants have proposed a parking ratio of one
space per 235 square feet of gross floor area. The parking proposed as part of the
concept plan is 545 stalls for the Lowe's store. This is an increase from the 521 stalls
proposed for the larger store on Highway 5.
The other buildings in the development total 48,475 square feet of gross floor area. The
parking requirement for these structures is 292 parking spaces based upon the
shopping center requirement of six spaces per each 1 ,000 square feet of gross floor
area. The concept plan indicates a total of 300 parking spaces for this portion of the
development.
A conditional use permit, as part of the PUD approvals for the project, will be required to
vary from the parking standards for the Lowe's portion of the development. That will be
processed and reviewed in more detail as part of the general plan of development
stage.
The concept plan indicates that the parking stalls in the development are proposed at
nine feet wide, 18 feet long, with 24 foot drive aisles. Section 401.15.F.h.1) requires
parking stalls to be 20 feet in length. A variance would be required to deviate from the
specified parking standards. Staff recommends that the applicant be required to revise
the parking lot design to comply with City parking stall dimension standards as part of
the general plan of development submittal. The City Engineer should comment further
on the proposed stall size reductions.
5
Building Orientation /Internal Access /Site Issues. The building locations and
orientation of the building are positive for the site and the orientation will provide good
visibility for the Lowe's building to the south. The City Engineer will comment on the
access locations to Novak Avenue and Norwich Avenue, although the driveways and
parking to be positive for the development and existing /future development in the area.
The Zoning Ordinance requires drive throughs to have at least 180 feet of stacking
distance. The proposed bank drive through, as designed, will have adequate stacking
distance. The general plan of development will need to more clearly address site
details such as pedestrian access, loading areas, and trash enclosures.
Architectural Appearance. As the development moves forward, the architectural
appearance of the structure will be subject to detailed review in comparison with the
Design Guidelines. Preliminary concept elevations for the buildings appear to be
generally consistent with the Design Guidelines.
Building Height. The B -4 District specifies a maximum building height of 35 feet. The
northerly part of the site is subject to a 22 foot height limitation imposed as part of the
Wal Mart development. The Lowe's structure would be subject to the 35 foot height
limitation but it is expected that a request for deviation would be made as part of the
general plan application to address certain building features.
Lighting, Signage, and Landscaping. Detailed plans related to lighting, signage and
landscaping have not been submitted. Such plans will need to be submitted and
considered as part of the general plan of development review.
Development Agreement. The applicant will be required to enter into a development
agreement with the City pending approval of the concept and general plan. The
agreement shall specify the terms of the private and public improvements that will be
done as part of the development process.
CONCLUSION 1 RECOMMENDATION
The proposed development is consistent with the Comprehensive Plan and the zoning
for this property. While issues remain related to setbacks, screening and proposed
right -of -way width, staff would suggest this project would be recommended for concept
plan approval with the following conditions:
1. A preliminary /final plat is submitted as part of the general plan of development.
2. The applicant provide a property appraisal for those areas subject to park
dedication.
3. A public hearing shall be held for vacation of existing right -of -way and utility
easements. The development agreement shall specify the amount and terms for
reimbursement to the City for the vacated right -of -way and easements.
6
4. The street design of Norwich Avenue shall be subject to review and approval of
the City Engineer. The project developers shall dedicate 100 feet of right -of -way
for Norwich Avenue from the northerly edge of the Xcel power line easement
south to 58 Street.
5. The City Engineer shall comment on the traffic analysis provided by the
applicant. The traffic circulation plan and required improvements shall be subject
to review and approval of the City Engineer.
6. The Planning Commission and Park Commission should comment on the private
and public trail and sidewalk system for the area.
7. The Planning Commission should comment on the proposed setbacks from
Novak and 60 Street North. City staff recommends that all setbacks comply
with the B -4 District requirements.
8. A 30 foot setback from all parking and drive aisles with plans for berms, fencing
and screening be provided at the south property line of the development. The
revised plans shall be provided at the general plan of development stage.
9. The building plans for Lowe's to be submitted for general plan of development
review shall address screening of roof mechanicals.
10. Detailed tree inventory, tree preservation, and landscape plans shall be provided
for general plan of development. Alt parking lot islands shall be increased to at
least 15 feet in width.
1 `I . Detailed grading, drainage and utility plans shall be provided for general plan of
development review.
12. The Zoning Ordinance parking requirement of six parking spaces per 1,000
square feet may be varied for the Lowe's portion of the development as part of
the general plan of development approvals. Applicants shall work with City staff
to determine appropriate ratio for the development.
