HomeMy WebLinkAboutA004 - Staff Report dated February 8, 2019 ITEM #: 3
DATE: 02-13-19
CITY OF AMES
DEPARTMENT OF PLANNING AND HOUSING
REPORT TO THE ZONING BOARD OF ADJUSTMENT
DATE PREPARED: February 81 2019
CASE FILE NO.: SUP-000560
REQUEST: A Special Use Permit to allow development of a site greater than
20,000 square feet within the Neighborhood Commercial (NC) Zoning
District and an Alternative Landscape Plan for the property located at
619 Burnett Avenue (Fareway grocery store).
PROPERTY Fareway Stores Inc.
OWNER:
LOCATION: 619 Burnett Avenue
ZONING: "NC" (Neighborhood Commercial)
BACKGROUND
Fareway is proposing to redevelop the site of their store located at 619 Burnett. The current
building and site is nonconforming in many regards. The existing Fareway store is 20,983
sq. ft. and has existed at this location since 1969. Fareway looks to reinvest in the site by
replacing the current store with a modern, medium-sized grocery store of approximately
24,247 square feet, placed along Burnett Avenue. Fareway intends to keep their current
store open during the construction of the new store.
The site is located within the Neighborhood Commercial zoning district. The Downtown
Fareway site is unique within the context of the Neighborhood Commercial zoning district,
given that the majority of parcels within the district include small buildings with building
footprints less than 2,500 square feet. The Fareway site includes the entire block bounded
by Burnett Avenue, 7th Street, Clark Avenue, and 6th Street, which totals 101,397 square
feet or 2.33 acres of lot area. The overall size of the site and the fact that the site
encompasses street frontage on four sides is unusual within the Neighborhood Commercial
zoning district. However, within this large site context the location of the store is centrally
located in the area with strong pedestrian connections to the surrounding neighborhoods
and the Downtown Service Center.
Section 29.801(3) of the Neighborhood Commercial zoning regulations require that any site
development greater than 20.000 square feet is subject to approval of a Special Use Permit
issued by the Zoning Board of Adjustment (ZBA). The Special Use Permit requirement is
intended to guide larger developments within the Neighborhood Commercial Zone toward
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compatibility with their surroundings and to ensure that their scale, use, and design address
the intent for the zoning district.
PROJECT DESCRIPTION
The site has four street frontages. Neighborhood Commercial zoning defines many
standards in relation to front yards and street frontage. The primary frontage is along 61h
Street as it has the main driveway into the site. The store entrance is proposed at the
southwest corner of the building with the entrance facing west. A green space is proposed
between the building and the street at the corner of Burnett and 6th Street. The NC district
requires a setback of no more than a 60-feet along the front lot line. Fareway is proposing a
57.5-foot setback along 6th Street.
The new building is proposed closest to its Burnett Avenue frontage. Burnett is considered
the secondary frontage, which has a minimum front yard setback of 10-feet. The setback
may be reduced to 5-feet with the addition of enhanced design interest on the building
fagade. This enables constrained sites, such as Fareway, to have a way to implement a
smaller setback with inclusion of certain design features. Fareway is proposing a 7.9-foot
setback along this frontage. The details of the building fagade are discussed later in this
report.
Generally, parking is not allowed to be located between the building and the street within the
Neighborhood Commercial zoning district; however, the standards include an exception for
sites with three or more street frontages, to allow parking between the building and the
street. Parking will be provided on the west side of the store, between Clark Avenue and the
building.
t The site has direct access from 6th Street, Clark Avenue, and 7th Street. Parking is
calculated at the retail sales and services rate of 1 parking space for every 300 square feet,
requiring a total of 81 spaces. Although on street parking is allowed to be credited towards
the minimum requirement, Fareway proposes to meet all parking requirements on site.
Fareway is proposing 108 parking stalls, which includes 5 accessible spaces. The majority
of parking is designed as angled parking. The drive aisle adjacent to the front of the grocery
store will be wide enough to accommodate two-way traffic.
