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HomeMy WebLinkAbout1988 03-02 Planning Commission Meeting Minutes RegularMINUTES OF THE REGULAR MEETING OF THE EDINA COMMUNITY DEVELOPMENT AND PLANNING COMMISSION HELD ON MARCH 2, 1988 AT 7:30 P.M. EDINA CITY HALL COUNCIL CHAMBERS MEMBERS ATTENDING: Lee Johnson, Geof Workinger, Helen McClelland, Del Johnson, Gordon Johnson, David Runyan, John Palmer, Jane Paulus and Virginia Shaw MEMBERS ABSENT: William Lewis and John Bailey STAFF PRESENT: Craig Larsen, City Planner Jackie Hoogenakker, Secretary I. NEW BUSINESS: Z-88-1 Planned Office District POD -1 & to Planned Commercial District P-88-1 PCD -2 for 7100 France Avenue South Room and Board Final Development Plan for expansion of 7100 France Avenue South Mr. Larsen informed the Commission the subject property is zoned Planned Office District, POD -1, and is developed with an office building with a gross floor area of approximately 27,000 square feet. The proponents have a purchase agreement to acquire the property and are requesting approval to relocate their Room and Board furniture store to this location. Mr. Larsen explained that currently, furniture stores are not an allowed use in the Office District. Furniture stores are allowed only in the Commercial Districts. Rezoning the property to PCD -2 would permit the proposed furniture sales use. It would also permit some 80 other retail uses. These uses re all permitted "as a right" in the PCD -2 District. The limiting factor of the site is parking. The proposed redevelopment of the property would provide 89 parking spaces which is in excess of the requirement for furniture stores but is significantly below the requirement for all other retail uses. Parking for furniture stores is required at a rate of one space per 400 square feet and all other retail uses require one space for each 200 square feet of gross floor area. Mr. Larsen pointed out the Comprehensive Plan Land Use Map designates the property as office. Rezoning the property to Commercial would require an amendment to the Comprehensive Plan. As an alternative to the rezoning and Comprehensive Plan Amendment the proponents have suggested a text amendment to the Zoning Ordinance. The proposed amendment would allow furniture sales in the office district as a permitted Conditional Use or as a permitted use subject to certain locational restrictions. The attached memorandum from Linda Fisher details the two alternatives and discusses the implication of each approach. Mr. Larsen added the proponents are also requesting approval of a Final Development Plan to permit an addition to the building and vacation of a portion of Mavelle Drive. The Final Development Plan proposes a 2 story addition to the west side of the building containing approximately 6000 square feet. The building would receive a new roof treatment and a complete exterior and interior renovation. Landscaping and screening would be provided at or above Zoning Ordinance requirements. At this time the improvements to the property are presented in conceptual form. Staff has suggested that the proponents delay final plans until resolution of the Zoning issues and Land Use. The site plan suggests the vacation of Mavelle Drive between Sandell Avenue and France Avenue. The vacated street would provide additional parking for the subject site and also for the adjacent building, 7010 France Avenue. The City Engineer has reviewed the proposed vacation and has no objection provided necessary public easements are retained. Mr. Larsen explained to the Commission the proposal does have a number of positive features. The building would be totally refurbished. More than adequate parking would be provided and peak hour traffic generation from the site would be reduced. The proposed landscape plan would provide a buffer for the residential uses immediately west of the subject property. The proposal also seems to offer a solution to the Zoning and Comprehensive Plan problem. However, the solution appears to be contrived. Adding a retail use as a permitted principal use in a non-commercial zoning district is not consistent with the logic or structure of our Zoning Ordinance. Where retail or quasi -retail uses are permitted in office buildings it is accessory to and for the benefit of the tenants of the office building. Regardless of how it's structured the result will be a change in use from office to commercial. The Comprehensive Plan, in discussing Southeast Edina states the following policy: "Restrict the extension of retail commercial uses in the area. Prohibit any rezoning to commercial district of lands not now zoned commercial." France Avenue has been the traditional westerly limit of retail use in this area. The existing retail uses north of the subject property predate modern zoning ordinances and land use plans. Mr. Larsen concluded if the requested use is allowed it will be more difficult to argue against other retail uses west of France Avenue. We routinely receive requests from retail tenants to occupy space in the office buildings in this area. Staff recommends that the rezoning request be denied. The proponents, John and Martha Gabbert of Room and Board, their attorney Linda Fisher and John Ashan, their architect were present. Tenants of the 7100 France Avenue Building were present. Ms. Linda Fisher, 1500 Northwestern Financial Center introduced herself to the Commission and briefly outlined for the Commission the highlights Ms. Gabbert will be illustrating during a brief slide show presentation. The highlights are as follows: 1) Room and Board was developed by John Gabbert in 1977. Room and Board has 9 locations, 5 in the Twin Cities metropolitan area. One location is in Edina at 70th and York (this facility will be relocated to the property in question if the request for rezoning or an amendment to the text of the Edina Zoning Ordinance is approved). 