13. The parking tot design shall be revised to comply with all Zoning Ordinance
parking stall and drive aisle dimension standards.
14. The general plan of development submittal shall address site details such as
pedestrian access, loading areas, and trash enclosures.
15. The Fire Marshal and Police Chief should review the plans and determine the
accessibility of emergency vehicles throughout the development.
16. The plat shall dedicate right -of -way for Norwich Avenue and all required
easements as required by the City Engineer and City Attorney.
7
17. The Planning Commission and City Council should comment on the design of
Norwich Avenue including screening, landscaping and boulevards that may be
required.
18. Detailed architectural plans for the proposed buildings in the project shall be
required for general plan of development review.
19. The architectural appearance of the structures shall be subject to Design
Guidelines review as part of the general plan of development consideration.
20. The applicant shall be required to enter into a development agreement with the
City subject to review and approval of the City Attorney and City Council. All
cross easements and other easement documents required for this development
shall be subject to review and approval of the City Attorney.
8
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DEVELOPING REAL ESTATE FOR PEOPLE,
BUSINESS & COMMUNITIES
Village at Oak Park Heights
PUD Concept Plan /Preliminary Plat Narrative
August 10, 2005
PUD Concept Plan
Introduction:
The Village at Oak Park Heights will be located adjacent to Highway 36 in Oak Park Height's main
retail corridor. It is envisioned that a new retail project on this site would not only enhance the
architectural character of the area, but it could begin to unify the area into one cohesive city center.
The added retail activity would strengthen current retailers in the area and could also be a catalyst
for the redevelopment of the adjacent residential /commercial area at the corner of Oakgreen and
Hwy 36.
This site will be strengthened by high quality architecture that reinforces the growing retail along
Highway 36. Founded in 1976 and based in Minneapolis, CSM is a portfolio developer that retains
ownership of all the projects we develop. This necessitates that CSM utilize high levels of finish to
ensure that the development remains a strong asset for many years. The project will occupy the site
of an old salvage yard with very little architectural integrity. The existing buildings on the site are
vacant and in dilapidated condition. This is an opportunity for the City of Oak Park Heights to help
transform an old industrial site into a prime destination retail center. Additionally it will increase the
property tax base by upgrading the property to a higher and better use.
Site I�eveomentR
Many plans were discussed and analyzed for the site. The current layout for this commercial retail
project is made up of one large anchor tenant, one retail pad (a bank with drive through), one
restaurant pad, and retail strip made up of smaller retailers and restaurant users. The final layout has
not yet been established and will result from continued input from the City and area residents.
As a result of marketing efforts, CSM currently has tenant commitment from Lowe's Home
Improvement Center. CSM also has high level of interest from M &I Bank plus other national and
local retailers and restaurants.
Discussion of site and building design:
The foreground of the development will set the tone for the backdrop of the larger anchor retailer.
With smaller scale multi - tenant retail shops surrounding the site, this is a place for the public to
gather amongst benches, outdoor dining patios, and colorful landscaping. The architecture of the
Pagel of3
500 Washington Avenue South, Suite 3000 Minneapolis, MN 55415 • PH: (612) 395.7000 EX: (612) 395.7001 • www.csmcorp.net
I o
small shop retail will have pedestrian scale elements such as maximized storefronts, canvas
awnings, and ornamental light fixtures. The facades will use a variety of materials, colors, and
textures to express the smaller scale identities of each tenant. Unique signage will be encouraged,
yet the size and placement will be carefully guided.
Infrastructure:
Roadway Access:
A new north/south roadway will be constructed and shall serve as the entrance to the ro' ect
p J
(Norwich Avenue). This roadway borders the eastern boundary of the project and will terrninate at
60th Street (South Frontage Road) on its northern limit and at 58 Street on its limit. southern l�mit..A
secondary point of access will be provided via the existing Novak Avenue alignment, which
currently serves as an access to Applebee's. The project may also provide an additional internal
access on its western boundary to the existing Wal -Mart store. Although Norwich Avenue will be a
public roadway, its primary purpose is to facilitate circulation within the Project Site, and to feed
the development generated traffic to 60 Street and to 58t Street.
Traffic Impacts:
A traffic impact study has been completed to identify potential traffic impacts associated with the
project. In addition, the traffic study identifies strategies for improving or mitigating these p otential
impacts. Refer to the draft Lowe's Home Improvement Center Traffic Impact Study, dated August
9, 2005 for additional information and details.
