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HomeMy WebLinkAbout5.b-c. ISD917_Addition_CUP 062820106 summary & attachments EXECUTIVE SUMMARY Planning Commission Meeting: June 28, 2016 Tentative City Council Meeting: July, 19, 2016 AGENDA ITEM: Intermediate School District 917 Addition Conditional Use Permit and Variance AGENDA SECTION: Public Hearing PREPARED BY: Anthony Nemcek, Planner AGENDA NO. 5.b. & 5.c. ATTACHMENTS: Site Map, Floor Plan, Elevations, Site Plan, Grading Plan, Resolution APPROVED BY: K.L. RECOMMENDED ACTION: Motion by the Board of Appeals and Adjustments to approve a variance from the R1- Low Density Residential maximum lot coverage standard of 30% to a maximum of 37%. Motion to recommend that the City Council approve the conditional use permit for Intermediate School District #917, subject to the following conditions: 1. Submittal of a landscape plan and required surety for the landscaping with the building permit application. 2. Submittal of a signed contract confirming an agreement with Community of Hope Lutheran Church allowing the applicant to use a portion of the church’s parking lot on weekdays. SUMMARY Intermediate School District (ISD) #917 is requesting a conditional use permit to construct a 10,000 square foot addition for 18 students and 45 staff to its facility at 14300 Biscayne Avenue. A variance from the lot coverage standard is required. Because a school use is a conditional use in the R-1 district the maximum lot coverage requirement is the same as a single family house, 30%. All non-residential districts have lot coverage standards greater than 30% and staff is supporting the variance that would allow ISD #917 to exceed the maximum lot coverage of 30% to a maximum of 37% and a recommendation for approval of the necessary CUP. GENERAL INFORMATION Applicant: ISD #917 Property Owner: ISD #917 Property Location: 14300 Biscayne Avenue Size of Property: Approximately 8 Acres Comprehensive Plan Designation: LDR – Low Density Residential Zoning: R1 – Low Density Residential Current Neighboring Land Uses: North – Railroad Tracks and Single Family Residents South and East – Townhomes West – Contractor’s Yard and National Guard Maintenance Facility Planned Neighboring Land Uses: North, South and East – Residential West – Business Park and Public/Institutional 2 ISD #917 is an educational partnership to provide vocation and special education to students of need from the Burnsville, Farmington, Hastings, Inver Grove Heights, Lakeville, Randolph, Rosemount, South St. Paul, and West St. Paul school districts. While some of the students are from Rosemount, students attending this school can be from any of the Dakota County communities within the partnership. All students will be bused to the school site and the school does not have any after school activities. The 40,000 square foot school was designed for 70 to 100 students and 16 to 20 itinerate teachers. Itinerate teachers are teachers with special skills that travel each day to different schools within the partnership school district, but their offices will be permanently housed within this school. The 70 to 100 students are distributed throughout the 14 classrooms, creating a low student to teacher ratio. The 10,000 square foot addition being proposed is designed for a maximum of 18 students and 45 staff, many of whom are part time. The addition contains no formal class rooms, but rather individual student rooms for one-on-one education. CONDITIONAL USE PERMIT Review and Analysis Elementary and secondary schools, such as the addition proposed, are conditional uses within the R1 – Low Density Residential zone. Conditional uses are uses that can be permitted provided that the impacts of the use (such as health, safety, and public welfare concerns) are addressed, mitigated, or conditioned. For the Planning Commission to recommend approval of a conditional use, eight (8) findings must be made: 1. Will not be detrimental to or endanger the public health, safety, or general welfare of the neighborhood or the city. Finding: The addition is not detrimental to the neighborhood and is a benefit to the public health and general welfare of the city and Dakota County. 2. Will be harmonious with the objectives of the comprehensive plan and city code provisions. Finding: The use and location are consistent with the Comprehensive Plan policies. The school district is seeking a variance from the maximum 30% lot coverage of the R1 zoning district to 37%, but the lot coverage will be well below the maximum for the C4-General Commercial zoning district that was used for reference when assessing the original building design.. 