HomeMy WebLinkAbout07-19-2007 Planning and Zoning Commission
PLANNING AND ZONING COMMISSION
Monday, July 16, 2007 - 5:15 PM
Informal Meeting
Iowa City City Hall
Lobby Conference Room
410 E. Washington Street
AGENDA:
Thursday, July 19, 2007 -7:30 PM
Formal Meeting
Iowa City City Hall
Emma J. Harvat Hall
410 E. Washington Street
A. Call to Order
B. Public Discussion of Any Item Not on the Agenda
C. Rezoning Item:
REl07-00008: Discussion of an application submitted by Three Bulls, LLC for a rezoning
from Central Business Support (CB-5) zone to Central Business (CB-10) zone for
approximately 2,035 square feet of property located at 301 S. Dubuque Street and rezoning
an additional 9,890 square feet of adjacent property from Neighborhood Public/Central
Business Support (P1/CB-5) zone to Central Business District (CB-10) zone.
(45-day limitation period: July 19, 2007)
C. Comprehensive Plan Item:
Public Hearing on an amendment to the Northeast District Plan modifying the plan map for
the Lindemann Hills Neighborhood to incorporate a large institutional use into the conceptual
street pattern north of the public square along Lower West Branch Road.
D. Annexation/Rezoning Item:
ANN07-00002/REl07-00010: Discussion of an application for annexation of 14 acres of land
owned by Henrietta Miller and 1.89 acres of land owned by the City of Iowa City located
north of Lower West Branch Road, north of Brentwood Drive and Broadmoor Lane and the
rezoning of 14 acres from County Residential (R) to Low Density Single Family Residential
(RS-5) and approximately 1.89 acres from County Residential (R) to Neighborhood Public
(P-1).
E. Development Item:
SUB07-00004/SUB07-00005: Discussion of an application from Tyler Rogers for a
preliminary and final plat of North Fifty First Subdivision, a 3-lot, 3.00 acre residential
subdivision located west of Kansas Avenue, south of IWV Road SW.
(45-day limitation period: August 2,2007)
F. Vacation Item:
VAC07-00004 Discussion of an application submitted by University of Iowa to vacate a
portion of Court Street west of Madison Street and Front Street south of Burlington Street.
G. Consideration of the June 21, 2007 and July 12, 2007 Meeting Minutes
H. Adjournment
Informal
Formal
October 1
October 4
STAFF REPORT
To: Planning & Zoning Commission
Prepared by: Sarah Walz
Item: REZ07-00008 Dubuque & Burlington
Date: July 19, 2007
GENERAL INFORMATION:
Applicant:
Three Bulls, LLC
33 Hickory Heights Lane
Iowa City, IA 52245
Contact Person:
Swen Larson
Phone:
319-631-5800
Requested Action:
Rezoning from CB-5 to CB-1 0
Purpose:
Development of a mixed-use
residential/commercial building
Location:
301 S. Dubuque Street
and surrounding City-owned property
Size:
2,035 sq. feet of private property
+ 9,890 sq. feet of public property
Existing Land Use and Zoning:
Commercial (CB-5) and
Public/Commercial (P1/CB-5))
Surrounding Land Use and Zoning:
North: Commercial (CB-10)
South: Public/Commercial - P/CB-5
East: Residential/Commercial (CB-5)
West: Undeveloped Commercial (CB-10)
Comprehensive Plan:
General Commercial -
Near Southside Plan
File Date:
May 2, 2007
45 Day Limitation Period:
June 7, 2007 (waived until July 19)
BACKGROUND INFORMATION:
The applicant, Three Bulls LLC, is requesting approval for rezoning from Central Business
Support Zone (CB-5) to Central Business Zone (CB-10) zone for 2,035 square feet of property
located at the Southwest corner of Dubuque and Burlington Streets. The property currently
contains the Mod Pod building. The rezoning to CB-10 would allow construction of a proposed
thirteen-story building that combines 3 floors of commercial along with residential uses above-
approximately 38 residential units. Because the proposed project incorporates the surrounding
9,890 square feet (approx.) of City-owned property currently zoned Public/Commercial
Business Support (P1/CB-5) zone, a CB-10 rezoning for this public property is also part of this
2
consideration. The total site size would be approximately .27 acres.
Development of the public property included in this re-zoning application was considered as
part of the Court Street Transportation Center project. Those plans showed development of a 4-
5 story mixed use commercial building as compatible with the CB-5 zone. However, because
the City was unsuccessful in its effort to purchase the privately held property at 301 S.