The results of the traffic study found the planned year 2010 construction of the MnJDOT St. Croix
River Crossing and TH 36 Roadway Improvement Project (MnIDOT Preferred Alternative B -1 ) is
expected to accommodate the forecast year 2010 traffic volumes (with this project) at an acceptable
level of service for the key intersections evaluated. The traffic study also identifies several
alternative mitigation measures to help reduce the impact of the expected traffic operation
deficiencies in the interim. Refer to the draft Lowe's Home Improvement Center Traffic Impact
Study, p
y, dated August 9, 2005 for additional information and details.
Site Utilities:
All sanitary sewers from this project shall be routed to the north side of the site and delivered to the
12" VCP sanitary sewer on the south side of the 60 Street right -of -way. As this site is currently
zoned B -4, it is anticipated that the existing sanitary sewer at 60 th Street has been sized to
accommodate commercial sanitary requirements from this area and will therefore be sufficient to
service the development. Although the existing sanitary sewer is sufficiently deep to serve the site,
the capacity of the receiving sanitary sewer facilities should be reviewed by the City with this
development proposal.
Trunk watermain service is available to serve the proposed site from the existing watermain in the
southern right-of-way of 60 Street. The watermain will be looped through the site connecting a
. 60th g g t
both the intersection of Norwich Avenue and 6D h Street as well as at the northern access p oint to
Novak Avenue. The watermain will continue southerly within the Norwich Avenue right-of-way to
its intersection with 58 th Street where it will connect to an existing trunk watermain. It is currently
Page 2 of 3
assumed, and has not yet been verified that a trunk watermain is located near the intersection of
Norwich Avenue and 58 Street.
Stormwater and Drainage:
Surface water runoff from the site will be directed to an on -site pond prior to discharge off the site
to the pond on the south side of the existing Applebee's restaurant. Surface water discharges from
the site will meet City and watershed requirements for rate control, volume control, and water
quality. Temporary and permanent erosion control measures will be employed to meet City erosion
control standards and the MPCA NPDES requirements.
PRELIMINARY PLAT
Lot Descriptions:
The total acreage for the property is 2236 acres. The development will be made up of six land
parcels. The designation and sizes are as follows: Lot 1 is 12.07 acres and will contain the Lowe's
Home Improvement building and parking area. Lot 2 is 1.55 Acres, Lot 3 is 1.29 acres, Lot 4 is 0.77
acres, Lot 5 is 0.81 acres and all contain small to intermediate sized retail /commercial buildings and
parking areas, Lot 6 is 2.81 acres and contains a retail/commercial building and parking area along
with a detention pond that serves the entire 22.36 acre site. The remaining 3.06 acres of the site are
dedicated as right -of -way.
Vacation of Existing Road & Utility Easements:
Two road and utility easements will need to be vacated as part of the development process. Both
easements are defined as part of document No. 1005324. The first is near the north side of proposed
Lot 1 and was recorded as 59 Street North. It does not appear as though any road improvements
have been made in this area nor does it appear that any utilities lie within the easement. The second
area to be vacated is 40 feet wide and is located near the south side of proposed Lot 1. It does not
appear that any utilities lie within this easement.
Riht� -of -Wad Dedication
It is proposed that as part of the development process, right-of-way will be dedicated along the east
side of Lots 1 -6. This right-of-way will be dedicated as Norwich Avenue North and will run north -
south from 58 Street North to 60 Street North and will be dedicated as an 80 foot wide right-of-
way.
Also with this project, 60 Street North, which runs east -west along the north side of the site, will
have right- of-way dedicated to fit the current record right -of -way as described in plat no. 8285.
Proposed General Schedule:
Summer- winter 2005/2006 City approvals and permits
Spring/Summer 2006 Demolition of existing buildings and mass grading
Summer/Fall 2006 Construction
Page 3 of 3
$ US DEVELOPING L ESTATE F O...
PEOPLE,
August 24
2005
Oak Park Heights is Plannin
g Commission:
As part of this
cross � s Proposed dev elopment, L0 9 s has
negotiations � e neighboring �e s expressed
����� � _ ng �a� -� � essed an interest
obtain such a� �a� for this store. At this time in creating a
ch cross access access a m e z
ss �o the s�� and will su has not entered in into
��� ear effort to
�
500 Washington Avenue South, Suite 3000 Min neapolis, MN 55415 PH:
(b 7 2) 395.7000 FX:
(b 1 2) 3 95.7on l •
13