3. Will be designed, constructed, operated and maintained so as to be compatible or similar in an architectural and landscape appearance with the existing or intended character of the general vicinity and will not change the essential character of that area, nor substantially diminish or impair property values within the neighborhood. Finding: ISD #917 was instructed to design their school using the building material and massing standards for the C4 – General Commercial zoning district, which complement the architectural standards of the surrounding neighborhoods. The school design is similar to standards applied to other schools within Rosemount and adds value to the essential character of the neighborhood. The proposed addition is consistent with the existing building in its design. 4. Will be served adequately by existing (or those proposed in the project) essential public facilities and services, including streets, police and fire protection, drainage, structures, refuse disposal, water and sewer systems and schools. Finding: The existing school is currently being served by all essential public services, as will the proposed addition. 5. Will not involve uses, activities, processes, material equipment and conditions of operation that will be hazardous or detrimental to any persons, property, or general welfare because of excessive production of traffic, noise, smoke, fumes, glare or odors. Finding: The school operates similar to other public schools, but does not have any after school activities and operates only a three week summer school program. All traffic to and from the school will come from Biscayne Avenue and circulate interior to the site. The addition will not change the current operations at this site. 3 6. Will have vehicular ingress and egress to the property which does not create traffic congestion or interfere with traffic on surrounding public streets. Finding: All traffic to and from the school comes from Biscayne Avenue and circulates interior to the site. There are no accesses to Beech St. Biscayne Avenue is designated as a collector road and is designed to handle the traffic level that the addition will generate. 7. Will not result in the destruction, loss or damage of a natural, scenic, or historic feature of major importance and will comply with all local, state, and federal environmental quality standards. Finding: The school site is designed to meet all applicable environmental quality standards. 8. These standards apply in addition to specific conditions as may be applied throughout this code. Finding: The addition’s design meets all the standards of the city code for the C4 zoning district, which is consistent with the guidance from staff now and when the initial project was approved in 2007. The school is requesting a variance from the R1 zoning district requirement for lot coverage. The lot coverage, if that variance is approved, will be well within the maximum allowed in the C4 zoning district. Site Plan The parcel on which the existing school sits is roughly trapezoidal in shape, and has about 375 feet of frontage on Biscayne Avenue. The proposed addition will be set back 40 feet from the southern property line along Beech Street West, which is within the required side yard setback of the R1 zoning district. The only changes to the grade are directly around the foundation of the addition, and no changes are proposed to be made to the existing berming and stormwater pond. Building Massing and Materials The building massing and materials does not completely meet the standards of the C4 – General Commercial zone, which is not required since the property is zoned R1 – Low Density Residential. Staff guided the school district to use the C4 standards for what the City would find as acceptable architecture for an institutional building within a residential area when the school was originally proposed. At that time, staff believed the school district had met the intention of that guidance. The addition will feature exterior treatments that are similar to the main structure of the school. The building material is generally made up of modular concrete brick and blocks. The concrete bricks are the same size and texture as baked clay bricks, but made of cast concrete. The top half of the addition will be constructed with cream colored concrete bricks 4 inches by 12 inches in size, while the bottom half of the addition will be made of red colored concrete blocks 8 inch by 16 inch in size. The bottom course of concrete block will also be red in color, but have a rock face texture and be 16 inches by 24 inches in size. The building mass will be accented and broken in number of ways. The windows will be trimmed with cast stone grey in color. Where on the main building the individual classrooms are defined by a band of 8 inch square concrete block grey in color with exposed aggregate, the addition will feature greater articulation of the exterior walls. Because the addition follows closely with the design of the original building, staff feels that the building massing and materials are appropriate. Landscaping A landscaping plan has not been submitted, but there are no requirements for additional trees. A landscaping plan has not been created due to the uncertainty that the addition will be permitted. The applicant’s goal is to provide landscaping around the addition that is consistent with the landscaping at the existing building which includes shrubbery and foundation plantings. A condition of approval should require that a landscaping plan be submitted with the building permit application for review by staff. Parking 4 City Code requires a one stall per classroom and one stall per 20 students of off street parking for schools. 