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HomeMy WebLinkAboutA7 ITEM #: 2 DATE: 02-13-13 CITY OF AMES DEPARTMENT OF PLANNING AND HOUSING ADDENDUM TO REPORT TO THE ZONING BOARD OF ADJUSTMENT DATE PREPARED: February 8, 2013 CASE FILE NO.: ZBA 12-29 REQUEST: To approve a Special Use Permit for an elementary school in a residential zone PROPERTY OWNER: Ames Community School District CONTACT: Jason Blome, RDG Planning & Design LOCATION: 820 Miller Avenue ZONING: "RL" (Residential Low Density) Additional information is provided in response to the discussion and input received at the January 9th hearing. Only the sections of the previous Report that have been changed follow, with added information underlined and deleted information struck through. In some cases this new information results in a change to the recommended conditions. (The report to the Zoning Board of Adjustment for its meeting of January 9, 2013 is available on the City of Ames web site: www.cityofames.org) General Standards (v) Not create excessive additional requirements at public cost for public facilities or services. Findings of Fact: Space will be provided off the public street for school busses and passenger vehicles to drop off and pick up students. A bus lane with a turnaround is proposed on the north side of the building. A separate drive on the south side of the building will accommodate dropping off and picking up children. Off-street parking is also provided on the south side of the building accessible from this drive. Most of the existing residential area to be served by this school is to the north and east of the school site. Pedestrians from this area will access the site along Poe Avenue and Miller Avenue. There is one existing sidewalk from Poe Avenue to the school site between lots near the south end of the site. A second mid-block paved walk, six feet wide, on Poe Avenue is aligned with the sidewalk on the 1 south side of Steinbeck Street. The applicant proposes to build a six-foot wide sidewalk on the east side of Miller Avenue. This will connect with existing four- foot wide sidewalks at its north and south ends. The Miller Avenue street pavement is the same thickness and design as other local streets: eight inches of asphalt on a compacted earth base. Constructing the school will result in two changes in the type of vehicles using this pavement. During the construction period of several months, heavy trucks and equipment will use Miller Avenue. After the school opens, four or five school busses will access the proposed school twice each day from Miller Avenue. Conclusions: The amount of pedestrian traffic expected requires a six-foot wide sidewalk on the east side of Miller Avenue. Since most of these pedestrians will come from the north, it can be expected that the existing four-foot wide sidewalk from the subject site to the intersection of Miller Avenue and Clemens Street will not be adequate. Therefore, it can be concluded that in order for the development to meet General Standard (v) for a Special Use Permit the public sidewalk on the east side of Miller Avenue should be widened to six feet from the north property line of the subject property to the intersection with Clemens Street, at the sole expense of the Ames Community School District. City of Ames Engineering staff has reviewed the weight of busses and frequency of use and has concluded that this traffic will not create a significant impact on the condition or useful life of the pavement. It is expected that the construction activities may have a topical/surface impact on the pavement. The City will document the existing condition of Miller Avenue by photos and video to be used as a basis to determine the impact of the construction activities. If necessary, a "Mill and Overlay" project during the completion of the school construction will repair any surface damage and extend the life of the existing pavement. Therefore, it can be concluded that in order for the development to meet General Standard (v) for a Special Use Permit, the Ames Community School District should return the Miller Avenue pavement to its previous condition before the school opens. read surf noc in eXGess of what nrr-rrormCati—tFaffiG dees. Therefore, ry it na ho for a Spec;iial Use Permit that when the street pavement on Muller Avenue needs to be GonGluded that an order for the development to meet eneral Standard (V) bus funding for all of the additional GGStS for the street to aGGOMmodate the beyond what is typiGally required for residential street without bus us trara iG. 2 (vi) Not involve uses, activities, processes, materials, and equipment or conditions of operation that will be detrimental to any person, property, or general welfare by reason of excessive production of traffic, noise, smoke, fumes, glare, or odors. There is potential for conflict between pedestrian movement on the crosswalk across Miller on the south side of Keats and the busses using the north drop-off drive. There may be a need for adult oversight on-site during peak times. One of the purposes of a Special Use Permit is to "maintain sound provisions for the protection of the health, safety, convenience and general welfare." (Section 29.1503(1) Purpose). This purpose pertains to the properties, streets and neighborhood surrounding the subject property. In the case of the design of the proposed elementary school, of specific concern are the interaction of