PC 10 05, 05, Request for conditional use permit and text amendment to construct new North Education Center, 5530 Zealand Ave N Planning Commission October 5, 2010 General Information Planning Case: 10-05 05 Petitioner: Intermediate District 287 Address: 5530 Zealand Avenue N Project Name: North Education Center Description: New school building Request: CUP and Text Amendment 1
Type of Request Conditional use permit A land use that is specifically allowed in a zoning district so long as certain standards are met. A CUP is a document a city issues to grant a conditional use when the general and specific ordinance standards have been met by the applicant. Type of Request Text amendment A text amendment may be requested when an applicant s proposal is not authorized or permitted by city code or comprehensive plan. A text amendment is applied to the regulations of the entire city or an entire zoning district depending on the amendment. 2
Zoning Code References Section: 4-5 (e)(1)conditional uses. R-1 Public, educational and religious buildings Section: 4-32 Administration Amendments Section: 4-33 (d) Administration Conditional use permit Property Specifications Zoning: R-1, Single family residential Location: Property is located on Zealand Avenue between 55 th and 56 th avenues, the site of the former Hosterman School Adjacent land uses: R-4, High density residential R-5, Senior and disabled residential to the north and R-1, single family to the south, park on east Site area: 9.57 acres 3
Property Specifications Building area: Proposed: 132,006 sq. ft. 2-story option 157,526 sq. ft. for 3-story option Existing: 172,700 sq. ft. building Lot area ratios: Building 16.7 %, Paved area 39.8 % Green area 43.5% 4
Property Specifications Planning District: District No. 4, which identifies the property as a potential redevelopment location. Background Intermediate District 287 has leased the Hosterman Middle School for the past 10 years from the Robbinsdale School District and now is in need of more suitable space. District 287 proposes to build a new North Education Center (NEC) at the site. This facility will be modeled after the successful South Education Center in Richfield 5
Background District 287 recently closed on the purchase of the property. District 281 has maintained ownership of the soccer field area. Petitioner s Comments The new NEC will be a significant improvement to the surrounding neighborhood. Site features include enhanced aesthetics, landscaping, traffic control, additional parking and better storm water management. 6
Petitioner s Comments Intermediate District 287 consists of 13 west metro area school districts which serve the needs of unique learners with various physical, cognitive, emotional and behavioral challenges. The proposed NEC will serve up to 350 students including daycare for up to 50 infants and toddlers and approximately 235 staff. The programs will serve students from elementary school through secondary and up to 21 years of age. Petitioner s Comments The neighborhood is familiar with the daily activities of a school operation from when Hosterman was a junior high school and then as a specialized school. Hours of operation and traffic volume, flow and patterns will remain much as they have been for the past 10 years. 7
Petitioner s Comments The proposed building will be two stories high and if an alternative is accepted the central portion of the building will be three stories. Materials and images will be similar to the recently completed South Education Center located in Richfield which consists of brick, cast stone and metal panels. Zoning Analysis - Setbacks The proposed building location far exceeds all setback and lot minimum requirements of the R-1 District R-1 District Required Proposed Compliant Lot area 15,000 SF 429,937 SF Yes Lot width 100 feet 611 feet Yes Front setback (west) 25 feet 106 feet Yes Side setback (south) 30 feet 90 feet Yes Side setback (north) 30 feet 123 feet Yes Rear setback (east) 25 feet 187 feet Yes 8
Zoning Analysis - Setbacks The proposal also meets all required setbacks for parking areas R-1 District Required Proposed Compliant Front (west) 5 feet 34.8 feet Yes Side (south) 5 feet 19.5 feet Yes Side (north) 5 feet 24 feet Yes Rear (east) 8 feet 47.2 feet Yes Zoning Analysis Access, Circulation and Traffic Property will be accessed by three curb cuts 55 th Avenue aligned with Xylon Ave 55 th Avenue aligned with Yukon Ave Zealand Avenue midblock Curb cuts are proposed at 27 feet which has been approved by city engineer 9
Zoning Analysis Access, Circulation and Traffic Two of the curb cuts (1 and 3) may need to be expanded to provide adequate space for truck maneuvering. 1 2 3 Zoning Analysis Access, Circulation and Traffic A loading bay and turnaround area are provided in the rear of the building, these areas may need to be expanded to provide better truck movement. 10
Zoning Analysis Access, Circulation and Traffic The Design & Review Committee requested District 287 remove the old driveway that served the Hosterman building. This is located on District 281 property and the applicant is unable to legally ll remove the driveway. The city will work with District 281 to have the driveway removed. Zoning Analysis Pedestrian and Bicycle Access A generous 8 wide sidewalk trail system has been provided around the perimeter of the site and the building. Bicycle parking has been provided at the front of the building. 11
Zoning Analysis Common and Green Space The site is over 40% green space. There are three semi-private open spaces in the rear of the building, two plazas (one including daycare) and an outdoor dining area. The daycare spaces will be fenced with a chain link vinyl coated fence. The Police Dept. has requested the basketball area be fenced or open, the existing landscaping should be removed to provide clear sight lines. Basketball Outdoor Dining Daycare 12
