HomeMy WebLinkAbout2013-07-10 Planning Commission Regular Meeting MinutesMINUTES OF THE
REGULAR MEETING OF THE PLANNING COMMISSION
CITY OF EDINA, MINNESOTA
CITY COUNCIL CHAMBERS
JULY 10, 2013
7:00 PM
I. CALL TO ORDER
II. ROLL CALL
Answering the roll call were: Scherer, Schroeder, Potts, Platteter, Forrest, Grabiel, Carpenter,
Carr, Cherkassky, Kilberg Staunton
III. APPROVAL OF MEETING AGENDA
Commissioner Carpenter moved approval of the meeting agenda. Commissioner Platteter seconded
the motion. All voted aye; motion carried.
IV. APPROVAL OF CONSENT AGENDA
Commissioner Scherer moved approval of the June 12 & 24, 2013 meeting minutes. Commissioner
Carpenter seconded the motion. All voted aye; motion carried.
V. COMMUNITY COMMENT
None
VI. PUBLIC HEARINGS
A. Comprehensive Plan Amendment, Preliminary Rezoning to Amend the PUD-3 Zoning
District, Preliminary Development Plan. Mount Properties/Aurora Investments, 6500
France Avenue, Edina, MN
Staff Presentation
Planner Teague informed the Commission they are being asked to consider a change to the
proposal to redevelop the property at 6500 France Avenue. The previously approved plan for
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the site was a five-story, 62-foot tall, 102,478 square foot medical office/retail building with an
attached 4-5 level parking ramp.
Teague explained that Mount Development and Aurora Investments, LLC are requesting
consideration of a change in use to 111 units of senior assisted living; 68 units of traditional
care/skilled nursing and memory care beds and 18 care suites. The "care" suites would include
short term stays by patients that have had surgery at Fairview Hospital or Twin City Orthopedic
(TCO). The building would be similar in style from the previously approved building and still be
five stories in height. A pedestrian skyway would connect the building to the hospital parking
ramp to the north. The previously approved parking ramp would be removed and replaced with
housing. The parking would be provided underground. There would be a 15,000 square foot
reduction in the structure footprint from the previous plan.
To accommodate the request, an amendment to the Comprehensive Plan and an amendment
PUD Zoning District would be required. Teague further explained that this development
proposal is subject to a two-step review process. The first step in the process is to obtain the
following approvals: A Comprehensive Plan Amendment to allow senior housing as a permitted
use in the Regional Medical District, Preliminary Rezoning to amend the PUD, Planned Unit
Development-3 Zoning District; and Preliminary Development Plan.
Teague stated the second step requires: Final Development Plan and Final Rezoning to amend
the PUD-3 District and Zoning Ordinance Amendment establishing the PUD.
Teague asked the Commission to note that the applicant is also proposing to provide four (4)
units of affordable housing through the Elderly Waiver program. The Planning Commission and
City Council may wish to consider requiring additional affordable housing units, perhaps 10% of
all the senior housing units, which would be a total of eighteen (18) units.
Planner Teague concluded that staff recommends that the City Council approve the request for
a Comprehensive Plan Amendment to allow senior housing in the RMD District; and to
potentially allow greater density for senior housing development under certain circumstances
on a case by case basis based on the following findings:
1. Senior Housing is a compatible use with the Regional Medical District. It would provide seniors a
benefit of having medical facilities within close proximity.
2. Densities for Senior Housing within the RMD & HDR Districts would be determined on a case by
case basis, allowing the City some discretion as to when high density for senior housing may be
appropriate. Densities for senior housing would be based on proximity to hospitals, proximity to
low density uses, utilities capacity, level of transit service available, and impact on adjacent roads.
Other desired items to allow greater density include: Below grade parking, provision of park or
open space, affordable housing, sustainable design principles, and provision of public art.
3. In general, senior housing generates less traffic than all-age housing or medical office facilities.
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Recommend that the City Council approve the Preliminary Rezoning to amend the PUD-3
District, and approve the Preliminary Development Plan.
