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Home My WebLink About12-09-2020 Board of AdjustmentIOWA CITY BOARD OF ADJUSTMENT Wednesday, December 9, 2020 Electronic Meeting — 5:15 PM Zoom Meeting Platform Electronic Meeting (Pursuant to Iowa Code section 21.8) An electronic meeting is being held because a meeting in person is impossible or impractical due to concerns for the health and safety of Commission members, staff and the public presented by COVID-19. You can participate in the meeting and can comment on an agenda item by joining the Zoom meeting via the internet by going to https:Hzoom.us/meeting/register/tJUoce-srzstHtxkQTmNTfXm7NTi3kunTl vZ. If you have no computer or smartphone, or a computer without a microphone, you can call in by phone by dialing (312) 626-6799 and entering the meeting ID 915- 6641-0748 when prompted. Providing comment in person is not an option. Agenda: 1. Call to Order 2. Roll Call 3. Special Exception Item a. A request submitted by Southside Developers, LC to extend the expiration date from 6 months to 12 months for EXC20-05, a special exception approved to allow a Community Service -Long Term Housing use in an Intensive Commercial (CI-1) zone that is adjacent to asingle-family residential zone. b. EXC20-0004, EXC20-0005, and EXC20-0006: An application submitted by J+M Civil Design, LLC requesting three special exceptions to allow a drive -through facility, to allow a multi -family use, and to permit flexibility through the Commercial Reuse Exception in a Community Commercial (CC-2) zone for the purpose of reusing a vacant building with a coffeeshop and apartment at 1120 N. Dodge Street. c. EXC20-0007: An application submitted by Neumann Monson Architects requesting a special exception to allow a 60 percent parking reduction for a mixed -use renovation of existing structures and a new multi -family construction at 109, 111, 113-1151 117-119, 121, and 127 East College Street. 4. Consideration of Meeting Minutes: November 18, 2020 5. Adjournment December 9, 2020 Board of Adjustment Meeting If you will need disability -related accommodations in order to participate in this meeting, please contact Kirk Lehmann, Urban Planning at 319-356-5230 or at kirk-lehmann@iowa-city.org. Early requests are strongly encouraged to allow sufficient time to meet your access needs. Upcoming Board of Adjustment Meetings Formal: January 13 / February 10 / March 10 Informal: Scheduled as needed. Kirk Lehmann From: Kirsten Frey <KHF@ShuttleworthLaw.com> Sent: Monday, November 16, 2020 4:02 PM To: Kirk Lehmann Cc: Cady Gerlach; 'Crissy Canganelli'; 'Andy Hodge'; 'Mike Hodge' Subject: EXC20-05 Board Of Adjustment Special Exception Extension Request Iowa City Board of Adjustment: At the June 10, 2020 meeting, filed of legal record with the City Clerk on June 22, 2020 the Iowa City Board of Adjustment approved a Special Exception request by Southside Developers to allow the Community Service - Long Term Housing use as outlined in 14-4B-4-D-6-c for the property located at 501 Southgate Avenue, Parcel No. 1022133012. This Special Exception included a time limitation, stating the Special Exception would expire six months from the date which it was filed with the City Clerk, unless the Applicant shall have taken action within such time period to establish the use or construct the improvement. We respectfully request a six month extension of the previously approved Special Exception. The reason for this extension request is the sources used to fund the development were contingent on and required all land use questions to be resolved prior to any application and award of funds, which was determined by this Board in June 2020. A large portion of this development will be financed through the Iowa Finance Authority National Housing Trust Fund, which was awarded in the middle of August. The initial release of these funds to allow the developer to enter into agreements with engineers and architects requires significant environmental review processes per HUD guidelines and were started in September and October 2020. It is anticipated these reviews and approvals will be completed by December, and following those reviews and approval processes by the Iowa Finance Authority, the team will begin the building permit application and review. We anticipate that the building permit and related applications will be ready to go in early 2021 with groundbreaking in March or April 2021, which will be a few months after the 6 month requirement. Please let me know if you have any questions or need anything else. Thank you so much for your courtesies in connection with this matter. Kirsten Shuttlewo-rth & ING RSOLL Kirsten H . Frey Shuttleworth & Ingersoll, P.L.C. 327 2nd Street, Suite 300 Coralville, IA 52241 Phone: (319) 365-9461 Fax: (319) 365-8443 E-mail khf(@-shuttleworthlaw.com Website www.shuttleworthlaw.com This message is covered by the Electronic Communication Privacy Act, 18 USC Section 2510-2515, is intended only for the use of the person to whom it is addressed and may contain information that is confidential and subject to the attorney -client privilege. It should also not be forwarded to anyone else. If you received this message and are not the addressee, you have received this message in error. 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To: Board of Adjustment Item: EXC20-0004, 5, & 6 Parcel Number: 1002334001 GENERAL INFORMATION: Applicant: Contact Person: Property Owner(s): Requested Action: Purpose: Location: Location Map: Size: STAFF REPORT Prepared by: Kirk Lehmann, Associate Planner Date: December 9, 2020 J+M Civil Design, LLC 2550 Middle Road, STE 602 Bettendorf, IA 52722 Calisse McPherson 2550 Middle Road, STE 602 Bettendorf, IA 52722 (563)345-3470 calisse@jmcivildesign.com David and Nancy Thompson 827 Brown Street Iowa City, IA 52245 To allow adrive-through facility, Multi -Family Use, and flexibility for reuse of an existing building in a Community Commercial (CC-2) zone To renovate and reuse a vacant building as a mixed - use coffeeshop and apartment 1120 North Dodge Street 0.3 Acres 1 Existing Land Use and Zoning: Vacant; Community Commercial (CC-2) Surrounding Land Use and Zoning North: Commercial; Community Commercial with a Planned Development Overlay (OPD-CC-2) East: Institutional; Low Density Multi -Family Residential (RM-12) South: Institutional; Low Density Multi -Family Residential (RM-12) West: Residential; Community Commercial (CC-2) Applicable Code Sections: 14-4C-2K-3: Drive -Through Specific Criteria 14-413 4A-7: Multi -Family Specific Criteria 14-2C-11 D-4: Commercial Reuse Exception 14-413-3A: General Approval Criteria File Date: November 9, 2020 BACKGROUND: The applicant, J+M Civil Design, submitted the following three special exception applications for the subject property at 1120 North Dodge Street to renovate the building and redevelop the site: 1. To allow adrive-through facility associated with a new coffeeshop (EXC20-0004); 2. To allow amulti-family use in a Community Commercial (CC-2) zone (EXC20-0005); and 3. To allow waivers from zoning standards for the reuse of an existing building in a commercial zone (EXC20-0006). Waivers from zoning standards through the commercial reuse exception are required to approve the drive -through facility and multi -family use. The subject property currently contains an existing vacant building constructed in 1895 and substantially added to in 2003, both of which pre -date the City's current zoning code. The east portion of the building was partially within the public right-of-way for St. Mathias Alley. Access to the property is divided between two unfinished gravel parking lots, one accessible from North Dodge Street and the other from St. Mathias Alley. A drive was never constructed through the site due to changes in grade. The building has been vacant for several years. Prior to these special exception applications, the proposed project required two other applications. First, an application for a vacation for approximately 10 feet on the west side of St. Mathias Alley was passed by City Council on December 1, 2020 (VAC20-0002). Second, staff initiated a zoning code text amendment to provide flexibility for commercial infill project that reuse existing buildings, such as for this project at 1120 N. Dodge Street (REZ20-0006). The text amendment was passed by Council on November 17, 2020. The proposed coffeeshop with the accessory drive -through use will be located on the first floor of the existing building, while the proposed multi -family use consisting of one two -bedroom unit is on the second floor. The site plan (Attachment 3) proposes a one-way internal access drive with parking from North Dodge Street through to St. Mathias Alley. The drive -through lane begins on the south end of the site, curving north by the pick-up window and exiting east onto St. Mathias Alley. The proposed separation between the drive -through lane and alley is minimal but pavement markings and signage are used to help direct traffic. No order board is proposed because it is a pick-up only drive -through. Pedestrian access is provided from the sidewalk on North Dodge Street, by the coffeeshop entrance, and on to the separate multi -family use entrance on the south building face. 2 ANALYSIS: The purpose of the Zoning Ordinance is to promote the public health, safety and general welfare; to conserve and protect the value of property throughout the city; and to encourage the most appropriate use of land. It is the intent of the Ordinance to permit the full use and enjoyment of property in a manner that does not intrude upon adjacent property. The Board may grant the requested special exception if the requested action is found to be in accordance with the specific criteria included in Section 14-4C-2K-3, pertaining to the specific criteria for drive -through facilities, Section 14-413-4A-7, pertaining to the specific criteria for multi -family uses in CC-2 zones, Section 14-2C-11 D-4, pertaining to the specific criteria for commercial reuse exceptions, as well as the general approval criteria in Section 14-46-3A. For the Board of Adjustment to grant this special exception request, each of the following criterion below must be met. The burden of proof is on the applicant, and their comments regarding each criterion may be found in the attached application materials. Staff comments regarding each criterion are set below. Specific Standards: Drive -Through Use in a CC-2 Zone 14-4C-2K-3 Special Exception Approval Criteria a. Access and Circulation: The transportation system should be capable of safely supporting the proposed drive -through use in addition to the existing uses in the area. Evaluation factors include street capacity and level of service, effects on traffic circulation, access requirements, separation of curb cuts, and pedestrian safety in addition to the following criteria: (1) Wherever possible and practical, drive -through lanes shall be accessed from secondary streets, alleys, or shared cross access drives. If the applicant can demonstrate that access from a secondary street, alley, or shared cross access drive is not possible, the board may grant access to a primary street, but may impose conditions such as limiting the width of the curb cut and drive, limiting the number of lanes, requiring the drive -through bays and stacking lanes to be enclosed within the building envelope, and similar conditions. FINDINGS: • The site plan shows a one-way internal access drive entering from an existing curb cut on North Dodge Street and exiting to St. Mathias Alley to the south. Staff recommends a condition for substantial compliance to the submitted site plan in Attachment 3 to ensure adequate circulation. • The one-way drive -through lane is entered from the internal access drive and exits onto S. Mathias Alley on the east. (2) To provide for safe pedestrian movement, the number and width of curb cuts serving the use may be limited. A proposal for a new curb cut on any street is subject to the standards and restrictions in chapter 5, article C, "Access Management Standards", of this title. FINDINGS: • The proposed use utilizes existing curb cuts on North Dodge Street. 