Zoning Analysis - Parking The needs of the NEC are much different than the needs of traditional school settings and as such, the city requested District 287 provide off-street parking for all of its needs. The plans provide 255 parking spaces to meet the applicant s needs which include: 235 staff 10 student 10 visitor This includes 10 handicap stalls Zoning Analysis - Building The building is primarily brick with areas of glass, masonry and metal all durable materials. The four wings of the building provide an interesting articulation of the building s frontage. The main entrance is highlighted by a cantilevered roof and glass. 13
Zoning Analysis - Building Zoning Analysis - Building 14
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Zoning Analysis - Building Zoning Analysis - Building 16
Zoning Analysis - Building The building s height, with the 3- story option, will be 46 feet tall. This exceeds the current 32 foot height maximum. A text amendment to allow taller school buildings has been requested and is supported by staff. Zoning Analysis - Building The applicant has stated the brick will be of a red to red-brown color. They have also stated colors will be similar to those shown in the color renderings. The applicant will present colors to the Planning Commission tonight. 17
Zoning Analysis Floor Plan The three story option would follow the general outline: 1 st floor: daycare and elementary students 2 nd floor: middle and high school students 3 rd floor: high school to age 21 The building is separated into four wings Interior doors will be controlled by a wireless card access system and each wing is able to be secured separately from each other in the event of an emergency. Zoning Analysis Floor Plan Classrooms in the NEC will be much smaller than traditional schools. There will be a total of 49 classrooms plus labs, fitness center and gym, learning rooms, dining room and kitchen, faculty offices and break out rooms. Break out rooms are used when a student may need individual instruction and learning. 18
Zoning Analysis Floor Plan Traditionally, floor plan and security issues are handled by the building official, Police Department and West Metro Fire at the time building permits are submitted. Zoning Analysis Roof Top Four roof top units are proposed, one for each of the building s wings. The equipment will be housed in penthouse cabinets painted to match the color scheme of the building. The penthouses are set back to reduce the view of them from the street. The applicant has submitted drawings to illustrate views from the street. 19
Zoning Analysis - Landscaping The landscaping plan includes over 250 trees, 400 bushes/shrubs and nearly 2,000 flowers. The plan includes a wide variety of species, including deciduous, coniferous and ornamental trees. The landscaping has been effectively used to shelter parking lot areas, screen headlights and add visual interest to the building and grounds. Overhead Coniferous Existing Ornamental 20
Zoning Analysis - Landscaping The city forester has requested minor changes to the plan, including the removal of red oak and Colorado blue spruce. The Police Department has requested the bushes surrounding the basketball play area be removed to provide clear sight lines and replaced with a fence or left open. Zoning Analysis - Lighting The parking lot will be lit by 21 light poles, 20 feet high. The building/sidewalk area will be lit by 11 pedestrian scaled 12 foot poles. All lights are 90 degree cut off lights which will direct light downward. There are seven major areas needing additional lighting outlined in the next slide. 21
Zoning Analysis - Lighting All pedestrian paths should be lit to a minimum.5 foot candles. Lighting is provided for the monument sign along 55 th Avenue. The applicant has proposed a flag pole near the building entrance, the flag should be lit at night or removed each evening as required by federal law. All lights will follow a dark cycle and be turned off from 10 p.m. to 6 a.m. 22
Zoning Analysis - Sound A backup generator is proposed near the screened storage area in the rear of the building. The applicant has stated the noise level of the generator, only used in emergency situations, will be 60 Decibels at the north property line. This is the same as a normal conversation and will not be disruptive. Zoning Analysis - Signage There will be a monument sign near the west entrance along 55 th Avenue. The sign will be lit by two fixed lights. No signage will be affixed to the building. There will also be directional signage in the parking and drive aisle areas. The signage plan meets city standards. 23
Zoning Analysis - Utilities The city engineer has worked closely with the applicant in preparation of the utility plan and has approved the proposal. The site is served by telephone, fiber optic, sewer and water lines. A five foot fiber optic easement has been provided along a portion of the southerly property line. Zoning Analysis - Fire The building will be fully sprinkled and will have a fire alarm system per code. The applicant has been working with West Metro staff relating to the location and number of hydrants. These issues will be resolved before the approval of any building plans. A condition of approval is for the applicant to comply with the requests of West Metro. 24
Zoning Analysis - Fire Public Works has reviewed the plans and has determined that the hydrant near the corner of 55 th and Zealand avenues needs full replacement. Other hydrants across the street from the site will serve in the event of an emergency. Zoning Analysis - Fire Per West Metro s request, two key lock boxes have been provided on the building, one in the front and one in the rear of the building. West Metro has requested the front lock box be moved closer to the main entrance. 25
