HomeMy WebLinkAboutA030 - Council Action Summary dated April 21, 2021 ITEM # 6
DATE: 04-21-21
COUNCIL ACTION FORM
REQUEST: REZONING AMENDMENT TO A MASTER PLAN FOR HAYDEN'S
PRESERVE (FOREMERLY ROSE PRAIRIE) AT 5571 HYDE AVENUE
BACKGROUND INFORMATION:
Rose Prairie, LLC owns a 170 acre site at the corner of Hyde Avenue and 190'h Street
(Attachment A - Location and Zoning Map). This site was originally annexed with a
development agreement in 2010 and the project was named Rose Prairie. The property,
as part of the development agreement, is also subject to a proportional share of paving
costs of Hyde Avenue (formerly Grant Avenue) with a street assessment. Hyde Avenue
paving was completed in 2016. The site remained undeveloped and zoned as Agricultural
until 2016. City Council approved the rezoning of the site with a Master Plan in 2016
that allows for a mix of development of single-family housing and multi-family
housing not to exceed 620 units, along with 6 acres of commercial land (Attachment
B - Approved Master Plan). Development of the site would be done under the City's
Conservation Subdivision Ordinance standards. The 2016 approval included substantial
modifications to the development agreement along with the approved increase in density
and mix of uses. The approval was contentious at that time due to the substantial increase
in density from the initial 2010 agreement and the its location with the Ada Hayden
Watershed.
Since 2016, the developer prepared one initial preliminary plat of the site in 2018, but was
unable to proceed with final platting and development of the site. The site continues to be
farmed and is undeveloped. On March 9, 2021 , the developer went before the City Council
with several requested changes to the 2010 Pre-annexation Agreement and 2016
Addendum. The developer's request is focused on changes to the plan to help lower
development costs to make the project feasible for beginning development in 2021. These
requests included changes to the timing of payoff of connections fees, allocation of street
assessments for payoff, design and timing of sanitary sewer extension to the west, timing
of Hyde Avenue shared use path installation, timing of parkland dedication, and changes
to the Master Plan to eliminate an east west road connection to Hyde Avenue and to
establish a new City east west greenway trail. The proposed changes to the Master
Plan with the changes to road design and proposed adjustments to the distribution
of housing units are treated as a rezoning of the site due to the establishment of the
original approval in 2016 as part of a rezoning even though there is not proposed
change in the established zoning district boundaries on the site.The aforementioned
changes are include as (Attachment C — Proposed Master Plan). The developer also
intends to rename the project to Hayden's Preserve from Rose Prairie.
A Master Plan is a City of Ames requirement for development in the Village/Suburban
Residential designated areas of the City, essentially the expansion areas of the City. A ,
Master Plan defines basic layout and use issues of a site as part of a rezoning action. The
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Master Plan is required to identify types of uses, density, natural areas, and perimeter road
and trail access points. A Master Plan does not approve a subdivision of the land and
internal lot layouts, only the range of use. Prior to grading of the site or construction of
buildings, a subdivision would need to be approved to provide the required detail needed
to verify consistency with City standards related to lot layouts, road pattens, and utility
extensions. Subsequent development must conform to the Master Plan and a subdivision
plat is reviewed for consistency with the Master Plan.
The developer strongly desires to proceed with a development generally consistent with
the previously approved layout of the Master Plan and its arrangement of housing types.
The developer indicates that with approved changes to the Master Plan they will continue
to move forward in a manner consistentwith the City's Conservation Subdivision ordinance
standards with the goal of starting development in 2021. The Conservation Subdivision is
critical to the success of the project with the enhanced open space and stormwater quality
requirements related to the Ada Hayden Watershed. The development of Hayden's
Preserve will still present as "pods" and will likely be developed in multiple phases
separately, either by Rose Prairie LLC or sold off to other developers. The Master Plan
identifies the acreage of each pod and a range of dwelling units for each. The total
estimated net acres for development are approximately 100 acres, with the remainder of
the area used for open space, a public park, and streets.
Residential Units- The maximum number of residential units (620) that are part of the
approved Master Plan remain the same. However, the number of unit types does adjust
between unit type slightly while still complying with minimum and maximum density
requirements.
