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HomeMy WebLinkAboutA7 ITEM #: 5 DATE: 09-27-17 CITY OF AMES DEPARTMENT OF PLANNING AND HOUSING REPORT TO THE ZONING BOARD OF ADJUSTMENT DATE PREPARED: September 22, 2017 CASE FILE NO.: SUP-264 REQUEST: A Special Use Permit for an institutional use and to allow construction of a parking lot and handicap ramp at 502 and 512 Douglas Avenue for Adams Funeral Home. PROPERTY Soderstrum Reimers, Inc., SRFH Investments, LC. OWNER: Represented by Joe Reimers LOCATION: 502 and 512 Douglas Avenue ZONING: Downtown Service Center (DSC) BACKGROUND AND PROJECT DESCRIPTION: Adams Funeral Home occupies 502 Douglas Avenue (Lots 6 and 7 of Block 7, Original Town). SRFH Investments, LC owns the vacant lot to the north addressed as 512 Douglas Avenue (Lot 8, Block 8, Original Town). Both are represented by Joe Reimers of Adams Funeral Home. The home at 512 Douglas Avenue was recently demolished and Adams Funeral Home wishes to construct a 20-car parking lot on the site. The applicant will also construct a handicap entrance to the front door of the building. Adams Funeral Home is falls within the Funeral Facilities use category in our Zoning Ordinance. The deceased is received and prepared for burial or cremation. Adams does not do cremation on site nor do they intend to with this application. Visitation is usually held at this location, as are occasional funeral services. The facility can accommodate only one viewing at a time although there are rare instances when there might be two. A funeral home in the DSC zone requires a Special Use Permit and approval of a site plan by the Zoning Board of Adjustment. The use of the site for a funeral home is currently considered non-conforming, because a Special Use Permit had not previously been approved for the site. A Special Use Permit also allows for consideration of approving the use of the site as a funeral home and a new accessory parking lot within the DSC zoning district without achieving the minimum 1 .0 Floor Area Ratio (FAR) standard and the minimum two-story building height requirement. DSC zoning has special provisions to allow for review of unique uses through a Special Use Permit that may be compatible with purpose and intent of the DSC zoning district while not fully achieving minimum building intensity requirements. To approve the parking lot, the Board will need to make findings that the improvements meet the Special Use Permit criteria in the context of the intent of DSC zoning requirements. The proposed parking lot lies on a separate lot and with a different owner than the lot on which the funeral home sits. Staff understands, though, that the two ownership entities are controlled by the same individuals. The two lots will need to be combined through a plat of survey prior to construction of the parking lot. The applicant will apply for the plat of survey and it will likely be on an October agenda of the City Council. Construction of the handicap ramp may begin after action by the Zoning Board of Adjustment and without the need for the plat of survey to be approved as it meets the standards for the existing lot. The proposed parking lot is a single aisle with angle parking on both sides for a total of 20 parking spaces. Vehicles will access the parking lot from the north/south alley to the east of the site. The 20 parking spaces consist of 15 standard stalls, 4 compact spaces and one handicap accessible space. Vehicles exit the site by way of the existing driveway for Adams Funeral Home to Douglas Avenue. The proposed circulation meets the City's interest of not allowing for new curb cuts along Douglas Avenue that would disrupt the newly constructed street and remove on street parking. The 50 degree parking arrangement requires a 15' drive aisle and spaces that are 9' by 19' (11 .7' of curb length and 20.3' of depth of space). One space on the north side in the middle is using the 18" overhang allowance of Section 29.406 (9e) resulting in a space of 17.5' in depth. This is to accommodate the required 7' clear area for a large tree planting. The four compact spaces and the one van-accessible handicapped stall meet the required dimensional standards. The site shows front yard and parking lot landscaping in compliance with the new landscaping standards for the area of the parking lot. The front yard landscaping is met with two overstory trees and with the 10 shrubs and 14 ornamental grasses provided within the front 30 feet of the site. Five overstory trees are provided along the perimeter of the parking area to meet the parking lot landscaping requirements. Existing front yard landscaping exists around the current funeral home with substantial trees, foundation plantings, and a decorative wall. Staff has not recommended adding additional front yard landscaping along 5t" Street and Douglas Avenue due to the presence of existing improvements that meet the intent of the landscaping standards. Stormwater is provided with an underground system collecting surface runoff at two locations before being piped to a manhole in Douglas Avenue. This new stormwater pipe will need to be bored or installed with other trenchless construction methods to avoid cutting and patching the new concrete paving on Douglas Avenue. The former service lines for the demolished home will be abandoned—the sewer line at the back of curb on the east side of Douglas Avenue and the water line under the