HomeMy WebLinkAboutA001 - Council Action Form dated October 22, 1991 ITEM #:
DATE: 10/ /91 AF
COUNCIL ACTION FORM
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SUBJECT:
Resolution Approving Rezoning of the Area Generally Located East of
Crawford Avenue, North of East Fifth Street and South of the Cemetery
from R-3 (Medium-Density Residential) to R-2 (Low-Density Residential).
ACTION FORM SUMMARY: This is an action by the Planning and Zoning
Commission to consider rezoning of the area, described above, from R-3
(Medium-Density Residential) to R-2 (Low-Density Residential).
Staff recommends that this area should remain as an R-3 zoning district,
between East Fifth and East Seventh Streets.
The Planning and Zoning Commission recommends that the properties that
front on East Sixth Street and Crawford Avenue be down-zoned to R-2 and
the remaining properties in the subject area continue to be zoned R-3.
BACKGROUND-
On September 4, 1990 a rezoning petition and a petition to amend the Land
Use Policy Plan (LUPP) Map designation for this property was filed with
the City by property owners in the Bandshell Neighborhood.
The petition for rezoning included in the area east of Duff Avenue between
East Fifth Street and East Ninth Street.
Commission Action -
On December 5, 1990, the Planning and Zoning Commission made a recom-
mendation to the City Council in regards to the proposed rezoning of the
Bandshell Neighborhood.
The motion and vote were as follows:
MOTION: (SWANSON/ALLEN) to accept staff recommendation of
Alternative #3 which states:
The Planning and Zoning Commission can recommend approval
of Council Option No. 3 for rezoning of the Bandshell Neigh-
borhood area with the amendment that the area west of the line
be zoned R-2, making no recommendation on the R-3 portion
until further study from the City staff on traffic analysis is
completed, with the property at 601 Carroll to remain zoned as
P-C.
MOTION PASSED: 3-1.
NOTE: See Attachment "A" for a graphic of Council Option No. 3.
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City Council Action -
On December 18, 1990, the City Council conducted a public hearing on the
Bandshell Neighborhood rezoning proposal and passed on first reading an
ordinance rezoning the Bandshell Neighborhood area according to Option
No. 3 which would rezone properties abutting both sides of Crawford
Avenue and all properties between Duff Avenue and Crawford Avenue from
East Fifth Street to East Ninth Street from R-3 to R-2. The property
located at 722 Crawford would remain zoned R-3 and the property located
at 601 Carroll Avenue would remain P-C.
Since this action brought the Bandshell area into conformance with the
Land Use Policy Plan Map, no amendment to that map was necessary.
On January 8, 1991, the City Council tabled the item concerning the
rezoning of the Bandshell Neighborhood.
On January 22, 1991, the City Council passed the second reading of an
ordinance to rezone the Bandshell Neighborhood according to Option No. 3.
On February 5, 1991, the City Council passed the third reading and
adopted Ordinance No. 3117 rezoning the Bandshell Neighborhood as shown
on Council Option No. 3.
Commission Request -
The Planning and Zoning Commission has requested that this item be
placed on its agenda to address the appropriateness of zoning east of
Crawford Avenue now that the traffic study of Sixth Street, east of Duff
Avenue, has been completed. Section 29.70 of the Municipal Code gives
the Planning and Zoning Commission authority to propose zoning amend-
ments to the City Council.
This report includes a discussion of all planning issues related to the
zoning of the subject property.
ANALYSIS:
Existing Land Use of Subject Property. (See Attachment No. 3)
% of Land Area % of Properties
Multi-Family Residential 42% 21% ( 6/29)
Two-Family Residential 1% 3% ( 1/29)
Single-Family Residential 57% 76% (22/29)
Occupancy of Subject Property. (See Attachment No. 4)
% of Properties % of Dwelling Units
owner Occupied 48% (14/29) 12% ( 14/117)
Rental 48% (14/29) 86% (101/117)
Owner Occupied w/Rental 3% ( 1/29) 2% ( 2/117)
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Number of Dwelling Units. (See Attachment No. 4)
Number of Dwelling Units o of Total
Multiple-Family Residential 93 79% (93/117)
Two-Family Residential 2 2% ( 2/117)
Single-Family Residential 22 19% (22/117)
Current Land Use and Zoning Designations of Subject Property.