During construction, available parking will be reduced to 60 spaces (including both off-street
and on-street spaces). Remote parking as allowed under Sec. 29.406(18) of the zoning
ordinance, will be provided in Downtown Lot N, during the construction period, for up to 20
metered spaces. Downtown Lot N (City Hall) is located adjacent to the Fareway property
and includes a total of 86 spaces. The allowance of use for up to 20 of the metered spaces
is not expected to be detrimental to City operations, as Fareway's peak operations are
generally after 4 pm and on weekends, a time which aligns well with City Hall hours.
A truck loading area is proposed along the north side of the building along 7th Street. The
dumpster enclosure and refrigeration unit will also be located in this area. The dumpster
enclosure and refrigeration unit will be screened with a wall extending from the building. The
wall will have a 5-foot setback from the north property line.
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Both the parking lot and loading area will be lighted with dark sky friendly fixtures meeting
the standards set forth in Section 29.411 of the Zoning Ordinance. Parking lot fixtures will be
mounted on 23-foot tall poles.
Sidewalks currently exist along all four frontages. New six-foot sidewalks are proposed
along 61" Street, Clark Avenue, and 7t" Street where replacement walkways are needed. It is
anticipated that the majority of the sidewalk along Burnett can remain without being
damaged during construction.
There will be direct sidewalk connections from the public sidewalk at both Burnett and 6th
Street to the front door of the grocery store. Bicycle parking will also be provided in this
vicinity consisting of three loop racks.
Subsurface storm water detention is proposed under a portion of the parking lot to meet the
City's mandatory storm water management standards of Chapter 5b of the Municipal Code.
However, soil studies indicate a high water table in this area that influence the design
capacity of the detention structure. Options are still being discussed for the final design to
alleviate this potential problem and satisfy the Public Works Engineering Division concerns.
Approval of the Special Use Permit should be conditioned upon the approval of the final
storm water plan details, by the City's Municipal Engineer.
The City's landscape standards are a combination of front yard and parking lot landscaping
requirements. The standards address planting of trees, shrubs, and decorative grasses to
meet a range of general welfare and aesthetic interests. Alternative Landscape Design
Approvals are allowed under Sec. 29.403.3(J) when prepared by a licensed Landscape
Architect, as part of a Special Use Permit. The proposed plan must be found to address the
purposes of the ordinance and provide for a unique or high quality landscape environment.
The review includes evaluation of required front yard landscaping, parking lot and loading
area landscaping and screening.
Mandatory front yard landscaping is required along all four street frontages. The Fareway
site is unique in that it has four front yard frontages equaling 1274 lineal feet, however with
reduced setback allowances of Neighborhood Commercial zoning the plantings vary
compared to other commercial zoning districts. Front yards require a combination of large
trees with shrubs and grasses. The frontages along 7t", Clark, and 6t" have been included
in the calculation of required front yard trees at a rate of one tree for every 50 linear feet
which equates to 20 front yard trees. However, the reduced setback allowance along
Burnett Avenue with only 7.9 feet between the building and the property line results in an
area that is not wide enough to support tree planting and is left out of the required tree
calculation. Four large existing street trees in the right-of-way along Burnett do provide
some buffer and shade between the street and the building. The applicant proposes to
account for the 20 front yard trees by planting 17 trees on site and providing 3 additional
trees within the right-of-way as street trees.
Along Clark Avenue the proposed front yard landscaping depth is reduced from the 10-foot
minimum to 7.7 feet as allowed for parking layout flexibility. This is necessary given the site
constraints and to provide room for the angled parking layout preferred by Fareway.
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Redevelopment of a constrained site often mandates some flexibility, maintaining a seven-
foot wide planter meets minimum tree planting area requirements. The front yard
landscaping in total includes 110 shrubs and 142 ornamental grasses, meeting the required
number.