The number of residential units has adjusted some between unit type while still staying in
the allowed density ranges of each zoning district. The total number of dwelling units
(proposed both as single-family attached and detached) in the FS-RL will fall within the
range of 329 to 428. This is an increase of units from 219 to 419. This equates to a density
range of 4.1 dwelling units per net acre to 5.3 dwelling units per net acre and still within
the required density for FS-RL (3.75 and 10.00 dwelling units per net acre).
Pod 10 on the updated Master Plan is now shown as all single family detached units. In
the 2016 Master Plan, this was Pod 10 and shown as single family attached. The table
shows a slight decrease in area (.83 acres) for FS-RL development. This area represents
developable area within the FS-RL zoned area and not the area zoned as FS-RL. This
small change in developable area is a result of changes to the amount of Public ROW.
Staff will have the developer change a few labels regarding FS-RL area on the exhibit in
order to make this more clear.
The FS-RM zoning comprises 13.54 acres. The total number of dwelling units is between
136 and 192. This is a slight decrease in the proposed maximum number of units in 2016
from 201. This equates to a density range of 10 dwelling units per acre to 14.3 dwelling
units per net acre. Required density for FS-RM is between 10.00 and 22.31 dwelling units
per acre. FS-RM allows apartment buildings no larger than 12 units. Attachment B includes
a breakdown of each type of use for the entire site.
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Storm Water - Hayden's Preserve is located within the Ada Hayden Watershed and is
subject to the Conservation Subdivision Ordinance standards. These requirements are
above and beyond standard subdivision requirements and address mandatory storm water
treatment measures and providing for open space where a "treatment train" approach is
required to meet storm water standards. One of the key issues for development in the
watershed is the long term protection and enhancement of water quality downstream from
this site.
Storm water runoff will be treated through a series of natural areas that may or may not
hold standing water, depending on the final design and location within the development.
One significant change is to move the design away from a large centrally located wet pond
that was a primary design feature of the old plan to a series of small areas. The location
and size of these conceptual treatment areas does vary some from what was shown on
the 2016 Master Plan, however they reflect known areas of water flow, vegetation, and
depression on the site consistent with our previous evaluations of potential natural
resources on the site. However, storm water management plans are not reviewed in detail
until subdivision and site plan submittal. Staff and the developer believe, the proposed
concept of development can meet the storm water treatment objectives with the elements
of open space included in the "pod" like layout of the development shown in the Master
Plan and this is consistent with the prior determination in 2016.
Street Layout -- The most significant change in the Master Plan relates to streets. The
developer proposes to eliminate a street connection from Hyde Avenue connecting
through the site to the main north-south spine road of the development. Since the original
approval of Rose Prairie an east-west road from Hyde Avenue to the center of the project
has been part of the Master Plan to provide connectivity and access into the site. The
developer requested they be allowed to remove the road connection due to the cost of
crossing the central waterway.
This connector road was planned to help disperse traffic and connect the neighborhood to
Hyde Avenue with an intersection corresponding to Hayden's Crossing, the subdivision to
the east. Since 2016 the City has evaluated North Growth in greater detail with Ames Plan
2040 scenarios and Forward 2045 Transportation Plan and the City's Traffic Engineer
modeled traffic volumes with and without the connection and determined, from purely a
vehicular traffic performance level, the transportation system would operate acceptably
despite the more limited connections into the development. Even though desirable to have
high levels of connectivity and generally an expected attribute of residential development,
Staff believes removing this connection is acceptable when considering the traffic
performance levels, the initial cost of making the extension over the waterway and long-
term bridge/culvert maintenance. It should be kept in mind that while the proposed Master
Plan shows street layouts within pods the exact design may vary at the time of Preliminary
and Final Plats.
Additionally, a cul de sac has been added at the south end of Parcel 8. Based on the table
in the Master Plan Exhibit this does allow for an additional ten single-family detached
homes, approximately.
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Parks and Trails - As part of the development, a 10-foot shared use path will be required
along the Hayden's Preserve frontage adjacent to Hyde Avenue (approx. % mile) plus an
additional '/ of a mile to the south along Hyde across the neighboring Sturges frontage.