2) The improvements made to the Collins site for furniture use. 3) Existing characteristics of the site and current land use. 4) Illustrations of substantial improvements to the site enhancing the visual environment of the exterior as well as the interior if approval is granted. 5) An overview of vehicular trip generations in the area and parking circulation. Ms. Gabbert proceeded to deliver a short slide show presentation. Continuing Ms. Gabbert explained to the Commission how important location is to their furniture business. She added Edina has a very strong furniture market and Room and Board wants to retain Edina as a location. Ms. Gabbert pointed out intensity on the site will be reduced because furniture sales traditionally are the least intense of all retail uses. She said traffic will be reduced during peak hours by as much as 38%. The elimination of curb cuts would also reduce congestion on France Avenue. Ms. Gabbert told the Commission landscaping would be increased by 40 trees with adequate screening provided for the residential neighbors. Ms. Gabbert added the lot line at the rear of the property would be pulled in by 10 feet to soften impact. A flowering garden would be planted, the exterior would be updated and the interior would be upgraded to code with provisions for the handicapped. Ms. Fisher told the Commission she understands their concern of precedent setting regarding the rezoning proposal. She told the Commission she would like them to consider the proposed text amendment as an alternative to the proposed rezoning of the site. This alternative plan would allow the site to be used only for furniture sales. Any action taken on allowing an amendment to the text is a legislative act. This will give the City flexibility and any future use would have to be reviewed on an individual basis. Ms. Fisher outlined the criteria they have proposed to limit the availability of potential sites for this type of use within the POD District. They are as follows: (1) Adjacency to a lot or parcel in the PC -2 subdistrict used for commercial purposes; (2) non -adjacency to a lot or parcel in an R-1 district used for residential purposes; and (3) compliance with performance standards established by the Zoning Ordinance for the PID District and incorporated by reference in the PCD District and would otherwise be applicable to furniture sales that would occur within the PC -2 District. Ms. Fisher informed the Commission a study was undertaken of the City's current zoning and if the above mentioned criteria were applied only three, at the most four other sites in the City would meet these locational criteria. None of the sites are located immediately to the west side of France Avenue. The proposed amendment to text of the Zoning Ordinance would also protect the site from undesirable future uses if Room and Board would vacate it. Concluding Ms. Fisher told the Commission in order to accept the amendment to the text of the Zoning Ordinance this proposal must be viewed favorably. This is a specific use with a specific development plan that must be considered along with the text amendment. Commissioner G. Johnson asked Mr. Larsen what the zoning is on Marquette Bank. Mr. Larsen said a bank is allowed in either a commercial or an office zone. Commissioner G. Johnson noted there are several uses other than office along the west side of France. He questioned if they were "grandfathered in" after Zoning Ordinance No. 825 was adopted and the current Land Use was adopted. Mr. Larsen said that is a correct assumption. He noted before the adoption of the Zoning Ordinance Edina had a special zoning called the Community Store, which permitted commercial retail. Mr. Larsen said with the adoption of the Zoning Ordinance and the Comprehensive Plans permitted Land Use a "line" was drawn with the purpose of eliminating retail on the west side of France Avenue, south of 70th Street and the Daytons home store on the east side of France. Commissioner Runyan asked if parking at the property in question is adequate for the current use. Mr. Larsen said parking at the site is below minimum standards for office use. Ms. Fisher said the existing parking spaces on site is 77, to meet current Ordinance standards parking space requirements are 118. Currently there is a 41 space shortage at the building. Ms. Fisher explained the requested proposal would add 10 new spaces, a total of 87, a net gain of 10. Furniture use, including the addition would require 68 spaces which would put the site at 19 spaces over code. This would be a benefit to the site in terms of additional