Property Land Use Zoning
A. Subject Property Multi-Family Residential R-3
Two-Family Residential R-3
Single-Family Residential R-3
City Utilities R-3
Current Land Use and Zoning Designations of Adjacent Property.
B. North of Site Two-Family Residential RI-6
Single-Family Residential R1-6
Cemetery A-1
C. East of Site Agriculture A-1
D. South of Site Commercial G-C
City Utilities G-I
E. West of Site Multi-Family Residential R-2
Two-Family Residential R-2
Single-Family Residential R-2
Commercial P-C & C-C
Character of Surrounding Area.
The subject area is located within an area of the city where transition land
use is an important land use consideration. The existence of very inten-
sive municipal facilities including lime disposal pits, a 5 million-gallon and
a 2 million-gallon ground mounted water storage tank, the Municipal
Cemetery, an electric substation, and other storage facilities must be taken
into account when considering the land use designation of this area.
In addition, this location is very near the Chicago-Northwestern Railroad
and the City's electric generation plant. All of these intensive land uses
suggest that some form of transition land use would be appropriate. This
is especially true in light of the City's efforts to provide transition areas
in other parts of the city.
The entire Sixth Street corridor, from the Squaw Creek to the Skunk
River Valley, represents a corridor where there is a very noticeable
change in the land use pattern of the City.
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Moving south from Sixth Street, the land use becomes predominantly
commercial or industrial in nature. In a northerly direction, the land use
becomes progressively more single family in character. The policy of the
City throughout many parts of the community has been to provide for an
area of transition land use that is typically zoned multiple family or
Planned Commercial (P-C).
The area of Sixth Street clearly represents the type of are where a
transition zoning designation is best suited. This is especially true since
some of the most intensive municipal facilities are located immediately south
of this area.
Along the Sixth Street corridor, the transition zoning varies in width from
Fifth Street to Seventh Street. In this area in particular, the R-3 zoning
should extend no further north than Seventh Street.
Zoning and Land Use Policy Plan History.
Zonin
1956 -
North of East Sixth Street and east of Crawford Avenue was
zoned as "AB" (Limited Multiple Residence) District which
allowed multi-family dwellings not exceeding six (6) families.
South of East Sixth Street and east of Crawford Avenue was
zoned as "B" (Multiple Residence) District which did not limit
the number of dwelling units allowed in each structure.
1966 -
The entire area north and south of East Sixth Street and east
of Crawford Avenue was rezoned to R-3 (Medium-Density
Residential).
LUPP
1965 Land Use Policy Plan Map Designation -
This area was designated as "residential" .
1977 Land Use Policy Plan Map Designation -
This area was designated for medium-density residential.
1981 Land Use Policy Plan Map Designation -
South of East Sixth Street was designated for low-density
residential.
North of East Sixth Street was designated for medium-density
residential development.
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1988 Land Use Policy Plan Map Designation -
The entire area under consideration is designated for medium-
density residential development.
Land Use Policy Plan (LUPP). The LUPP Map designates this property as
follows:
Medium-Density Residential (RM)
Properties located east of Crawford Avenue along East 6th
Street and East 7th Street.
The present zoning, R-3 (Medium-Density Residential), allows a maximum
density of 22 dwelling units per acre. The proposed zoning, R-2 (Low-
Density Residential), would allow a maximum density of 12 dwelling units
per acre.
The following community priority, goal, and policy are included in the
"residential" section of the Land Use Policy Plan and may apply to this
proposed LUPP Map amendment:
B. RESIDENTIAL
Community Priority
Maintain and enhance the integrity and character of existing
residential neighborhoods.
Require adequate transition between different residential uses
and between residential uses and non-residential uses.