Dubuque, those plans were never fulfilled and the staff anticipated that private development
would take place on this property at some point in the future.
ANAL YSIS:
Comprehensive Plan: The Near Southside Plan was adopted in 1992 as a guide for the
redevelopment of the area generally bounded by Burlington Street on the north, Gilbert Street
on the east, Madison Street on the west and the Iowa Interstate Railway on the south. Focused
on fostering redevelopment of the area directly south of the downtown, while maintaining an
economically healthy core in the established downtown, the Plan identifies the area between
Court Street and Burlington Street as suitable for office and commercial development with
upper story residential uses. The Near Southside Plan encourages higher-density residential
development in the area south of Court Street. By allowing higher intensity uses (commercial
and residential) south of the downtown, growth is directed away from the historic
neighborhoods north of the Central Business District - a goal of the Comprehensive Plan.
The Near Southside Plan further identifies the need for addressing the issues of parking, open
space, pedestrian accessibility, traffic circulation, historic preservation and amenities.
Convenient pedestrian accessibility is crucial to the success and vitality of downtown Iowa City.
Protecting and enhancing the shopping convenience and pedestrian accessibility of the
downtown area is a goal of the plan. If the area south of Burlington Street is to function as an
extension of the downtown a strong physical and aesthetic connection between the downtown
and the area south of Burlington Street is also critical. To achieve this goal the plan
recommends attention to various aspects of development including public improvements in the
streetscape. This includes improving pedestrian safety and accessibility along and across
Burlington Street and careful attention to building and site design so as to avoid the creation of
a fortress-like or blank streetscape.
The City began implementing the Near Southside Plan in 1992 by adopting the CB-5 zone and
applying it to the area generally between Court and Burlington Street. The relationship between
the CB-10 zone north of Burlington Street and the CB-5 zone to its south was intended to
create a hierarchy of taller buildings and greater intensity of development in the downtown core
with a step down in height and intensity to the south. The CB-10 zone allows a floor area ratio
(FAR) of 10 while the CB-5 zone has a floor area ratio of 3 with the potential FAR of up to 5 if
the developer provides certain amenities and public benefits as part of the project. The CB-10
zone itself does not have a maximum height limit; however, the Airport Overlay Zone results in
a height limit of approximately 12 to 14 stories depending on the ground elevation of the
property. The CB-5 zone has a height limit of 75 feet or approximately 6 stories. The CB-10
does not require parking for either commercial or residential development, while the CB-5 zone
requires parking spaces for residential development. Concerns about parking are discussed in
more detail below.
Recent changes to the Near Souths ide Plan and the CB-10 zoning policy: As part of the
Hieronymus Square rezoning the City took a close look at the potential impacts of the CB-10
zone on the downtown core of Iowa City. Although the CB-10 zone allows an FAR of 10 - it was
recognized that most of the downtown properties were already developed with a floor area ratio
of 2 (Le. a 2 story building covering most of a property). There are a few exceptions, including
3
the Iowa State Bank Building and the Sheraton Hotel, which are built to an FAR of
approximately 5, and the Jefferson Building and the Vogal House, both with FARs of
approximately 6. However, the construction of the Plaza Towers with an approximate FAR of
4.75 prompted public concern about the redevelopment of large areas of downtown at such an
intense level. Since the downtown core itself contains a number of historic buildings and
buildings that already display the storefront features necessary for a successful and vibrant city
center (and encouraged by the Comprehensive Plan), some questioned whether redevelopment
of the downtown core to the height and intensity allowed by the current CB-10 zone would be
desirable.
A change in policy with regard to Near Southside development was initiated with the CB-10
rezoning of the Hieronymus Square Property at the southeast corner of Burlington and Capital
Streets. The logic supporting that rezoning and the amendment to the Near Southside Plan to
allow the extension of the CB-10 zone holds that much of the current CB-5 area south of
Burlington Street-as well as the north side of Burlington Street, which is already zoned CB-
1 O-contains few buildings that have the characteristics envisioned for the downtown. It was
decided that encouraging redevelopment of this area by extending the CB-10 zoning to just
south of Burlington Street would reduce redevelopment pressure on the downtown core where
the desirable pedestrian-oriented streetscape and buildings are already in place and that CB-1 0
zoning would be appropriate provided that adequate parking and pedestrian connections to the
established downtown are provided.