41 • Staff recommends a condition that St. Mathias Alley be improved to City standards as part of this project to accommodate increased traffic and allow adequate flow to and from the site. • Two new access points are proposed to St. Mathias Alley, one to the south and one to the east. (3) An adequate number of stacking spaces must be provided to ensure traffic safety is not compromised. A minimum of six (6) stacking spaces is recommended for drive -through facilities associated with eating establishments and a minimum of four (4) stacking spaces for banking, pharmacies, and similar nonfood related drive -through facilities. "Stacking spaces" shall be defined as being twenty feet (20') in length and the width of a one lane, one-way drive. The board may reduce the recommended number of stacking spaces if the applicant can demonstrate that the specific business has unique characteristics such that the recommended number of parking spaces is excessive (i.e., a drive- through that is to be used for pick up only and not ordering). FINDINGS: • The site plan shows stacking space for 6 vehicles, which meets the minimum number required. • The entrance to the drive -through lane is more than 100 feet from North Dodge Street, which provides room for spillover traffic. • The proposed use is for pick-up only and not for ordering. Staff recommends that this be a condition for approval. • Research indicates that coffee shop uses can produce long maximum queues, in excess of 10 cars in high traffic areas. • Staff finds that the nature of the business and room for spillover traffic provides enough stacking spaces for the proposed use. (4) Sufficient on site signage and pavement markings shall be provided to indicate direction of vehicular travel, pedestrian crossings, stop signs, no entrance areas, and other controls to ensure safe vehicular and pedestrian movement. FINDINGS: • The site plan shows directional arrows at the entrances and throughout the site, in addition to "do not enter" signs at all exits. Staff recommends a condition for substantial compliance to the submitted site plan in Attachment 3 to ensure adequate signage and pavement markings. • Pedestrian paths are clearly demarcated. b. Location: (1) In the CB-2 zone and in all subdistricts of the riverfront crossings district located east of the Iowa River, drive -through lanes and service windows must be located on a nonstreet-facing facade. In all other locations where drive-throughs are allowed, this location standard must be met, unless the applicant can demonstrate that a street -facing location is preferable for the overall safety and 1 Spack, M., Moreland, M., de Leeuw, L., Hood, N. (2012, February). Drive -Through Queue Generation. Retrieved from http://countingcars.com 4 efficiency of the site, does not conflict with adjacent uses or pedestrian access, and does not compromise the character of the streetscape or neighborhood in which it is located. FINDINGS: • The drive -through lanes and service windows are not on a street -facing fagade. (2) Drive -through lanes must be set back at least ten feet (10') from adjacent lot lines and public rights of way and screened from view according to the design standards below. FINDINGS: • The site plan shows the proposed drive -through lane on the east side of the property with no setback from St. Mathias Alley. • Because this project reuses an existing building in a CC-2 zone that is not historic, the applicant has requested this criterion be waived through the Commercial Reuse Exception provision, as discussed below. • Should the Commercial Reuse exception be approved, staff recommends a condition that adequate separation and/or screening be required between the drive -through lane and the property to the east, as determined by the City Engineer and Director of Neighborhood and Development Services. c. Design Standards: The number of drive -through lanes, stacking spaces, and paved area necessary for the drive -through facility will not be detrimental to adjacent residential properties or detract from or unduly interrupt pedestrian circulation or the commercial character of the area in which the use is located. The board of adjustment may increase or reduce these standards according to the circumstances affecting the site. (1) To promote compatibility with surrounding development, the number of drive - through lanes should be limited such that the amount of paving and stacking space does not diminish the design quality of the streetscape or the safety of the pedestrian environment. FINDINGS: • The site is surrounded by Community Commercial (CC-2) zones to the north and west, and by Low -Density Multi -Family Residential (RM-12) zones to the east and south. Surrounding uses include commercial (Hy-Vee), institutional (St. Joseph Cemetery), and asingle-family residence. Generally, these uses are compatible with the proposed use. • The site plan shows a single 9- to 9.5-foot wide drive -through lane which is located at the south and east sides of the property, limiting impacts on the streetscape and on the single-family use to the west. • The sidewalk along North Dodge Street and the continuous pedestrian route through the site do not cross the drive -through lane. (2) Drive -through lanes, bays, and stacking spaces shall be screened from views from the street and adjacent properties to the S2 standard. If the drive -through is located adjacent to a residential use or property zoned residential, it must be screened from view of these properties to at least the S3 standard. To preserve 5 the pedestrian oriented character of streets in the C13-2 zone and the riverfront crossings district, the board may require the drive -through to be incorporated within the building or be screened with masonry street walls and landscaping. Street walls shall be a minimum of five feet (5') in height and shall be designed to complement the principal building on the site. FINDINGS: • The drive -through lane is adjacent to property zoned RM-12 to the east and south, which would require screening to the S3 standard. However, these properties contain a cemetery use rather than a residential use. • Because this project reuses an existing, non -historic building in a CC-2 zone, the applicant has requested this criterion be waived through the Commercial Reuse Exception provision, as discussed below. • Should the Commercial Reuse exception be approved, staff recommends a condition providing for separation and/or screening between the drive -through lane and the property to the east, as determined by the City Engineer and Director of Neighborhood and Development Services prior to issuance of a building permit. (3) Multiple windows servicing a single stacking lane (e.g., order board, payment window, pick up window) should be considered to reduce the amount of idling on the site. FINDINGS: • The site plan shows a single pick-up window because the proposed use is pick- up only. This will reduce the amount of idling on the site. (4) Stacking spaces, driveways, and drive -through windows shall be located to minimize potential for vehicular and pedestrian conflicts and shall be integrated into the surrounding landscape and streetscape design of the neighborhood in which it is located. FINDINGS: • Automobile traffic is directed through one-way drives on the site, while pedestrian access is provided on sidewalks, which minimizes onsite conflicts. • Where the drive -through lane exits onto St. Mathias Alley, drivers must cross potential inbound traffic. However, St. Mathias Alley experiences limited use because it is not currently connected to the west. In addition, the exit is curved to limit head-on conflicts and St. Joseph's Cemetery has additional access points. • Stacking spaces, driveways, and drive -through windows are generally hidden from the streetscape. (5) Lighting for the drive -through facility must comply with the outdoor lighting standards set forth in chapter 5, article G of this title and must be designed to prevent light trespass and glare onto neighboring residential properties. FINDINGS: • Staff shall review any new lighting for the site in compliance with current code standards as part of the site plan review process. X9 6) (Repealed by Ordinance No. 16-4685 on 11-15-2016) 7) Loudspeakers or intercom systems, if allowed, should be located and directed to minimize disturbance to adjacent uses. Special consideration should be given to locations adjacent to residential uses to ensure such systems do not diminish the residential character of the neighborhood. FINDINGS: • There are no loudspeakers or intercom systems. Staff recommends that this be a condition of approval, and that the drive -through remains pick-up only. Specific Standards: Multi -Family Uses In CO-1, CN-1, CC-2, C13-2, C13-5, And CB-10 Zones 14-4134A-7 Special Exception Approval Criteria a. Location: The proposed dwelling units must be located above the street level floor of a building, except as provided in subsections A7e and A7f of this section. FINDINGS: • The dwelling unit is proposed to be above the street level floor of the building. b. Maximum Density: The residential density standards for multi- family uses in commercial zones are stated in section 14-2C-4, "Dimensional Requirements", table 2C-2(c) of this title. FINDINGS: • The maximum minimum lot area per unit is 2,725 square feet for efficiency, one - bedroom, and two -bedroom units and is 1,315 for three -bedroom units. • The property is 12,320 square feet and will contain one dwelling unit, which complies with the residential density standards in Table 2C-2(c). c. Residential Entrances: (1) To provide safe access for residents within a mixed use building, any building containing a residential use must have at least one door on the exterior of the building that provides pedestrian access to the dwelling units within the building. Said entrance must be located on a building wall that faces a street, public sidewalk, or pedestrian plaza and is visible from and easily accessed from said street, sidewalk, or plaza. Access to dwelling units must not be solely through a parking garage or from an alley. FINDINGS: • The building has an exterior door that faces the street, but it does not provide access to the dwelling unit. • The entrance to the dwelling unit does not face a street, public sidewalk, or pedestrian plaza, but it is easily accessed from the street by a private sidewalk on the property that provides safe access for residents. • Because this project reuses an existing building in a CC-2 zone that is not historic, the applicant has requested this criterion be waived through the Commercial Reuse Exception provision, as discussed below. 