B.1. GOAL:
To provide a wide choice of housing types and locations to
serve the residential needs to the present and future popula-
tions.
B.1.1. Po_lic: :
The Land Use Policy Plan will serve as the basis to provide
for functional new developments, conservation and preservation
of existing neighborhoods and the rehabilitation and/or rede-
velopment of deteriorating areas.
- The Planning and Zoning Commission plays a key role in
the review of new developments including both internal
and external land use relationships. This role places
the commission in the position to direct the type and
quality of new development.
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The Commission plays a similar role regarding existing
neighborhoods. Through the recommendation of modifi-
cations in existing ordinances and approval of
redevelopment studies, the Commission provides direction
for preservation and redevelopment efforts.
B.1.9. Policy:
Landscaping and open space or multi-family development will
serve as transition areas between low-density residential areas
and areas of significant commercial activity.
The identification of the need for transition areas and
how those transition areas will functionis an important
role of the development review process. This can be
accomplished through staff review and subsequent review
by the Planning and Zoning Commission of proposed
developments.
Utilities. (See Attachment No. 7) Existing and planned utilities are
adequate to serve this area. Public utilities in this area include the
following:
Crawford Avenue
Water: There is a 4-inch water main between Fifth Street
and Ninth Street. This main will be reinforced
with a 16-inch water main planned for completion
during the next several months.
Sanitary Sewer: An 8-inch sanitary sewer main is located in
Crawford Avenue between Fifth Street
and Ninth Street.
Storm Sewer: The only sewer along Crawford is located
between Seventh and Eight Streets.
East Sixth Street
Water: There is a 4-inch water main in East Sixth Street
between Carroll Avenue and 324 East Sixth Street.
A 6-inch water main continues to the end of the
cul-de-sac. The 4-inch main has been reinforced
with a 16-inch main between the alley located east
of Carroll Avenue and Duff Avenue.
Sanitary Sewer: An 8-inch sanitary sewer main is available
long East Sixth Street between the end
of East Sixth Street and Duff Avenue.
Storm Sewer: No storm sewer is located in East Sixth
Street.
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East Seventh Street
Water: There is a 4-inch water main in East Seventh
Street between Duff Avenue and the end of the
street. A 6-inch main continues east through the
apartment development. The 4-inch main will be
upgraded in the future as part of the continuing
program to upgrade undersized water mains.
Sanitary Sewer: An 8-inch sanitary sewer main exists in East
Seventh Street between Duff Avenue
and the end of the street.
Storm Sewer: There is a 12-inch storm sewer in the north
side of East Seventh that is between Duff
Avenue and Crawford Avenue.
Comparison of Bulk Regulations.
R-2 R-3
Low-Densityesidential Medium-Density Residential
Lot Area: S.F. : 6,000 sq. ft. S.F. : 6,000 sq. ft.
T.F. : 7,000 sq. ft. T.F. : 7,000 sq. ft.
Each Additional Unit
Over 2 = 1,800 sq. ft.
Lot Width: 35 feet @ street line 35 feet @ street line
50 feet @ building line 50 feet @ building line
Front Yard: 25 feet minimum 25 feet minimum
Rear Yard: 20 feet minimum 25 feet minimum
Side Yard: 6 feet - 1 story 6 feet - 1 story
8 feet - 2 stories 8 feet - 2 stories
10 feet - 3 stories 10 feet - 3 stories
15 feet - street side 12 feet - 4 stories
for corner lot 20 feet - street side
for corner lot
Max. Height: 3 stories or 40 feet 4 stories or 50 feet
Inventory of Medium-Density Residential Land.
In an effort to project the number of acres of land needed for medium-
density residential development in Ames, staff has used 1990 Census data
to compute the following:
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Population:
1980 1990
45,775 47,198
Increase - +1,423
Average Household Size: 2.36
Following is a breakdown of housing unit types and the number of persons
residing in each. This is based on 1990 Census Data and does not include
group quarters (i.e. University housing).