83 parking stalls are provided through two parking lots, a 60 stall parking lot west of school and a 23 stall parking lot northwest of the school. School buses park along the access drive. Passenger cars can access the 60 stall parking lot from either drive entrance. Staff vehicles and service or delivery vehicles currently use the 23 stall parking lot on the northwest side of the school. The school building itself shields the 23 stall parking lots and service garages from view of the residents to the south and east. The site will still exceed the level of parking required by City Code with the addition. To accommodate the additional staff, the applicant has reached an agreement with Community of Hope Lutheran Church to use a portion of the church’s parking lot on weekdays. Many of the teachers are itinerant, meaning they travel around to different facilities, and many of them are part time. Even with the addition, the existing parking would exceed the amount required by City Code. All students are bussed to the school, including those who will be added if the addition is approved. VARIANCE Review and Analysis A variance from the lot coverage maximum of 30% to 37% is required to accommodate the addition. The school is permitted as a conditional use within the R1-Low Density Residential zoning district along with other uses such as churches and child care centers. Currently, the school and improvements are slightly under the maximum lot coverage, even though the site includes a ball field and stormwater pond. It is a unique circumstance that a school use would have to adhere to the same development standards as a single family residence. Therefore the regulations, specifically the lot coverage requirement are more onerous in the R-1 district than other non-residential districts. The variance is needed due to these more restrictive R-1 standards, 30% lot coverage, when all other non- residential zoning districts have a 70% or greater lot coverage standard. The addition would fall within the normal setback requirements of the R1 zoning district, and no changes to any other standards are requested by the applicant. The neighboring townhomes to the east are guided Medium Density Residential within their Planned Unit Development agreement. Even with the proposed addition, the school site’s lot coverage will be far below the maximum of 75% allowed on the adjacent property to the east. With the addition, the site will have approximately 37% lot coverage. The Board of Adjustments must also consider whether the variance is reasonable and would create practical difficulties for the applicant if not approved. The school’s need for an addition is provide an alternative to traditional classroom-based education and focus on individual learning. The school district intends to add 18 students of similar needs as those who are currently served by the school. Without the addition, the school would not be able to provide these services. Another issue to take into consideration is the impact on the surrounding property, and the Board of Appeals and Adjustments must find that granting the variance will not alter the essential character of the locality. The addition will adhere to setback requirements of the R1 zoning district, and the design of the addition will blend with the existing building. Furthermore, the addition to the building will not alter any views across the property. Currently there is ample screening in the form of trees and berming to separate the school grounds from adjacent residential properties. Variance Standards According to Section 11-12-2.G, there are five criteria for the Board of Appeals and Adjustments to review when considering a variance request. The five criteria used to assess each request along with staff’s findings for each are listed below. While weighing a variance request against these criteria, there are also two key issues to consider. The first is whether the applicant has reasonable use of their property without the variance. The second is whether the project can be redesigned to eliminate or reduce the need for a variance. The Board of Zoning Appeals must approve or deny each request 5 based on findings related to each of the five standards. 1. The variance request is in harmony with the purposes and intent of the ordinance. Finding: The school is a permitted conditional use within the R1-Low Density Residential zoning district. Conditional uses are permitted to accommodate uses that, while desirable, differ from the general use within a zoning district. Because this is a non-residential use, the City has used the C-4 development standards for many of the site planning issues. 