7 (2) Access to entrance doors of any individual dwelling units located above the ground level floor of a building must be provided from an enclosed lobby or corridor and stairway. Unenclosed or partially enclosed exterior stairways are prohibited. However, the city may allow exterior fire egress structures on existing buildings that cannot otherwise reasonably meet code requirements, provided the fire egress structure is not located on a wall of a building that faces a street. FINDINGS: • Access to the entrance of the dwelling unit is enclosed. (3) To facilitate commercial uses at the street level, the ground level floor height should be no more than one foot (1') above the level of the abutting sidewalk or pedestrian plaza. On sloping building sites and for existing buildings, the city may adjust this requirement. However, on sloping sites at least a portion of the ground level floor height of any new building must be located no more than one foot (1') above the level of the abutting sidewalk or pedestrian plaza; and the floor height of the ground level floor of the building must be no more than three feet (3') above the level of the abutting public sidewalk or pedestrian plaza at any point along astreet-facing building facade. FINDINGS: • The ground level floor height is approximately 1 foot above the level of the abutting sidewalk, though this requirement may be adjusted due to it being an existing building and the slope of the site. • No portion of the ground level is proposed to be more than 3 feet above the level of the abutting public sidewalk. d. Standards For Ground Level Floor Of Building: (1) On the ground level floor, the floor to ceiling height must be at least fourteen feet (14'). FINDINGS: • The ground level floor -to -ceiling height is 8.5' in this building. • Because this project reuses an existing, non -historic building in a CC-2 zone, the applicant has requested this criterion be waived through the Commercial Reuse Exception provision, as discussed below. (2) For the ground level floor of the building, construction must meet the building code specifications for commercial uses. FINDINGS: • The building is an existing structure. • Staff will ensure that any improvements that require a building permit meet the building code specifications for commercial uses. • Sprinklers will be required as part of the building permit process. 8 (3) In the CB-10 zone, for the first two (2) floors of a building, construction must meet the building code specifications for commercial uses. FINDINGS: • The property is not zoned CB-10, so this criterion is not applicable. e. CB-5 And CB-10 Exception: In the CB-5 and CB-10 zones, except as provided in subsection A7e(4) of this section and except as allowed by subsection Alf of this section, the board of adjustment may grant a special exception for multi- family dwellings to be located on or below the street level floor of a building, provided that the following criteria are met... FINDINGS: • The property is not zoned CB-5 or CB-10, so these criteria are not applicable. f. CB-5 Form Based Code Exception: For properties zoned CB-5 located within the area bounded by Gilbert Street, Van Buren Street, Burlington Street and the midblock alley south of Jefferson Street, residential uses are allowed on the ground level floor of buildings, provided the following conditions are met... FINDINGS: • The property is not zoned CB-5, so these criteria are not applicable. Specific Standards: Commercial Reuse Exception 14-2C-11D-4 Special Exception Approval Criteria Summary of Requested Exceptions The applicant has requested exceptions through the Commercial Reuse provisions for the following requirements: 1. General setbacks and screening requirements for the drive -through lane on the east property line (14-2C-6D-3 & 14-2C-6G) 2. 10' setbacks for drive -through lanes on the east and south property line (14-4C-2K-3b(2)); 3. S3 screening for drive -through lanes on the east property line (14-4C-2K-3c(2)); 4. A residential entrance on the front multi -family buildings in CC-2 zones (14-4134A-7c(l)); and 5. Aground level floor -to -ceiling height of 14' for multi -family uses in CC-2 zones (14-4B-4A- 7d(l)). a. The exception is necessary due to existing building or site constraints that make it difficult to meet that standard. FINDINGS: • The existing structure was initially built in 1895 with a major addition constructed in 2003, both of which were completed prior to the City's current zoning code. • The east portion of the building was partially within the St. Mathias Alley public right-of-way. This was corrected when the City vacated a portion of the alley (VAC20-0002), approved by City Council on December 1, 2020. • The location of the building on the site makes it difficult to meet setback and screening standards for the drive -through because there is not enough space between the drive -through lane and the alley to accommodate them. 01 • To mitigate this, staff recommends a condition that separation and/or screening be provided to the east as determined by the City. • Because the building was laid out prior to the current zoning code, it is difficult to meet standards related to the ground level floor -to -ceiling height and the location of entrances required for multi -family uses. b. The exception will be compatible with and/or complementary to adjacent development in terms of building mass and scale, relative amount of open space, traffic circulation, general layout, and lighting. FINDINGS: • The building mass and scale, and the site layout, will not change due to the proposed project. • Open space will be reduced on the south side of the property, but it will comply with open space standards for multi -family uses. • The proposed project will improve traffic circulation because it will create a route through the site, and staff -recommended alley improvements will carry anticipated traffic. • Staff recommends a condition that the owner obtain a temporary use of right-of- way permit with the City for St. Mathias Alley to provide space to separate and/or screen the drive -through lane from the alley, as approved by the City. • Staff will review lighting during site plan review to ensure it is compatible with adjacent development. • The exceptions related to the multi -family and drive -through uses are compatible to adjacent development with the conditions recommended by staff. c. The exception will not adversely affect access, views, noise, stormwater runoff, light and air, and privacy of neighboring properties any more than would a development that satisfies the applicable standard. FINDINGS: • The proposed exceptions will not affect views, noise, stormwater runoff, or light and air any more than would a development that satisfies the standards. • Access may be affected by the proposed setback exception for the drive - through lane, specifically where it exits onto St. Mathias Alley. However, it will not do so any more than a property that would satisfy the requirement. • Privacy may be affected by the proposed waiver for drive -through screening to the east. However, cemetery buildings and existing trees buffer the drive - through lane from the cemetery, meaning that the exceptions will not adversely affect privacy any more than would a development that satisfies this standard. • To further ensure privacy, staff recommends a condition that separation and/or screening be provided to the east as determined by the City. d. The exception is not contrary to the intent of the standard being waived or modified. FINDINGS: • Proposed waivers for standards related to multi -family uses in commercial zones are intended to provide safe access for residents within a mixed -use W] building (front entrance location) and to facilitate commercial uses at the street level (ceiling height). • Waiving the front entrance door location maintains the intent of providing safe access from the dwelling to the right-of-way. • Waiving the ceiling height maintains the intent of facilitating commercial uses at the street level because the applicant has a commercial tenant willing to occupy the building, and improvements to the site facilitate future commercial uses. • Setbacks are intended to maintain light, air, separation for fire protection, and access for firefighting; provide opportunities for privacy between dwellings; reflect the general building scale and placement of structures in the city's neighborhoods and commercial areas; promote a reasonable physical relationship between buildings and between residences; and provide flexibility to site a building so that it is compatible with buildings in the vicinity. • Approximately 20 feet will still be provided between the drive -through lane and adjacent property to the east and south, which meets these intentions. • Screening is intended to improve the appearance of Iowa City streetscapes for the benefit of its residents; to create aesthetically pleasing and functional living environments; to protect and enhance property values; and to provide for transitions between dissimilar uses. • Existing trees and buildings effectively screen the drive -through from adjacent cemetery uses, and the drive -through is beside the proposed building, which maintains the appearance of the streetscape. Staff recommends a condition that adequate separation and/or screening be provided to the east as determined by the City to further ensure these intentions are met. e. The