Zoning Analysis Services, Loading, Trash and Storage A brick enclosure near the rear of the building will house the trash enclosures, storage and backup generator. The enclosure will include steel doors and is designed to match the principle building. Zoning Analysis Services, Loading, Trash and Storage A loading bay is located adjacent to the brick enclosure. As mentioned earlier, this area may need to be expanded to accommodate easier truck movements. Signage has been included to properly direct truck traffic throughout the site. 26
Zoning Analysis Grading, Drainage and Erosion The existing building and site includes a large paved and impervious area with no ponding or water treatment facilities and as such a majority of storm water currently runs into the street and sewer system. The NEC building will greatly improve on the existing conditions with the inclusion of three pond areas and a reduced amount of paved surface. 27
Zoning Analysis Grading, Drainage and Erosion The reduced building footprint (from 172,700 SF to 69,700 SF) will help alleviate some storm water issues. The three ponds will be able to handle a majority of storm water generated on the site. There are three small areas where storm water will drain directly into the storm water sewer system. Zoning Analysis Grading, Drainage and Erosion At the time the report was completed, the city engineer had not completed storm water calculations. A condition of approval is for the applicant to meet the storm water requirements of the city engineer. Additionally, as part of the subdivision, District 281 provided a five foot drainage and utility easement around the perimeter of the site. 28
Zoning Analysis Design Guidelines The proposed building and site are well within the intentions of the Design Guidelines. The materials, design and aesthetics of the site are all impressive. From an architectural standpoint, the three story option is a more impressive building. When completed, the NEC will be a good example of the guidelines at work. Zoning Analysis Neighborhood Character The neighborhood has had an educational facility at this location for decades and as such should be accustomed to the traffic and other issues associated with that use. The new building will be a major improement improvement over oer the preios previous use. The applicant has taken necessary steps to reduce impacts to the surrounding properties. 29
Zoning Analysis - Environment The NEC building will be built to include a number of environmentally sensitive features. While District 287 will not seek official certification, the building would be eligible to receive LEED certification. Zoning Analysis - Environment Other environmental features include: Daylighting: shading devices, sloped ceilings and dimmable lights Geothermal heating and cooling system LED lighting - interior and exterior Displacement ventilation and active beams for better air quality Recycling/reusing 90% of existing Hosterman School 30
Zoning Analysis Site Specific Issues Due to an oversight decades ago, the southern half of 56 th Avenue was never officially dedicated to the city by the school district. During the process of subdividing the lot, District 281 dedicated 26,040 SF to the city. Zoning Approval - CUP The approval process of a CUP requires the applicant to meet a number of criteria. If the applicant meets the criteria the CUP should be approved. 31
CUP Approval 1. Proposal is consistent with the Comprehensive Plan The Comp Plan identifies Hosterman as a potential redevelopment site. The Comp Plan encourages and supports redevelopment of underutilized d or aging facilities. CUP Approval 2. The proposed use is compatible with adjacent present and future uses. The site has been a school or educational use since the area was developed in the 1960s and 1970s. The proposal is a continuation of that use. The neighborhood, present and future, should be well accustomed to this use. 32
CUP Approval 3. The proposed use conforms will all applicable performance standards of the code. The applicant has met all of the requirements outlined in the performance standards d or conditions have been placed on the applicant requiring the requirements be met when the application and narrative did not meet them. CUP Approval 4. The proposed use will not tend to or actually depreciate the area in which it is proposed. It is likely the improvements made to the site will increase the value of surrounding properties. It s possible the underutilized and aging Hosterman building was having a negative impact on property values. 33
CUP Approval 5. The proposed p use meets the criteria specified for the various zoning districts. The applicant has met the standards or conditions have been placed on final approval that the applicant must meet the standards. A zoning text amendment is being processed concurrently with this application to handle the building height issue. CUP Approval 6a. Nonresidential traffic is channeled into thoroughfares or onto a street abutting business or industrial uses, not onto minor residential streets. Traffic from the site is channeled to Bass Lake Road or Winnetka Ave, but does require the use of minor residential streets. 34
CUP Approval While traffic is expected to increase slightly from the existing conditions, the improvements made to circulation and parking should minimize the impacts of additional vehicles. CUP Approval 6b. The proposed use will be sufficiently separated by distance or screening from residentially zoned land The proposed building placement has provided generous setbacks from the property lines. The site is well landscaped to screen parking lots and service areas. 35