Approval is also based on the following findings:
1. The proposed land uses are consistent with the Comprehensive Plan, assuming the
Comprehensive Plan Amendment is approved.
2. The site layout would be an improvement over a site layout required by standard
zoning; the building is brought up to the street, provides podium height, and front door
entries toward the street, includes sidewalks to encourage a more pedestrian friendly
environment along the street, provides underground parking, and provides an indoor
pedestrian connection to the hospital.
3. The design of the building is of a high quality brick, architectural precast concrete, and glass, and
is compatible with previously approved medical building.
4. Traffic would be improved in the area by eliminating the right-in and out access on France
Avenue.
5. Based on the traffic study done by WSB, the existing roadways can support the proposed
development. Traffic generated by the proposed project would be less than the approved
medical building for the site.
6. The proposed project would meet the following goals and policies of the Comprehensive
Plan:
a. Building Placement and Design. Where appropriate, building facades should form a
consistent street wall that helps to define the street and enhance the pedestrian
environment. On existing auto-oriented development sites, encourage placement of
linear buildings close to the street to encourage pedestrian movement.
n Locate prominent buildings to visually define corners and screen parking lots.
n Locate building entries and storefronts to face the primary street, in addition to any
entries oriented towards parking areas.
n Encourage storefront design of mixed-use buildings at ground floor level, with windows
and doors along at least 50% of the front facade.
n Encourage or require placement of surface parking to the rear or side of buildings,
rather than between buildings and the street.
b. Movement Patterns.
n Provide sidewalks along primary streets and connections to adjacent
neighborhoods along secondary streets or walkways.
n Limit driveway access from primary streets while encouraging access from
secondary streets.
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n Provide pedestrian amenities, such as wide sidewalks, street trees, pedestrian-
scale lighting, and street furnishings (benches, trash receptacles, etc.)
c. Encourage infill/redevelopment opportunities that optimize use of city infrastructure
and that complement area, neighborhood, and/or corridor context and character.
7. Higher densities are justified for the following reasons: The project would be
connected to the Fairview Hospital by the second level skyway, tying the project to
the Hospital; Senior Housing would generate less traffic than the approved medical
building with retail on the site; existing roadways would support the project;
adequate utilities are available to the site; convenient transit service is available for
workers and residents; the building would include sustainable design principles;
public art is proposed; affordable housing is offered; and primary parking would be
below grade.
Preliminary approval is subject to the following conditions:
1. The Final Development Plan must be generally consistent with approved Preliminary
Development Plans dated June 6, 2013; including construction of the skyway connection
to the Fairview Hospital parking ramp.
2. A noise study must be done to demonstrate that the proposed mechanical equipment
meets all noise regulations.
3. Sustainable design. The design and construction of the entire project must be done with
the Sustainable Initiatives as outlined in the applicant's narrative within the Planning
Commission staff report.
4. All buildings must be built with sprinkler systems, subject to review and approval of the
fire marshal.
5. Compliance with all of the conditions outlined in the director of engineering's memo
dated July 2, 2013.
6. As part of a Developers Agreement the property owner would be required to participate
in appropriate cost sharing for signal improvements at 65th Street and France Avenue.
7. Adoption and compliance with a PUD Ordinance for the site.
Appearing for the Applicant
Stephen Michals, Mount Development Co., Ed Farr, Edward Farr, Edward Farr Architects, Susan
Farr, Ebenezer and Luigi Bernardi, owner.
Discussion
Commissioner Carr said in reviewing the submitted materials it appeared to her that the
description of Senior Housing includes independent living, assisted living, memory care, and
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skilled nursing-Carr asked if any of the tenants of this facility would be under 55-years in age;
and if so would that become an issue. Continuing, Carr said she assumes that this facility would
allow those under 55 in need that need assisted living, adding clarification may be needed on
the definition.
Commissioner Carpenter also noted in the Regional Medical District (RMD) senior housing isn't
permitted. Planner Teague agreed, adding when this site was designated as RMD there
was no thought of housing of any type in this area; therefore an amendment to the
Comprehensive Plan is required
Commissioner Carr asked where the definition of affordable housing comes from. Planner
Teague responded it was established by the Met Council.