Parking lots require a separate calculation of tree planting requirements from front yard
requirements. A calculation of parking lot trees based upon the amount of paved parking
and maneuvering area would require 27 additional trees beyond the front yard landscaping
trees. Parking lot trees are to be distributed in and around the parking lot area. Additionally,
the City requires a 15-foot median within a parking lot when there are three or more aisles of
parking.
The Fareway proposal includes 11 total overstory trees in relation to the parking area. The
proposed design includes a total of 4 tree islands dispersed within the parking lot and the
remaining trees added to the planters along the perimeter of the site. A landscape median is
not proposed with the parking lot design. Fareway proposes the reduced count of trees and
median due to constraints where trees can be located in relation to the underground storm
water system as well as the site having four "Front Yard" street frontages instead of typical
side and rear yards. The proposed plan also allows for Fareway to provide the desired
amount of parking for their store rather than reducing parking to include additional internal
tree islands and the median.
A total of 31 overstory trees are proposed for the site with the combination of front yard and
parking lot landscaping. The number of required trees and configuration of the parking lot is
allowed to be modified by the Alternative Landscape Plan process. The plant materials meet
the diversity requirements with 6 varieties of trees, 6 varieties of shrubs, and 3 varieties of
ornamental grasses. Additionally, the added green space between the building and 611
Street results in Fareway providing 19% of the site in landscaping, exceeding which the
minimum 15% requirement.
Section 29.801(4) requires that certain architectural standards be met within the NC zoning
district. The proposed building includes brick materials on the fagade creating a high degree
of architectural interest. Through the use of architectural standards, massive stretches of
blank walls are broken up through detailing, and fenestration (openings such as windows).
Variations in the building fagade occur every 40 feet. Changes in parapet height are flanked
by darker brick 'columns" creating variation in brick texture and color. These variations help
to create visual interest and help to create the appearance of smaller shops in what would
otherwise be a blank wall.
Windows are included on the east. south and west elevations and an awning marquee helps
offset the entrance area from the rest of the store. Building features promote neighborhood
compatibility and pedestrian-friendly development by addressing the massing and scale of
the building and increasing its visual interest. The wall which encloses the refrigeration unit,
loading and dumpster area appears as an extension of the building and includes similar
brick pattern detailing and coloration as the rest of the building.
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APPLICABLE LAW:
Section 29.1503(4)(a). (c) and (e) of the Zoning Ordinance 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.)
(c) 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.
Section 29.403.3 (J) Alternative Design Approvals states the following:
(ii) A use subject to approval of a Special Use Permit may include a landscape plan
prepared by a licensed Landscape Architect with alternative design and plantings for
review and approval by the Zoning Board of Adjustment when the proposed plan is
found to address the purposes of the ordinance and provides for a unique or high
quality landscape environment that exceeds the quality of the base standards.
STATEMENT OF APPLICANT IN SUPPORT OF PROPOSAL: The applicant has provided
the attached application including statements as to how the proposed site development plan
for a grocery store in the Neighborhood Commercial Zoning District 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.
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Findings of Fact: The LUPP designation for the site is Downtown Service Center,
intending for a wide variety of commercial uses. The proposed use of a grocery store
will fit within the LUPP of the Downtown Service Center. This facility will provide a
vital service for this area.
Conclusions: The proposed use and layout of the site is consistent with the general
principles and proposals of the LUPP. It can be concluded that the use meets
General Standard (i) for a Special Use Permit.
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 proposed building and use is the same as the existing use. The
primary change is the location of the facility along the east property line rather its
current location on the west side. There is a mix of uses in the vicinity of the site:
small office and commercial uses (east), City surface parking lot (south) church and
residential uses (west), and residential uses (north).
Building height in the area is a mix of one and two story buildings. Fagades vary
greatly but generally include features along the street frontage such as, windows,
roofline changes, and a variety of quality materials.
