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HomeMy WebLinkAbout09-15-2004 Planning and Zoning Commission PLANNING AND ZONING COMMISSION Monday, September 15,2008 -7:00 PM Informal Meeting Iowa City City Hall Lobby Conference Room 410 E. Washington Street Thursday, September 18, 2008 - 7:30 PM Formal Meeting Iowa City City Hall Emma J. Harvat Hall 410 E. Washington Street AGENDA: A. Call to Order B. Public Discussion of Any Item Not on the Agenda C. Comprehensive Plan Item A public hearing to consider adoption of the Central District Plan as an element of the Iowa City Comprehensive Plan. The Central District extends from the boundary of the Downtown District east to First Avenue and from Dodge Street and Hickory Hill Park on the north to Highway 6 on the south. D. Consideration of Meeting Minutes: September 4, 2008 E. Other F. Adjournment Informal Formal Commission Meetin s November 3 November 17 November 6 November 20 December 1 Decem ber 4 City of Iowa City MEMORANDUM Date: September 12, 2008 To: Planning and Zoning Commission From: Karen Howard, Associate Planner RE: Central District Plan At your informal meeting on Monday, we would like to discuss any changes that you think should be made to the Central District Plan. We have refined some of the maps and have corrected typographical errors and inconsistencies in the text. I have attached copies of the pages where we are suggesting substantive changes or additions to the text and copies of maps where we have made corrections or substantive changes. I've also included a key that describes all the designations for the plan map at the end of the document. On the attached pages, please note that places where we made substantive changes in the text are underlined. Mr. Eastham suggested adding a plan map for the Northside Marketplace. Please find attached a copy of this map, which we will insert into the plan. Once you have finalized all changes to the plan, we will reprint it and make it available on the City's website as the "Planning and Zoning Commission Recommended Draft" and forward it to the City Council for their review. Please let me know if you have any questions. Central District Plan Map Designations Sinale-Family/Duplex Residential Intended primarily for single-family and duplex residential development. Lower density zoning designations are suitable for areas with sensitive environmental features, topographical constraints, limited street access, or where compatibility with historical development patterns is important. Higher densities are more appropriate for areas with good access to all City services and facilities. For infill sites, compatibility with the surrounding neighborhood is important. Development Density: 2-13 dwelling units/acre. Sinale-Family Residential Stabilization Intended for older areas of the city where single-family homes originally predominated but, due to subsequent changes in zoning, an increase in housing density and some conversion to multi-family and group living uses has occurred. The intent of this designation is to preserve the single-family residential character that remains by preventing further densification and conversion of single-family residences to multi-family. Development Density: varies depending on mix of single-family and conforming and nonconforming multi- family and group living uses. Low-Density to Medium-Density Multi-Family Stabilization Intended for older areas of the city where single-family homes originally predominated but, due to subsequent changes in zoning, an increase in housing density and a significant conversion to multi-family and group living uses has occurred. The intent is to prevent further densification that may overwhelm existing land and infrastructure in older neighborhoods that were originally platted and designed for lower density residential uses. Development Density: varies depending on mix of single-family and conforming and nonconforming multi- family and group living uses. Low-Density to Medium-Density Multi-Family Intended for low- to medium-density multi-family housing. Suitable for areas with good access to all City services and facilities. Higher density zoning designations may not be suitable for areas with topographical constraints or limited street access. For infill sites, compatibility with the surrounding neighborhood is important. Development Density: 8 -24 dwelling units/acre. Hiah-Density Multi-Family Residential Intended for high-density multi-family housing located in proximity to Downtown, the University, or other employment centers. Suitable for areas with good access to all City services and facilities. Higher density zoning designations may not be suitable for areas with topographical constraints or limited street access. Development Density: 16-49 dwelling units/acre. Hiah-Density Multi-Family Redevelopment Designates an area of high-density multi-family residential development where current living conditions are less than ideal due to lack of adequate pedestrian amenities and crowded conditions with little usable open space for residents. An assessment of possible redevelopment scenarios will be necessary to encourage private redevelopment. Office Commercial Areas intended for office uses and compatible businesses. In some cases these areas may serve as a buffer between residential areas and more intensive commercial or industrial uses. General Commercial Areas intended to provide the opportunity for a large variety of commercial uses, particularly retail commercial uses that serve a major segment of the community. Neiahborhood Commercial Areas intended for retail and personal service uses that meet the day-to-day needs of the surrounding residential neighborhood. A grocery store or grocery store/drug store combination is preferred as the primary tenant in a Neighborhood Commercial (CN-1) zone although a variety of commercial uses are allowed. Specific site development standards will apply in these areas to ensure that commercial development is