Commissioner Potts also asked Planner Teague if the City has established a definition for
sustainable design principles. Teague responded at this time there is no definition.
Chair Staunton asked Planner Teague if the amendment to the Comprehensive Plan for the
previous proposal also included building height. Teague responded in the affirmative.
Commissioner Platteter asked Planner Teague if the ramp that was proposed for the previous
approved project for the medical office building was include in the Floor Area Ratio (FAR), and if
so would the FAR be similar. Teague responded the ramp was not included in FAR, adding he
believes if the ramp were included the FAR would be greater than the FAR of the new proposal.
Applicant Presentation
Steve Michals thanked the Commission for their time and introduced the development team
Ed Farr, Susan Farr and Luigi Bernardi.
Ed Farr addressed the Commission reporting that the proposal is for a senior care building that
is 5-stories; plus one level of under-building parking at 228,842 square feet. Farr delivered a
power point presentation including graphics indicating the building design presents an
attractive fagade using multiple colors of face brick, warm toned architectural precast concrete
wall panels with a variety of surface finishes. Farr pointed out that the corner plaza area will
offer outdoor seating coordinating with the City's initiative to upgrade the pedestrian
experience. Concluding Farr stated that the NE building corner and France and 65th will still
have its distinctive glazed backlit crown.
Steve Michals addressed the Commission and explained a number of the units would be high
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end and include fireplaces. The building as proposed will contain interactive features such as
dining, hair dresser, exercise facilities and theater. Michals said the dining and theater
amenities have been offered for use to residents of the Point of France and Cornelia Place.
Michals indicated this proposal is different from the previous proposal as it engages the street.
This change is because of the change in use. Michals further explained that this project
continues to support the pedestrian environment along France with flower gardens and sitting
areas similar to the previously approved medical office building. Continuing, Michals said
similar to the previously approved project green building practices would be incorporated
throughout all phases of the project. Concluding, Michals stated this project would benefit the
entire community by creating new jobs, new senior services, increased tax base and a reduction
in traffic congestion
Commissioner Grabiel asked the status of the skyway; will it be built. Michals responded the
skyway is part of the application and will be built.
Commissioner Carr reiterated the importance of the word "senior" per Ordinance amendment
and questioned if that word could become problematic for them. Ms. Farr responded the
average age of their residents is 82 years; however, she agreed that for the transitional care
component there is no age requirement and they could be younger than the typically accepted
55 years and older for senior designation. Continuing, Farr said Ebenezer is very excited about
this location, adding they have been in the senior care industry for over 100 years.
A discussion ensued on the affordability component of the project with Commissioners
indicating they felt 4 units may not be sufficient.
Commissioner Platteter asked Mr. Farr if they are keeping the existing boulevard trees. Mr.
Farr responded in the affirmative, adding one tree will be removed to accommodate the
construction of skyway. Platteter asked if the podium height element is similar to the previous
plan. Mr. Farr responded it is similar; on the third level.
Commissioner Potts questioned if (for this project) they would continue to work with Xcel
Energy White Group; and if so; when the project is finalized provide measurability targets.
Mr. Farr responded they would provide that information to the best of their ability at the time
of final approval.
Chair Staunton opened the public hearing.
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Public Comments
Maria Field, Heritage of Edina, addressed the Commission and stated in her opinion there are
more than enough assisted living facilities in Edina. Field also stated from her experience traffic
congestion will become an issue because there are many more deliveries to and from an
assisted living care facility than people think (care givers, pharmacy deliveries, oxygen
deliveries, etc.). Field asked the Commission to vote "No".
Kate Sones, Heritage of Edina, echoed Ms. Field that there are too many assisted living facilities
within close proximity to each other.
Sandy Havet, Heritage of Edina, agreed with previous comments and reported she found there
are 30 assisted living facilities within 10 miles of the subject site.
Bonnie Miller, Heritage of Edina, asked the Commission to vote Nay on the request, noting the
impact from employee parking and traffic would be noticeable.
