HomeMy WebLinkAboutA019 - Council Action Form dated May 26, 2015 ITEM #: 40
DATE: 05-26-15
COUNCIL ACTION FORM
REQUEST: LAND USE POLICY PLAN AMENDMENT OF FUTURE LAND USE MAP
FOR 5571 GRANT AVENUE (ROSE PRAIRIE)
BACKGROUND:
On November 24, 2014, the City Council directed staff to initiate and Minor Map
Amendment in regard to the request of William J. Ludwig (representing Diligent Rose
Prairie) for a Land Use Policy Plan (LUPP) Map Amendment. On April 2, 2015, the
Developer submitted an application for a Land Use Policy Plan (LUPP) Minor Map
Amendment for the property at 5571 Grant Avenue. The application is for a
Village/Suburban Residential land use designation and an 8-acre commercial
component for their 170 acre property located west of Grant Avenue and south of
190th Street. The subject area is an undeveloped parcel west of Grant Avenue and Ada
Hayden and south of 190th Street (see Attachment B).
The subject property was annexed in 2011. The property has no current LUPP land use
designation, as it was annexed before the current policy that designates Urban
Residential Fringe Plan lands as Village/Suburban Residential upon their annexation. A
development agreement applies to the property regarding certain development
parameters, including, but not limited to zoning of the property to FS-RL (Floating
Suburban Residential Low Density), and participation in the cost of Grant Avenue
improvements. The proposed LUPP Amendment for the Commercial Node is not
reflected in the development agreement and the development agreement would
need to be amendment prior to considering rezoning for a commercial
component. Additionally, the applicant intends to apply for a Planned Residential
District (PRD) rezoning for the residential component that also differs from the
development agreement. An amendment to the development agreement would
also be necessary to move forward with future zoning of the property to PRD.
However, this LUPP Amendment request can proceed without changes to the
development agreement as it is not binding on the timing of zoning of the
property as defined by the development agreement.
The LUPP application identifies an intent to the develop the site with 579 dwelling units
including single family detached, single family attached, multifamily housing units, and a
commercial retail/office component on approximately 8 acres. The residential
component of the development is proposed on approximately 132 acres of the 170
equating to a net density of 4.43 dwelling units per acre for the property. Development
of the site will be subject to Conservation Subdivision Ordinance standards in additional
to zoning regulations.
The Village/Suburban Residential designation is a category created with the 1997
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adoption of the LUPP and intended for one of two types of development: the village
concept or the suburban residential concept. Suburban residential developments are
intended for new lands area where the village residential development is not chosen.
Suburban residential designated areas are anticipated to develop similar to past
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residential development patterns, such that it is generally a singular residential use
pattern with little design integration as compared to a village. This concept generally
requires that landscape buffering be used as a separation of land use types.
The LUPP intends for Suburban Residential, however while vehicular focused, to
provide for improved pedestrian connection to parks, schools and open space areas
using such amenities as sidewalks on both sides of the street, bike connections, and
open space area. It is also required that the conservation of designated natural
resources areas, such as designated environmental sensitive areas, be protected
through design features incorporated into the development. The requested
designation for Village/Suburban Residential is consistent with the LUPP for
newly developing areas of the City.
The Commercial Node request is a process required by the LUPP to consider adding
neighborhood commercial development to new residential areas. Commercial Nodes
are assigned to a general area and are to range in size from 2-5 acres, but not to
exceed 10 acres. The node size is proportionate to population. The City has included a
limited number of nodes for growth areas on the Future Land Use Map and provides
criteria for considering additional nodes (See Addendum Pg. 5). The LUPP describes
siting of a node based upon its proximity to other commercial areas and for it to
be located in concentrated population areas. Generally, the City desires
neighborhood services for concentrated population areas subject to criteria for their
location and size of the area.
The applicant's proposed location is situated on the north boundary of the City
along 190th Street and the intersection with Grant Avenue. This is the edge of the
Growth Area and there is no plan for the City to grow and expand across 190th
Street. The North Growth Area at its southern limits is approximately 1 mile from
the Fareway/Casey's commercial area and about 1.75 miles from the north
boundary. Although the proposed node overlaps the service area of the existing
commercial, the applicant believes the population justifies the request. The
applicant's request is based upon the projected population of 2,300 people in the
North Growth Area rather than its location within the City and its relationship to
other areas.
A full analysis of the LUPP Amendment is included in the attached addendum.
The property is currently zoned Agricultural. (See Attachment C) The PRD zoning
intended for the property is allowed for under a Suburban Residential land use concept
being requested by the applicant. However, PRD zoning does not specifically allow for
the commercial development desired at the corner of 190th Street and Grant Avenue.