pedestrian-friendly and compatible with surrounding residential development. Intensive Commercial Areas intended for those sales and service functions and businesses whose operations are typically characterized by outdoor display and storage of merchandise, by repair businesses, quasi-industrial uses, and for sales of large equipment or motor vehicles, or by activities or operations conducted in buildings or structures that are not completely enclosed. Retail uses are restricted in order to provide opportunities for more land-intensive or quasi-industrial commercial operations and also to prevent conflicts between retail and industrial truck traffic. Special attention must be directed toward buffering the negative aspects of allowed uses from any adjacent lower intensity commercial areas or residential areas. Urban Commercial Central business service and support zones intended for compact, pedestrian-oriented shopping, office, service, and entertainment uses. Residential apartments above commercial uses are encouraged to create an active street life and to support commercial and service uses. Specific site development standards will apply in these areas to maintain or create pedestrian-oriented storefront commercial development, with parking areas located behind, under, or within buildings and the ground level floor area along street frontages reserved for active building uses. Residential density and building bulk and height should gradually decrease the further these areas are from the Central Business District in order to provide a transition to lower density residential areas that surround the downtown. Mixed-Use Intended for low- to medium-density residential uses, including single-family, duplexes, townhouses, and multi-family; and small-scale retail commercial uses, offices, personal services, and other uses that serve residents of and visitors to the area. Buildings can be mixed-use or single use buildings. An area may be primarily commercial in nature or may be primarily residential depending on the market. Development is intended to be pedestrian-oriented with buildings oriented to the street with sidewalks, street trees, and other pedestrian amenities. Residential buildings should be designed to ensure a comfortable and functional environment for urban living in close proximity to commercial uses. The mix of uses allowed requires special consideration of building and site design. Urban Mixed-Use Intended for medium- to high-density residential uses in combination with retail, restaurants, personal service, office, and entertainment uses that serve residents of and visitors to the area. Buildings can be mixed-use or single-use buildings. Development is intended to be pedestrian-oriented with buildings oriented to the street with sidewalks, street trees, and other pedestrian amenities. Residential buildings should be designed to ensure a comfortable and functional environment for urban living in close proximity to commercial uses, transit, and other City services. The mix of uses allowed require special consideration of building and site design. A new zoning designation will need to be created to achieve the desired vision. Commercial Redevelopment Area where there is potential for commercial redevelopment to occur due to changing conditions. This designation is used in the South Gilbert Street Commercial Corridor to indicate where a transition away from intensive commercial uses may occur as the market responds to the demand for a different mix of retail goods and services. Potential catalysts for change in the area include: the introduction of light rail or regional passenger rail service along the existing rail lines in the area; redevelopment along the Iowa River; and/or additional high-density residential development in the Near Souths ide. As conditions change there may also be demand for residential apartments above ground floor commercial uses in the commercial redevelopment area, which would cause a shift in market demand toward pedestrian-oriented street frontages. Strategic planning initiatives will be necessary so that changes occur in a complementary and orderly fashion to support and ensure the success of public and private investment. Riverfront Redevelopment Area where there is a potential for redevelopment due to changing conditions. If there is a transition away from industrial and public uses along the Iowa River in the South Gilbert Street Commercial Corridor, it will open up an opportunity to rethink use of the riverfront, including planning for future flood events and encouraging green space, passive or active recreational elements, and other uses that will complement redevelopment efforts in the larger commercial corridor. If flood concerns can be addressed, there may be a possibility for additional residential and/or commercial development that might take advantage of riverfront green space and amenities. Private Institutional I Public Institutional Areas intended for civic, cultural, or historical institutions; public schools; and places of assembly or worship. Iowa City does not have a zone that designates institutional uses as the primary, preferred land use. However, there are a number of zones where these uses are permitted or provisional uses. Development proposals are subject to the requirements of the underlying zoning designation. Land that is owned by a public entity is typically zoned Public (P). Open Space Indicates existing or potential open space that is important for the protection of sensitive natural features and/or to provide for recreational opportunities and/or to protect the aesthetic values of the community. An open space designation on private land may indicate that an area is largely unsuitable for development due to environmental or topographical constraints or may indicate that an opportunity to acquire needed open space is possible if current land uses are discontinued. While these areas are best reserved or acquired for open space, development may occur on privately held land if a proposal meets the underlying zoning requirements and the requirements of the Iowa City Sensitive Areas Ordinance. 