The proposed building will be a single use, one-story building constructed of precast
concrete panels imbedded with a brick veneer. Roof parapets are designed to
enhance the entrance and corners of the building in particular, and give definition to
the building. They also serve to help screen roof equipment. Additional equipment
screening will ensure that the equipment is not visible.
Conclusions: Since this is the same type of facility and it will be operated in the same
way, it will not change the existing character of the area overall. The use of the site
does not create conditions which cause a conflict nor which alter the residential
character of the area to the north and west. Variation in the fagade every 40-feet
helps the scale of the building to better fit within the context of smaller lots and
structures. Therefore, it can be concluded that the use meets General Standard
(ii) for a Special Use Permit.
(iii) Not be hazardous or disturbing to existing or future uses in the same general
vicinity.
Findings of Fact: Since the existing use of the property is to be maintained, it will not
be hazardous or disturbing to current or future users compared to current conditions.
Along with exceeding minimum parking requirements, the redevelopment of the site
will include more green space and landscaping than currently exist and storm water
detention facilities will be provided, whereas none exist today.
Conclusions: The new modernized store and site will meet current design standards
for compatibility with the surroundings. The use is of the same general nature as it
exists today. It can be concluded that the use meets General Standard (iii) for a
Special Use Permit.
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(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 existing use and operation is to be maintained. The existing site
is adequately served by these public facilities. An underground detention system will
be installed to provide storm water control.
The site has access to all utilities and other services supplied by the City. Access to
the site is proposed from three different directions- 6th Street (south), Clark Avenue
(west) and 7th Street (north). Direct pedestrian connections to public sidewalks will be
available on the south and east.
Conclusions: The site will be adequately served by police, fire, water, sewer,
drainage, refuse. As a commercial facility, it will have no impact to school enrollment.
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 site is a redevelopment site. No additional fire or police
resources will be required to serve the proposed use. The proposed facility will use
the existing public facilities and services and will not create any excessive additional
requirements.
Conclusions: This use will not require any public cost for public facilities or services. 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: Grocery stores traditionally are not accompanied by excessive
smoke, fumes, glare, or odors. While some odors may be emitted from dumpsters,
the clean, modernized facilities and infrastructure will minimize the generation of
odors. The uses, activities and processes will not be detrimental to any person,
property or general welfare.
Sixth Street is considered a minor arterial street and is intended to serve heavier
traffic than the surrounding local streets. Traffic levels for the scale of operation can
be accommodated by the existing street infrastructure. The loading dock area is on
the north side of the building and is situated in a location to minimize conflicts with
pedestrian traffic. Vehicular access to the site will be available from three different
directions coming off of 61h Street, Clark Avenue, or 7th Street.
Conclusions: The proposed interior and exterior uses, as proposed, will not produce
excessive traffic, smoke, fumes, glare or odors and will operate in a manner typical of
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a grocery store. 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 proposed grocery store is an allowed use within the
Neighborhood Commercial zoning district. The special use permit process allows for
evaluation of unique conditions for development of large sites and for alternative
landscape plans. The zone intends for a wide range of commercial uses.
Architectural standards promote compatibility with the adjacent uses and
neighborhood character, and create a pleasant street appearance supportive of
pedestrian activity. The proposed site layout is consistent with the intent and purpose
of the NC zone.
Conclusions: The building as proposed fits the character of the Neighborhood
Commercial district. The building design, layout, and operations of the site meet the
purpose and intent of the NC zone. 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 Fareway site abuts other Neighborhood Commercial properties
to the east and Downtown Service Center commercial properties to the south. Its
redevelopment and continuance as a grocery store fits well within the general area,
given its adjacency to residential properties as well as being located in the historic
heart of the city. Properties in the area are already developed. The proposed grocery
store fits within the use of the proposed district and fulfills a need for this area.
Conclusions: The proposed use is compatible with the use of properties in the area.
The proposed building elevations are attractive and compatible with adjacent
commercial buildings. It can be concluded that the use meets Commercial Zone
Standard (i) for a Special Use Permit.