sidewalk on the west side. The proposed ramp is shown on the site plan on Sheet C3.0. The architectural detail sheet is a separate attachment. The accessible path from the van-accessible parking space to the ramp is indicated by arrows. The ramp will be faced with matching brick and a stone cap. There is an on-site mock-up of the proposed brick for inspection. It will extend about 10' from the front of the porch. APPLICABLE LAW: DSC Zoning Requirements (3) "Zone Development Standards. The zone development standards for the DSC Zone are set forth in Table 29.808(3)below: Table 29.808(3) Downtown Ser%ice Center (DSC) "Lone Development Standards DEVELOPMENT STANDARDS D%C Z0NE Minimum FAR 1.0,Except that the Zoning Board of Adjustment may determine through revlcw of a use subject to approval of a Special Use Pemut Ilse that such a proposed use and design is compatible in character with its surrounding and is exempt from meeting minimum FAR and muumum height. Minimum height 2 Stones, Except that the Zoning Board of Adlusunent may determine through review of a use subject to approval of Special Use Permit tlse that such a proposed use and design is compatible in character with its surrounding and is exempt from meeting mmmum FAR and minimum height. Chapter 29, Section 29.1503(4)(a), (c), and (e) of the Municipal Code states the following: (4) Review Criteria. Before a Special Use Permit application can be approved, the Zoning Board of Adjustment shall establish that the following general standards, as well as the specific standards outlined in subsection (c) below, where applicable, have been or shall be satisfied. The Board's action shall be based on stated findings of fact. The conditions imposed shall be construed as limitations on the power of the Board to act. A mere finding that a use conforms to those conditions or a recitation of those conditions, unaccompanied by specific findings of fact, shall not be considered findings of fact for the purpose of complying with this Ordinance. (a) General Standards. The Zoning Board of Adjustment shall review each application for the purpose of determining that each proposed use meets the following standards, and in addition, shall find adequate evidence that each use in its proposed location will: (The standards are listed in this report below.) (b) Commercial Zone Standards. The Zoning Board of Adjustment shall review each application for the purpose of determining that each proposed use in a commercial zone meets the following standards..." (The standards are listed in this report below.) (e) Conditions. The Board may impose such additional conditions it deems necessary for the general welfare, for the protection of individual property rights, and for ensuring that the intent and objectives of this Ordinance will be observed." STATEMENT OF APPLICANT IN SUPPORT OF PROPOSAL: The applicant has provided the attached application including statements as to how the proposed restaurant meets the requirements for a Special Use Permit. FINDINGS OF FACT & CONCLUSIONS: Based upon the submitted site plan provided in the application, the following findings of fact and conclusions may be made regarding the standards of approval. General Standards. (i) Be harmonious with and in accordance with the general principles and proposals of the Land Use Policy Plan of the City. Findings of Fact: The current LUPP supports Downtown Service Center (DSC) zoning at this location. The use is an allowed use within that zone. Conclusions: The DSC zoning is intended for commercial uses principally, but allows for other uses, such as institutional, when they are found to be compatible with the surroundings. The current use of the site has a long standing presence as a funeral home and a historic property. The parking lot is accessory to the use of the property as an institutional use and helps support the function of the funeral home. It can be concluded that the use meets General Standard (i) for a Special Use Permit. (ii) Be designed, constructed, operated and maintained so as to be harmonious and appropriate in appearance with the existing and intended character of the general vicinity and that such a use will not change the essential character of the area in which it is proposed. Findings of Fact: The DSC is intended to provide dense commercial and institutional development. Parking, generally, is provided on-street and in city parking lots. In some instances, off-street parking is allowed in accordance with the design standards of the Zoning Ordinance. The handicap ramp will be sensitive to the design of the existing building and will match the materials. The funeral home has 6,065 square feet of floor and the existing lot is 21,600 square feet resulting in a floor area ratio of 0.28. Combining the lot to the north increases the lot size to 32,400 square feet with the resulting FAR reduced to 0.19. The DSC zoning ordinance requires an FAR of at least 1.0 but allows for a lesser amount for institutional uses if the Board finds that the "proposed use and design is compatible in character with its surroundings." Surrounding uses include the Elks lodge to the north (522 Douglas Avenue) which has a similar off-street parking lot and an FAR of 0.26, the Corsant Building to the east (111-117 5t" Street) which has no off-street parking and an FAR of 1.86, and the Bandshell Office Park Building to the east (511 Duff Avenue) and an FAR of 0.49. The City's