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HARVAT HALL Preliminary MEMBERS PRESENT: Charlie Eastham, Ann Freerks, Josh Busard, Elizabeth Koppes, Michelle Payne, Wally Plahutnik, Tim Weitzel, MEMBERS EXCUSED: None STAFF PRESENT: Bob Miklo, Karen Howard, Sara Walz OTHERS PRESENT: Jeff Schabilion, Del Holland, Susan Futrell RECOMMENDATIONS TO CITY COUNCIL: None. CALL TO ORDER: The meeting was called to order at 7:30 p.m. by Chairperson Ann Freerks. PUBLIC DISCUSSION OF ANY ITEM NOT ON THE AGENDA: There was none. COMPREHENSIVE PLAN ITEM: A public hearing to consider adoption of the Central District Plan as an element of the Iowa City Comprehensive Plan. The Central District extends from the boundary of the Downtown District east to First Avenue and from Dodge Street and Hickory Hill Park on the north to Highway 6 on the south. The plan establishes a vision, goals, and objectives for improving housing and quality of life, streets and transportation, parks and open space, and commercial areas in the Central District. Prior to the public hearing, urban planning staff presented a slideshow highlighting the main goals and objectives of the plan. Bob Miklo began the presentation by describing the Comprehensive Plan and the process used to develop its elements. The Comprehensive Plan serves as a guide for future development relating to planning and zoning, arts and culture, economic development, parks and recreation, and general land uses. It is used by City departments, boards and commissions, property owners, and the City Council to assist in making decisions about land use and community needs. Miklo described the plan as a guide to community investment. The scope of the Comprehensive Plan is city-wide. When it was initially developed in 1997, the city was broken into ten different sub-areas for which more detailed district plans are prepared. The area in question this evening is the Central District Plan: the area bordering the downtown area, excluding the downtown itself and University of Iowa campus, east to First Avenue. The north boundary is generally Hickory Hill Park, and the south boundary is Highway 6. The area consists of approximately 2,000 acres, which is 13% of the city's acres. One reason the Comprehensive Plan is so important, is that it ultimately shapes public policy. The Iowa River Corridor Trail is one concrete example of something that came to be as a direct result of the Comprehensive Plan's long-term vision. An effect that manifested itself in the short-term as a result of the Comprehensive Plan was the kind of rebuilding and the historic preservation that occurred after the 2006 tornado. Planning and Zoning Commission September 4, 2008 - Formal Page 2 The Central District plan was developed with extensive public input which spanned a two year period. After an initial large meeting with residents, civic groups, and property owners, the City met with a series of focus groups to look at the details of the plan and give feedback. The input which resulted from this public dialogue directly shaped most of the policies found in the Plan. Karen Howard discussed "Housing and Quality of Life" issues addressed in the Central District Plan. Howard noted that the neighborhoods surrounding the downtown area are known for their variety, their sense of identity, and their charm. For the purposes of the Central District Plan, Howard said, the area was divided into 3 sub-areas to acknowledge the distinctive identities in each of these neighborhoods. The first neighborhood, Neighborhood A, is closest to downtown and is known for its mixed nature: houses, apartment buildings, single-families, multi-families, older, newer, etc. Neighborhood B, which is east of the downtown area, is known mostly as a single-family residential neighborhood. Neighborhood C, which is south of the railway and north of Highway 6 is known for being one of the most affordable areas of the city. Some of the highlights of the Central District Plan's housing and quality of life goals are a desire to: stabilize older neighborhoods, with incentives if need be; maintain and reinvest in neighborhood infrastructure; preserve a sense of history and identity; promote community partnerships. Howard described "town and gown" issues, issues wherein there seems to be conflict between the long- term residents and those here for their college years, as somewhat prevalent in the Central District area. Some solutions offered for these issues include: encouraging on-site property management of apartment buildings, encouraging pedestrian safety, and reducing alcohol abuse. Howard said that the dense multi- family areas along South Van Buren and South Johnson resulted in very little open space and narrow, overcrowded streets. Howard noted that University students living in this area have no place to recreate in close proximity of their homes. Howard noted that other issues of concern are nuisance-type issues. Howard said the Comprehensive Plan calls for working with the University and employers to promote home ownership in the area. Although most of the area is already developed, Howard said, opportunities for new housing should be considered in redevelopment areas Sara Walz discussed the "Streets and Transportation" aspects of the Central District Plan. Walz said that area residents had stated that some of the transportation assets of the Central District area are: the grid street pattern, the systems of alleyways that makes such high density possible, accessible bus routes and sidewalks with mature tree canopies. The primary problem for the area was in being able to balance the needs of all of its users. Walz noted that several arterial streets run through this district, and while a change to those streets might be beneficial to those passing through the area, the same change may have negative unintended consequences for those living