exception will be in the public interest. FINDINGS: • The property has remained vacant for several years, and the parking lot and alley are constructed of gravel. • Occupying the property with neighborhood commercial and residential uses, and improving the site's circulation, parking lot, and alley are in the public interest. General Standards: Commercial Reuse, Drive -Through Facility, and Multi -Family Use 14-46-3: Special Exception Review Requirements: 1. The specific proposed exception will not be detrimental to or endanger the public health, safety, comfort or general welfare. FINDINGS: • The proposed multi -family use and related waivers from zoning standards will have no effect on health, safety, comfort, or general welfare. • The proposed drive -through and related exceptions will increase vehicular traffic to the site, but access to, through, and around the site will be enhanced due to site and alley improvements. • Conflicts may be created where the drive -through lane exits onto St. Mathias Alley, but these are mitigated through careful design, signage, and pavement markings. • It may be difficult in the morning for vehicles leaving St. Mathias Alley to turn left towards Iowa City due to in -bound traffic, but no more so than it would be for other potentially allowed uses in a CC-2 zone. 11 • Effects of decreased screening and setbacks on the east side of the site are partially mitigated by existing landscaping and buildings at St. Joseph's, and they will be further mitigated by staff's recommended conditions for approval. • The site plan shows the removal of two trees. The City declared a state of climate crisis and established carbon emission reduction goals on August 6, 2019. Trees are important to climate mitigation and adaptation, so staff recommends a condition that any trees removed be replaced onsite as approved by the City Forrester. • Overall, the exceptions will not be detrimental to or endanger the public health, safety, comfort, or general welfare. 2. The specific proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. FINDINGS: • The proposed uses are compatible with those of nearby properties. • The proposed site developments and occupancy of the proposed site will not diminish or impair property values in the neighborhood. • Screening and/or separation on the east property line, as determined by the City, will mitigate impacts to the cemetery. • The proposed exceptions will not injure the use or enjoyment of nearby properties. 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for uses permitted in the district in which such property is located. FINDINGS: • The surrounding area is already fully developed with a mix of institutional, commercial, and residential uses in commercial and multi -family zones, and only the property to the east currently utilizes the alley. A mixed -use coffeeshop with a multi -family unit is compatible with these uses and zoning districts • Offsite improvements to St. Mathias Alley will benefit property owners that utilize the alley through improved circulation. • Abutting properties will be separated by adequate setbacks so as not to affect any future work on their property, and requested exceptions for uses and waivers will not impede normal and orderly redevelopment of surrounding properties. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. FINDINGS: • Sufficient utilities, primary streets, and necessary facilities are established for this neighborhood and can meet the proposed site requirements. • Proposed internal circulation will be sufficient for vehicular and pedestrian access to the renovated building, with improvements to St. Mathias Alley. • Stormwater must be mitigated per City Code to avoid downslope impacts to the south. 5. Adequate measures have been or will be taken to provide ingress or egress designed to minimize traffic congestion on public streets. 12 FINDINGS: • The one-way drive through the site and exits onto St. Mathias Alley consolidate potential conflicts on North Dodge and provide for adequate ingress and egress. • St. Mathias Alley will carry two-way traffic, so clear signage and pavement markings as shown on the site plan are necessary to control traffic. • The development will increase traffic to the site. However, the design minimizes impacts on North Dodge Street by concentrating outbound traffic to a single point at St. Mathias Alley. 6. Except for the specific regulations and standards applicable to the exception being considered, the specific proposed exception, in all other respects, conforms to the applicable regulations or standards of the zone in which it is to be located. FINDINGS: • Staff will ensure the site design conforms with all other applicable zoning standards and regulations during the site plan review, and additional reviews by the City Engineer and Director of Neighborhood and Development Services. 7. The proposed exception will be consistent with the Comprehensive Plan of the City, as amended. FINDINGS: • The Future Land Use Map of the Comprehensive Plan designates this area for General Commercial. The Future Land Use Map of the North District Plan designates this area for Retail/Community Commercial. • The Comprehensive Plan supports commercial development in "defined commercial nodes, including small-scale neighborhood commercial centers" and encourages retaining and expanding local businesses. • The North District Plan supports locating medium -density housing "in areas with good access to arterial streets" that are "close to neighborhood commercial areas". It also encourages focusing "commercial activity in existing nodes along major arterial streets" and cites the nearby mixed -use Hilltop Tavern as a desirable prototype. • The proposed land use allowed by these special exceptions is consistent with the Comprehensive and North District Plans. STAFF RECOMMENDATION: Staff recommends approval of EXC20-0004, EXC20-0005, & EXC20-0006, to allow a drive - through facility (EXC20-0004) and amulti-family use (EXC20-0005) in a CC-2 zone, and to approve requested waivers from zoning standards for the reuse of an existing building in a CC-2 zone (EXC20-0006) for the property at 1120 N. Dodge Street subject to the following conditions: 1. Substantially comply with attached site plan dated November 3, 2020; 2. Prior to site plan approval, obtain a temporary use of right-of-way permit with the City along the west side of St. Mathias Alley for the length of the drive -through lane, as specified by the City Engineer and approved by the City Attorney's Office; 3. Plant at least one new tree onsite for every tree removed, the location and species of which must be approved by the City Forester prior to site plan approval; 4. Improve St. Mathias Alley abutting the property to the east and south, and any sidewalk crossings, as determined by the City Engineer prior to site plan approval. Improvements must be accepted by the City Engineer prior to issuance of a Certificate of Occupancy; 13 5. Provide for screening to the east and/or separation between the drive -through lane and St. Mathias Alley, as determined by the City Engineer and approved by the Director of Neighborhood and Development Services prior to site plan approval. These must be accepted by the City Engineer prior to issuance of a Certificate of Occupancy; 6. No loudspeaker or order board for the drive -through use may be installed; and 7. The drive -through must remain pick-up only. ATTACHMENTS: 1. Location Map 2. Zoning Map 3. Application Materials Approved by: Danielle Sitzman, AICP, Development Services Coordinator Department of Neighborhood and Development Services 14 N N s}uauaJSGAUJ apeM N m o Ro v v c No � ro 4) co _co m emol `AI!O emol 0 W Z Q IGGAS a6poa 4TJoN M 5z U '> U U T L o codoyS aalloo posodoad Y ■ � 3 a .m 3 N uoisinaJ a�ep 'ou o E U / f0 a) L9 G<-- d 'Eo — v O N� o U � � O 0 LL a O LL ID x U a�rnm / w O a) a./ d wo m in a 0 0 I E c)� I I I 11 I VO MI !I w N10` ? I I I / I I \\\ II III III � I III II III III I III III III III I II II /� I 0 N } L U) D W V Ow N Z jN a �U)N LO LO F w Q In Q = F H F Q H Z Q H J Q v 0— Z Z� } J O�}H fn aLu CO Q O ��Lu Z LU aIL QZ<> ¢ Q Q<Q N0 <0 d00¢Q JJ a w N V ❑ ww w m� a> 00 =_ �� wo ow W W U F Z ❑ dLL WF a z wvl ¢w P °� a a¢ w w aLL J� O V Q m J 0w O O U O m w w LU 0 U H< H< w � Z U¢ K a U p Q U m Z Z O z Q o co F w as >z ww a Z ?0 a❑W W w o- �zo of m 0 o�7 as o aV �o wm w �a �o LLa m Z0 �� zo U � w O m 0 m Z ¢ W7 a� ao zm w �w =Q o� o N = H LL = O ❑ z z M. z g0 ~a OU Z V y rr OU Y0 ZO a ¢ Op a U U > liz z F O m J ¢ O ¢ w m MOO ¢ 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www.jmcivildesign.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: Specific Approval Criteria for a special exemption application at 1120 N. Dodge Street (Items requesting flexibility through the new zoning code amendment are noted in italics.) Code Section 14-4C-2K-3 a. Access and Circulation: (1) Drive -through lane will be accessed from a private access drive. (2) Existing curb cuts will be used for the development. (3) The drive -through will be used for pick-up only (not ordering) and stacking space for a minimum of 6 cars is provided. (4) Directional signage and striping will be provided to indicate direction of vehicular travel, pedestrian crossings, stop signs, no entrance areas, etc. b. Location: (1) The proposed drive -through will be located on a non -street -facing fagade. (2) Drive -through lane will be located adjacent to the existing alley between the subject property and the adjoining property (St. Joseph Cemetery). Due to the limited space between the existing building and the alley, screening will not be possible. The drive -through lane will be located approximately 20' from the cemetery property. c. Design Standards: (1) The drive -through lane will not diminish the design quality of the streetscape or the safety of the pedestrian environment. Drive -through stacking area will not have pedestrian crossings or interfere with access to the building. (2) Drive -through lane and stacking spaces will not be screened from views on the adjacent property to the east — St. Joseph Cemetery due to the existing alley abutting both properties. (3) Drive -through will be for pick-up only; therefore, a second window is not necessary. (4) Stacking spaces and drive -through lane will not interfere with pedestrian access points. (5) Lighting for the drive -through facility will comply with the outdoor lighting standards set forth in chapter 5, article G of this title. The cemetery is zoned as RM-12; however, there are no other residential properties near the drive -through or stacking spaces. (7) Due to the location of the property and the lack of truly residential uses, if speakers are used they are unlikely to have impact on the adjacent properties. Respectfully submitted, Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www. jmcivi Idesig n.