parking. Commissioner Palmer commented as you drive south along France Avenue one does view a subtle change from retail to office. The Zoning Ordinance and Comprehensive Plan determined 70th Street and France Avenue as a logical place to "draw the line". The Planning Commission discussed the uses along France Avenue. They said the issue becomes clouded due to uses beyond West 70th Street and France Avenue that are clearly commercial retail uses. One use cited was The Vault. Mr. Larsen said he understands their confusion and explained a certain tradition established these lines. When the Comprehensive Plan was considered in 1979 -1980 several policies were adopted. One policy adopted was the feeling that it is desirable to contain commercial centers in the community if there was an opportunity to do so. Commissioner Runyan commented the Church may be an appropriate place to implement this policy. Mr. Larsen indicated staff feels some hesitation in viewing the church as a stop gap because a "domino theory" may occur. Commissioner J. Paulus asked Mr. Larsen his opinion on an amendment to the text of the Zoning Ordinance vs. a straight rezoning. Mr. Larsen replied legal staff indicated -an amendment to the text of the Zoning Ordinance is something that can be implemented but is not consistent with the structure of the Zoning Ordinance. Re -Zoning the property would technically be "cleaner" because of the conditions applied to the property if the text amendment is approved. Commissioner Palmer said he favors a rezoning vs. the text amendment because the text amendment is tailored for the requested use. Commissioner Palmer also questioned if Room and Board vacates the property would the site be attractive as an office use or would the future uses be other types of retail. Ms. Fisher said as a small office building it is very attractive to many people. MS. Fisher added Room and Board does not anticipate vacating the site in the near future, the southdale area is one of the strongest areas in the country for furniture sales due to the combination of Daytons Home Store, Gabberts, Room and Board and Collins. This attractive furniture market would also be attractive to another furniture sale use if Room and Board would vacate. Ms. Gabbert said the proposed renovations to the building should make the building more marketable, the renovations are not entirely for furniture store use, the renovations include upgrading the bathrooms and handicap accessibility. Commissioner G. Johnson asked Ms. Gabbert if other tenants would be located in the building. Ms. Gabbert said Room and Board would be the principle use but Room and Board is committed to leasing space to other furniture uses. Commissioner McClelland said the low usage of this site is very attractive, but careful consideration must be given to the proposal. If this site would be vacated by Room and Board there would be a possibility of an unknown number of different retail uses residing on this site. That would be unacceptable. Ms. Fisher noted that is one reason the text amendment becomes attractive. Commissioner G. Johnson cautioned against "strip zoning" adding he does not want to see it along France Avenue. Commissioner McClelland suggested reviewing the permitted uses in the POD and PC districts and possibility reclassifying them. Ms. Terry Murphy, 1625 West 75th Street, a tenant of 7100 France Avenue Suite #44 told the Commission she is one of twenty tenants who are concerned with what will happen to them if this proposal is approved. Ms. Lois Thornton, tenant of 7100 France Avenue informed the Commission she has leased office space at this site for a number of years. If this proposal is approved she would be hurt financially. She said her business is for sale and part of the attractiveness of her business is its location. Ms. Fisher said because of the purchase agreement she is unable to comment on this issue. Those tenants who have leases legal rights will be respected. Commissioner D. Johnson asked Ms. Fisher to clarify trip generations for the current use vs, the proposed use. Ms. Fisher said a analysis of the site has not been done. She added traffic engineers have come up with a trip generation figure for 1000 gross square feet of a building which compares with the site in question. The results are; in office uses of this size the trip generation rate is 2.82 p.m. peak hour trips compared with 1.75 p.m. peak hour trips for furniture use. Commissioner D. Johnson asked City Engineer, Fran Hoffman if he agreed with Ms. Fishers statements. Mr. Hoffman indicated he agreed with Ms. Fishers statements, traditionally office use is more intense than retail furniture use. Commissioner D. Johnson said he has a real concern regarding increased traffic along France in view of the proposed development of the Hedberg site and the proposed medical office located on the Fairview Southdale Hospital campus. Commissioner J. Palmer said the proposal is very attractive and well presented but expressed concerns about traffic, precedent setting etc. He said he would like to study this issue further. Commissioner McClelland agreed with Commissioner Palmer adding this issue should be held over allowing staff time to compile information needed to make a