The "CVCN" (Convenience Commercial Node) zoning district would be required to
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address the proposed Commercial Node Designation for retail, restaurant, and office
uses proposed for the development.
Planning and Zoning Commission Recommendation. The Planning and Zoning
Commission considered the request at their meeting on May 6, 2015. The Commission
discussed concerns focused around the proposed location of the commercial area on
the edge of the community, as well as the proposed size of such commercial area. The
After a discussion questioning any further expansion of the city north of 190th Street and
the number of potential people in the vicinity of the proposed future commercial area,
the Planning and Zoning Commission voted 6-0 to approve creating a Convenience
Commercial Node and to designate the property at 5571 Grant Avenue as
Village/Suburban Residential on the Future Land Use Map. Commission comments
expressed concern about the size of the requested 8 acres and its integration into the
area, but reserved these issues for discussion along with a zoning request.
ALTERNATIVES:
1. The City Council can approve the amendment to the LUPP Future Land Use Map
for Village/Suburban Residential only.
The Council would choose this request if the Council determines that the
requested Convenience Commercial Node does not comply with the criteria
of the Land Use Policy Plan for the use or location of the proposed
Convenience Commercial Node on the site.
2. The City Council can approve an amendment to the LUPP Future Land Use Map
to designate the property located at 5571 Grant Avenue, as Village/Suburban
Residential with a Convenience Commercial Node located at the northeast corner
of the site at Grant Avenue and 190th Street. (Planning and Zoning Commission
Recommendation)
3. The City Council can refer this request back to staff or the applicant for more
information.
CITY MANAGER'S RECOMENDATION:
The applicant notes a lack of commercially designated area within the North Growth
Area on the fringe of the city. This area of the community has not been planned within
the LUPP for future commercial development. The LUPP establishes the criteria in
which to designate future area for commercial development. The developer indicates
that the residential development of Rose Prairie and surrounding neighborhoods is
suitable for a future Convenience Commercial Node at the intersection of 190th Street
and Grant Avenue due to the projected population in the North Growth Area.
While the Rose Prairie residential development of a Suburban Residential concept
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within the Village/Suburban Residential land use designation complies with the policies
of the LUPP, staff has concerns regarding the location of the commercial
component of the proposed development. Staff's principal concerns are related
to locating commercial services on the edge of the City where no additional
expansion of residential development is anticipated within the LUPP. The area
north of the subject site is not part of the North Growth Area and the Ames Urban
Fringe Plan identifies the area between Ames and Gilbert as agriculture/special
study area making it unlikely to become an area of expansion.
Therefore, it is the recommendation of the City Manager that the City Council
approve Alternative #1, which is to amend the LUPP Future Land Use Map to
designation of the property located at 5571 Grant Avenue as Village/Suburban
Residential without a Convenience Commercial Node.
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ADDENDUM
On April 2, 2015, the Developer submitted an application for a Land Use Policy Plan
(LUPP) Minor Map Amendment for the property at 5571 Grant Avenue. The applicant
has also submitted an application for a rezoning request to Planned Residential District
(PRD) for the Rose Prairie site, which will be processed subsequent to an approval of a
the LUPP Map Amendment.
The application indicates the Rose Prairie development site is intended for development
of up to 579 dwelling units including single family detached, single family attached and
multiple family housing units as well as a commercial retail/office component on
approximately eight acres. The residential component of the development is proposed
on approximately 132 acres of the overall 170 acre site, equating to a potential net
density of 4.43 dwelling units per acre for the property. The eight acre commercial site
of the development is noted as potentially including a gas station/convenience story,
15,000 square feet of office space and 18,000 square feet of leasable area for retail and
sit-down restaurant uses. See the concept development plan, Attachment D. The
developer intends to subdivide the site into parcels, "sub-neighborhoods", that will be
separated by a green belt park and lake, but connected by use of sidewalks and a trail
system.
Land Use Policy Plan
The concept of convenience nodes was originally developed back in 2004. The intent
under this concept was to provide nodes of commercial development within the
Village/Suburban Residential Land use designation in close proximity to, and for the
convenience of, the immediate neighborhood, but in a manner and scale that would be
compatible with the residential character of the surrounding neighborhood.
The LUPP describes, as it pertains to the expansion of commercial areas within the new
lands area, the criteria for size, intensity, and location of a Convenience Commercial
Node, for best locating nodes of commercial activity to ensure both compatibility and
overall sustainability of each node. There is also need to ensure that uses within the
node do not compete with or undermine the economic vitality of a village or other
commercial areas within close proximity of the node, and that there is a demonstrated
need for more commercial land so close to other designated commercial areas.