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: Specific Approval Criteria for a special exemption application at 1120 N. Dodge Street (Items requesting flexibility through the new zoning code amendment are noted in italics.) Code Section 14-48-4A-7 a. Location: The proposed dwelling unit will be located above the street level floor of the building. b. Maximum Density: The residential density standards for multi -family uses in a commercial zone and stated in section 14-2C-4 will be met. c. Residential Entrances: (1) Entrance to residential unit will not be located on the street facing side of the building but will have access to the public right-of-way via the private driveway. A sidewalk connection will be provided from the dwelling unit entrance to the driveway and proposed parking spaces. (2) Access to dwelling units will be from an enclosed lobby or corridor and stairway. (3) A maximum elevation difference of one foot (1') above the level of the sidewalk will be adhered to as close as possible for improvements around this existing building on a sloped site. d. Standards for Ground Level Floor of Building: (1) Building is an existing structure with ground floor to ceiling height of 8'-611 . (2) Ground level floor construction will meet the building code specifications for commercial uses. Respectfully Submitted, Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www. jmcivi Idesig n.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: Specific Approval Criteria for a special exemption application at 1120 N. Dodge Street (Items requesting flexibility through the new zoning code amendment are noted in italics.) Code Section 14-2C-6D & G D. Surface Parking Lot Setback Requirements: 1. Front Setback Requirements: Parking will be setback at least ten feet (10') from the front lot line. 2. Side and Rear Setback Requirements: Parking area will be located a minimum of five feet (5') from the property lines. 3. Drives: a. Drives internal to the parking area, will be setback a minimum of three feet (3') from all abutting properties. b. The drive -through lane will not be located a minimum of three feet (3') from the east property line (alley) due to the proximity of the building to the existing lot (alley) line. G. Landscaping and Screening: 1. All areas on the site not used for building, parking, vehicular and pedestrian use areas, sidewalk cafes and plazas will be landscaped with trees and/or plant materials. A landscaping plan will be submitted for site plan review. 2. Screening of the proposed drive -through lane from the public right-of-way (alley) is not possible due to the proximity of the existing building to the right-of-way and improved alley. The public alley wraps around both the east and south sides of the property. 3. Screening of the proposed drive -through lane from the residential zoned area of RM-12 (St. Joseph Cemetery) is not possible due to the proximity of the existing building to the right-of-way and improved alley. The RM-12 zoning includes the property east and south of the adjoining alley. 4. Screening of the proposed drive -through lane from open space area (St. Joseph Cemetery) is not possible due to the proximity of the existing building to the right-of-way and improved alley. The open space area includes the property east and south of the adjoining alley. 5. Not applicable. Respectfully submitted, 'V0011 /�VZ.000� Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 wwwJmcivildesign.com November 9, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: Specific Approval Criteria for commercial reuse exception at 1120 N. Dodge Street Proposed Code Section 14-2C-11D-4 (Currently under consideration by City Council) a. Requested exceptions are necessary due to an existing building on site making it difficult to meet the standards. b. The requested exceptions will still allow the proposed development to be compatible with and complementary to adjacent developments and the intent of the zoning for the area. The site will be developed to meet all other requirements for building and site layout including open space, traffic circulation and lighting. c. The existing building on site is being modified for the proposed use and no additional entrances to the site are being added. The requested exceptions will also not adversely affect the noise, stormwater runoff, light and air, and privacy any more than would a development that satisfies the applicable standard. d. The development will be compatible to the uses allowed in the designated zoning classification and is not contrary to the intent of the standards being waived or modified. e. The exceptions will allow redevelopment and improvements to a vacant building and uncompleted parking lot, which will be in the public's interest. Respectfully Submitted, A! 0 X110 xi/�Vz-'00� Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www.jmcivildesign.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: 14-4C-21<-3 - General Approval Criteria for a special exemption application at 1120 N. Dodge Street Code Section 14-413-3k 1. The proposed site development will not be detrimental to or endanger the public health, safety, comfort or general welfare. The proposed drive -through lane and stacking spaces will not interfere with pedestrian pathways. 2. The proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. The surrounding properties are either zoned commercial or RM-12 (cemetery) and will not diminish the value of those properties. 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for use permitted in the district. All properties surrounding the site are already developed. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. The site will be utilizing an existing building, which already has utilities in place and is accessed from Dodge Street. 5. Ingress and egress will be via and existing entrance off of Dodge Street with and egress utilizing the improved alley located along the south and east sides of the property and connecting to Dodge Street. 6. Except for the specific exceptions being considered, the site design will conform to the applicable zoning standards and regulations. 7. The use for the site is allowed within the current CC-2 Zoning. This zoning and use are consistent with the Comprehensive Plan of the City, as amended. Respectfully submitted, 'EX , Pa. r 41W I Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www.jmcivildesign.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: 14-4B-4A-7 - General Approval Criteria for a special exemption application at 1120 N. Dodge Street Code Section 14-46-3k 1. The proposed site development will not be detrimental to or endanger the public health, safety, comfort or general welfare. The dwelling unit will have a sidewalk access that will not interfere with the proposed drive -through or stacking area. This entrance will be located separately from the one for the ground floor use. 2. The proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. The surrounding properties are either zoned commercial or RM-12 (cemetery) and will not diminish the value of those properties. The building is a former single-family residential building. 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for use permitted in the district. All properties surrounding the site are already developed. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. The site will be utilizing an existing building, which already has utilities in place and is accessed from Dodge Street. 5. Ingress and egress will be via and existing entrance off of Dodge Street with and egress utilizing the improved alley located along the south and east sides of the property and connecting to Dodge Street. 6. Except for the specific exceptions being considered, the site design will conform to the applicable zoning standards and regulations. 7. The use for the site is allowed within the current CC-2 Zoning. This zoning and use are consistent with the Comprehensive Plan of the City, as amended. Respectfully submitted, Calisse McPherson Project Manager 2550 Middle Road, Suite 602 Bettendorf, IA 52722 Ph. 563.345.3470 www.jmcivildesign.com November 1, 2020 City of Iowa City Urban Planning 410 E. Washington Street Iowa City, IA 52240 RE: 14-2C-6D & G - General Approval Criteria for a special exemption application at 1120 N. Dodge Street Code Section 14-46-3k 1. The proposed site development will not be detrimental to or endanger the public health, safety, comfort or general welfare. Although the drive -through lane will not meet the minimum of three feet (T), there is an alley between the drive -through and the adjoining property and the two areas will be clearly defined with striping or other visible delineators. 2. The proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. The surrounding properties are either zoned commercial or RM-12 (cemetery) and will not diminish the value of those properties. The property to the east where the setback and screening is not possible is already adjoining an existing alley. 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for use permitted in the district. All properties surrounding the site are already developed. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. The site will be utilizing an existing building, which already has utilities in place and is accessed from Dodge Street. 5. Ingress and egress will be via and existing entrance off of Dodge Street with and egress utilizing the improved alley located along the south and east sides of the property and connecting to Dodge Street. 6. Except for the specific exceptions being considered, the site design will conform to the applicable zoning standards and regulations. 7. The use for the site is allowed within the current CC-2 Zoning. This zoning and use are consistent with the Comprehensive Plan of the City, as amended. Respectfully submitted, pool uwd dill y dip Calisse McPherson Project Manager Ln �o Ln Ln O � Ln QD W Ln Ln Ln Ln Ln N N cV N M N N N N N N N N C N Ln Ln Ln � � � O� O� � � � � � V � CL N Mo a a M Q w w Q a Q a Q a 0 0 a Q a Q a LU b.0 V U U U U= 0 0 0 U U U U U Q a a a a a a a a a a .