Planning Commission File No.: USE2008-00012 April 2, 2008 Page 2 of 11 PROJECT DESCRIPTION The applicant requests a modification to a Conditional Use permit allowing construction of a new high school in Juneau (USE2003-00055). The requested modification addresses only changes made to the design of a proposed track and field facility. Specifically, this Conditional Use permit would allow the installation of four 80 field lights and a public address system. BACKGROUND Conditional Use permit USE2003-00055 for a new high school with associated gymnasium, auditorium, and track and field was approved by the Planning Commission on February 1, 2004. In staff s review of the track and field facility, the following analysis was made: The new track and field was originally to be used primarily for team practice, physical education, and community recreation. After further consideration, the School District decided it wants to have the option of holding competitive events at this site. However, lighting and stadium type seating are not proposed as part of this project. Staff would also recommend that any proposal to significantly upgrade the seating and to add lighting should be considered an amendment to the conditional use permit. This would allow for review by the Commission of the expanded use of the field and to evaluate the need for mitigation. Acting as applicant on behalf of the School District, the Engineering Department now wishes to make changes to the proposed field design, to include lighting and a public address system. No increases to seating capacity are proposed at this time; however the inclusion of lighting and sound equipment will make this track and field facility more likely to be used for after-school and evening competitive events with spectators. If seating were added in the future, this facility could become a more favorable alternative to the Adair-Kennedy Memorial Field for hosting high school football games. Though stadium seating is not proposed at this time, the addition of lights and a PA system will make the new facility an attractive venue for major sporting events. Therefore, this analysis will assume full use of the track and field facility, including potential increases in seating, for evening and weekend events. ANALYSIS Project Site The proposed track and field will be located on the western portion of the Thunder Mountain High School campus. The track and field will be bordered to the west by the Mendenhall River, to the south and southeast by surface parking lots, and to the east by the high school building (see Figure 1). To the north of the field is a cul-de-sac (Rivercourt Way) with five homes. The nearest home is located approximately 200 feet from the edge of the track. Between the track and neighboring homes there is an 80 thick and 100 high vegetative buffer (see Figure 2).
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 3 of 11 Proposed Track and Field Figure 1: Project Site and Surrounding Area (for larger view, see Attachment A) Figure 2: Tree Buffer, view facing north from proposed track and field site (see also Attachment B) Project Design The School District s current plans for the track and field include after school practices for sports teams and hosting soccer matches and track meets. The field lights would be used during evening practices and games and could also be left on during the evenings to facilitate community recreation use. The PA system would be used during springtime track meets, soccer matches, community sporting events, or other school-related activities (see Attachment C).
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 4 of 11 *? * * *?? Public Address Speaker Field Light on 80 Pole * Figure 3: Approximate Location of Proposed Lights and PA Speakers The field lights will be mounted on 80 foot poles located in four locations (see Figure 3). The lights will be designed to illuminate only the track and playing field. Off-site glare will be reduced by external glare shields on all lights (shielding upward and sideward glare). The applicant s design specifications require the playing surface to be lighted at 50 foot-candle strength. According to the design specifications (see Attachment D), moving away from the playing field, the maximum maintained horizontal foot-candle level 200 feet from the boundary of the playing field (not from the edge of the track) shall be an average of 0.5 foot-candles with a 1.0 foot-candle maximum. Because the nearest house is roughly 300 from the edge of the playing field, the average light level will likely be less than 0.5 foot-candles. The PA system will include two speakers located at the east side of the field (see Figure 3). The speakers will be mounted 13 from the ground on a 19 light pole. The speakers will project sound across the field away from the school building and neighboring homes in the direction of the Mendenhall River. The applicant s design specifications require a speaker that is capable of delivering at least 60dB of sound at the far end of the track. At maximum volume, the speaker will produce 108 db one meter from the source. The sound level will reduce by 6 db each time the distance from the source is doubled (see Attachments E and F)