educated decision. Items that would help in this decision making process would be to an overview of the area showing the principle and accessory uses of each building. She said she would like the information to include Crosstown Highway/France Avenue intersection through 494/France Avenue. Commissioner D. Johnson also added he would like to see the future developments and re -developments along France Avenue noted. Commissioner L. Johnson said this proposal is a plus for the site and the area. Commissioner G. Johnson agreed with Commissioner L. Johnson that the proposal is a plus for the site and the area but careful review must be given to avoid problems if other applicants enter the process for rezoning. The whole picture must be carefully considered. Commissioner G. Johnson agrees this item should be continued to the next meeting. Commissioner J. Palmer asked that information from the Comprehensive Plan, Land Use Map and Zoning Ordinance be made available for their review. Commissioner McClelland moved to recommend that Z-88-1, P-88-1 be continued to March 30, 1988 allowing staff adequate time to compile information needed to make an educated decision. The information needed would be a list of uses contained in buildings from Crosstown Highway/France through France/494, information on future development and re -development uses and materials from the Zoning Ordinance and Comprehensive Plan as it relates to this issue. Commissioner Paulus seconded the motion. Ayes: G. Johnson, D. Johnson, L. Johnson, H. McClelland, V. Shaw, J. Paulus, J. Palmer , R. Runyan, G. Workinger The motion carried. Ms. Paulus excused herself from the meeting. S-88-1 Preliminary Plat Approval Interlachen Bluff, Andron, Inc. General Location: South of Interlachen Boulevard and east of Interlachen Circle. Mr. Larsen explained to the Commission the subject property consists of two, large unplatted lots developed with two single family homes. The existing dwellings would be removed if the subdivision proceeds. (one was recently demolished) The total area of the property is 5.37 acres. Mr. Larsen informed the Commission the preliminary plat proposes 11 single family lots. Ten of the new lots would front on the proposed cul de sac, the other lot, lot 1 in the northwesterly corner would access directly on Interlachen Boulevard. The lots range in size from 16,100 square feet to 21,750 square feet in area. The average lot size is 17,875 square feet. Lot widths range from 100 to 128 feet with an average width of 108 feet. All of the lots exceed Zoning Ordinance requirements for single family lots. Mr. Larsen pointed out immediately west of the subject property is Victorsen's East Mirror Lake plat. The typical lot in the plat is about 90 feet wide and contains roughly 11,000 square feet. East of the subject property is the Skyline Addition. Lots in this plat vary widely in size and shape, but a typical average lot width seems to be about 120 feet. Nearby lots fronting on Interlachen are 95 or 100 feet wide. Highlands Park is immediately south of the subject property. The southerly portions of the site are significantly lower than Interlachen Boulevard. In order to achieve an acceptable street grade there is a need for extensive cut and fill work as indicated on the grading plan. The resulting proposed street grade is approximately 7 percent. The proposed grade is similar to the grade of Interlachen Circle. Lot 11 of the proposed subdivision is currently a low area which collects water during heavy rains. The proposed development will force redirection of this water. This would be accomplished by closing the two existing drains from Interlachen Boulevard and re -directing water down the new cul de sac. Other water which now drains into this depression would be collected by a new catch basin near the southeast corner of Lot 11. All storm water run-off from the development would drain to Highlands park. Sanitary sewer would run westerly from the most southerly point of the property to a truck sewer line in Highlands Park near Mirror Lakes Drive. The line would run between the lake and the rear property lines of the homes on Interlachen Circle. This relatively long run would eliminate the need for a lift station which would be necessary if the sanitary sewer were to connect to Interlachen Boulevard.. Mr. Larsen said development along Interlachen Boulevard, both north and south, can be characterized as a series of individual neighborhoods with widely varying characteristics. Typically the developments are not connected to one another making comparisons between neighborhoods difficult and not particularly valid. The proposed subdivision will create another new separate neighborhood. This new subdivision will not adversely impact the character and symmetry of other nearby neighborhoods. Mr. Larsen concluded that lots in the proposed subdivision are substantially larger than Zoning Ordinance minimum requirements and will provide for the development of large homes in conformance with setback and lot coverage restrictions. As proposed the street will have an acceptable grade, and will provide landing areas at the cul de sac and at the intersection with Interlachen Boulevard. The proposed sanitary sewer line avoids a lift