in the area. Changing such streets, Walz said, changes the context of the neighborhoods through which they run. Other problems noted by residents were the competition for off-street parking, and the aging infrastructure of some alleys and streets. Walz said that a lot of public comment had been received and integrated into the streets and transportation goals for the Central District plan. Residents strongly encouraged the development of safe bicycle and pedestrian connections between major destination points. Concerns were expressed regarding traffic at intersections, lighting issues, the need for public education on various transportation issues, gaps in sidewalk construction, and the clearing of snow and debris from sidewalks. Walz said there were a number of ways to address cyclists and the issues concerning their safety. She said that the City wants people to feel comfortable cycling on the road and wants to make bicycle commuting safer for people. Walz noted that a strong desire for bike lanes had been expressed. She also noted that Iowa City had had bicycle lanes in the past and that they had been controversial and were ultimately removed. Walz said that Market Street and Jefferson Street had potential as streets on which bike lanes could be safe and effective. Walz stated that there had been a desire expressed to continue to improve the public transit system. This could be done by greater efforts at simplifying way-finding on the transit system, providing more public education on the system, and creating more attractive and noticeable bus stops. Walz said that interest had also been expressed in creating a commuter rail system and in expanding the free downtown shuttle service. Planning and Zoning Commission September 4,2008 - Formal Page 3 Walz noted that there are not a lot of parks in the Central District, and that the Comprehensive Plan finds the area to have a deficit of open space. Walz said that the supply of undeveloped land in the district is quite small. Walz noted that in the highest density areas there is the smallest amount of open space. Walz said that residents had expressed an interest in seeing the Chadek property on Friendship Street developed into park land if it ever becomes available for sale. A strong desire to "reclaim" the riverfront and to use riverfront property as green space and parkland had also been expressed by residents. Walz noted that the old North Sewage Treatment Plant and the current City Carton Facility would be possible areas to consider for future green space. Walz said that the plan proposes an open-space fee when property is up-zoned. Normally, Walz said, this fee is only imposed on new subdivisions. In this case, Walz said, it would be applied to in-fill development. Walz said that awareness of existing parks could be fostered by a better system of signage, good maps, and good pedestrian and bicycle connections to the parks. Parks can be promoted through public events being held there. Walz also noted that residents wished to see alternative public spaces and green elements enhanced, on both public and private property. She gave an example of an attractive sitting area on Mercy Hospital property near the intersection of Bloomington and Gilbert Streets. Improving access to and awareness of Ralston Creek was one stated goal of the plan. Walz said this would involve a lot of public/private cooperation and would probably require the formation of an advocacy group for that specific purpose. Howard addressed the South Gilbert Street Commercial Corridor. At a business owners meeting, some of the assets of the area were described: the area provides the opportunity for a wide range of businesses, from industrial to retail to repair; the properties in the area are affordable; the area has good access to arterial streets; the Iowa River provides an attractive view as well as a natural resource. Some of the shortcomings of the area were: the traffic congestion and confusion in the area; the lack of aesthetic appeal; the lack of a distinct identity for the area; the feeling that the area does not present itself as safe or welcoming; the area lacks a connection to the surrounding residential areas. Howard said that there were exciting prospects for future redevelopment of the area. She said that there has been discussion of bringing Amtrak back to Iowa City and possibly using the old Railroad Depot just to the north of the Central District as the railway station. The line would run from Chicago through Iowa City to Des Moines. Currently, the matter is before the Iowa legislature where funding is being sought. Howard said that there is also the possibility of the introduction of a passenger rail from Iowa City to Cedar Rapids as a commuter link. Howard said that if passenger rail is reintroduced to the area it provides an opportunity for Transit-Oriented Development (TOD), and may be an opportunity to reduce reliance on cars. Some of the benefits to TOD are: a reduction in traffic congestion, a reduction in commute times, affordability, and the creation of an active street life. In brainstorming ideas for redevelopment of the South Gilbert Street Commercial Corridor, the focus group suggested: preserving the riverfront, TOD, mixed housing, promotion of green building, zoning rules and guidelines to ensure maximum financial benefits and a distinct identity. Howard also discussed the Northside Marketplace area. This area is pedestrian oriented, and is one of the most historic areas in the community. Historically, the area was the center of a local beer brewing industry; one original brewery building, Brewery Square, remains today. There are many historic homes in the area, some of which have been adapted for uses other than single family residential. Residents said that the area's assets included: its close proximity to downtown and the University of Iowa campus, its unique identity and scale, the presence of several locally-owned, long-time businesses, its strong connection to the