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HomeMy WebLinkAboutA003 - Staff Report (3) ITEM #: _ 4 DATE: 03-25-2020 CITY OF AMES DEPARTMENT OF PLANNING AND HOUSING REPORT TO THE ZONING BOARD OF ADJUSTMENT DATE PREPARED: March 19, 2020 CASE FILE NO.: ZBA-000814 REQUEST: A Special Use Permit to modify the existing site of a Religious Institution with construction of an expanded parking lot and driveway at 2400 Bloomington Road. PROPERTY Ascension Lutheran Church of Ames OWNER: LOCATION: 2400 Bloomington Road ZONING: Residential Low-Density (RL) BACKGROUND AND PROJECT DESCRIPTION: Ascension Lutheran Church of Ames proposes to expand their parking lot with a 14,938 square foot parking lot expansion and construct a second driveway extending to Bloomington Road on the east side of the site. The church is located at 2400 Bloomington Road in a Residential Low-Density (RL) zone. There is no proposed change to the capacity of the sanctuary or the physical church building. The church is located on a 309,857 square foot lot situated amid low-density residentially zoned property on three sides, Village Residential zoning (F-VR) on the west and Government/Airport District zoning which also exists to the north of the site for the city park. The subject parcel was created with a Plat of Survey as Parcel F on January 4t", 1995. Section 29.701(2) of the Residential Low Density (RL) zoning regulations require that a Religious Institution obtain a Special Use Permit issued by the Zoning Board of Adjustment for such a use or expansion of use, in this instance the approve site plan for the use is being amended and requires a new approval. The proposed parking lot addition is located south of the current church building and will extend eastward from the south end of the current parking lot as a double loaded single aisle parking area. The current parking lot has 102 existing stalls. The addition will add 45 parking stalls and remove 1 existing stall for a total of 146 parking stalls upon competition of the construction. A new 24' wide access driveway will be constructed along the east side of the property between Bloomington Road and the east end of the new parking lot addition. On site detention is required with this project. The detention pond is proposed in the northeast portion of the site east of the existing building near the proposed driveway. The driveway access onto Bloomington Road requires installation of a median strip on Bloomington Road to manage turning movements into and out of the site. The proposed access point for the driveway will be a right-turn in and right-turn out only. The driveway will also cross a shared use path that exists along the south side of Bloomington Road. The parking lot expansion is being done only to add parking capacity to the existing church building. The expanded parking area could be used to support a future new/additional church building at a undetermined future date. The new driveway access is not required by City ordinance at this time, but is being pursued by the church. Landscaping is required within and abutting the parking lot addition according to the site landscaping standards in Section 29.403 for non-residential development This requires front yard landscaping and parking lot landscaping. The applicant request's approval of an alternative landscaping plan as part of the Special Use Permit. An alternative landscape plan allows for variation from prescribed standards based upon a project specific finding of consistency with overall intent. The proposal is to allow overstory trees related to parking lot design along the south side of the new parking lot addition with three trees along the north side in anticipation of future parking lot expansion. The applicant proposes to eliminate the high screen (shrubs or fence) along the south side of the parking lot due to the distance from the parking lot to the neighboring property lines to the south, but will provide eight overstory trees which is beyond what would otherwise be required along the south side of the parking lot under the basic standards. Parking lot high screen landscaping only requires a smaller landscaping tree with an allowance for overstory trees being credited toward the standard. The developer believes the distance from the homes with open space and established mature large trees to the south provides additional buffering to help in screening and softening the view of the proposed new parking lot area. The City now requires front yard landscaping for all new development, which was not a requirement at the time of the initial development of the site. The proposed landscaping plan does not include additional front yard landscaping or overstory trees, shrubs, and decorative grasses that would be typically required for the area disturbed by the new improvements, i.e. the driveway and detention pond. The detention pond is located in the majority of the disturbed front yard in the northeast portion of the site. The design of the pond indicates there will be slight berm in the front yard in conjunction with the pond to provide some relief to the area and screening of the driveway. The Board may approve the proposed plan as an alternative landscape design. A 6-foot high fence is proposed along the east property line in place of a dense screen of high shrubs as an allowed substitution. The bufferyard width will be maintained at 10 feet of depth. The 6-foot fence is proposed to extend into the front yard along the east property line, which is the area in front of the existing building of approximately 140 feet. The front yard would normally restrict fence height to no more than 4 feet. However the restriction applies to front yards of residential properties when abutting the front yard of another residential property. In this case the property to the east of the church is a rear yard of single-family homes as the front of the property faces Buchanan Drive to the east. This allows the fence to be 6 feet in height in this location as the Church property is an institutional use abutting the rear yard of a residential property, the fence is being treated as a single-family rear yard fence location to provide additional privacy to the homes. The Attachments below show the existing site conditions, proposed site plan and landscape plan as well as proposed architectural design and floor plan. APPLICABLE LAW: 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) Residential Zone Standards. The Zoning Board of Adjustment shall review each application for the purpose of determining that each proposed use in a residential 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 Residential Low-Density (RL) zoning at this location. Churches are