pedestrians and vehicles at the two entrances on Miller Avenue. The applicant, in this case Ames Community Schools is responsible for safety on the subject property. Although people and vehicles moving in the public right of way and on and off the school property are at the interface between these two jurisdictions, the safety of students arriving and leaving school is primarily the responsibility of Ames Community Schools. Ames Community Schools is strongly committed to the safety of its students and others arriving and leaving the property and has provided the following additional information about its activities to ensure safety during school start and end times: Current adult supervision at our elementary schools before and after school typically involves from 3 to 7 adults depending on the site and the student enrollment. At the current Edwards building: Two adults in addition to separate classroom teachers monitor bus loading and unloading while one adult monitors car traffic and individual student pick-up and drop off. At the current Sawyer building: Four adults supervise student loading and unloading from busses before and after school while three adults monitor car traffic and individual student pick-up and drop off. Obviously, adult supervision is situationally determined and monitored at all our buildings on an on-going basis. As you can see from the above facts, considerations for adult supervision hinge on student enrollment, the amount of car traffic and traffic patterns at the building site, and the nature of the streets surrounding each building. 3 At the hearing a question also was raised as to whether, on the south drop off drive, the space is adequate for drop-off and parking movements at the same time, avoiding congestion backed up to the entrance drive here. The attached "South Parking Lot Diagram" provides evidence that the space is adequate. Residential Zone Standards. (i) Not create excessively higher levels of traffic than the predominant pattern in the area and not create additional traffic from the proposed use that would change the street classification and such traffic shall not lower the level of service at area intersections. Findings of Fact: Schools exist in five similar residential neighborhoods in Ames Travel patterns related to schools are part of the normal and predominant travel patterns in these residential areas An elementary school typically generates a larger volume of traffic than a neighborhood of single family homes, particularly peak volumes at the beginning and end of school days and, to a lesser extent, before and after special events. Also, an elementary school of this size in the Ames School District requires four or five school busses to arrive and depart within a narrow time frame twice per weekday. A traffic study was prepared in 1996 that included the projected traffic for a school. Although the focus of that study was the overall network in the area and the levels of service at the larger intersections, the study did determine that the school was expected to generate 2% of the total traffic in the fully developed neighborhood. It is now possible to improve projections by sampling the actual traffic volumes of the built out neighborhood. CyRide currently serves residents in this area with the #7 Purple Route during the school year on weekdays between 7 and 9 am and 3:45 and 4:45 pm, with two or three intervals during each of these periods of service. These busses access the area on Mortensen Road and turn around in the intersection of Mortensen Road and Miller Avenue, one block south of the subject property. The instructional day for elementary students currently begins at 8:35 am and ends at 3:20 pm (2:05 pm on Wednesdays). The periods of transit service will coincide with the peak times for traffic around the proposed school. Motorists using the intersection for accessing the school site may be confused by the CyRide busses making a U-turn in the intersection increasing the risk of accidents The following four options were considered for reducing this risk: a) Placing All-way Stop signs and flashing lights at the intersection of Mortensen Road and Miller Avenue. b) Reducing the extent of CyRide service such that its busses would not come down Mortensen to Miller. c) Having CyRide busses use the bus turnaround on the north side of the new school building d) Constructing a new CyRide turnaround separated from this intersection 4 After consultation between staff members from the School District City and CyRide, it was determined that the first three options were unacceptable for safety reasons. This left option "d" construction of a replacement CyRide turnaround separated from the Mortensen/Miller intersection as the only viable _alternative. The cost of this public improvement is estimated to be $50 000 to 75 000. Under General Standard v the use proposed under the Special Use Permit ma not create excessive additional requirements at public cost The School District has obtained a legal opinion that the District can spend capital improvement funds for off-site infrastructure only if the City utilizes a special assessment district as the funding mechanism for that infrastructure Conclusions: The pattern of the street network, street classifications, width of streets and traffic controls at intersections with the major streets were designed based on an earlier traffic analysis and are likely to still be adequate. At