2. The variance is consistent with the comprehensive plan. Finding: The comprehensive plan identifies schools as a typical use in areas guided for Low Density Residential. Furthermore, the townhomes directly to the east are guided for Medium Density Residential in their PUD agreement. The R2 zoning district allows up to 75% lot coverage. 3. Granting of the variance allows reasonable use of the property. Finding: The school’s need for an addition is to provide an alternative to traditional classroom- based education and focus on individual learning. The school district intends to add 18 students of similar needs as those who are currently served by the school. Without the addition, the school would not be able to provide these services. 4. There are unique circumstances to the property which are not created by the landowner. Finding: The school is permitted as a conditional use in an R1-Low Density Residential zoning district. Staff does not believe this situation will prompt additional variances requests because of the school use of the site versus the surrounding residential neighborhood. 5. Granting of the variance does not alter the essential character of the locality. Finding: Since the school is well screened from adjacent properties and the addition is designed to blend with the existing building, staff feels that the essential character of the neighborhood will not be negatively affected. RECOMMENDATION Staff recommends that the Board of Appeals and Adjustments approve the request from Intermediate School District #917, 1300 145th Street East, to exceed the maximum lot coverage of 30% when building an addition to their school building at 14300 Biscayne Avenue. Staff is also recommending approval of the Conditional Use Permit with the two conditions listed above. Finally, it should be noted that decisions made by the Board may be appealed to the City Council by the applicant, the Zoning Administrator, a member of the City Council or any person owning property or residing within three hundred fifty feet (350') of the property affected by the decision. All appeal requests must be filed with the Planning Department within ten (10) working days of the action by the Board of Appeals and Adjustments. mla ALLIANCE EDUCATION CENTER ISD #917 ALLIANCE EDUCATION CENTER Addition Floor Plan mla 3 5 8 1067 G mla ALLIANCE EDUCATION CENTER ISD #917 ALLIANCE EDUCATION CENTER Bird Eyes View West Eleavtion East Eleavtion South Eleavtion mla EXISTINGSCHOOL40,900 SFPROPOSEDADDIITON10,000 SFCHICAGO, ROCK ISLAND AND PACIFIC RAILROADBISCAYNE AVENUEBEECH STREET WEST 1" = 40'-0"A1.01SITE PLAN12 LONG LAKE RD.SUITE 17ST. PAUL, MN 55115TELE: (651) 770-4442FAX: (651) 770-1997MEMBER: AMERICAN INSTITUTE OF ARCHITECTSCONSULTANT:PROJECT NO: DATE:3524 LABORE ROADWHITE BEAR LAKE, MN 55110TELE: 651-481-9120FAX: 651-481-92016/6/2016 10:47:08 AMA1.0SITE PLAN16-100900/00/20XXCLASSROOMADDITIONISD #917,ALLIANCEEDUCATIONCENTERROSEMOUNT, MNNO. DATE REVISION DESCRIPTION PROPOSED ADDITIONFFE = 973.00970971972972.75972.20BEECH STREET WESTBISCAYNE AVENUEEXISTINGSCHOOLFFE = 973.00971970971972971975975974973970 PONDNWL: 963.0100 YR: 967.4975974973973972970971 975970 971972971974DescriptionRev.DateALLIANCESCHOOL ADDITION14300 BISCAYNE AVENUEROSEMOUNT, MN 55068Sheet:Sheet Title:Project #:Drawn By:Checked By:Issue Date:12166055CBSJAN05.27.163524 Labore RoadWhite Bear Lake, MN 55110651.481.9120 (f) 651.481.9201www.larsonengr.comC 2016 Larson Engineering, Inc. All rights reserved.P:\Projects\Projects - 2016\12166055 - Alliance School Addition\C. Design\Drawing Files\12166055 - C3 - Grading.dwg3524 Labore RoadWhite Bear Lake, MN 55110651.481.9120 (f) 651.481.9201www.larsonengr.comProject Title:INTERMEDIATESCHOOLDISTRICT #917145TH STREET EASTROSEMOUNT, MN 55068Client:Date: Reg. No.:I hereby certify that this plan,specifications or report was preparedby me or under my direct supervisionand that I am a duly licensedProfessional Engineer under the lawsof the state of Minnesota.0NORTH204080Greg A. Buchal, P.E.23793SITE LAYOUT &GRADING PLANC3PROPOSED CONTOURS - MAJOR INTERVALGRADE BREAK LINEPROPOSED CONTOURS - MINOR INTERVAL949950950EXISTING CONTOURS2.0%GRADE SLOPELEGENDGRADING NOTES1.Tree protection consisting of snow fence or safety fence installed at thedrip line shall be in place prior to beginning any grading or demolitionwork at the site.2.All elevations with an asterisk (*) shall be field verified. If elevationsvary significantly, notify the Engineer for further instructions.3.Grades shown in paved areas represent finish elevation.4.5HVWRUHDOOGLVWXUEHGDUHDVZLWK´RIJRRGTXDOLW\WRSVRLODQGVHHG5.All construction shall be performed in accordance with state and localstandard specifications for construction.VICINITY MAPAlliance School - ISD #91714300 Biscayne AveRosemount, MN 55068TOTAL SITE = 348,064 SQ. FT.EXISTING IMPERVIOUS = 112,481 SQ. FT.PROPOSED ADDITION = 10,038 SQ. FT.PROPOSED IMPERVIOUS =122,519 SQ. FT.TOTAL SITE IMPERVIOUS = 35.2%PROJECT AREAS Resolution BA2016-02 1 CITY OF ROSEMOUNT DAKOTA COUNTY, MINNESOTA RESOLUTION BA-2016-02 A RESOLUTION