Housing Unit Type Persons Percent
S.F. Detached 18,506 50%
S.F. Attached 2,382 6%
2 Units 3,165 9%
3 & 4 Units 2,868 8%
5 or More 8,428 23%
Mobile Home 1,212 3%
other 293 1%
Total: 36,854 100%
Including S.F. Detached and Attached, 2 units and mobile home housing
types in the low-density category results in approximately 68% of popula-
tion living in that category.
Recognizing that 68% of the existing residential units are low-density
residential results in the remaining 32% being split between medium- and
high-density residential. The census information does not provide a clear
distinction between medium- and high-density residential housing types.
Having no clear indication, the 32% can be split between the two catego-
ries.
Thus using 68% for low-density, 16% for medium-density, and 16% for
high-density, numbers of units in each category can be determined for the
year 1990.
1990
10,618 household units - (1-9 units/acre) = 10,618 to 236 acres needed for
low-density residential.
2,499 household units - (10-22 units/acre) = 250 to 113 acres needed for
medium-density residential.
2,499 household units - (23-30 units/acre) = 109 to 83 additional acres
needed for high-density residential.
Theoretically we should be able to use these acreages as the guide for the
amount of area needed for future development. This is based on the
existing situation and does not take into account changing lifestyles and/or
housing type.
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An inventory of land zoned as R-3 (Medium-Density Residential) shows the
following:
Land Currently Zoned as R-3 = 466 Acres
R-3 Land Available for Development/Redevelopment = 387 Acres
(Excludes Ames High School = 79 Acres)
Land Rezoned from R-3 Since 1980 = 81 Acres
Land Rezoned to R-3 Since 1980 = 55 Acres
The net result is that Ames has 26 (81-55) acres less land zoned R-3 in
1991 than was the case in 1980. The total number of R-3 acres available
for development or redevelopment (387 acres) is more than adequate to
meet projections for R-3 land (113 to 250 acres), based on the current mix
of housing types. Removal of this area from the inventory would not
reduce the inventory of R-3 land below the minimum needed for medium-
density development.
Affordable Housing. (See Attachment No. 5)
Affordable housing has been raised as an issue during rezoning discus-
sions for Bandshell Neighborhood. This is not addressed as a goal,
policy, or community priority in the Land Use Policy Plan (LUPP) .
It is now evident that affordable housing is an issue to consider as part of
the City's decision making. As a result, Staff has analyzed the subject
area to determine if this area should be considered to be "affordable
housing".
City staff's analysis of the single-family and two-family dwellings in the
R-3 area east of Crawford Avenue has resulted in the following:
- 23 Single-Family and Two-Family Dwellings
- Mean Land Value = $19,365.22
- Mean Value of Improvements = $30,245.45
- Mean Total Value = $48,113.04
- Range of Land Values = ($12,700 - $45,100)
- Range of Improvement Values = ($ 9,100 - $49,900)
- Range of Total Values = ($30,100 - $70,900)
Clearly, since "affordable housing" is considered to be a variable in
deciding whether to down zone this area to R-2 (Low-Density Residen-
tial),it must be concluded that the homes in this area constitute "afford-
able housing" based on their assessed value.
Impacts on the Neighborhood.
The point has been made by proponents of the rezoning of this area that
it is an "isolated pocket of R-3 land". This may be the case, however
such zoning complies with the Land Use Policy Plan designation for this
property, and meets established zoning practice.
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In the hierarchy of zoning classifications, it is appropriate to locate an
R-2 (low-density residential) district adjacent to an R-3 (medium-density
residential) district. This is sometimes referred to as "transitional zoning"
since zoning of adjacent areas is thought to be compatible if the zoning
moves from a less intense zoning classification (low-density) to the next
most intense zoning classification (medium-density).
Access to the R-3 area is primarily limited to a single major roadway
(Sixth Street). To reach the R-3 area from the nearest arterial street
requires that the motorist travel through a lower density residential area.
This street system is far from ideal to serve a more densely developed
residential area, however the traffic analysis finds that Sixth Street, with
parking removed on one side, has ample capacity to safely move the traffic
generated by the multi-unit developments that may be constructed in this
area. In addition, none of the other streets in this area would experience
projected traffic volumes that create capacity problems.