� W W O 0 0 0 0 o z 03: 3: 0 0 0 0 0 � N 00 LU U w a Z W W U U J z � 2 D Ln I;t O 0) N rl a UO z � O 0 O z Q O U Z 2 a a 0o J � Q W a LL 0 N U � C,6 a LL >- Ln W W J = �aoc G � a oo cn W 0 O z N J J w w W D 0 z O z 0 z Z W rl � rl � a a a a z z O O w w O O N N 00 00 Ln Ln Ln cn cn cn cn W W W W W 0 0 0 0 0 O O O O O 0 0 0 0 0 z z z z z (.o 00 t � Ln rl O rl O N rl rl rl (N rl � c-I r c� = = = cc oc 0 0 0 0 0 m m m m m W W W W W z z z z z LEGAL DESCRIPTION LOT 8 IN BLOCK 4 OF ST. MATTHIAS ADDITION AND THAT PART OF VACATED ALLEY RIGHT OF WAY BEGINNING AT THE NORTHEAST CORNER OF SAID LOT 8 IN BLOCK 4 OF ST. MATTHIAS ADDITION; THENCE NORTHEASTERLY ALONG THE NORTHEASTERLY EXTENSION OF THE NORTH LINE OF SAID BLOCK 4 AND THE SOUTHERLY LINE OF NORTH DODGE STREET (FORMERLY KNOWN AS MILITARY ROAD), NORTH 64013'55" EAST, A DISTANCE OF 10.96 FEET TO A LINE WHICH IS 10.00 FEET EASTERLY OF AND PARALLEL WITH THE EAST LINE OF SAID LOT 8; THENCE SOUTHERLY ALONG SAID PARALLEL LINE, SOUTH 00047'37" EAST, A DISTANCE OF 139.05 FEET TO A POINT ON THE EASTERLY LINE OF SAID BLOCK 4; THENCE SOUTH 3104226" WEST, A DISTANCE OF 18.61 FEET TO THE SOUTHEAST CORNER OF SAID LOT 8; THENCE SOUTHWESTERLY ALONG THE SOUTHERLY LINE OF SAID LOT 8, SOUTH 64012130" WEST, A DISTANCE OF 88.84 FEET TO THE SOUTHWEST CORNER OF SAID LOT 8 THENCE NORTHERLY ALONG THE WEST LINE OF SAID LOT 8, NORTH 00047,37" WEST, A DISTANCE OF 150.25 FEET TO THE NORTHWEST CORNER OF SAID LOT 8; THENCE NORTHEASTERLY ALONG THE NORTH LINE OF SAID LOT 8 AND THE SOUTHERLY LINE OF SAID NORTH DODGE STREET, N 64013'55 EAST, A DISTANCE OF 88.78 TO THE NORTHEAST CORNER OF SAID LOT 8 AND THE POINT OF BEGINNING; THE DESCRIBED REAL ESTATE CONTAINS 13,519 SQUARE FEET, MORE OR LESS. STAFF REPORT To: Board of Adjustment Prepared by: Kirk Lehmann, Associate Planner Item: EXC20-0007 Date: December 9, 2020 Parcel Number: 1010380009, 1010380008, 1010380007, 1010380006, 1010380005, 1010380004 GENERAL INFORMATION: Applicant: Neumann Monson Architects 221 E. College Street, Suite 303 Iowa City, IA 52240 Contact Person: Nathan Griffith Neumann Monson Architects 221 E. College Street, Suite 303 Iowa City, IA 52240 ngriffith@neumannmonson.com Property Owner(s): Requested Action: Purpose: Location: Location Map: Tailwind Group 530 S. Front Street Mankato, MN 56001 ksmith@thetailwindgroup.com 60% reduction of minimum parking requirement To allow the renovation of existing historic properties, demolition of some additions, and new construction of a residential tower 109, 111, 113-1155 117-119, 121, 127 E. College St 1, Jul 'n.-- ' I E COLLEGE ST 1 Size: Existing Land Use and Zoning: Surrounding Land Use and Zoning Applicable Code Sections: File Date: 0.7 acres Mixed Uses; Central Business (CB-10) and Historic Overlay (OHD) North: Mixed Uses; Central Business (CB-10) East: Mixed Uses; Central Business (CB-10) South: Mixed Uses; Central Business (CB-10); Riverfront Crossing -South Downtown (RFC - SD) West: Mixed Uses; Central Business/Institutional Public (CB-1 O/P2) and Neighborhood Public (Pl) 14-4B-3A: General Approval Criteria 14-5A-4-F6: Parking Reduction for Other Unique Circumstances Nov 12, 2020 BACKGROUND: Neumann Monson Architects submitted a special exception application to request a 60 percent reduction in the required minimum number of parking spaces for the subject properties at 109, 111, 113-1157 117-119, 1211 127 E. College Street. This would allow the renovation of existing historic properties on the pedestrian mall and the construction of a new multi -family building behind them. This proposal is part of a larger effort to protect the existing historic storefronts along the south side of College Street which began last year in collaboration with City staff and City Council's Economic Development Committee. These buildings are key contributors to the historic fabric of downtown Iowa City but currently have no protection from demolition. They are currently zoned Central Business (CB-1 0) zones and contain a mix of commercial and residential uses. Designation as a local historic landmark is a zoning overlay process which requires review by the Historic Preservation Commission and Planning and Zoning Commission, with final approval by City Council. The application for a Historic District Overlay for the subject properties (REZ20-02) was recommended for approval by the Historic Preservation Commission on May 14, 2020 and the Planning and Zoning Commission on May 21, 2020. City Council is currently in the process of reviewing the local historic landmark rezoning application. The proposed project consists of two components, as shown in the site plan (Attachment 4): 1. Renovation of existing structures along the pedestrian mall, which will include 10 one - bedroom apartments and the demolition of the rear additions of some buildings; and 2. A new 11-story multi -family building to the south of the existing structures, which will include parking and 26 one -bedroom, 68 two -bedroom, and 8 three -bedroom apartments. Access to the two levels of parking is proposed from the public alley to the south, which exits east at the terminus of S. Dubuque Street or west onto S. Clinton Street at a midblock location. S. Dubuque Street intersects E. Burlington Street at a signal -controlled intersection. Staff has some concerns with egress at S. Clinton Street and may explore converting this alley to a full or partial eastbound one-way alley. Pedestrian access is provided from the pedestrian mall and between the buildings. The proposed exception would allow the redevelopment to occur by reducing the required minimum number of parking spaces. 2 Minimum parking standards are intended to provide off street parking which accommodates most of the demand for parking generated by the use, particularly where sufficient on -street parking is not available. It also seeks to prevent parking for nonresidential uses from encroaching into adjacent residential neighborhoods. The CB-10 zone is also subject to maximum parking requirements which foster compact, pedestrian -oriented areas close to downtown and the university. Generally, off- street parking in the central business district is provided in municipal -owned parking facilities, rather than in private surface lots or structures. Only household living and hospitality -oriented uses are required to have onsite parking in the CB-10 zone, with the opportunity to reduce it through provisions which allow alternatives to minimum parking requirements. The proposed project requires 106 parking spaces for the proposed 102 dwelling units, as shown on the parking worksheet provided (Attachment 4). However, buildings designated as historic may request a parking reduction of up to 100 percent, while other potentially historic buildings may request a reduction of up to 50 percent. The 60 percent requested parking reduction would require only 42 spaces to be provided onsite, though the site plan shows 50 onsite parking spaces. ANALYSIS: The purpose of the Zoning Ordinance is to promote the public health, safety and general welfare; to conserve and protect the value of property throughout the city; and to encourage the most appropriate use of land. It is the intent of the Ordinance to permit the full use and enjoyment of property in a manner that does not intrude upon adjacent property. The Board may grant the requested special exception if the requested action is found to be in accordance with the specific criteria included in Section 14-5A-4-F6, pertaining to Parking Reductions Requirements requiring special exceptions, as well as the general approval criteria in Section 14-413-3A. For the Board of Adjustment to grant this special exception request, each of the following criterion below must be met. The burden of proof is on the applicant, and their comments regarding each criterion may be found on the attached application materials. Staff comments regarding each criterion are set below. Specific Standards: 14-5A-4-F: Parking Reductions for Other Unique Circumstances: 6. Where it can be demonstrated that a specific use has unique characteristics such that the number of parking or stacking spaces required is excessive or will reduce the ability to use or occupy a historic property in a manner that will preserve or protect its historic, aesthetic, or cultural attributes, the Board of Adjustment may grant a special exception to reduce the number of required parking or stacking spaces by up to fifty percent (50%) (up to 100 percent for properties designated as a local historic landmark, listed on the National Register of Historic Places, or listed as key or contributing structures in a Historic District or Conservation District Overlay Zone). FINDINGS: • The applicant has requested the exception to preserve the historic, aesthetic, or cultural attributes of a local historic landmark. City Council is currently considering a local historic landmark designation for the property, which would allow a parking reduction of up to 100 percent of the required minimum number of parking spaces. • The local historic landmark designation must be approved for the requested parking reduction to be requested. Therefore, staff recommends a condition that the special exception be contingent upon the adoption of the local historic landmark rezoning. 41 • The proposed redevelopment includes renovation of historic structures on the pedestrian mall and a new multi -family building behind them on the alley. • The historic properties are being preserved as part of this project whereas they could otherwise be demolished under the current zone. Without approval of the project, and the related historic rezoning, the developer would not be required to preserve the buildings in the future. • The gap analysis submitted for Tax Increment Financing (TIF) shows that additional costs, such as increased parking requirements, would increase the financing gap. • The renovation will invest in the historic properties to preserve their important historic and aesthetic attributes. General Standards: 14-4B-3: Special Exception Review Requirements: 1. The specific proposed exception will not be detrimental to or endanger the public health, safety, comfort or general welfare. FINDINGS: • The applicant has proposed 0.49 parking spaces per dwelling unit, which is similar to other recent downtown projects including Augusta Place (0.45) and Market House (0.5). 7 South Linn, which has offsite parking spaces, had approximately 35-40 percent of residents request parking last year, according to the applicant. • A reduction in parking spaces generally decreases the number of vehicular trips to the site and increases trips by other modes of transportation, such as walking and biking. • Residences close to a wide variety of employment opportunities and services, such as in downtown Iowa City, generally have a decreased demand for parking. • Three public parking ramps totaling 2,100 spaces are within a 3-minute walk of the proposed building. Some vehicular trips will likely be diverted to these parking ramps, which are intended to accommodate high trip volumes. • Before the pandemic, these three parking facilities were near capacity from 10 a.m. to 2 p.m., and monthly parking permits in these ramps have long wait lists. Available parking permits are typically first offered to businesses rather than residents. • Tenants will consider reduced onsite parking in their decision -making. It is likely the proposed project will attract tenants who do not require as much onsite parking. • Overall, the parking reduction will not be detrimental to or endanger the public health, safety, comfort, or general welfare. 