this time it is not known if this peak school traffic will change the street classifications or lower the level of service at area intersections below Level of Service C the City's standard for the types of intersections affected by this traffic A new traffic study at this time can provide better predictions of those impacts based on actual current traffic volumes in the neighborhood. Therefore, it can be concluded that, in order for the development to meet Residential Standard (i) for a Special Use Permit, the Ames Community School District should provide a traffic impact study to determine if the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections. The scope of this study will include comparing existing traffic ("No-Build Condition") to projected traffic volumes ("Build Condition", i.e. after the school is open - this shall be the maximum anticipated use of the facility/site including any future additions). This study should include the intended routes and intersections affected by school busses, transit busses, pedestrians, and vehicular traffic from parents and staff during the morning and evening peak hours — and should also include the anticipated number of students (both initially and with any future expansion), based on assumed school boundaries and other study parameters determined by City staff. If the study determines that the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections the study should provide options and recommendations to mitigate impacts of increased traffic City staff will verify that the data in the report supports the recommendations The Ames Community School District should pay all non-capital costs for traffic signs and traffic calming measures within the area west of South Dakota Avenue and south of College Creek. The study should be completed by May 1, 2013. 5 It is expected that having transit busses make U-turns in a street intersection that also becomes a primary access route to the school at the same time as peak school traffic will increase the risk of accidents to an unacceptable level Under existing traffic levels in this neighborhood CyRide is able to use the turnaround it previously constructed to safely make a U-turn on its Purple Route The need to construct a new turnaround is only made necessary by the addition of the morning and afternoon elementary school traffic which coincides with the times when the Purple Route serves this area. City staff and the applicant have concluded that constructing a separate CyRide turnaround further west on Mortensen is likely to be the most effective alternative Therefore, it can be concluded that, in order for the development to meet Residential Standard (i) for a Special Use Permit, a new turnaround for CyRide busses should be constructed separated from the Miller Avenue intersection the cost for which the City of Ames should special assess the Ames Community School District. Not create a noticeably different travel pattern than the predominant pattern in the area. Special attention must be shown to deliveries or service trips in a residential zone that are different than the normal to and from work travel pattern in the residential area. Findings of Fact: With 400 students and 25 staff arriving and leaving at generally the same times every weekday by car, bus, bicycles and on foot, the transportation patterns after the proposed school is open will be different than currently. In addition, the travel patterns that the staff, students and people who bring them are accustomed to for their current schools will also be different. Given the routes of existing streets and walks, these different travel patterns may be greatest on Wilder Boulevard, Clemens Boulevard, Miller Avenue and Poe Avenue and the intersections of Clements with Miller and Poe. Elementary schools exist in five similar residential neighborhoods in Ames Travel patterns related to schools are part of the normal and predominant travel patterns in these residential areas. An elementary school has been planned for the subiect site since the beginning of the development of the neighborhood within which the site is located. Conclusions: In addition to the impacts on traffic discussed above under Residential Standard (i) the different travel patterns may also impact the current experience of daily living (Le., quality of life of residents of this neighborhood) However, these expected future travel patterns are part of the normal and predominant travel patterns in a residential neighborhood with an elementary school. In some cases the City and Ames Community Schools have found that creating a Safe Routes to Schools plan has helped to establish safer and more efficient pedestrian and bicycle access to and from the school site that also minimizes impacts on the use and enjoyment of private properties in the neighborhood. These plans typically identify operations management and public information activities have not typically led to public improvements 6 Therefore, it can be concluded that, in order for the development to meet Residential Standard (ii) for a Special Use Permit, the Ames Community School District should participate with City staff in developing a Safe Route to Schools Plan to identify o erations, management and public information activities to help establish safer and more efficient edestrian and bicycle access to and from the school site that also minimizes impacts on the use and enjoyment