permitted in Low Density Residential zones when approved subject to issuance of a Special Use Permit. Conclusions: The RL zoning is intended for residential uses principally, but allows for other uses when they are found to be compatible with the surroundings. A church is a permitted use in an RL zone with consideration of a Special Use Permit. The proposed use and layout of the site is consistent with the goals of Residential- Low Density facilities integrating into surrounding residential areas as the proposed parking lot expansion and driveway include screening and landscaping to soften and protect views from neighboring residential properties. It can be concluded that the use meets General Standard (i) for a Special Use Permit. (i i) 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 current surrounding area is single-family residential homes abutting the site to the east, railroad and single-family to the west, and a City park and Stonebrook Church to the north. The character includes large open spaces for as well as traditional single-family hots and two-story homes. The proposed parking lot addition will occupy 14,938 square feet of the total site area. The existing building is located on the northern half of the site. The proposed parking lot expansion would extend the parking lot further to the east and extend a new driveway between the east edge of the parking lot and Bloomington Road. The driveway would act as a secondary entrance as the only full access turning movements will occur at the existing driveway entrance adjacent to Hyde Avenue. This would bring the parking and driveway to 10 feet of the east property line on the northern half of the property. A 6-foot fence with trees and some low shrubs is proposed between the new driveway and the east property line. Landscaping standards are being met along newly required parking lot areas where applicable. The church is requesting an alternative landscaping plan be approved in conjunction with consideration of this Special Use Permit. The request includes proposing no front yard landscaping in the front yard along the detention pond. This yard area would typically require landscaping as it is located between the parking lot and the street. The owner is asking to be allowed to not plant front yard landscaping in this area due to the effect of the pond and its undulations along with n with the distance between the expanded parking lot area to the rear of the site and the street. Conclusions: The addition to the parking lot adds to its size in an existing neighborhood as well as adding a second entrance to the church property. The presence of the church building and use does not create conditions which cause a conflict with the surrounding neighborhood or alter the intended character of the surrounding neighborhood due to its setback and location on the property. The church has operated here for many years as an established use. The additional entrance will accommodate what is otherwise expected to be only the existing traffic from Bloomington Road. The high screen proposed with trees between the homes to the east and the church meets the minimum screening standards of the landscaping ordinance. The distance from the south property line and the parking lot with the proposed new trees can be seen to be adequate to meet the landscaping standards when considering an alternative landscape plan. The grading for the detention pond in the front yard near the new driveway creates an undulation that when combined with the presence of the detention pond and distance can be found to assist in softening the view of the parking lot, new driveway, and existing church building. Fencing of the detention pond is not planned with this proposal, fencing would be subject to front yard restrictions and necessitate landscaping if it is not provided at this time. Therefore, it can be concluded that the use meets General Standard (ii) for a Special Use Permit. Not be hazardous or disturbing to existing or future uses in the same general vicinity. Findings of Fact: The current church building and operational activities are well established in the neighborhood and of a religious or social nature that occur at a variety of times during a week. There is a wide variety of times of peak use throughout a month or a year depending on the type of service occurring at the church. The primary concern for the proposed improvements are the flow of storm water runoff and traffic patterns in closer proximity to single family homes. The plan includes grading and sizing of storm water facilities to manage run off from the new impervious area consistent with City standards. The east bufferyard include a fence and landscaping to minimize disturbances from vehicles, including sound and light. Conclusions: The current use and proposed parking lot addition would not be disturbing or hazardous to existing and future uses in the area so as to be incompatible with the surroundings. The parking lot addition will support a future building expansion of the church, which is subject to its own review at the time it is proposed to evaluate any changes in activities on the site. The parking expansion creates additional parking for existing activities. The volume of traffic into and out of the site will be split with two driveways, but the primary access will be the driveway that exists on the west side of the site. 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 site is directly served by a minor arterial street Bloomington Road. All City services are available to the site. Additionally, appropriate stormwater measures are proposed as well as adequate access in and out of the site. The proposed median in front of the new driveway access will be paid for and installed to city standards by Ascension Lutheran Church. 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 new parking lot expansion will not require additional infrastructure in the future. Neither is additional fire or police resources anticipated to serve this use. Any additional traffic would be small in relation to the total daily traffic flow along Bloomington Road and only occur in conjunction with scheduled events at the church. The applicant is required to install a median in Bloomington Road to restrict potential left turn traffic into the new driveway. 