Patty Schumaker, Heritage of Edina, informed the Commission Heritage is one of the few
assisted living facilities in the area that accepts affordable housing senior waivers.
Dale Johnson, 6566 France Avenue, #803, informed the Commission he sits on the Board of
Directors for the Point of France and reported the Board hasn't conducted a formal survey
soliciting residents opinion of the change in use; however, he learned from speaking with some
residents that they were "fine" with the change in use; however, the density was too high.
Ralph Laiderman, 6566 France Avenue, #402, told the Commission in his opinion the proposed
assisted living facility is too dense., adding this density is overbuilding on the lot, pointing out
the building as proposed would have the highest density in the City. Laiderman also
questioned if the proposed balconies meet setback requirements. Concluding, Laiderman
asked the Commission to encourage plan revisions for a less dense assisted living facility.
Dalia Katz, 6566 France Avenue, #503, reported that she too believes the density is too high,
adding she is very worried how the construction of this building would impact her property
values. Katz stated this project will increase parking demand and she is concerned visitors to
the new facility may use the parking lot for the Point of France.
Mary Kramer, 6566 France Avenue, #801 stated she believes as a result of the increased density
traffic would increase, congestion would occur, including problems with parking. She explained
she came face to face with the areas traffic congestion while attempting to cross France Avenue
which resulted in an injury. Kramer read into the record a letter from Katherine Abbott, #308.
Craig Alshouse, The Craig Company, 1300 Willowbrook Drive, (property owner of Cornelia
Place) told the Commission in his opinion the developer has done a good job with the building's
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design, adding he also supports the use; however, has a number of issues because of the
impact this building would have on his residents at Cornelia Place.
Alshouse said he sees three issues of concern. First issue building height; Alshouse said
Cornelia Place residents were fine with the height of the approved parking ramp; however, if
this proposal is approved as depicted the residents on the east would now be looking up, not
down on a building and have expressed displeasure with this change. The second issue is the
new location of the entrance for both delivery vehicles and residents. He added the previously
approved plan had multiple entrances; not one and this change negatively impact residents.
Alshouse noted the new delivery location will now be visible to Cornelia Place residents and the
noise of these vehicles backing up would also be negative. Listening to beep beep beep all day
from vehicles backing up would get very old fast. Alshouse also observed that the chillers have
been relocated from the south side to the west (directly across from Cornelia Place), adding
they "cry foul". Concluding, Alshouse stated that the third concern is density. The density as
proposed is higher than anything he's seen in this area.
Ron Calin, 6566 France Avenue, #901, said he can't argue with the use; it's a good one;
however, traffic congestion is a grave concern. The traffic that exists within this area is very
complex and with the expansion of Fairview Southdale Hospitals emergency component traffic
will only get worse.
Mark Waterston, 6566 France Avenue, #1203, stated he agrees with comments on traffic
adding from the 12th floor he views the comings and goings of traffic. He pointed out the
Hospital was "here first" and the additional traffic in this area would be felt.
Jean Emrich, 6566 France Avenue, #508, addressed the Commission and stated she also
believes noise from the proposed new building would negatively impact residents of the Point
of France. She acknowledged the residential component of the plan is good but with the
beeping of service vehicles the quality of life for the Point of France residents would be
compromised.
Nancy Otis, 6566 France Avenue, #1211, stated in her opinion the project is too big. She stated
she is concerned with parking, traffic congestion and noise. She asked the Commission to force
the development team to follow Code.
Lloyd Thorsen, 6566 France Avenue, #610, urged the Commission to reconsider the request and
asked the Commission to consider the density of the proposed building, increase in traffic and
the fact that in the very near future Fairview Southdale Hospital would be adding an addition.
Concluding, Thorsen said this project would change the area.
Alan Erkie, 6566 France Avenue, #602, stated his view would be lost and the building is just too
large for the space.
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Susan Laiderman, 6566 France Avenue, #402 addressed the Commission and expressed her
concern that the City of Edina doesn't have an ombudsman for residents of multiunit
properties, pointing out Edina recently hired a residential Redevelopment Coordinator to
monitor the R-1 and R-2 zoned properties. She pointed out residents of the Point of France pay
taxes too and there is no one to advocate for us. Laiderman said she would submit to City Staff
letters from other residents of the Point of France.