2. The specific proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. FINDINGS: • Generally, downtown parking is provided in public parking facilities, rather than private surface lots or structures, to foster compact, pedestrian -oriented areas. • If there is excess demand for residential parking, it will likely not impact neighbors as there is generally enough existing parking infrastructure throughout the city to accommodate it. However, downtown parking availability may tighten as a result. • Increased pedestrian traffic around the proposed use will likely improve the commercial viability of nearby businesses. • Overall, the parking reduction will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not impair nearby property values. 4 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for uses permitted in the district in which such property is located. FINDINGS: • The downtown is already largely developed, and recent redevelopment projects have only increased the demand for additional improvements downtown. • The proposed development will likely cause temporary closures of the alley or portions of the pedestrian mall as part of construction but will otherwise not impact development or improvement of surrounding properties in the long-term. • Reducing parking specifically will not impede normal development. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. FINDINGS: • The existing alley provides adequate vehicular access to the proposed use, while the pedestrian mall provides adequate pedestrian access. • Staff will ensure adequate utilities, drainage, and other necessary facilities are being provided through the site plan review and building permitting processes. • The project is seeking tax increment financing (TIF), which will allow the project to move forward as proposed by filling the project's financing gap. TIF dollars will be rebated over 15 years but will not be limited to infrastructure improvements. 5. Adequate measures have been or will be taken to provide ingress or egress designed to minimize traffic congestion on public streets. FINDINGS: • Access to public streets is provided through a public alley which exits either east at the terminus of S. Dubuque Street or west onto S. Clinton Street at a midblock location. S. Dubuque Street intersects E. Burlington Street at a signal -controlled intersection. • Approximately 6 cars can queue on S. Dubuque Street at the signal, with additional spaces on the alley. • Depending on final trip generation characteristics, traffic signal timing at the S. Dubuque Street and E. Burlington Street intersection may need to be adjusted. • Both proposed parking level entrances are located on the alley at grade. • Adequate measures are being taken to minimize traffic congestion. 6. Except for the specific regulations and standards applicable to the exception being considered, the specific proposed exception, in all other respects, conforms to the applicable regulations or standards of the zone in which it is to be located. FINDINGS: • As the project progresses, staff will ensure that all applicable standards and regulations are met through the site plan review and building permitting processes. • If TIF dollars are used as proposed, additional requirements will need to be met including: affordable housing (at least 15% percent of units must be affordable or a fee in lieu of units must be paid); sustainability (must meet at least LEED Silver standards); minimum improvements (such as for historic properties); and other public benefits. 5 7. The proposed exception will be consistent with the Comprehensive Plan of the City, as amended. FINDINGS: • The Future Land Use map of the Comprehensive Plan designates this area for General Commercial, and includes a goal to "preserve the historic, mainstreet character of the Downtown, while encouraging appropriate infill development to enhance the economic viability and residential diversity of the area • The Downtown and Riverfront Crossings Master Plan includes objectives for the downtown district such as "protect historic character and key historic buildings" and "promote quality infill and redevelopment". The development program for the area includes it options — new construction and rehab". • While the Master Plan does not specifically highlight this block for redevelopment, projects with limited onsite parking are generally supported downtown because "the City currently addresses parking demand through a parking district approach ... Instead of addressing parking on a project -by -project or site -by -site basis." • Reducing parking to promote historic preservation and provide contextual infill development is consistent with the Comprehensive Plan. CORRESPONDENCE: The City received one piece of correspondence opposed to the proposed exception (Attachment 3). The correspondent owns 3,400 square feet of empty office space for lease nearby, and several potential tenants have declined to lease the space due to a lack of parking and long waitlists for parking permits in nearby public ramps. They note that the City needs to provide parking to keep downtown office tenants, and that exemptions can harm existing owners. STAFF RECOMMENDATION: Staff recommends approval of EXC20-0007, to reduce the minimum parking requirement by 60 percent for the properties located at 109, 111, 113-115, 117-1197 1217 127 E. College St subject to the following condition: 1. City Council adoption of a Historic District Overlay (REZ20-02) to designate the properties as a local historic landmark. ATTACHMENTS: 1. Location Map 2. Zoning Map 3. Correspondence 4. Application Materials Approved by: Danielle Sitzman, AICP, Development Services Coordinator Department of Neighborhood and Development Services X9 lilt IL J7 J � 1 . J F , ;• �i AWL • • is Einonena s iS 3n?Dnsna s CD I •t W I '• J �I U LU y CD • � J � � m W • * cz O N cn � u i cn C 4 CZ rill Cl 10. Pli _ M f �� " is. NOiN1�� S �cz bD pill cz ao cz �a-J pill u - 1 V ~ 4-J U O W N O � N r ct C a� a Q — r • 1 1 r � O !"l ---- 1 � dft O TOM m � N N a 0. 1S NO1NM S fv,v i 1 r TOM � I I• I i 1 1 is 3nionsna s '`—A- l A CO o cD _z J D m W 4-4 cz V N �`-'°� cz CZ N � O +, O C `- M Pk N bn� cz cz N p 75 c +-J cz 4 X O. 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Specific Approval Criteria To grant a special exception, the Board must find that the requested special exception meets any certain specific approval criteria listed within the Zoning Code. In this attachment, address each of the specific approval criteria that apply to the special exception being sought. Your responses to these criteria may be opinions but should provide specific information demonstrating that the criteria are being met. Specific approval criteria for uses listed as special exceptions are described in 14-413-4 of the Zoning Code. Other types of special exceptions to modify requirements for the property are listed elsewhere in the Code. If you do not know where to find the specific criteria that must be addressed, please contact us at 319-356-5230 or email planningzoning@iowacity.org. Failure to provide this information will constitute an incomplete application and may lead to a delay in its consideration before the Board of Adjustment. 14-5A-4-F6 Parking Reduction For Other Unique Circumstances: Where it can be demonstrated that a specific use has unique characteristics such that the number of parking or stacking spaces required is excessive or will reduce the ability to use or occupy a historic property in a manner that will preserve or protect its historic, aesthetic, or cultural attributes, the Board of Adjustment may grant a special exception to reduce the number of required parking or stacking spaces by up to fifty percent (50510) (up to 100 percent for properties designated as a local historic landmark, listed on the National Register of Historic Places, or listed as key or contributing structures in a Historic District or Conservation District Overlay Zone). This application for parking reduction per Section 14-5A-F6 continues a proposal initiated last year and reviewed with City staff, the Economic Development Committee of the City Council, the Historic Preservation Commission, and others. The project consists of two components: a mixed -use renovation of existing structures along the Ped Mall and a new multi -family construction along a parallel alley to the south. The number of parking spaces required on this property per Table 5A-1 is not physically or economically feasible without the destruction of structures under review for protection as Local Historic Landmarks. The property's unique historic value, economic model, and sustainable intent conform to the letter and intent of Section 14-5A-4-F6 `Parking Reduction for Other Unique Circumstances'. Hictnrir Vnhip To best protect the Ped Mall's existing historic storefronts, Tailwind Group has applied to voluntarily rezone its East College St Development properties so they can join the College Block as Local Historic Landmarks. Landmark designation grants protection from demolition in perpetuity and is critical to the block's overall concept. Since its application, Tailwind has worked closely with Staff and the Historic Preservation Commission (HPC) to align the project with the City's goals. HPC recommended approval for Local Historic Landmark status and City Council has followed by unanimously passing a motion for first consideration to rezone the property from CB10 to CB10 with a Historic District Overlay (REZ20-02). HPC has expressed strong preliminary support for the project and will vote regarding approval recommendation to Council on Nov. 12. Economic Model Saving the original, pre-1900's structures while removing later additions to their rear carves just enough space for a 60' wide new residential building on the site's southern portion. The residential building is the economic engine needed to fund the historic buildings' rehabilitation, enabling them to regain their status as vibrant contributors to downtown Iowa City's retail community. The buildings' original depths effectively right - size rentable retail space, offering an affordable footprint. Tenant viability yields commercial vitality, which in turn preserves and enhances the historic character of the block, saving it for future generations. The 60' width available for the new building is sufficient for a drive aisle flanked by two aisles of parking, per Iowa City code. The project design achieves two levels of parking by sloping their floors in the opposite direction of the alley's east -west slope; a configuration that allows each level to connect directly to grade. This strategy effectively maximizes the site's parking potential. The requirement of more levels of parking above or below the two proposed parking levels would not be feasible and, therefore, the project would not be viable. Sustainable Intent The property is ideally positioned to minimize vehicular needs and contribute to a walkable city. New construction is on track to achieve LEED Gold certification, a TIF agreement requirement emblematic of Iowa City's commitment to sustainability. LEED certification rewards parking reduction to minimize harms associated with parking facilities including automobile dependence, land consumption, and rainwater runoff. General Approval Criteria Narrative The Tailwind Group's East College Street Development project requests a 60% reduction in required parking. General Approval Criteria In addition to the specific approval criteria, the Board must also find that the requested special exception meets the following general approval criteria or that the following criteria do not apply (14- 413-3). In your attachment, provide specific information, not just opinions, that demonstrate that the specific requested special exception meets the general approval criteria listed below or that the approval criteria are not relevant in your particular case. 1. The specific proposed exception will not be detrimental to or endanger the public health, safety, comfort, or general welfare. 