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 5 of 11 The image below (Figure 4) is an estimate of the illumination and sound impact of the proposed design. Additional analysis is included in the Noise and Property Value or Neighborhood Harmony sections below.? Speaker? 300 Radius around speaker (estimated 68 db sound at edge)? Illumination pattern (200 from playing field edge) Figure 4: Designed Reach of Sound and Lighting Equipment Traffic In the course of the 2003 Conditional Use permit, significant traffic analysis was undertaken and conditions were placed on the development of the high school to mitigate traffic impacts. This traffic analysis accounted for special event traffic, such as sporting events. The inclusion of lights and a sound system will not lead to further impacts on traffic. Parking and Circulation The Land Use Code does not provide a minimum parking standard for outdoor sports facilities, but for a closely related use, churches, auditoriums, and similar enclosed places of assembly, the standard is one space per four seats. Without lighting and sound equipment, the track and field would be used only for school-related activities such as team practice and physical education or recreational use by the community. The current facility design includes one 100-seat bleacher, which carries a parking requirement of 24 spaces. Parking under this scenario was covered in the original Conditional Use permit. The 25 parking spaces would be easily accommodated by existing on-site parking. The original Conditional Use permit also determined parking demand for the high school s gymnasium and auditorium, and considered the peak parking demand scenario to occur when the auditorium (with a seating capacity of 546) and the gymnasium (with a seating
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 6 of 11 capacity of 1,200) were used in the same evening. The high school s parking and circulation plans were fully discussed as part of the original conditional use permit (USE2003-00055). A total of 740 parking spaces will be constructed at various parking locations on the high school campus. The addition of field lighting and sound equipment to the track and field facility makes it possible to hold after-school and evening events with spectators. A seating capacity of only 100 seats and the absence of a press booth make it unlikely that football games will be held here; however, it is possible that more seats and a press box will be added in the future. Football games would present the peak parking demand scenario for the track and field; therefore staff has used this scenario in calculating the track and field s minimum parking requirement. The particular sports season will have an impact on which facilities are in peak use. The peak use of the gymnasium occurs in the winter during the basketball season, where as the peak use of a football stadium would occur in the fall. That auditorium is used year round. It is unlikely that the auditorium, gymnasium, and track and field will all be used at peak capacity in the same evening. Because there is no current proposal for stadium seating at this time, the exact seating capacity of a future stadium is unknown. However, the stadium currently used by Juneau Douglas High School for football games is the Adair-Kennedy Memorial Field. This facility has a seating capacity of 718 seats. Assuming the Thunder Mountain High School facility would be of comparable size, or perhaps larger, it is possible to estimate the parking demand. Below is a calculation of parking demand during various seasons at Thunder Mountain High School. Under this scenario, staff assumes a track and field stadium with 1,000 seats. Estimated Peak Evening Parking Demand (fall) Track and Field, 1 per 4 seats @ 1000 seats = 250 Auditorium, 1 per 4 seats @ 546 seats = 137 Total Parking Spaces Required 387 Estimated Peak Evening Parking Demand (winter) Gymnasium, 1 per 4 seats @ 2,100 seats = 525 Auditorium, 1 per 4 seats @ 546 seats = 137 Total Parking Spaces Required 687 Again, the total number of parking spaces provided is 740 spaces; therefore in both the fall and winter scenarios, there will be enough onsite parking to meet demand. Noise This Conditional Use permit would allow the addition of a PA system with speakers in two locations (see Figure 3). The PA system would be used during track and field events, as well as other competitive events requiring announcements. As noted above, the applicant s design specifications call for speakers with adjustable volume controls that will emit a maximum108 db at 1 meter from the source. According to the applicant s electrical engineer, Brian Meyers, a 108dB speaker would provide a 68 db level on the far side of the track at maximum output. According to Mr. Meyers:
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 7 of 11 The speakers are forward facing, directional speakers, so some sound is lost behind and to the sides of the speaker. However with two speakers in the design and a host of variables involved (sound absorption from field and obstacles, speaker height above the ground, etc), we have no way of accurately calculating the reduction in sound levels to be expected behind or to the sides of the speakers. So although sound levels will likely be lower behind and to the sides of the speakers, it is impossible to know exactly how much the sound impact will be reduced. Assuming an even distribution of sound from the speakers without sound loss, at the edge of a 300 radius from the speakers the sound level is expected to be 68 db. The CBJ Code does not include specific performance standards for noise in residential districts. However, performance standards for noise in commercial and industrial districts prohibit emission of sound measured at the property line exceeding 55 dbs during nighttime and early morning