(i i) 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: Fareway has been an important fixture of downtown Ames in this
location for many years. The redevelopment of this parcel and continuation of its use
as a grocery store is a huge asset not only to the Old Town neighborhood and the
Downtown Service Center. but also to the community at large.
Conclusions. The proposed development does not result in the loss of commercial
land. 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.
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Findings of Fact: The proposed use and design of the site and the building as a
grocery store complies with all Neighborhood Commercial zoning district regulations
including development standards, architectural detailing, pedestrian circulation, site
lighting, and parking requirements. The only exception from the applicable standards
is a reduced setback on the east property line and the location of the fence/wall along
7th street. The exception is allowed within the code when enhanced design interest is
provided. Fareway has included such features as windows, high quality textured
building fapade materials, and roofline projections to meet the criteria. The proposed
alternative landscape plan findings are addressed separately.
Conclusions: It can be concluded that the use meets Commercial Zone Standard
(iii) for a Special Use Permit.
Alternative Design Approval.
Findings of Fact: The proposed Landscape Plan has been prepared by a registered
Landscape Architect. It includes a high quality design which includes a community
green space located between the building and 611 Street. This green space results in
Fareway providing a greater area in landscaping- 19% rather than the 15% minimum
requirement. The plans include a total of 31 overstory trees. 110 shrubs and 142
ornamental grasses. Of the 31 overstory trees, three are proposed within the Clark
Avenue street right of way, four trees are included within parking islands, and the
remaining 24 trees are located within the front yard landscaping area along 6tn Street,
Clark Avenue and 711 Street. The tree count for front yard landscaping is fully met. A
calculation of parking lot trees based upon the amount of paved parking and
maneuvering area would generally require 27 additional trees beyond the front yard
landscaping trees. The plans include a reduced tree count of 11 overstory trees, four
of which are included within the tee islands. The number of required trees is allowed
to be reduced by the Alternative Landscape Plan. The parking lot includes an area for
underground stormwater detention so additional space for tree islands is not
available.
Conclusions: It can be concluded that the proposed landscaping plan satisfies
the purposes described in Section 29.403 and provides for a high quality
landscape that exceeds the quality of the base standards, despite the
constraints of the redevelopment site.
PUBLIC COMMENTS:
Notification was made to all owners of property within 200 feet. A notice of public hearing
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 this request for a Special Use Permit
and Alternative Landscape Plan at 619 Burnett Avenue to allow a site development
greater than 20,000 square feet for a new Fareway downtown grocery store in the
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Neighborhood Commercial (NC) zone by adopting the findings and conclusions noted
above, and with the following conditions:
a. Prior to final occupancy of the site and completing the parking lot
improvements, obtain final approval of the SWMP from the Municipal
Engineer.
2. The Zoning Board of Adjustment can approve this request for a Special Use Permit at
619 Burnett Avenue by adopting the findings and conclusions noted above. and with
other conditions in addition to or in lieu of those noted above.
3. The Zoning Board of Adjustment can deny this request for a Special Use Permit at
619 Burnett Avenue by finding that the project does not meet the criteria of Section
29.1503(4).
4. The Zoning Board of Adjustment can refer this request back to the applicant or to City
staff for additional information.
RECOMMENDED ACTION:
Staff concludes that the proposed grocery store, at 619 Burnett Avenue is consistent with
the requirements for granting an Alternative Landscape Plan approval and with the general
and specific commercial standards required for granting a Special Use Permit. The new
24,247 square feet store will operate in manner that is compatible with the surrounding
uses. Architectural enhancements and site improvements including landscaping will further
make the use attractive for its adjacent neighbors and those viewing the site from adjacent
properties. Since storm water approval is pending, it final approval has been added as a
condition. 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.
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Attachment `A'
Location & Zoning Map
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Attachment `B'
(Site plan and elevation drawings under separate cover)
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