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 church is an established use at this location as it has been in existence nearly 25 years. The Church does operate at off peak hours both during the week and during weekends. Additionally, special events at the church may take place which might add brief periods of higher traffic and pedestrian activity. The primary use of the church is for religious and social functions. The activities do not generally produce loud noises, fumes, smoke, glare or odors that are not customary of church, such as the occasional sounding of bells or music. The nature of social and religious gatherings is primarily not material based and involves personal interaction, speaking, personal or spiritual reflection and other types of interpersonal and individual activities of a non-hazardous nature. The vast majority of which are all conducted within the church building. None of these types of activities typically generate any sort of intrusive or disruptive side effect as listed above nor do they affect the general welfare of the area. Any temporary increase in traffic or pedestrian activity is relatively minor at most as is otherwise typical to the general area and the general traffic and pedestrian pattern. The proposed parking lot addition is for the accommodation of vehicles in conjunction with the existing church building. Although traffic will be routed closer to some homes, it does no arise to a level that impacts the general welfare of the surroundings due to its design and layout. The additional parking lot space is not anticipated to produce any adverse or hazardous effect on the surrounding area. The spacing requirements for intersections between the new driveway and existing intersections is met for vehicle operational expectations. One unique concern for the proposed site improvements is the relationship to the existing shared use path. The traffic engineer has calculated that the appropriate sight vision distance along Bloomington exists for vehicles. The approach of the shared use path from the west has some limitations due to existing fences and vegetation requiring that cars are careful as they approach the street. Bicyclists will have limited ability to react to cars not making a complete stop. Restricting access to right in and right out assists with limiting crossings of the path in an area and reinforcing that this driveway is a secondary route for traffic that should be infrequently used. The traffic engineer has review the proposed layout and believes that the minimum site distance needs for cyclists and pedestrians is accommodated for the new secondary access point. A condition is included for the painted stop bar and appropriate signage for the crossing. Conclusions: The church and its expanded parking lot will not produce excessive smoke, fumes, glare or odors and will operate in a manner typical of religious 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 church is an allowed use within the RL zoning district upon issuance of a Special Use Permit. The proposed parking lot expansion is part of an allowed use in the RL zoning district. The zone intends for residential and institutional uses. The proposed parking expansion and existing church building will accommodate activity for groups of people that promote cultural, religious and social interaction as an institutional use. The level of activity or number of people using the facility will not be increased substantially by the proposed parking lot expansion. Conclusions: The City Council, through the Zoning Ordinance, has determined that this type of use is consistent with the intent and purpose of the RL zoning district upon specific review the layout and operations can be found to be meet the purpose and intent of allowing for institutional uses that are compatible with the residential surroundings. It can be concluded that the use meets General Standard (vii) for a Special Use Permit. 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: The applicant states that, "The parking lot expansion and secondary access road will not increase the amount of traffic. It will shift some traffic entering and existing the site further east away from the existing intersection." Conclusions: The existing traffic flow to and from the church would be spread between the existing entrance and the proposed new entrance. This can be seen to help decrease traffic at the existing intersection. The new entrance will also be restricted to only allowing a right in and right out design via the new median with no allowed cross traffic turns. Therefore, it can be concluded that the use meets Residential Standard (i) for a Special Use Permit. (i i) 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: Construction of the new parking lot area and driveway will not cause a noticeable increase the traffic pattern in the general neighborhood. The construction of a second access to the east will spread out traffic during peak times. No additional delivery trucks are stated by the applicant or expected by staff as a result of the proposed plan. Conclusions: The shifting of existing traffic volume among two access points can be seen to change the pattern along Bloomington Road however the installation of a median strip to control traffic at the new east access helps control cross traffic flow and eliminate additional safety hazards on Bloomington. Site triangle and intersection distance requirements are met. Therefore, it can be concluded that the use meets Residential Standard (ii) for a Special Use Permit. (iii) 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, food delivery vehicles, and moving vans. Findings of Fact: The operations related to the church activities or new parking lot will not include truck traffic by vehicles that exceed 26,000 g.v.w. excluding waste collection vehicles, food delivery trucks and moving vans. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (iii) for a Special Use Permit. (iv) Not have noticeably different and disruptive hours of operation. Findings of Fact: The applicant states "The proposed project will not affect hours of operation or service times". Staff has found no further evidence that hours of operation or service times will otherwise change. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (iv) for a Special Use Permit. (v) Be sufficiently desirable for the entire community that the loss of residential land is justifiable in relation to the benefit. Findings of Fact: Use of the site has been for institutional purposes. There is no loss of residential land to the community, since the property is not used for residential purposes. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (v) for a Special Use Permit. (vi) Be compatible in terms of structure placement, height, orientation, or scale with the predominate building pattern in the area. Findings of Fact: The applicant is not proposing any changes to the existing building on the site or the addition of a new building of any type. The parking lot is an ancillary use as subject to the site development standards. The design of the site maintains large open space as a front yard along Bloomington and additional setback of buildings to the east and south. The proposed landscaping with the parking and driveway improvements will assist in screening the use and support compatibility. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (vi) for a Special Use Permit. (vii) Be located on the lot with a greater setback or with landscape buffering to minimize the impact of the use on adjacent property. Findings of Fact: The proposed project will meet all required setbacks for parking as well as provide a 6' high fence along the east property line as a rear fence to the residential properties to the east along the new driveway in addition to trees and shrubs. The south quarter of the property contains open space with mature established trees along the southwest property lines. The site plan includes a detention pond to hold stormwater in the front yard near the new driveway. Front yard landscaping is typically required in front yards between the parking lot and street. The owner is asking as part of an alternative landscape plan to eliminate the high screen shrubs along the south side of the parking lot as well as front yard landscaping due to detention pond grading and setback distance. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (vii) for a Special Use Permit. Some additional landscaping could be required as a condition in the front yard of the site, but due to the location of the existing building it would be difficult to add landscaping along the east property line to create a landscape screen in addition to the setback. (viii) Be consistent with all other applicable standards in the zone. Findings of Fact: The use is allowable within the RL zoning district and it meets the minimum site development standards with the exception of the request for an alternative landscaping plan based upon the overall separation distance of the parking lot for other single family homes to the south. Conclusions: Therefore, it can be concluded that the use meets Residential Standard (viii) for a Special Use Permit with conditions. Alternative Design Approval. Findings of Fact: 29.403 (3)(J)(H). 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. The proposed Landscape Plan has been prepared by a registered Landscape Architect. The high screen standards for parking and maneuvering areas requires 1 landscape tree per 50 lineal feet and a high screen of either high vegetation or a 6 foot fence. The landscape trees may be understory or overstory. The proposed plan includes a high quality design which includes a high screen 6' fence with overstory trees every 50 lineal feet and groups of evergreen shrubs spread among the overstory trees along the east side of the proposed driveway. The ordinance would also typically require high shrubs along the south edge of the new parking area. The owner is proposing to remove the high shrubs and provide overstory in place of the standard landscaping tree. The distance from the south property lines to the parking lot is in excess of 400 feet with established mature overstory trees near the south property line. The parking lot landscaping standard of providing overstory trees within or abutting the parking lot is being exceeded as 11 overstory trees are being provided which is higher than the 8 overstory trees that the minimum standard requires. The proposal includes no front yard landscaping with the detention pond being located in the front yard near the new driveway. Front yard landscaping base standards require 1 overstory tree per 50 lineal feet and 8 shrubs and 12 grasses per 1000 square feet of required landscape area up to 30 feet from the front property line outside of parking lots. The grading for the detention pond creates some amount of undulations, which when combined with the distance and setback of the existing building and parking lot from the street can be found to soften the views as this distance is nearly 500 feet from the new parking lot area. The driveway will be visible as it extends to the street, but may be partially obscured by the undulations that are up to two feet higher than the grade of the drive. The existing building is located 150 feet from the front property line. 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 in this case is consistent with the existing front yard landscape aesthetic by have generous open space. However, in the event the Board finds that the proposal does not satisfy the criteria, adding some decorative plantings to the disturbed area could be added to the plan as a condition. 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, 1 inquiry was received. ALTERNATIVES: 1. The Zoning Board of Adjustment can approve this request for a Special Use Permit to allow the parking lot expansion and new driveway at 2400 Bloomington Road by adopting the findings and conclusions noted above with the following conditions: A. That an alternative landscaping plan as proposed along the south edge of the new parking lot area allowing for the planting of extra overstory trees while eliminating the required high screen be permitted. B. That a painted stop bar with driveway stop sign at the driveway exit to Bloomington Road and shared use path warning signs be installed to provide warnings to bicyclists and pedestrians and provide traffic control onto Bloomington Road. Final determinations on signage are subject to approval by the City's Municipal Traffic Engineer. 2. The Zoning Board of Adjustment can approve this request for a Special Use Permit to allow the parking lot expansion and new driveway at 2400 Bloomington Road by adopting the findings and conclusions noted above with different conditions. 3. The Zoning Board of Adjustment can deny this request for a Special Use Permit to allow the parking lot expansion and new driveway at 2400 Bloomington Road 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 parking lot expansion at 2400 Bloomington Road is consistent with the general and specific residential standards required for granting a Special Use Permit. The proposed alternative landscaping plan can be found to be adequate to meet the landscaping standards and specific needs of the site in relation to the neighboring properties. The parking lot expansion and new driveway and is seen as harmonious with the surrounding neighborhood. While there is an increase in parking lot area staff has reviewed the existing site conditions and has concluded that the landscaping and impervious area on the site are being added and accounted for in a manner practicable with current zoning ordinance requirements. 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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