Collector Street Property Values vs. Local Street Property Values.
A look at other areas of the community where collector streets pass
through residential areas, as Sixth Street passes through the Bandshell
Neighborhood, demonstrates that there is not a direct correlation between
lower property values and the location of properties along such collector
streets. To the contrary, properties along collector streets compare
favorably to other properties in the same neighborhood as property values
are examined. Described below are four examples of such a comparison.
Comparison #1 - (R-2 Zoning)
East Sixth Street (Between Crawford Ave. & Duff Ave.) (Collector Street)
Mean Property Value = $65,933
Range of Property Values = $49,700 to $91,300
as compared to
East Seventh Street (Between Crawford Ave. & Duff Ave.) (Local Street)
Mean Property Value = $54,418
Range of Property Values = $43,200 to $70,100
Net Difference in Mean Property Values = $11,515
Comparison #2 - (R-3 Zoning)
Ninth Street (Between Duff Ave. & Grand Ave.) (Collector Street)
Mean Property Value = $58,295
Range of Property Values = $98,100 to $37,000
as compared to
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Eighth Street (Between Duff Ave. & Grand Ave. ) (Local Street)
Mean Property Value = $60,553
Range of Property Values = $146,932 to $37,800
Net Difference in Mean Property Values = $2,258
Comparison #3 - (R1-6 Zoning)
Northwestern Avenue (Between Sixth St. & Ninth St. ) (Collector Street)
Mean Property Value = $60,148
Range of Property Values = $32,600 to $87,800
as compared to
Hodge Avenue (Between Sixth St. & Ninth St.) (Local Street)
Mean Property Value = $$67,403
Range of Property Values = $47,100 to $88,800
Net Difference in Property Values = $7,255
Comparison #4 - (R-2 Zoning)
South Franklin Avenue (Between Tripp St. & Coy St.) (Collector Street)
Mean Property Value = $49,810
Range of Property Values = $39,900 to $66,300
as compared to
Village Drive (Between Tripp St. & Coy St. ) (Local Street)
Mean Property Value = $47,250
Range of Property Values = $44,100 to $57,400
Net Difference in Mean Property Values = $2,560
NOTE: Computations of the mean property value in all four comparisons
have excluded the two highest property values and the two lowest proper-
ty values for dwellings on each street.
Accident History.
A review of traffic accidents involving pedestrians for the period of time
from 1986 to 1990 reveals that approximately one-third of all such accidents
occurred on "collector streets". The remaining two-thirds of pedestrian
accidents were split between arterial and local streets. Staff's conclusion
from this accident history involving pedestrians is that it seems as though
a pedestrian is no more likely to be involved in a traffic accident on a
"collector street" than would be the case if the pedestrian were on a local
or an arterial street.
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Non-conforming Uses and Structures.
There has been some concern regarding the creation of non-conforming
uses and structures if the subject area were rezoned from R-3 to R-2. All
existing multiple-family dwellings (three or more units) were originally
designed and built as multiple-family dwellings, not conversions. The
Zoning Ordinance includes such multiple-family dwellings as permitted uses
in an R-2 zoning district. Therefore, these buildings would not be
considered to be non-conforming uses.
A non-conforming structure is a structure that does not meet current
zoning ordinance standards by reason of restriction on area, lot coverage,
height, yards, or other characteristics of the structure and its location on
the lot. There may very well be non-conforming structures located in the
area under consideration for rezoning, however a zoning change from R-3
to R-2 will not create any additional non-conforming structures since the
bulk regulations for R-3 and R-2 are nearly the same.
An existing multiple-family structure could be expanded provided that the
expanded structure meets all code requirements.
Historic Value of Structures.