Another justification for amending the Near Southside Plan, and a condition of the Hieronymus
rezoning, was the potential benefit of diversifying the mix of housing stock downtown. The
success of Plaza Towers suggested that a market exists for a different sort of high-rise
residential development downtown. Development of mixed-use buildings with a variety of
residential sizes including larger condominiums, as proposed by Hieronymus, would help to
further diversify the housing stock and land uses in downtown and help support the commercial
development envisioned by the Comprehensive Plan for the downtown and the Near Southside.
The CB-5 zone south of Burlington Street allows mixed use buildings, but the height limit
prevents buildings taller than 6 stories and thus buildings with the views desired for the high-
rise condominium market could not be built. The conditional zoning agreement for Hieronymus
Square requires a mix of studio or 1, 2 and 3-bedroom units, with nor more than 30% of the
units containing 3 bedroom, and no units were allowed more than 3 bedrooms.
The amendment to the Near Southside Design Plan states that "Either CB-5 or CB-1 0 are
appropriate between Court and Burlington Streets, based on the property providing a logical
extension of the downtown and adequate services for the density proposed. If the conditions
discussed below are addressed it appears that the proposed rezoning for 301 S. DUbuque
Street and surrounding public property to CB-10 complies with the Comprehensive Plan as
amended.
Conditions for CB-10 rezoning south of Burlington Street:
1. Parking: The Comprehensive Plan notes that some downtown merchants and business
owners feel the residential population burdens the parking system in the district to the
detriment of businesses. The Plan discusses the need to establish a clear policy for
housing, parking and redevelopment in the Downtown Planning District, which includes
the established downtown and the Near Souths ide area. When the City completed its
study of the redevelopment potential in the Near Southside, several measures were
taken to address the demand and supply of parking for new commercial and residential
development in this area, including the creation of the Near Southside Parking Facility
District. Because residential parking demand is fundamentally different than the demand
for short term commercial parking, policies and regulations were set in place to make
4
sure that any new residential development would pay its fair share of demand on City
parking facilities. Development within the CB-5 zone is required to pay a fee for 75% of
the required parking spaces for residential units. The fee is to be used to support the
creation of new public parking facilities necessary to accommodate the resulting
increased demand for off-street parking created by additional residential development.
Currently the fee is $6,119 per parking space and represents less than 1/3 the cost of
building a structured parking space. Because the CB-10 zone requires no residential
parking, the fee would not normally apply to areas rezoned to CB-10. To insure
adequate parking is provided and to treat residential development equitably with CB-5
properties that have paid or will pay the fee, staff recommended any properties south of
Burlington Street rezoned to CB-1 0, be required to pay the parking impact fee as if they
were in the CB-5 zone. This arrangement was a condition of the Hieronymus Square
rezoning.
If 301 S. Dubuque were treated the same as Hieronymus Square, all 1 and 2 bedroom
residential units would require a minimum of one parking space and any 3-bedroom
units would require a minimum of 2 parking spaces. If the building were developed with
38 units with the maximum of 11 units having 3 bedrooms, the building would be
required to provide 49 parking spaces.1 A fee of $299,8312 would be paid to cover all
49 spaces since no parking can be provided on this small site. Subject to City Council
approval a second parking facility is planned for construction in the Near Southside, so it
is likely that any fees collected for residential units at 301 S. Dubuque (as well as
Hieronymus Square) will be expended in the next 5 years.
Court Street Transportation Center permits are currently sold out. All available permits
have been issued to the University. It is the City's policy to make these permits available
for development projects in the area as they occur. The University has been put on
notice that when permits are needed for development that University permits will not be
renewed.
2. Design: The Near Southside Design Plan was adopted in 1995 to provide more clear
direction for implementing the Near Southside Plan. The Design Plan's vision for the
Downtown Extension area states that redevelopment efforts should architecturally mirror
the existing Downtown area. "New structures in this district and along Burlington Street
reflect the scale, proportion, fayade repetition, setbacks, materials, roof lines, color,
signage, awnings, and equipment screening elements of the adjacent Downtown. . . .
This character can be further enhanced through implementation of design guidelines
and review process to address each of these design elements within the Downtown
Extension ."