Convenience Commercial Nodes. Convenience scale commercial land uses in areas
designated as Village/Suburban Residential in the New Lands Area shall be located in
strategic locations. The following criteria shall be used to locate convenience scale
commercial land uses:
1. Convenience Commercial Nodes should be located with distribution frequency
of approximately one (1) mile in radius unless a more frequent distribution is
determined appropriate under the locational criteria described for convenience
commercial nodes.
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2. The size of any one node should be between two (2) and five (5) acres, but not
greater then ten (10) acres.
3. The building intensity within the node should be limited to 35,000 square feet in
any given building and no more than 100,000 square feet total.
4. The node should be located adjacent to or within the center of the highest
possible concentrations of population.
5. The node should be located on a major or minor thoroughfare.
The Convenience Commercial Node consists of a cluster of "neighborhood scale"
commercial land uses appropriate for and accommodating to surrounding residential
land uses. Higher standards apply to ensure that the land use relationship between the
commercial activity and the adjacent residential land uses will be compatible. These
standards include such items as building placement, signage, lighting, landscaping,
screening, and building materials.
Uses. Uses within a Convenience Commercial Node should be commercial activities
that are most compatible with residential land uses, serving convenience and localized
neighborhood needs.
Pedestrian connections to adjacent neighborhoods should be used to reduce vehicular
traffic. Floor area ratios should be maximized and shared parking is encouraged. The
intent of the Convenience Commercial Node is to create a clustered, localized
convenience shopping/entertainment environment involving one trip to two or more
destinations within the node.
Locations. Three locations within the New Lands Area are identified for Convenience
Commercial Nodes. Within the New Lands Area, each location represents a
generalized area that meets minimum locational criteria within the Suburban/Village
Residential land use designation. The locations are as follows.
1. Northwest Growth Corridor at the intersection of North Dakota Avenue and Union
Pacific Railroad.
2. Southwest Growth Priority Area near the intersection of Lincoln Way and Boone
County/Story County line.
3. Southwest Growth Priority area in the vicinity of the intersection of State Avenue
and Oakwood Road.
Additionally, there are locational criteria to assure the compatibility, and overall
sustainability of each Convenience Commercial Node location. The timing of
development will determine what type of commercial land uses shall be located within
the Village/Suburban Residential land use designation. The following are the standards
that should be used to locate Convenience Commercial Node land uses in
Village/Suburban Residential areas within the New Lands Area:
1. To assure clustering, minimize vehicular trips and traffic impact on adjacent
neighborhoods, and assure residential compatibility, Convenience Commercial
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Nodes should not be located within two (2) miles of an existing neighborhood
commercial area, convenience commercial node, and/or village commercial
center development.
2. Convenience Commercial Nodes should not be located where there are more
intense commercial activities (Community Commercial Node, Highway-Oriented
Commercial, Regional Commercial, Downtown Service Center) that serve a
higher commercial function and as a convenience commercial land use within
the location criteria as stated above.
Analysis:
The Developer requesting the land use change, states in his application materials that
currently no commercial areas are indentified within the North Growth area of the LUPP.
That the "land use policy plan identified just this objective: "Ames seeks to establish
more integrated and compact living/activity areas (i.e., neighborhoods, villages) wherein
daily living requirements and amenities are provided in a readily identifiable and
accessible area. Greater emphasis is placed on the pedestrian and related
experiences." Staff would agree that the North Growth Area of the community has not
been planned at this point for commercial growth as it was not clear originally that this
was a needed or desired use in the area.
The developer is interested in creating an 8-acre area for convenience/neighborhood
commercial uses. The LUPP uses the previously noted text for designating commercial
nodes on the Future Land Use Map within Village/Suburban Residential areas. The
proposed area for the convenience commercial node meets some of the criteria, such
as the land area, intended uses, building intensity and the location of the site on a major
thoroughfare. The location of a Commercial Node in this area does not meet other
criteria, such as distance from other commercial areas (commercial area at the
intersection of Stange and Bloomington Road is 1 % miles apart) and being located
within the center of a high population concentration. When measuring the distance of
the growth area from other commercials areas, not just the location of the proposed
node, services are as close as 1 mile away from the south properties in the North
Growth Area.
Staff believes that due to its physical separation from Stange/Bloomington it is not likely
to undermine the viability of Stange/Bloomington, but does call into question the
sustainability of a commercial node in the North Growth Area due to existing services in
other areas. This leads to one of staff's greatest concerns with the proposed location at
the planned northern limits of the City of 190th Street. It would seem that this edge
location would meet needs of the North Growth residents, but also rely upon
pass-by traffic and rural residents in order to succeed due to only half of the 1
mile radius of the planned node area is planned for development.
Location and Population
The LUPP identifies location criteria for the development of a commercial node to
assure clustering, sustainability, and compatibility with surrounding residential
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neighborhoods. The LUPP states that the CVCN should not be located within 2 miles of
an existing commercial area and should also be located within the center of the highest
populated area.