Staff is not aware that any structures in the area under consideration
have been determined to be historically significant in either the 1979
survey of historic resources in Ames or as part of the current survey of
historic resources that has not yet been completed. In discussing this
issue with the City's consultant that is performing the reconnaissance
survey, there are structures that represent historic context that are of
importance to the City. These contexts include: post World War II
housing and residential relocation. Although these structures represent
these contexts, it is an early conclusion that there are more notable areas
in the city that represent the same context that are more worthy of
preservation efforts.
In the event that it is ultimately determined that significant historic
resources do exist, these can be protected through the landmark designa-
tion process that is currently provided for in the City's preservation
ordinance.
STAFF COMMENTS AND CONCLUSIONS:
The following issues surface as determining factors in deciding whether it
is appropriate to rezone this area from R-3 to R-2:
Affordable Housing
Transition Zoning
As one considers "affordable housing" as a variable, it must be concluded
that the value of properties in this area fall into the "affordable" category
when compared with the value of single-family homes throughout the
community.
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The policy basis for making a zoning decision for the purpose of protect-
ing "affordable housing" is not currently stated in the Land Use Policy
Plan. Affordable housing is, however, clearly a City Council priority.
A decision to down-zone the area from R-3 to R-2 could be based on the
existence of affordable single-family housing in this area. The R-2
(Low-Density Residential) designation would function as a means of pro-
tecting the existing housing stock in this area.
If the Planning and Zoning Commission and City Council choose this course
of action, the Land Use Policy Plan (LUPP) must be modified to reflect this
new philosophy to "preserve" affordable housing so City staff can utilize
this policy as a guide to making future decisions. This can be done by
inserting a "policy statement" in the LUPP with respect to "affordable
housing".
As mentioned previously in this report, this section of Sixth Street is
located in an area that is clearly suited for a transition zoning designa-
tion. Staff believes that the City's philosophy of transition zoning can
best be accomplished by maintaining the current R-3 zoning designation.
Staff believes that this zoning designation should extend no further north
than Seventh Street. (See Attachment #S)
At the Planning and Zoning Commission meeting of October 2, 1991, the
Planning and Zoning Commission recommended that the properties that
front on Crawford Avenue and East Sixth Street be down-zoned to R-2.
The remaining properties should remain zoned R-3. The reasons the
Planning and Zoning Commission recommended this alternative are listed
below:
1. The Commission did not find that the planning philosophy of transi-
tion zoning is not an overriding consideration. This is emphasized
by the fact that the rezoning of last February to R-2 interrupted
the pattern of transition zoning.
2. The most important reason for down-zoning the recommended area to
R-2 is to maintain the character of the neighborhood.
ALTERNATIVES:
1. The City Council can approve that the area generally located east of
Crawford Avenue, North of East Fifth Street and South of the
Cemetery remain in an R-3 (Medium-Density Residential) zoning
district. This would maintain the zoning in its current designation
and would not involve rezoning.
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2. The City Council can down-zone the property that fronts on Craw-
ford Avenue addressed as 722 Crawford and all of the property that
fronts on East Sixth Street east of Crawford Avenue to R-2. The
remaining lots in the subject area will remain zoned R-3. This is
the recommendation of the Planning and Zoning Commission. The
Council should also set November 12, 1991 as the date of public
hearing on this issue.
3. The City Council can rezone the property addressed as 722 Crawford
and 317, 323 and 327 East Seventh Street to R-2. The remaining
property in the subject area will remain zoned R-3. This is the
recommendation of the City staff. The City Council should also set
November 12, 1991 as the date of public hearing on this issue.
4. The City Council can refer this item back to City Staff for additional
information.
MANAGER'S RECOMMENDED ACTION:
It is the recommendation of the City Manager that the City Council adopt
Alternative #3. This will approve of the rezoning of the the property
addressed as 722 Crawford and 317, 323 and 327 East Seventh Street to
R-2. The remaining property in the subject area will remain zoned R-3.
The City Council should also set November 12, 1991 as the date of public
hearing on this issue.
If the City Council adopts Alternative #2, then a as a condition of
approval of the rezoning, there should be a corresponding change made to
the Land Use Policy Plan.
COUNCIL ACTION:
Attachments
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