library is located immediately across Douglas Avenue from the site. The 500 Block of Douglas does not currently have a strong commercial presence due to the funeral home and lodge use on the block that do not have frequent daytime customers or high levels of regular activity. The library is a highly active site with many visitors throughout all hours of the days and all days of the week. Conclusions: The proposed parking meets the design standards of the Zoning Ordinance, including the dimensional standards and landscaping. The landscaping exceeds the minimum front yard depth requirement to help buffer the presence of parking against the sidewalks along Douglas. The historic funeral home was originally built as a residence and predates FAR requirements. Staff believes that the addition of a well-landscaped parking lot and the sensitive design and placement of the handicap ramp allows the Board to find that the design is compatible in character with its surroundings. Therefore, it can be concluded that the use meets General Standard (ii) for a Special Use Permit and is relieved from the minimum 1.0 FAR and two story height requirement. Not be hazardous or disturbing to existing or future uses in the same general vicinity. Findings of Fact: The proposed parking has access from the alley and uses the existing driveway to Douglas Avenue. It provides 20 off-street parking spaces that do not currently exist to serve the funeral home. The handicap ramp is expected to improve access to the building for those that are mobility-impaired. Conclusions: The current funeral home, in existence for nearly 100 years, has no history of being a nuisance. The proposed parking lot and handicap ramp are not expected to be disturbing or hazardous to existing or future uses in the area. The parking lot limits the access to the existing driveway and directly from the alley. It will, however, increase the traffic that uses that driveway crossing the sidewalk during limited times. However, sight distances are not a problem and should continue to be a safe crossing of the sidewalk. It can be concluded that the use meets General Standard (iii) for a Special Use Permit. (iv) Be served adequately by essential public facilities and services such as highways, streets, police, fire protection, drainage structures, refuse disposal, water and sewage facilities, and/or schools. Findings of Fact: The parking lot has access to the existing storm sewer in Douglas Avenue. No other facilities or services are needed for the parking lot or handicap ramp. Conclusions: All public facilities are available to serve the site. It can be concluded that the use meets General Standard (iv) for a Special Use Permit. (v) Not create excessive additional requirements at public cost for public facilities or services. Findings of Fact: The proposed parking stalls will not require additional infrastructure in the future. Neither is additional fire or police resources anticipated to serve this use. Conclusions: This use will not create additional requirements at public cost. It can be concluded that the use meets General Standard (v) for a Special Use Permit. (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. Findings of Fact: The proposed parking lot is not expected to produce any nuisances. The existing funeral home has no history of being a nuisance. The unique nature of a funeral home is its generally low levels of activity for much of the time with potentially very high peak usage that utilizes downtown streets to support parking for the use. Access to the site is conveniently accommodated with public sidewalks. Conclusions: The proposal does not expand the level of use of the site as a funeral home. The past use of the site has been able to be accommodated through on-street parking and the new parking lot will likely reduce demand on abutting street parking resources. The proposed parking lot and handicap ramp will not produce excessive smoke, fumes, glare or odors and will operate in a manner typical of funerary institutions. It can be concluded that the use meets General Standard (vi) for a Special Use Permit. (vii) Be consistent with the intent and purpose of the Zone in which it is proposed to locate such use. Findings of Fact: The Downtown Service Center zoning is intended for intense commercial development and accommodates other special uses. The funeral home is an allowed use within the Downtown Service Center with the issuance of a Special Use Permit. The proposed parking lot and handicap ramp, too, are consistent with the zoning standards as accessory components to the institutional use. DSC includes zoning standards intended to ensure new development is compatible with the historic pedestrian oriented nature and two- story scale of downtown. Conclusions: The City Council, through the Zoning Ordinance, has determined that this type of use is consistent with the intent and purpose of the DSC zoning district upon specific review the site plan. As an existing use on a block that does not have a strong commercial presence, the proposed use and improvements can be found to meet the intent of the district by accommodating an existing use and by not being detrimental to the intended character of improvements for downtown. It can be concluded that the use meets General Standard (vii) for a Special Use Permit. Commercial Zone Standards. (i) Be compatible with the potential commercial development and use of property