surrounding neighborhoods, and the availability of parking in the area. Some shortcomings neighborhood business owners and residents expressed were: the area is hard for newcomers and visitors to find, there is no active business association for the area, there is some uncertainty over future redevelopment, some obsolete zoning (CB-2) governs portions of the area, and there is a need for new standards for development. The Central District Plan seeks to preserve and promote the unique aspects of the area. Development that maintains the character and scale of the existing neighborhood is encouraged. The plan seeks to improve access and awareness of the neighborhood, suggesting such things as unique public art serving as a signage system. The plan supports the use of alternative modes of transportation such as biking and walking, and calls for improved public safety measures to be taken, such as installing pedestrian-scale lighting. Planning and Zoning Commission September 4, 2008 - Formal Page 4 Howard concluded the presentation by explaining the process for the plan's adoption. First, the Planning and Zoning Commission will review the document, discuss the plan in its next informal work session, and, if it is ready, vote on the plan at its next formal meeting. Howard advised that the Commission need not feel that there was any hurry, and could, of course, take as much time as they deemed necessary. Once the Commission had passed the Central District Plan, the document would be sent to City Council, which would then choose whether or not to adopt it. Howard advised that the actual implementation of the plan would require extensive community collaboration and the cooperative work of many partners, both public and private. Howard noted that copies of the plan are available to the public, adding that the public is strongly encouraged to view and download the plan online if possible. Freerks noted that the Commission would not be voting on the document tonight, and stated that the usual procedure of Commissioners asking questions of Staff would be delayed in order to begin the public hearing, since so many members of the public were present. The public hearing was opened. Jeff Schabilion, 431 Rundell Street, stated that he lives in the Longfellow Neighborhood. He stated that he was impressed with the level of detail in the plan and that he is quite encouraged that Iowa City is planning for the future and is involving people in that process every step of the way. Schabilion stated that this process has made him very proud to be a part of this community. Del Holland, 1701 East Court Street, said that he lives in the Creekside Neighborhood. He too stated his support for the Central District Plan, and said that he was particularly pleased with the pedestrian and bike access issues that were addressed by it. He said that he has a neighborhood friend who has been commuting to the University by bike for years and has always been too afraid to ride her bicycle on the street. He approves of the motion the plan makes toward making people feel safer riding and walking on the streets of Iowa City. Sue Futrell, 311 Fairchild Street, stated that she had participated in one of the sessions held with the public during the public input stage of the plan's development. She said that she had looked at the plan online and that she is overall very pleased with it. She said that the plan seems to closely reflect the needs and wishes expressed at her near-Northside Neighborhood meeting. She said that she likes the focus on harmonizing the mixed uses of the Northside Neighborhood, and is excited about the new ideas for redevelopment of the South Gilbert area. Freerks asked if there were further comments from the public. No one came forward. Plahutnik thanked the speakers for their positive feedback, but advised the rest of the public that now was the time to offer feedback or concerns if they had any. No one else wished to speak. Freerks closed the public hearing. Howard noted that she had distributed an e-mail to the Commission from a northside resident expressing concern about the speed of cars on Brown Street. Commissioners discussed some aspects of the potential development of the South Gilbert area, asking if turn-around times for trains or parking accommodations for commuters had been considered. Staff responded that those sorts of details could not really be worked out until the commuter train and Amtrak line came closer to becoming a reality. Discussion on this matter was closed. REVIEW OF ANNUAL REPORT: Miklo explained that this review gives a snap-shot to the City Council of what the various Boards and Commissions have accomplished over the course of the year. One thing that Miklo wanted the Commission to consider was the work program for the coming year. Planning and Zoning Commission September 4, 2008 - Formal Page 5 Koppes asked if the North Corridor District Plan and Northwest District Plan were on the list for completion. Koppes said she would like to see these two plans added to the list. Miklo said he would add them to the Commission's work program, but they would not be able begin them for a few years given the other projects on the list. After some discussion, it was agreed to remove the sign issue from the list, and to add the two remaining district plans, the CB-2 standards, the floodplain review, and the CB-10 zone. CONSIDERATION OF MEETING MINUTES: AUGUST 18 and AUGUST 21.2008: Eastham motioned to accept the minutes. Plahutnik seconded. The minutes were approved on a vote of 7-0. OTHER: Staff and Commission members welcomed Michelle Payne to the Commission for her first formal meeting as a Commissioner. Eastham stated that he had attended the latest City Council meeting concerning the new Wal-Mart. He said the Council expressed concern as to whether or not provisions of the conditional zoning agreement the Commission had recommended for the development were actually enforceable. 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