station, thus avoiding a future maintenance problem for the City. City Staff and Staff of Nine Mile Creek Watershed District will further study the grading and storm water drainage plans between preliminary and final plat approval. Preliminary Plat Approval should be conditioned on: 1. Developer's Agreement 2. Subdivision Dedication 3. Nine Mile Creek Watershed District Grading Permit Mr. Richard Andron, the proponent was present. Mr. Andron explained to the Commission his intent is to design and build a quality neighborhood. Commissioner G. Johnson asked Mr. Andron if he will be developing all lots or a portion of them. Mr. Andron stated at the present time he plans to develop five/six lots of the proposed eleven. The remaining lots will be developed by other developers. Commissioner L. Johnson asked for clarification on the grading plan. Mr. Andron said it is his intent to grade 20 feet beyond the right of way. Grading will be done on an individual basis according to the topography of the lot and future house placement. Commissioner Runyan asked Mr. Andron the type of soil found at this site. Mr. Andron said the soil is a good mixture of sand and clay. Commissioner McClelland commented that the proposed plat will have to be reviewed and a permit granted by the Nine Mile Creek Watershed District. Mr. Andron answered that is correct. Commissioner D. Johnson moved to recommend preliminary plat approval subject to staff conditions. Commissioner Palmer seconded the motion. All were in favor. The motion carried. Ayes: McClelland, C. Johnson, D. Johnson, L. Johnson, Shaw, Workinger, Runyan, Palmer C-88-1 Calvin Christian School 4015 Inglewood Avenue South Request: Conditional Use Permit to allow an addition to the school Mr. Larsen informed the Commission Calvin Christian School is located immediately east of the First Christian Reformed Church at the corner of Grimes and Inglewood Avenue. The property is bordered on three sides by park/open space. To the west and northwest of the church are single family homes. The school provides instruction in grades K-8 for approximately 175 students. Mr. Larsen explained the school has submitted an application for a Conditional Use Permit to allow the construction of an addition to the school containing 10,514 square feet. The addition would contain three classrooms and a recreation/multi-purpose room. The addition will eliminate the need to use the church for school activities and eliminate the need to bus students for physical education classes. Mr. Larsen pointed out the church and school, by agreement, share parking. According to information provided by the school, coordination of church and school activities prevents parking shortages. The Zoning Ordinance requirement for parking is 236 spaces. The option B site plan illustrates 236 spaces. The school would prefer option A which would add 59 spaces to the existing parking and provide a total of 142 spaces. The new spaces are proposed more as a convenience to the school than from an anticipated increased demand. The full compliment of parking would prevent the development of the proposed ball field north of the proposed addition. The school has offered to enter into a proof of parking agreement to protect against future parking shortages. Mr.Larsen told the Commission materials for the first floor of the addition would be brick to match the existing brick. The second story of the gymnasium portion would be finished with precast concrete panels. The proposed materials comply with Zoning Ordinance standards. Mr. Larsen concluded the proposed addition conforms to all Zoning Ordinance requirements, except parking. Staff supports the variance to reduce required parking. The proposed parking should be more than adequate and will reduce the amount of hard surface on the site. Staff recommends approval of the Conditional Use Permit subject to a Proof of Parking Agreement. Representatives for the school, Mr. Jay VanLund and Philip Hoppe were present. Mr. Hoppe informed the Commission the school held a neighborhood meeting regarding the proposal. Neighborhood reaction was favorable. Commissioner Palmer moved to recommend approval of the Conditional Use Permit subject to the staff recommendation of a Proof of Parking Agreement. Commissioner Shaw seconded the motion. All were in favor. The motion carried. Ayes: McClelland, Palmer, G. Johnson, L. Johnson, D. Johnson, Runyan, Shaw, Workinger LD -88-2 Pat Kaiser. 7017 and 7019 McCauley Trail Mr. Larsen informed the Commission the proponent is requesting a party wall lot division for an existing double bungalow. Separate utility connections are provide. Mr. Larsen concluded staff recommends approval. Commissioner McClelland moved to recommend approval. Commissioner Palmer seconded the motion. All were in favor. Ayes: McClelland, G. Johnson, G. Johnson, L. Johnson, Shaw, Workinger, Runyan and Palmer III. OTHER BUSINESS: Subdivision Standards A brief informal discussion ensued with members of the Commission expressing satisfaction with the City's subdivision standards and the logic of the City's land use. They agreed that to this date the present system is a system that works. IV. ADJOURNMENT The meeting was adjourned at 10:30 p.m. Cft lin Hoogenakkerd ecretary