of private properties in the neighborhood. This Plan should be completed by April 30, 2014. The Ames Community School District and City of Ames should commit to working together before and after the school opens to carry out the Plan. -The Ames r-nm Not generate truck trips by trucks over 26,000 g.v.w. (gross vehicle weight) to and from the site except for waste collection vehicles and moving vans. Findings of Fact: The only large truck that will access the school is a daily delivery by a food service truck with a gross vehicle weight of 17,950 lbs. Conclusions: It can be concluded that in the develo ment meets Residential Standard (iii) for a Special Use Permit CONCLUSIONS: Based upon the applicant's information, submitted plans, and above findings of fact, it can be concluded that the proposed development of an elementary school in accordance with the submitted plans will meet the General and Residential Standards for a Special Use Permit if all of the following Conditions of Approval are met- a) A new turnaround for C Ride busses will be constructed separated from the Miller Avenue intersection the cost for which the City of Ames will special as Ames Community School District sess the b) To ensure greater safety when school is in use, the Ames Community School District will request that the Ames City Council change the on-street parking regulations on Miller Avenue, which may include prohibiting parking on Miller Avenue when the school is in use. c) The public sidewalk on the east side of Miller Avenue will be widened to six feet from the north property line of the subject property to the intersection with Clemens Street, at the sole expense of the Ames Community School District. d) The Ames Community School District will provide a traffic impact study to determine if the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections. If the stud 7 determines that the Proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections the study will provide options and recommendations to mitigate impacts of increased traffic. City staff will verify that the data in the report support the recommendations. The Ames Community School District will pay all costs within the restrictions on funding sources in the Code of Iowa) such as for traffic siqns and traffic calming measures within the area west of South Dakota Avenue and south of College Creek. The study will be completed by May 1 2013. e) The Ames Community School District will participate with City staff in a Safe Route to Schools Plan to identify operations management and public information activities to help establish safer and more efficient pedestrian and bicycle access to and from the school site that also minimize impacts on the use and enjoyment of private properties in the neighborhood. This Plan will be completed by April 30, 2014. The Ames Community School District and City of Ames commits to working together before and after the school opens to carry out the Plan. f) The Ames community School District will return the Miller Avenue pavement to its pre-construction condition before the school opens g) When the school expands, the Ames Community School District will install the additional off-street parking indicated on the approved plan. Beard, the aPPI;GaRt Y Rot be able to GA'Mmit te these Ge-nditieRs-ef Approval by the time of th�p publiG heaF!Rg of the Ze-ging E3GaFd ef AdjustmeRt. However, in order that the these Gendit;GRI; Adis stm. ALTERNATIVES 1. The Zoning Board of Adjustment can approve the Special Use Permit for an elementary school in a residential zone at 820 Miller Avenue in accordance with the Site Plan (prepared by RDG Planning and Design and dated 12/21/2012) with the adoption of the finding of fact and conclusions stated herein and subject to the following conditions: a) A new turnaround for C Ride busses will be constructed separated from the 8 Miller Avenue intersection the cost for which the City of Ames willspecial assess the Ames Community School District b) To ensure greater safety when school is in use, the Ames Community School District will request that the Ames City Council change the on-street parking regulations on Miller Avenue, which may include prohibiting parking on Miller Avenue when the school is in use. c) The public sidewalk on the east side of Miller Avenue will be widened to six feet from the north property line of the subject property to the intersection with Clemens Street, at the sole expense of the Ames Community School District. d) The Ames Community School District will provide a traffic impact study to determine if the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections. If the study determines that the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections the studV will provide options and recommendations to mitigate impacts of increased traffic. City staff will verify that the data in the report support the recommendations. The Ames Community School District will pay all costs within the restrictions on funding sources in the Code of Iowa) such as for traffic signs and traffic calming measures within the area west of South Dakota Avenue and south of College Creek. The study will be completed by May 1 2013 e) The Ames Community School District will participate with City staff in a Safe Route to Schools Plan to identify operations, management and public information activities to help establish safer and more efficient pedestrian and bicycle access to and from the school site that also minimize impacts on the use and enjoyment of private properties in the neighborhood. This Plan will be completed by April 30, 2014. The Ames Community School District and City of Ames commits to working together before and after the school opens to carry out the Plan. f) The Ames CommunitV School District will return the Miller Avenue pavement to itspre-construction condition before the school opens g) When the school expands, the Ames Community School District will install the additional off-street parking indicated on the approved plan. 2. The Zoning Board of Adjustment can approve the Special Use Permit for an elementary school in a residential zone at 820 Miller Avenue by adopting its own finding of fact and conclusions. 