This off-site improvement was negotiated by the City in 2016 to ensure there was no long
term gap in shard use path system. This path will be installed in phases with the first
phases of development of Hayden's Preserve. The first section will occur with the first
phase of development along Hyde Avenue from 19011 to the south end of the first phase
(approx. '/Z mile). The remainder of the path will be installed at such time that it can be
connected with other improvements to the south that are expected with the planned
Hunziker development of Auburn Trail.
There will be a trail system within the development, some will be maintained by the HOA
and some of it will be part of a 20-foot greenway within the development. Note that the
Conservation Ordinance includes design features for not only open space but
interconnected trails that will be addressed in greater detail during subsequent reviews.
As part of the Forward 2045 Transportation Plan, the City identified a desire for an
east/west greenway that would eventually connect from GW Carver to the Ada Hayden
Trailhead on Hyde. The greenway is a new addition to the plan that runs east-west across
the site and adds to the City bicycle and pedestrian connection system throughout the
City.
This would include a city-maintained 10-foot paved path in a 20-foot greenway. This paved
path will require a pedestrian bridge in order to cross a creek that is along a south boundary
between Parcels 8 and 9. Staff believes this new greenway is a valuable long-term
infrastructure component for the City, the development of trail would be a shared cost with
the developer as an enhancement exceeding private trail requirements. The proposed
cost sharing is for construction of the path by the developer with the city making the
crossing over the waterway. Additional details are needed during the preliminary plat stage
to verify crossing location and feasibility.
In 2016, a requirement was added to include a 5-acre park to the City by 2023. At that
time, it was expected that over half of the development would be complete and the
neighborhood park would be needed by 2023. This Master Plan still includes the park, at
a slightly smaller size, decreasing from 5.07 acres to 4.8 acres. The park is still centrally
located at this time with access to the proposed greenway and from the spine street and
its planned shard use path. This slight adjustment is within the acceptable range of a
neighborhood park and the initial parameters given to the developer as part of the 2016
approval. Given the delay in start of development and removal of the east-west connector
road it may take longer for development to reach the area of the site where the park will
be located. The phasing of development and tying that to the development of the park will
be worked out with the updated development agreement to be approved by City Council.
Master Plan Exhibit — The Master Plan depicts a general description of the intended
development of a property and addresses natural areas, buildable areas, building types,
range of uses and basic access points. The final details of storm water management, street
design and layout and residential unit layouts will be reviewed and approved at the time of
Preliminary Platting and Site Plan approval, all of which will come back before the Plan &
Zoning Commission and City Council for approval. The Master Plan drawing correctly
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reflects requested changes to the Pre-annexation Agreement and conversations with
Staff. However, corresponding notes are yet to be updated to reflect these adjustments.
Staff has asked for the developer to make changes to notations on the Master Plan prior
to going to City Council. In addition to City Council considering the rezoning and new
Master Plan, it will concurrently consider changes to the development agreement as
described on March 9tn
ALTERNATIVES:
1. The Planning and Zoning Commission can recommend that the City Council can
approve the request for the amendment to the Master Plan with the condition to provide
an updated Master Plan Exhibit notation reflecting the changes in layout and unit
distribution.
2. The Planning and Zoning Commission can recommend that the City Council deny the
request for the amendment to the Master Plan as proposed by the rezoning request if
the City Council finds that the City's regulations and policies are not met.
3. The Planning and Zoning Commission can defer action on this request and refer it back
to City staff and/or the applicant for additional information.
RECOMMENDED ACTION:
The Rose Prairie site is a significant land resource planned to meet the City's immediate
housing development needs. Its development was included as a Tier 1 area within the
Ames Plan 2040 scenario evaluations. The overall development concept was vetted in
2016 as it related to the concept of a. Conservation Subdivision, open space, and water
quality protection while also addressing housing needs of the city. Staff believes the
proposed changes do not significantly alter those earlier findings for the 2016 approval.
The proposed Master Plan's development concept meets the density standards of the
respective zones and also the open space requirements of the Conservation Subdivision
Ordinance. The developer proposes to include a trail system, a shared use path along the
Hyde Avenue frontage and a greenway that runs east-west across the site along with a
city neighborhood park.