planned to occur in the area. Findings of Fact: The proposed parking lot will not impede the existing adjacent uses or the proposed uses surrounding the site. The parking lot design includes elements of landscape buffering to assist in making it compatible with the surroundings. Conclusions: The proposed use is not incompatible with the planned use of the property in the general area. It can be concluded that the use meets Commercial Zone Standard (i) for a Special Use Permit. (ii) Represent the sufficiently desirable need for the entire community that the loss of commercial land is justifiable in relation to the benefit. Findings of Fact: The zone allows for a wide range of commercial, cultural and institutional uses. The property was previously used a residential rental property. The funeral home and parking lot are allowed uses within the DSC zoning district. As an existing use, the proposed changes do not directly take away from commercial opportunities. The proposed FAR is below the intended intensity levels of Downtown, but the current building does meet the minimum building height requirements. Conclusions: The proposed development does not result in the loss of commercial land as the site is already developed and used for a funeral home. The combining of the lot for the parking lot lowers the calculated FAR of the site, but does not alter the physical appearance or primary use of the site. As are most commercial uses, the funeral home pays property taxes so no loss to the city, school district or county is anticipated. It can be concluded that the use meets Commercial Zone Standard (ii) for a Special Use Permit. (iii) Be consistent with all other applicable standards in the zone. Findings of Fact: The proposed use and design of the parking lot complies with all DSC zoning district regulations including setbacks, site design requirements, use regulations and flood plain laws where applicable. With the combining of the lots through a plat of survey, the parking lot can meet zoning standards. The funeral home does not meet the FAR requirement of 1.0 and its calculated FAR will be slightly lower with the combined lots. As discussed above, relief from the FAR standard can be granted for a special use to accommodate their unique attributes when the use and improvements are compatible with their surroundings and the purposes of the DSC zoning. Conclusions: The lower FAR does not, in this case, affect the appearance or current use of the 500 Block of Douglas due to the existing funeral home. The construction of the parking lot includes appropriate landscaping to buffer it from the street and does not create additional disruptions to the desired pedestrian character of downtown. It can be concluded that the use meets Commercial Zone Standard (iii) for a Special Use Permit. PUBLIC COMMENTS: Notification was made to all owners of property within 200 feet. A zoning action notice was placed on the property and published in the newspaper. As of this writing, no comments have been received. ALTERNATIVES: 1. The Zoning Board of Adjustment can approve the request for a Special Use Permit by adopting the findings and conclusions noted by staff and by finding that the existing and proposed use of the funeral home and parking lot are compatible in character with its surroundings to justify the exemption from the 1.0 FAR requirement with the following conditions. a. Construction of the parking lot as part of the Special Use Permit is conditioned upon approval of a plat of survey by the City Council combining 502 and 512 Douglas Avenue into a single parcel. 2. The Zoning Board of Adjustment can approve the request for a Special Use Permit by adopting other findings and conclusions and/or with other explicit conditions of approval. 3. The Zoning Board of Adjustment can deny this request for a Special Use Permit by finding that the project does not meet the stated criteria. 4. The Zoning Board of Adjustment can refer this request back to the applicant of city staff for additional information. RECOMMENDED ACTION: Staff concludes that the proposed funeral home use and site plan at 502 and 512 Douglas Avenue are consistent with the general and specific commercial standards required for granting a Special Use Permit. The parking lot provides 20 off-street spaces to be used for visitation and other events at the funeral home, thus freeing up on-street and city-owned parking spaces. The landscaping provides an attractive separation of the parking lot from the Douglas Avenue sidewalk. The proposed handicap ramp provides access to the building for the mobility impaired and is composed of matching brick materials. The existing funeral home and the proposed parking lot are compatible in character with their surroundings. Since the parking lot cannot meet all the design criteria of the Zoning Ordinance unless and until the two lots are combined, staff is seeking conditional approval subject to the approval and recording of a plat of survey to combine 502 and 512 Douglas Avenue into a single parcel. Therefore, based upon the Findings of Fact and Conclusions above, it is the recommendation of the Department of Planning and Housing that the Zoning Board of Adjustment act in accordance with Alternative #1. SAPLAN_SHMCouncil Boards Commissions\ZBA\Special Use Permits\502-512_Douglas_SUP-09-27-17.docx Attachment A- • • &Funeral Adams-4 - - , • LU a m 1 'bf . a .� ..,` i 100 AMOK N Feet ��,