Chair Staunton thanked everyone for their participation in the public hearing process and asked
if anyone else would like to speak to the issue; being none, Commissioner Grabiel moved to
close the public hearing. Commissioner Platteter seconded the motion. All voted aye; public
hearing closed.
Chair Staunton asked Chuck Rickart with WSB to speak to the issue of parking and traffic
congestion.
Chuck Rickart acknowledged comments from those in the assisted living care industry and
residents of the Point of France that traffic congestion is already an issue and this proposal
would only add to it. Rickart said it's hard to reconcile the traffic analysis with what the
neighbors stated. Rickart explained that traffic movements were evaluated for impacted
intersections and the in/out to the site based on the existing conditions, projected 2014 build
out and the projected 2030 build out. Levels of service were also monitored during both the
AM and PM peak hours to include the daily traffic. The analysis also includes "use" and based
on the studies it appears that traffic will increase; however, not at the rate of the previously
approved medical office use proposal. Concluding, Rickart said at this time there are no
recommendations for improvements to the France Avenue and 65th Street intersections;
however should delays and queuing become an issue in the future the Aurora on France
development would be responsible for their share of those improvements.
Commissioner Forrest said her concern is more with the new access to the site. She pointed
out this one access will be used for everything from deliveries to visitors.
Chair Staunton commented that it appears from the traffic analysis that this proposal generates
fewer movements than the past proposal. Rickart responded he agrees with that statement.
Continuing, Staunton referred to the balconies and the possibility of their encroachment into
the setback. Mr. Farr responded he believes the balconies "jut out" about 1 1/2 feet, adding on
the final plans the balconies will be addressed in greater detail. Planner Teague commented
that "issue" would need further clarification to ensure variances aren't required.
Continuing, Staunton said the comments from Mr. Alshouse about the impact this proposal
would have on Cornelia Place made sense. The tenants on the east end of that building will
now overlook service areas and would be subjected to numerous beep beep beeps from
vehicles backing up, adding it's quite a change from the previous proposal. Mr. Farr responded
that most of the delivery vehicles will be at a smaller scale with minimum backup. Farr also
pointed out the "Memory Garden" will be visible to the upper levels.
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Commissioner Carr asked Mr. Farr if he ever considered accessing the loading area off West 65th
Street. Farr responded that because of the grade he doesn't believe that movement could
occur; however is willing to take another look at it.
Commissioner Platteter asked Mr. Farr how many service vehicle trips he expects per
day/week. Mr. Farr said he believes the use will generate roughly 20 trips per week. Platteter
agreed with Commissioner Carr's comment about relocating the loading dock area and also
suggested limiting delivery hours. Ms. Farr interjected and explained that the majority of
Ebenezer facilities limit delivery hours to daytime hours (9-4). Platteter asked Planner Teague if
there was a way to ensure that at least for large vehicles that loading and unloading could occur
only during regular business hours. Teague responded that condition could be part of the PUD
conditions.
Commissioner Forrest asked Ms. Farr if she knows the number of workers a facility of this
magnitude employs. Ms. Farr responded at this time she doesn't know the exact number;
however, she reminded the Commission this facility operates 24/7 in three shifts.
The discussion focused on the relocation of the chillers with Commissioners agreeing that the
relocation of the chillers from the south side to the west directly impacted the residents of
Cornelia Place not only visually but from noise. Commissioners stated they also want
assurances that the chillers meet noise standards. Commissioners also wondered if the chillers
could be moved to another location (roof). Commissioner Scherer commented if they consider
relocating the chillers to the roof to keep in mind those chillers need to be adequately
screened.
Commissioner Grabiel stated he supports the proposal as submitted. He added he doesn't
believe the Commission should interject their opinion on if there are "too many" senior housing
facilities within a certain area any more than they would comment on if there are too many
restaurants or drug stores within a certain area. Grabiel said there is a market demand for this
product, reiterating he supports it. Concluding, Grabiel stated he feels the job of the
Commission is to do what's best for the City.