Therefore, it is the recommendation of the Planning and Housing Department that
the Planning and Zoning Commission act in accordance with Alternative #1, which
is to recommend that the City Council approve the request for the amendment to the
Master Plan with the condition to provide an updated Master Plan Exhibit.
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ADDENDUM
Existing Land Use Policy Plan. The LUPP intends for Suburban Residential, although
vehicular focused, to provide for improved pedestrian connections to parks, schools and
open space areas using such amenities as sidewalks on both sides of the street, bike
connections, and open space areas. 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 proposed Master Plan is
consistent with what was approved in 2016 in meeting these goals as applied to rezoning
of the site.
Existing/Proposed Zoning. The existing zoning designations of Floating Suburban
Residential Low Density (FS-RL), Floating Suburban Residential Medium Density (FS-
RM), and Commercial General Service (CGS) are not changing with the Master Plan
Amendment. The amount of land within these zoning designations is also staying
consistent with the 2016 Master Plan. Minimum and maximum densities will be achieved
with the ranges depicted on the Master Plan.
Master Plan. A Master Plan is intended to provide a general description of the intended
development of a property. It must address natural areas, buildable areas, building types,
range of uses and basic access points, as described in zoning requirements of Section
29.1507(4).
This updated Hayden's Persevere Master Plan identifies a number of development"pods,"
allowing each to be developed independently and, possibly, by different developers. Two
of the nine pods in the FS-RL zone are destined for single-family attached homes. The
remaining seven pods are single-family detached homes. Note that FS-RL allows for both
detached and attached housing, no variations or deviations are needed to develop this
type of housing in FS-RL.
The submitted Master Plan proposes areas for residential development on 93.5 acres of
the property and commercial development on about 6 acres. The remaining area of the
site is planned to accommodate open space, including storm water detention areas,
private open space, and a 4.8 acre park to be dedicated to the City. The City has requested
this park area to be consistent with the service level goals of the Land Use Policy Plan for
5 acres of parkland per 1,000 people. The park would be a neighborhood park that requires
some areas of level land for amenities. The park would be connected to the trail system
as shown on the Master Plan. The developer agreement provides more specificity about
park development.
Public road access to Hyde Avenue is anticipated at three points. The northern point is
aligned with Ada Hayden Road, the access to Quarry Estates; the middle access is aligned
with Leopold Drive, the north entrance to Hayden's Crossing; and the southern access will
be aligned with the access to a parking area for Ada Hayden Heritage Park. Access
improvements, including turn lane needs, will be addressed as part of the subdivision.
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A single road intersection is planned at one point along 190th Street between the proposed
commercial zone and FS-RM zone. Coordination of driveways and intersection
improvements for this intersection will occur with subsequent subdivision review.
The north-south collector street will run the length of the development, which will connect
into a future development to be done by Hunziker Development. This spine road is
designed as a collector street with a 31-foot street section and a shared use path along
the west side of the road. This road will extend to the south and eventually connect to
Hyde Avenue.
The Master Plan also shows the General Flood Plain Overlay that is located, generally,
east/west along the north boundary of the southern quarter-quarter section.
Proposed FS-RL (Suburban Residential Low Density) Zoning. The developer is
requesting FS-RL zoning for the bulk of the site. FS-RL allows for single-family detached
homes as well as single-family attached homes. Up to 12 attached units can constructed
provided the development has access from a rear alley; otherwise attached dwellings are
limited to 5 units. Apartments are not an allowed use in the FS-RL district.
The FS-RL district requires a housing density of between 3.75 dwelling units per acre and
10.00 dwelling units per acre. The overall density of the FS-RL, as shown on the submitted
Master Plan is between 4.1 and 5.3 dwelling units per acre.
Proposed FS-RM (Suburban Residential Medium Density) Zoning. The developer is
requesting FS-RM zoning for a portion of the parcel lying at the north end, comprising
about 13.5 acre. FS-RM allows for single-family attached and detached homes (including
twin-homes and duplexes), as well as apartment buildings having up to 12 dwelling units.
Apartments will require the submittal of a Major Site Development Plan and approval by
the City Council at the time of construction.