APPROVING A VARIANCE TO ALLOW AN ADDITION THAT EXCEEDS THE MAXIMUM LOT COVERAGE WHEREAS, Intermediate School District #917, 1300 145th Street East, (the “Applicant”) has submitted an application to the City Rosemount (the “City”) for a variance to construct an addition to an existing building at 14300 Biscayne Avenue that exceeds the maximum lot coverage allowed in a R-1 Low Density Residential zoning district; and WHEREAS, notice has been published, mailed and posted pursuant to the Rosemount Zoning Ordinance, Section 11-12-2; and WHEREAS, the Rosemount Board of Appeals and Adjustments held a public hearing and considered said on said matter on June 28, 2016; and NOW, THEREFORE, based on the testimony elicited and information received, the Rosemount Board of Appeals and Adjustments makes the following: FINDINGS 1) That the procedures for obtaining said Variance are found in the Rosemount Zoning Ordinance, Section 11-12-2. 2) That all the submission requirements of said Section 11-12-2 have been met by the Applicant. 3) That the proposed variance will allow the construction of a 10,000 square foot addition to an existing building at 14300 Biscayne Avenue because it exceeds the maximum lot coverage in a R-1 Low Density Residential zoning district 4) That the Variance will be located on property legally described as follows: That part of the Southwest Quarter of the Northwest Quarter of Section 28, Township 115, Range 19, Dakota County, Minnesota, lying southerly of the southeasterly right of way line of the Chicago, Rock Island and Pacific Railroad, lying easterly of the west line of said Southwest Quarter of the Northwest Quarter of Section 28, and lying northerly and westerly of the following described line: Commencing at the southwest corner of said Southwest quarter of the Northwest Quarter; thence North, (assumed bearing), along the west line thereof, a distance of 560.00 feet to the actual point of beginning of the line to be described; thence East a distance of 715.13 feet; thence North a distance of 658.78 feet more or less to the southeasterly right of way line of said Chicago, Rock Island, and Pacific railroad and there terminating. Resolution BA2016-02 2 5) That the variance request is in harmony with the purposes and intent of the ordinance. Specific findings: The school is a permitted conditional use within the R1-Low Density Residential zoning district. Conditional uses are permitted to accommodate uses that, while desirable, differ from the general use within a zoning district. If the same standards were used for the development of a school or church as those for a house, it would be impossible to build a church or a school in close proximity to the populations they serve. 6) That the variance is consistent with the comprehensive plan. Specific findings: The comprehensive plan identifies schools as a typical use in areas guided for Low Density Residential. Furthermore, the townhomes directly to the east are guided for Moderate Density Residential in their PUD agreement. The R2 zoning district allows up to 75% lot coverage. 7) That granting of the variance allows reasonable use of the property. Specific findings: The school’s need for an addition is to provide an alternative to traditional classroom-based education and focus on individual learning. The school district intends to add 18 students of similar needs as those who are currently served by the school. Without the addition, the school would not be able to provide these services. Building a second level on the school to avoid exceeding the maximum lot coverage would be cost prohibitive, and the increased height would also have an impact on the character of the locality. 8) That there are unique circumstances to the property which are not created by the landowner. Specific findings: The school is permitted as a conditional use in an R1-Low Density Residential zoning district. Conditional use permits are a zoning exception which allows the property owner use of his land in a way not otherwise permitted within the particular zoning district. In order to encourage desirable uses such as churches and schools within residential district, certain allowances should be made accommodate their development. 9) That granting of the variance does not alter the essential character of the locality. Specific findings: Since the school is well screened from adjacent properties and the addition is designed to blend with the existing building, staff feels that the essential character of the neighborhood will not change if the variance is approved. Furthermore, the addition is within the setback requirements of the adjacent residential areas. CONCLUSIONS AND DECISION Based on the foregoing, the Applicant’s application for a Variance is granted. Passed and duly adopted this 28th day of June 2016 by the Board of Appeals and Adjustments of the City of Rosemount, Minnesota. __________________________________ Melissa Kenninger, Chair ATTEST: ________________________________ Amy Roudebush, Planning & Personnel Secretary