Commissioner Schroeder stated his concern with this proposal is that it no longer engages or
enhances the pedestrian experience. Schroeder pointed out the previously approved "store
front" concept and public access has been completely eliminated. He explained because of this
change nothing draws the public in; nothing is proposed to attract human activity. Continuing,
Schroeder reiterated that the goal of the City has been to engage the street. Farr
acknowledged there is a change because of the use, adding for security reasons he doesn't
believe people can just "walk in" off the street. Farr also pointed out seating and landscaped
areas remain and would engage the pedestrian. Schroeder said he doesn't agree this proposal
is better for France Avenue.
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Commissioner Potts said he agrees with Commissioner Schroeder, adding he also has concerns
with the west side of the site and believes the proposal negatively impacts the residents of
Cornelia Place. Potts stated redesign is needed; it's a good project; however, it's not there yet,
adding he can't support the proposal as submitted.
Commissioner Forrest stated she likes the use; however, not at this location. She said she views
this area as a premiere regional medical location. Forrest said she remembers when the
building across the street was constructed that the expressed vision for this area was regional
medical; not residential. Concluding, Forrest said amending the Comprehensive Plan to allow
this use also isn't agreeable with her.
Commissioner Carpenter stated his concern is with the impact this proposal has on its
neighbors; especially Cornelia Place.
Commissioner Carr stated there are pros and cons with this project; however at the end of the
day is in favor of the proposal as submitted with additional conditions. Carr said in her opinion
there is no reason to limit affordable housing to four units, the use of the word senior needs
clarification, the chillers need to be relocated as per discussion and the setbacks for balconies
need to be addressed.
Commissioner Scherer stated she has no issue with the proposed use or density and is not
worried about precedent setting; however, she is very concerned with the negative impact this
building design imposes on the residents of Cornelia Place. Scherer concluded in her opinion
the change to them is radical.
Commissioner Platteter said he agrees with Commissioner Scherer's comments, adding if
approved delivery times should be limited to daytime only.
Chair Staunton noted that there appears to be issues with the project and asked the applicant if
they would like to continue this to allow time for redesign or vote on the issue. After further
discussion the applicants requested a vote.
Motion
Commissioner Carr moved to recommend approval of an amendment to the Comprehensive
Plan and amendment to the PUD Zoning District for 6500 France Avenue based on staff
findings; subject to staff conditions with additional conditions 1) increase affordable housing
units from 4 to 10%, 2) define what's meant by the word "senior", 3) address the setback
issue with balconies, 4) relocate chillers as offered by Mr. Farr to the NE corner of the roof to
include an attractive screen for the chillers. Commissioner Grabiel seconded the motion.
Commissioner Platteter offered an amendment that deliveries be limited to daytime hours (9-
4) this excluded emergency vehicles, and residents moving in and out. Amendment accepted.
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Chair Staunton called the vote. Ayes; Carr, Platteter, Grabiel, Staunton. Nays; Scherer
Schroeder, Carpenter, Potts, Forrest. Motion failed. 5-4
Chair Staunton thanked everyone for their participation.
VII. CORRESPONDENCE AND PETITIONS
Chair Staunton acknowledged back of packet materials.
VIII. CHAIR AND COMMISSION MEMBER COMMENTS
Commissioner Schroeder reported that he attended the France Avenue meeting discussion On
urban design, adding he would continue to update the Commission on this committee.
Chair Staunton reported that the Living Streets committee is getting ready to T-up with
Commissioner Carr expressing interest in joining the committee.
Chair Staunton reported the Grandview Committee will soon be "firing up", adding he will keep
the Commission apprised of how that is going.
Commissioner Platteter reminded the audience that the City Council will address the proposed
Zoning Ordinance amendments on July 16th .
IX. STAFF COMMENTS
None.
X. ADJOURNMENT
Commissioner Carr moved meeting adjournment at 11:30 pm. Commissioner Platteter
seconded the motion. Meeting adjourned.
Respectfully submitted
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