To implement this goal the zoning code provides Site Development Standards for the
CB-5 and CB-10 zones focusing on street-level building facades in order to prevent
fortress-like facades, monotonous streetscapes, and to enhance public safety by
providing opportunities for views of the street from the interior of buildings. The
standards are intended to create commercial spaces that are both attractive and
functional by encouraging designs that address the pedestrian at street level--spaces
that are both visually and physically accessible. The code also requires a 10-foot
setback from the right-of-way line for the first story of buildings that abuts Burlington
Street. This is to provide more space for pedestrian movement, and the placement of
1
With a maximum of one-third of the units having more than 2 bedrooms: 11 units would require 2 parking spaces each (22
spaces) + the remaining 27 units requiring 1 space each (27 spaces) = 49 parking spaces.
2
The parking impact fee is adjusted for inflation on an annual basis.
5
amenities within and adjacent to the right-of-way to provide a buffer between vehicular
traffic and pedestrians along Burlington Street. The code allows building columns
supporting upper stories to be located within this 10-foot setback, provided that an
adequate pedestrian passageway is maintained. Due to concerns that a proposed
building with upper floors cantilevered to the property line would overwhelm the
pedestrian area and create a canyon effect along Burlington Street, the Planning and
Zoning Commission recommended through the conditional zoning agreement that the
Hieronymus building maintain the 10-foot setback for the entire height of the building,
not just the first floor. To maintain consistency along the street, similar conditions should
also apply to the development at 301 S. Dubuque Street.
The applicant has provided a preliminary sketch of the proposed building, which has
been reviewed by planning staff. (A final drawing will need to be reviewed by the Design
Review Committee.) Staff believes that the general form of the building as shown in the
submitted sketches meets these design requirements. The elevation for the first floor
commercial space shows that the ground floor will be at grade for the entire length of
the building and includes articulation through the use of linear columns to break up the
plane of the building. Storefronts are recessed and include canopies over all entrances
to the building.
Because of its similar height and design, staff was initially concerned that the proposed
building would appear to be an extension of the Hieronymus development. To address
this concern the architect added three angled bays on the residential floors and broke
up the roofline. To accommodate the bays, staff recommends allowing the extension of
the bays 5-6 feet into the setback as allowed in the zoning code. Staff does not believe
that the angled bays as proposed in the submitted plan, will create a canyon effect that
is a concern along this portion of Burlington Street.
3. Traffic implications: Since Burlington Street is a high-volume arterial street, direct
access is restricted. The concept plan submitted by the applicant indicates no on-site
parking, rather all parking will be provided in the public ramp, which has access from
Dubuque and Court Streets. The City is planning a landscaped median in Burlington
Street to provide for safer pedestrian and vehicular traffic in this area. A number of
improvements to the public right-of-way are included as part of the Hieronymus Square
development, including landscaping along the south side of Burlington in order to
provide separation between vehicle traffic and pedestrian space. Because the
pedestrian walkway will be provided on private property within the required 10-foot
setback, along Burlington Street, a public access easement along the entire 10-foot
walkway will be necessary.
SUMMARY
In 2006, the Comprehensive Plan was amended to allow the extension of the CB-10 zone within
the Near Souths ide Development Areas, between Burlington and Court Streets, so long as
concerns with regard to parking, design, and traffic were addressed. The expansion of the CB-
10 development was intended to encourage a diversity of housing types in the downtown while
at the same time providing for areas of additional commercial growth. In addition, allowing the
CB-10 zoning to expand into this area will reduce pressure for high-rise development within the
historic downtown core. Provided that property proposed for CB-1 0 zoning addresses issues of
parking, design, and traffic issues in a manner that supports the downtown as a pedestrian
accessible, economically vibrant commercial area, such a rezoning may be justified. Staff
believes that the proposed development for 310 S. Dubuque Street and the surrounding City-
owned property meets these goals.
6
RECOMMENDATION
Staff recommends that REZ07-00008, a request to rezone approximately .27 acres of property
from CB-5 and P1/CB-5 to CB-10 be approved granted subject to the following conditions:
a. The building to be constructed on this property will be a mixed-use commercial and
residential development with a minimum of one floor of commercial development above
the ground floor.
b. The property shall contain a mix of studio or 1 bedroom units, 2 and 3-bedroom units,
and there shall be no dwelling units with more than 3 bedrooms.
c. No more than 30% of the dwelling units shall contain 3 bedrooms.
d. The building shall be a minimum height of 7 stories.
e. A parking requirement will be calculated for all dwelling units within the development
based on the parking requirements of the CB-5 zone, pursuant to Title 14, Chapter 5,
Article A, of the Iowa City Code, entitled "Off Street Parking and Loading Standards."