The proposed location of the node is within approximately 9,000 feet (approx. 1.7 miles)
of the CVCN Node located at the intersection of Stange and Bloomington Roads and
approximately 12,000 feet (2.2 miles) from the community commercial area along Grand
Avenue (Northern Lights Center). This is measured as traveled on roadways. As a a
radial distance described in the LUPP, the proposed node is even closer to these two
areas. This potential location does not meet the intent of the LUPP for separation of
convenience commercial nodes by 2 miles.
As part of the submitted application, a population table was also provided depicting the
potential unit counts and population anticipated in the Rose Prairie Development and
looking at the potential of the Quarry Estate Development and Hunziker Development.
The applicant notes that with the potential for this development, as well as the
developments of Quarry Estates and the future Hunziker property, this area of the
community could see approximately 808 new residential units equating to 2,316 new
residents (See Attachment E, Applicant Population Table). Staff would note that those
numbers may be a bit overstated as the average household size based on the previous
census citywide averages from 2010 and estimated values for 2013 are between 2.1 to
2.5 people per household. Staff generally applies an estimate of 3 persons per
household on average for new residential single-family development that would be
similar to the proposed suburban development of the North Growth Area. This area is
planned for a mix of detached and attached housing. Staff projects the full buildout of
the north growth area for all developable areas to be around 2,700 people.
Size and Intensity
The LUPP suggests a typical area of a node to be within 2 to 5 acres, but not exceeding
10 acres. With a proposed commercial area of 8 acres, the node is on the larger size of
the intended range of a Convenience Commercial area but still within the maximum limit
of the policy. Based upon the population projections, it appears six acres would more
closely match with the expected population.
The LUPP also indicates criteria to limited Convenience Commercial notes to a
maximum of 35,000 square feet in any given building and no more than 100,000 square
feet total for the node. The proposal includes approximately 15,000 square feet of office
space, 11,000 square feet of retail space and 6,500 square feet for a restaurant and
outdoor dining space. Also included in the plan is the potential for a gas station and
convenience store. The size of such space has not been supplied as part of the
application. The proposed intensity of the buildings is not beyond the scope of a
Convenience Commercial Node under the criteria of the LUPP.
Capacity of Public Utilities. In any proposed change to the Land Use Policy Plan
Future Land Use Map, the City examines possible impacts to public utilities, such as
storm sewer, sanitary sewer and water capacity, storm drainage. This review is based
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on overall system capacities and staff finds that the capacities of storm sewer, sanitary
sewer, and water are acceptable with the level of information that is now available.
Infrastructure. City and developer have a pre-annexation agreement that, among other
commitments, confirms the developers' contributions to City infrastructure costs.
Installation of water and sanitary sewer mains serving the developments along Grant
Avenue are underway and paving of Grant Avenue will be completed during the 2015
construction season. Developers have agreed to assume responsibility for any buy-out
amount due to a rural water provider, as well as to pay prorated portions of the City's
costs for installation of the water and sanitary sewer mains serving the area through
utility connection districts.
Transportation Impacts. Based on a Traffic Study from 2008, which analyzed the
North Growth Area and identified the Rose Prairie Development site as well as Quarry
Estates and Hunziker properties, the Rose Prairie Development accounted for 140
single family detached residential units and 168 condo units for a total of 1,807 average
daily trips for the site with no specific impact identified at the intersection of Grant
Avenue and 190th Street. The study did not account for the proposed commercial area
as the site was intended at that time for a strictly residential development type.
The trip generation analysis supplied by the applicant (Attachment F), which identifies
approximately 33,000 square feet of commercial uses and a total of 687 residential units
of varying types, indicates an increase in the average daily trips for the site from 1,807
in 2008 to 7,533 trips as proposed. In comparison with the previous traffic study, staff
has concerns regarding potential offsite traffic impacts from development of the project
in combination with the other pending developments in the area. Staff will require a
more in-depth traffic assessment that considers the project and cumulative
effects of changes to traffic volumes in the project area be completed prior to any
subsequent rezoning of the development parcels. Any significant impacts identified
by the traffic study may need mitigation per city standards and may be included in a
development agreement as conditions of the subdivision and/or rezoning.
If the LUPP Amendment is approved by the City Council, the applicant will subsequently
request approval to subdivided and rezone the properties to "PRU (Planned Residential
District) and "CVCN" (Convenience Commercial Node) for the purpose of constructing
single family, single family attached, and multiple family housing as well as,
incorporating a commercial component to the overall development area.
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ATTACHMENT A
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ATTACHMENT D
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ATTACHMENT E
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ATTACHMENT F
APPLICANT TRIP GENERATION TABLE
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