hours (11:30 p.m. to 6:00 a.m.); for all other hours, the sound volume measured at the boundary line must not exceed 70 db. According to Mr. Meyers, 60 db is considered the sound level of a normal conversation. Due to the more sensitive nature of residential uses, staff recommends that sound from the PA be limited only to daytime hours and be reduced to a conversation level (60 db) by the time it reaches nearby residences. If the trees between the residential lots and the school site are not a sufficient buffer to minimize the volume to an acceptable level, the volume of the speakers must be adjusted to a lower level. Staff recommends two conditions regarding noise: 1) prior to certificate of occupancy, a sound test shall be conducted to confirm the sound emitted from the speakers does not exceed 60 db measured at the nearest residential boundary; 2) as an operational condition, the PA system shall only be used between the hours of 7:00 a.m. and 10:00 p.m. and at no time shall the sound level emitted from the speakers and measured at the nearest residential property line exceed 60 db. Public Health or Safety The additional of lights at the TMHS field will increase the number of CBJ facilities available for use after sunset. Whether or not this facility will remain open at all hours to public users has not yet been determined by the School District. Regardless, the facility itself will positively impact public health by providing additional field space for organized recreational sports and exercise. There is no evidence that the addition of lights and sound equipment will result in any negative impacts to public health or safety. Property Value or Neighborhood Harmony The Conditional Use permit would allow four 80 light poles with 7.5 x 15 mounted lighting unit, each with 18 fixtures (see Figure 5 ). Each fixture is equipped with an external glare shield. As mentioned above, design specifications require directional lighting onto the soccer/football playing surface with a maximum light level with an average of 0.5 foot-candles and a maximum of 1.0 foot-candle 200 feet from the field s edge.
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 8 of 11 Figure 5: Diagram of Proposed Field Lights As shown in Figure 3, the 200 light pattern emitted by the lights does not extend beyond the property lines of the high school campus. This means that the level of light reaching the residences near the track and field facility will be far less than 0.5 foot-candles on average. Sports fields are a common accessory to high schools. Property value impacts of the high school have already been consideration under the original high school Conditional Use permit. Furthermore, during the 10-day public comment period, abutting property owners submitted no comments. The lack of neighborhood concern over this project suggests that the proposed modifications will not negatively impact property values or neighborhood harmony. Conformity with Adopted Plans The addition of lights and PA system conform to policies in the Comprehensive Plan regarding the need for additional recreational space and activities in Juneau, especially after-hours. Policy 4.13 of the Transportation, Public Facilities, Services, and Amenities chapter of the Comprehensive Plan reads: It is the policy of the CBJ to support and facilitate a strong system of high quality public elementary, secondary, and higher education in the CBJ which will enable all students to become well educated, informed citizens who understand and appreciate diverse cultures and who are equipped to pursue further education and compete successfully in the work force.
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 9 of 11 This policy s Implementing Action 4.13.6 is: Planning for school facilities should take into account potential community use for educational, recreational, and cultural purposes and facilitate after-hours use of these facilities by adults. Conversely, planning for parks, recreational faculties, cultural facilities, and libraries should account for possible instructional uses. The amendments to the track and field facility are also in conformity with Comp Plan Policy 4.16: It is the policy of the CBJ to continue providing quality dispersed outdoor recreational opportunities; and to acquire and develop sufficient local parks and recreational facilities in locations convenient to all areas of the CBJ. Places given priority for new facilities include rapidly developing areas and currently developed areas which lack adequate parks. This policy s Implementing Action 4.16.7 reads: Cooperate with the School District and Parks and Recreation Department to plan for joint use of neighborhood and community parks, community and school facilities, and sports fields by the students and general public. JUNEAU COASTAL MANAGEMENT PROGRAM Though the Juneau Coastal District is a participant in the Alaska Coastal Management Program, we do not have any approved local policies at this time. Final approval of a new plan is pending. 49.70.900 through 49.70.1097 Coastal Development and Habitat This section is the former Juneau Coastal Management Program, which remains in Code. A full interagency review, was conducted for this Conditional Use permit modification. No agency or interested party expressed concerns that the addition of field lights and a public address system would result in negative impacts to sensitive environments and habitats. The construction of the track and field facility required fill of wetlands; however, no additional fill was required under this permit. This development has been reviewed under Conditional Use permit USE2003-00055. FINDINGS CBJ 49.15.330 (e)(1), Review of Director's Determinations, states that the Planning Commission shall review the Director's report to consider:
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 10 of 11 1. Whether the application is complete; and, 2. Whether the proposed use is appropriate according to the Table of Permissible Uses; 3. Whether the development as proposed will comply with the other requirements of this chapter. The Commission shall adopt the Director's determination on the three items above unless it finds, by a preponderance of the evidence, that the Director's determination was in error, and states its reasoning for each finding with particularity. CBJ?49.15.330 (f), Commission Determinations, states that even if the Commission adopts the Director's determination, it may nonetheless deny or condition the permit if it concludes, based upon its own independent review of the information submitted at the public hearing, that the development will more probably than not: 1. Materially endanger the public health or safety; 2. Substantially decrease the value of or be out of harmony with property in the neighboring area; or, 3. Not be in general conformity with the comprehensive plan, thoroughfare plan, or other officially adopted plans. Per CBJ?49.15.300 (e)(1)(a thru C), Review of Director's Determinations, the Director makes the following findings on the proposed development: 1. Is the application for the requested conditional use permit complete? Yes. The application contains the information necessary to conduct full review of the proposed operations. The application submittal by the applicant, including the appropriate fees, substantially conforms to the requirements of CBJ Chapter 49.15. 2. Is the proposed use appropriate according to the Table of Permissible Uses? Yes. The requested permit is appropriate according to the Table of Permissible Uses. Secondary schools and associated facilities are allowed with a conditional use permit, according to CBJ 49.25.300, Section 5.110 for the D5 zoning district. 3. Will the proposed development comply with the other requirements of this chapter? Yes. The proposed development complies with the other requirements of this chapter. Public notice of this project was provided in the 3/28/08 and 4/4/08 issues of the Juneau Empire's "Your Municipality" section, and a Notice of Public Hearing was mailed to all property owners within 500 feet of the subject parcel. Moreover, a Public Notice Sign was posted on the subject parcel, visible from the public Right of Way. 4. Will the proposed development materially endanger the public health or safety? No. As described above, there is no evidence that the addition of field lights and a public address system will materially endanger the public health or safety. The addition of recreational facilities to Juneau will have a positive impact on public health by providing a place for outdoor exercise.
Planning Commission File No.: USE2008-00012 April 2, 2008 Page 11 of 11 5. Will the proposed development substantially decrease the value of or be out of harmony with property in the neighboring area? No. As described above, there is no evidence to suggest that the addition of lights and a public address system will have significant negative impacts on the neighboring area. The field is bordered on three sides by the high school campus and recreational facilities and on one side by a residential area buffered by over 80 feet of vegetation with trees approximately 100 feet high. In order to assure that the tree buffer adequately shields noise from nearby homes, staff recommends two conditions regarding noise: 1) Prior to certificate of occupancy, a sound test shall be conducted to confirm the sound emitted from the speakers does not exceed 60 db measured at the nearest residential boundary 2) As an operational condition, the PA system shall only be uses between the hours of 7:00 a.m. and 10:00 p.m. and at no time shall the sound level emitted from the speakers and measured at the nearest residential property line exceed 60 db. 6. Will the proposed development be in general conformity with the land use plan, thoroughfare plan, or other officially adopted plans? Yes. As described above, the proposed development is in conformity with several policies of the adopted Comprehensive Plan. 7. Will the proposed development comply with the Juneau Coastal Management Program? Yes. As mentioned above, the addition of field lights and a public address system will not have a significant impact on sensitive environments and habitats. This development complies with code sections 49.70.900 through 49.70.1097. RECOMMENDATION It is recommended that the Planning Commission adopt the Director's analysis and findings and grant the requested Conditional Use permit. The permit would modify Conditional Use permit USE2003-00055 for a track and athletic field facility by adding 80 field lights and a public address system. The approval is subject to the following conditions: 1. Prior to certificate of occupancy, a sound test shall be conducted to confirm the sound emitted from the speakers does not exceed 60 db measured at the nearest residential boundary 2. As an operational condition, the PA system shall only be uses between the hours of 7:00 a.m. and 10:00 p.m. and at no time shall the sound level emitted from the speakers and measured at the nearest residential property line exceed 60 db.