The FS-RM district requires a housing density of between 10.0 dwelling units per acre and
22.31 dwelling units per acre. The Master Plan shows that the FS-RM district will have an
overall density of between 10.0 and 14.3 units per acre.
Water. Water service will be brought to the site under the terms of the development
agreement and is adequate to serve the entire development. Water will be taken through
the site for future extension. Actual internal water service will be finalized during the review
of the preliminary plat. This site is subject to a connection district for off site improvements
made by the City.
Sanitary Sewer. Sanitary sewer service will also be brought to the site, lying on the east
side of Hyde Avenue. The sewer stub under the road to the west side of Hyde Avenue was
sized to accommodate the density of the previously proposed development (about 300
units). Actual internal, sanitary sewer service will be finalized during the review of the
preliminary plat. The developer is required per City standards and the development
agreement to extend sewer through the site to the west and north. This site is subject to a
connection district for off site improvements made by the City.
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Storm Water Management. The site will be developed to meet the requirements of the
City's conservation subdivision ordinance. The natural drainage features will be preserved
and impacts of development on the landscape will be ameliorated. The standards require
on-site treatment and storage of stormwater within open spaces and conservation areas.
These open spaces and conservation areas shall comprise at least 25 percent of the gross
acreage of the site. The Master Plan provides 42.19 acres of open space and an additional
4.80 acres of a public park, totaling 27.6 percent of the gross acreage. This is a slight
decrease from 28.5 percent of the gross acres in the 2016 Master Plan due to the
decreased park area and adjustments to other open space areas. Additional open space,
such as trail corridors and drainage swales may be identified during the preliminary plat
process, increasing that number.
Staff also notes that since 2016, FEMA remapped flood plains in Story County and the
main channel that flows north south through the site is now labeled as a general flood
plain, which makes it subject to local flood plain ordinance standards and jurisdictional
review with state and federal agencies for changes to the channel.
The Master Plan does not indicate how stormwater will be treated and stored in
accordance with City requirements. However, the conservation subdivision regulations
require buffers along drainage ways and encourage best management practices in treating
storm water. In addition, the Chapter 5B Post-Construction Storm Water Management will
apply as well. The specific stormwater treatment plan for the development will be
evaluated as part of the preliminary plat review.
Development Agreement. The developer recently requested amendments to the existing
development agreement, including the adoption of a new Master Plan to reflect requested
changes.
The City Council is asked to amend the agreement prior to taking action on the rezoning
request. There are other, minor proposed changes which do not affect the design or layout
of the proposed development. The terms of the development describing the off-site traffic
improvements at Bloomington Road and Hyde Avenue and at Bloomington Road and
Grand Avenue are retained.
Apartment Matrix. The apartment matrix was used to evaluate apartment locations in
2016. The only change in the Master Plan to the FS-RM area was a decrease to the
maximum number of units by twelve. Since no significant changes were proposed to the
unit count or layout the matrix was not updated or included with this amendment. Staff still
supports Multi-family development within the site to add housing diversity to the area.
Findings of Fact
Based upon an analysis of the proposed rezoning and laws pertinent to the applicant's
request, staff makes the following findings of fact:
1. Ames Municipal Code Section 29.1507(2) allows owners of fifty percent (50%) or
more of the area of the lots in any district desired for rezoning to file an application
8
requesting that the City Council rezone the property. The owner of this single parcel
has requested the rezoning.
2. The subject property has been designated on the Land Use Policy Plan. (LUPP)
Future Land Use Map as Village/Suburban Residential with a Convenience
Commercial Node.
3, The Village/Suburban Residential land use designation supports the FS-RL and FS-
RM zoning designations. The Convenience Commercial Node supports the CGS
zone.
4. The Master Plan provides information required by code and demonstrates that the
densities for FS-RL and FS-RM will be within the standards.
5. Infrastructure is available to this site. The preliminary plat will determine water and
sewer layout and capacity for the existing stub under Grant Avenue.
Accesses to this site are being defined by the Master Plan and have been reviewed by the
traffic engineer.
Conclusions. Based upon the analysis in this report, staff concludes that the proposed
amendment to the Master Plan of the subject property is consistent with the Future Land
Use Map, as well as the Goals and Objectives of the City of Ames Land Use Policy Plan.
9
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