Prior to issuance of an occupancy permit for the building or buildings to be constructed
on the property, payment of parking facility impact fees will be made to the City for
dwelling units for which on-site parking is not provided. The amount of the fee for each
required parking space not provided on-site shall be computed in the manner set forth in
sections 14-7B-7(C) and 14-7B-7(F) of the City Code. Payment, deposit, use and
refunds of fees shall be governed by sections 14-7B-8, 14-7B-9 and 14-7B-10 of the
City Code.
f. The building shall be set back a minimum of 10-foot from the Burlington Street right-
of-way. This 10-foot setback applies to the upper floors of the building as well as the
ground floor. Bays may project up to 6 feet into the setback.
g. The applicant shall grant a public access easement across the entire 10-foot
walkway/setback along Burlington Street to assure maintenance and snow removal.
h. The applicant shall provide landscaping and streetscape improvements, including
textured paving materials, plantings, and street furniture as approved by the City. This
includes construction and installation of the streetside landscaping within the Burlington
right-of-way.
i. Substantial compliance with the site plan submitted. The design of the
development must be approved by the Design Review Committee. The owner
and Developer must demonstrate to the satisfaction of the Design Review
Committee how the proposed street-level fa9ade will meet the following
standards:
· The plane of the building at the street-level must be broken into vertical
modules that give the appearance of smaller, individual storefronts reflective
of the pattern and character found in downtown Iowa City. Each module
must be no greater than 50 feet and no less than 20 feet in width and must
be distinguished from the abutting module(s) by a significant and visible
change in building materials and a variation in the wall plane of at least 16
inches. Changes in material colors and textures and other architectural
detailing should be used to enhance this effect.
7
-To create a human-scaled environment that is comfortable and attractive to
pedestrians, awnings and/or canopies must be used to enhance the
storefront modules.
-Pedestrian entrances must be attractive and inviting features along the
street-level and must be architecturally emphasized in a manner that is
reflective of the pattern and character found in downtown Iowa City.
ATTACHMENTS:
1. Location Map
2. Elevations, Drawings, and Diagrams
Approved by: ~~
Robert Miklo, Senfor Planner,
Department of Planning and Community Development
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PLANNING AND ZONING SUBMITTAL
JULY 13, 2007
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City of Iowa City
MEMORANDUM
July 19, 2007
To: Planning and Zoning Commission
From: Karen Howard, Associate Planner
Re: Comprehensive Plan Amendment for the Northeast District
In addition to the amended plan map that we sent to you last week, we suggest adding the
following paragraphs to the Northeast District Plan to provide some context for the changes to
the map.
The plan map for the Lindemann Hills Neighborhood was revised in 2007 to provide the
opportunity for a large institutional use, a church, to locate north of the public square
along Lower West Branch Road. The principles adopted with the original plan remain
intact, including the public square as a neighborhood focal point, interconnected streets
extending from the four corners of the public square, with sidewalks and trail
connections that ensure good vehicular, pedestrian, and bicycle circulation between
residences, the public square, and other important neighborhood destinations, such as
neighborhood commercial areas and the linear open space along the stream corridors
that flow north-south along both the eastern and western edges of the neighborhood.
The revised map illustrates how this large institutional use can be integrated successfully
into future residential neighborhoods that will surround the church. A trail connection
across the center of this large property will insure a means of east-west travel through
the neighborhood. Future annexation and development of property north of the church
property should include a street to provide a second means of access for the church,
which will help to disperse traffic.
Open spaces within residential areas should be visible and accessible to the public.
Single-loaded streets along park edges and conveniently located mid-block trail
connections are strongly encouraged so that all neighborhood residents are within
walking distance of parks and open space and so that the trail system can be used as a
means of traveling around and through the neighborhood. This principle is particularly
important for medium density development, such as townhouses and multi-family, where
the amount of private open space is limited.
Suggested locations for medium density residential uses, such as townhouses and multi-
family are noted on the plan map, however, there may be other locations that may be
suitable for these housing types, such as along single loaded streets across from parks,
close to neighborhood commercial areas and along arterial street corridors. The
remaining area is suitable for single family homes. Collector streets built with rear alleys
for vehicular access will allow for smaller, more affordable home lots and increase traffic
safety on this higher volume streets.
As with the revised plan map sent to you last week, the text suggested above is a draft and can
be modified based on your review and public input.
2