3. The Zoning Board of Adjustment can deny the Special Use Permit for an elementary school in a residential zone at 820 Miller Avenue, if the Board finds and concludes that the proposed development is not consistent with the adopted policies and regulations, or that the use imposes impacts that cannot be reasonably mitigated. by adopting its own finding of fact and conclusions. 9 4. The Zoning Board of Adjustment can table this request for a Special Use Permit and request additional information from City staff or the applicant. RECOMMENDED ACTION: Following extensive discussion in the community, the Ames Community School Board is implementing a long range plan for five elementary schools to serve our growing community for many years to come. These schools are to be distributed throughout the community in residential areas. This plan is consistent with the land use policies of the City Council. Most people agree that elementary schools in residential areas make for a high quality of life and for stronger, more enduring neighborhoods. An elementary school at Miller Avenue has been planned since the beginning of this neighborhood. It is likely that this is one of the reasons why many of the residents moved to this area. Elementary schools are large and very active facilities. Clearly, there is potential for impacts from elementary schools to be detrimental to a residential neighborhood. Therefore, the Zoning Ordinance allows a school in a residential neighborhood with a Special Use Permit because these impacts can be anticipated and mitigated. This report describes those anticipated impacts and describes how the proposed design of the school and its grounds has mitigated many of these impacts. For impacts anticipated beyond the school site, the proposed Conditions of Approval describe additional steps that can be taken to mitigate the remaining anticipated impacts of developing this school. Therefore, the Department of Planning and Housing recommends Alternative #1, that the Zoning Board of Adjustment approve the Special Use Permit for an elementary school in a residential zone at 820 Miller Avenue in accordance with the Site Plan (prepared by RDG Planning and Design and dated 12/21/2012) with the adoption of the findings of fact and conclusions stated herein and subject to the following conditions: a) A new turnaround for C Ride busses will be constructed separated from the Miller Avenue intersection the cost for which the City of Ames will special assess the Ames Community School District b) To ensure greater safety when school is in use, the Ames Community School District will request that the Ames City Council change the on-street parking regulations on Miller Avenue, which may include prohibiting parking on Miller Avenue when the school is in use. c) The public sidewalk on the east side of Miller Avenue will be widened to six feet from the north property line of the subject property to the intersection with Clemens Street, at the sole expense of the Ames Community School District. d) The Ames Community School District will provide a traffic impact study to determine if the proposed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections. If the stud determines that the ro osed use will result in additional traffic that will change the street classification or lower the level of service below "C" at area intersections the 10 stud will provide options and recommendations to mitigate impacts of increased traffic. City staff will verify that the data in the report support the recommendations. The Ames CommunitV School District will pay all costs within the restrictions on fundin sources in the Code of Iowa), such as for traffic signs and traffic calming measures within the area west of South Dakota Avenue and south of College Creek. The study will be completed by May 1 2013 e) The Ames Community School District will participate with City staff in a Safe Route to Schools Plan to identify operations, management and public information activities to help establish safer and more efficient pedestrian and bicycle access to and from the school site that also minimize impacts on the use and enjoyment of private properties in the neighborhood. This Plan will be completed by April 30, 2014. The Ames Community School District and City of Ames commits to working together before and after the school opens to carry out the Plan. f) The Ames community School District will return the Miller Avenue-pavement to its re-construction condition before the school opens g) When the school expands, the Ames Community School District will install the additional off-street parking indicated on the approved plan. 11