CUP Approval 6c. The structure and site shall have an appearance that will not have an adverse effect upon adjacent residential properties. The proposed architecture is high in quality and in line with the city s Design Guidelines. Zoning Approval Text Amendment The City Council, Planning Commission or applicant may request a change to the zoning code. Now that the Supreme Court has changed the interpretation of what is legally allowed as a variance, text amendments may be the best solution to some zoning approvals. 36
Zoning Approval Text Amendment The applicant has requested a text amendment to allow taller school buildings in the R-1 District. The planning consultant has drafted language to amend the code. The current code restricts buildings in the R-1 District to 2 ½ stories or 32 feet. Proposed Text Amendment (1)b. Principal building height. Principal buildings may exceed the district height requirement provided: 1. The site is capable of accommodating the increased structure size without variance. 2. The potential increased intensity and size of the use does not cause an increase in traffic volumes beyond capacity of the surrounding streets 37
Proposed Text Amendment 3. Public utilities and services are adequate to serve the building. 4. Any portion of a building that exceeds the district height restriction shall be set back from all lot lines a distance equal to the height of that portion of the building. 5. The building does not limit solar access to abutting and/or neighboring properties. The city may require a shadow study illustrating potential shadow encroachments. Text Amendment Approval 1. The zoning amendment is necessary to correct a past zoning mistake. The city is a much different place than when the code was first written. Development patterns have changed and the city is now fully developed. Available land should be used at its best and full use this may require the city to allow taller school buildings. 38
Text Amendment Approval 2. The character of the area has changed to warrant consideration of an amendment. The needs of the school district(s) have drastically changed since the construction of Hosterman. District 281 no longer has a need for the middle school building. District 287 needs a building designed to meet its unique needs. This includes constructing a building taller than 32 feet. Text Amendment Approval 3. The proposed action has been considered in relation to the specific policies and provisions of and has been found to be consistent with the official city comprehensive plan. The Comp Plan identifies the need to redevelop aging school facilities and identifies the Hosterman site as a redevelopment opportunity. 39
Design & Review Committee The Design & Review Committee met with the applicant on September 16. The committee was generally supportive of the project but had a number of comments. The applicant has responded to items of concern in a memo or within their application. Other items have been handled through conditions of approval. Notification Property owners within 350 feet of the property were notified. Staff has received no comments. District 287 hosted a public open house on August 17 prior to submittal of the planning application. The publics comments were considered in the design of the proposal. 40
Summary District 287 has presented a well thought out and planned proposal for construction of a new educational facility. The site is designed to appropriately handle snow storage, circulation, parking, pedestrian/bike access, storm water drainage. The building and site have been designed to be architecturally interesting, aesthetically pleasing and environmentally friendly. Summary District 287 has gone above and beyond the basic requirements of the code. As the following site line study and video animation will show. The Hosterman building is in need of redevelopment and this project will realize that. 41
Recommendation Staff believes the proposal from District 287 is impressive and meets the intentions of the code and as such, the CUP and text amendment should be granted with the following conditions: i 1. Applicant to enter into a CUP/site improvement agreement with the city (to be prepared by the city attorney). Recommendation 2. Applicant to provide financial guarantee/performance bond for site improvements (amount to be determined by city engineer and building official). 3. The applicant will work with the city engineer on curb design along the on-site truck routes to avoid having large trucks jumping the curb. 4. The applicant will work with the city engineer on storm water calculations and ponds. 42
Recommendation 5. Remove red oak and Colorado blue spruce from landscape plan, replace with other city approved species. 6. Remove lilac bushes surrounding basketball play area and install a wrought iron or chain link fence or provide open space to offer open views for police and security. Recommendation 7. Provide additional lighting along the sidewalks to remove dark areas in the following locations: a. Sidewalk near the northwest corner of Area A. b. An area of the north entry plaza to the east of Area A. c. A large portion of the patio area. d. An area of the trail near the toddler play area adjacent to Area B2. e. An area near the southwest corner of Area C. f. Along the sidewalk path on the easterly border of the property near the soccer fields. 43
Recommendation 8. Lighting should be provided to illuminate the flag pole or the flag should be removed each evening at dark. 9. Select and clearly identify building materials and colors. Materials and colors shall match those identified in plans. 10. Identify materials and paint the rooftop mechanical penthouses a color matching the building s color scheme. Recommendation 11. Replace fire hydrant near the corner of 55 th and Zealand avenues with a new assembly. 12. Applicant must receive approval from West Metro Fire-Rescue for location and number of hydrants prior to final approval of the building permit. 13. Relocate the fire department lock box closer to the building s main entrance. 44