4 Updated 06.01.2020 A reduction in parking will enhance public health, safety, comfort, and general welfare by virtue of its environmental sustainability and as a critical factor in the success of a civic -minded project 2. The specific proposed exception will not be injurious to the use and enjoyment of other property in the immediate vicinity and will not substantially diminish and impair property values in the neighborhood_ Parking options in the immediate vicinity consist of metered on -street parking, City - managed surface lots, and municipal parking ramps. Potential concerns over parking overflow would not apply to nearby properties, which do not include private parking. 3. Establishment of the specific proposed exception will not impede the normal and orderly development and improvement of the surrounding property for uses permitted in the district in which such property is located. By enabling the viability of the property's proposed development, the establishment of the proposed exception will encourage the normal and orderly development and improvement of the surrounding property for permitted uses. 4. Adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. Adequate infrastructure is being provided. 5. Adequate measures have been or will be taken to provide ingress or egress designed to minimize traffic congestion on public streets. Adequate ingress and egress have been designed. The property's requested parking reduction will correlate to reduced traffic congestion. 6. Except for the specific regulations and standards applicable to the special exception being considered, the specific proposed exception in all other respects conforms to the applicable regulations or standards of the zone in which it is to be located. [Depending on the type of special exception requested, certain specific conditions may need to be met. The applicant will demonstrate compliance with the specific conditions required for a particular use as provided in the City Code section 14-413 as well as requirements listed in the base zone or applicable overlay zone and applicable site development standards (14-5A through K).] The project conforms to all other applicable regulations and standards of the zone is which it is to be located. 7. The proposed use will be consistent with the Comprehensive Plan of the City. The proposed use epitomizes multiple points of the Comprehensive Plan's Community Vision Statement. 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CL Mailing Name Mailing Address2 Mailing Address3 Mailing Zip Code PC ONE LC 250 12TH AVE STE 150 CORALVILLE, IA 52241 BOARD OF REGENTS F/B/O UNIVERS 4 JESSUP HALL IOWA CITY, IA 52240 STEVEN C BERNHARDT 1635 RIDGE RD IOWA CITY, IA 52245 GERRY AMBROSE 250 12TH AVE STE 150 CORALVILLE, IA 52241 OLD CAPITOL VIEW LLC 221 E BURLINGTON ST IOWA CITY, IA 52240 301 HOLDINGS LLC 301 S DUBUQUE ST IOWA CITY, IA 52240 MARC B MOEN 221 E COLLEGE ST #300 IOWA CITY, IA 52240 JAM ES A MON DANARO 225 S LI N N ST IOWA CITY, IA 52240 TSB HOLDINGS LLC PO BOX 1490 IOWA CITY, IA 52244-1490 MARK R PIEPER 1243 DEVON DR NE IOWA CITY, IA 52240 132 S CLINTON LLC 105 5TH ST CORALVILLE, IA 52241 111113 E COLLEGE ST LLC 111 E COLLEGE ST IOWA CITY, IA 52240 TAILWIND COLLEGE STREET IC LLC 530 S FRONT ST STE 100 MANKATO, MN 56001 MOEN GROUP 221 E COLLEGE ST #1301 IOWA CITY, IA 52240 THE UNIVERSITY OF IOWA 4 JESSUP HALL IOWA CITY, IA 52242-1316 OC GROUP LC 711 S GILBERT ST IOWA CITY, IA 52240 U OF I FACILITIES CORPORATION 4 JESSUP HALL IOWA CITY, IA 52242-1316 MARC B MOEN & MICHAEL S MOEN 221 E COLLEGE ST #1301 IOWA CITY, IA 52240 GENE N OVOTNY 225 S LI N N ST IOWA CITY, IA 52240 GRADUATE IOWA CITY OWNER LLC 210 S DUBUQUE ST IOWA CITY, IA 52240 CLI NTON 138 LLC 138 S CLINTON ST IOWA CITY, IA 52240 ONE TEN PROPERTIES LLC 115 IOWA AVE IOWA CITY, IA 52240 OLD YOUNKERS BUILDING LLC 221 E BURLINGTON ST IOWA CITY, IA 52240 M I DWESTON E BANK PO BOX 1700 IOWA CITY, IA 52244-1700 U OF IOWA FACILITIES CORP PO BOX 4550 IOWA CITY, IA 52244-4550 JOHN S KOZA PO BOX 1700 IOWA CITY, IA 52244-1700 229 S DUBUQUE LLC 414 E MARKET ST IOWA CITY, IA 52245 AUDITOR'S OFFICE 913 S DUBUQUE ST STE 101 IOWA CITY, IA 52240 HIERONYMUS SQUARE DEVELOPERS L 711 S GILBERT ST IOWA CITY, IA 52240 IPCS WIRELESS INC PO BOX 8430 (DM031P666) KANSAS CITY, MO 64114 VERIZON WIRELESS PO BOX 2549 ADDISON, TX 75001-2549 T-MOBILE USA INC 12920 SE 38TH ST BELLEVUE, WA 98006 OCCUPANT OF 125 S DUBUQUE ST UNIT 1 IOWA CITY 52240 OCCUPANT OF 125 S 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CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 307 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 308 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 309 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 310 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 311 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 312 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 401 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 402 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 403 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 404 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 405 IOWA CITY 52240 OCCUPANT OF 229 S DUBUQUE ST UNIT 406 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 407 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 408 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 409 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 410 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 411 IOWA CITY 52240 OCCUPANT OF 229 S DU BUQU E ST U N IT 412 IOWA CITY 52240 OCCUPANT OF 314 S CLINTON ST IOWA CITY 52240 OCCUPANT OF 136 S DUBUQUE ST IOWA CITY 52240 OCCUPANT OF 130 S DUBUQUE ST IOWA CITY 52240 Tailwind Parking Reduction Application Legal descriptions in the Original Town 125 East College Street; BLK 82 Lot 1 EXC E 38.5' 117-121 ; BLK 82 Lot 2 W33' and E 47' 115 ; BLK 82 Lot 3 E22' 111 ; BLK 82 Lot 3 E 38.75' of west 58.05' 109 : BLK 82 Lot 3 W 19.3' MINUTES PRELIMINARY BOARD OF ADJUSTMENT FORMAL MEETING NOVEMBER 18, 2020 — 5:15 PM MEMBERS PRESENT: Gene Chrischilles, Zephan Hazell, Bryce Parker (arrived late), Amy Pretorius MEMBERS ABSENT: Ernie Cox STAFF PRESENT: Susan Dulek, Kirk Lehmann OTHERS PRESENT: Jon Marner, Clifford Reif, Andrea Farley CALL TO ORDER: The meeting was called to order at 5:15 PM. ROLL CALL -- A brief opening statement was read by Pretorius outlining the role and purpose of the Board and the procedures that would be followed in the meeting. SPECIAL EXCEPTION ITEM EXC20-0002 & EXC20-0003: An application submitted by MMS Consultants requesting a special exception to allow a drive - through lane in a Community Commercial (CC-2) zone and a special exception to allow a 15,000 square foot general manufacturing use in a CC-2 zone for a new coffee shop and bakery at 531 Highway 1 West. Pretorius opened the public hearing. Lehmann noted they are discussing two special exception applications tonight to allow a drive - through lane and a general manufacturing use of up to 15,000 square feet in a CC-2 zone for a new coffee shop/bakery located at 531 Highway 1 West. Lehmann showed a map of the area and the property as well as the zoning map. The property is in the CC-2 zone and surrounded by other CC-2 zones and intensive commercial zones. As for current characteristics, the lot is an odd shape because it's pretty deep for how wide it is. It's 125 feet wide and 550 feet deep. Lehmann showed an existing building on the north side, a parking lot in the middle and the south remains undeveloped. The lot does have trees and a natural stormwater channel to the south. There's vehicular access from a signal controlled intersection with Highway 1 to the north, which leads to a private frontage drive that is on the property itself, and which also serves adjacent lots. Lehmann noted there's also a pedestrian crossing over Highway 1 at that intersection that terminates about 15 feet from the north property line and access into the site is achieved through a drive around the building as well as parking lot drive aisles for internal access. Lehmann noted there's currently a continuous curb cut along the frontage road in front of the building and the building is abutting the frontage drive Board of Adjustment November 18, 2020 Page 2 of 10 with the parking lot behind it and the undeveloped area to the south. The existing building is vacant. Lehmann showed photos of the property from various angles and noted some larger trees mostly along the parking lot and in the southeast corner as well as a stormwater channel that runs through the south part of the lot and along the east property line. Lehmann next showed the proposed site plan for the coffee shop and bakery. The first part of the application is the proposed coffee shop which would replace the existing building along the frontage road and would reduce the vehicular access from the continuous curb cut to a one way drive that would go around the building. The entry is shown to the west and the exit to the east. There would be two drive -through lanes which require this special exception, one is a standard drive through lane and the other is a mobile pickup lane that would allow bypassing of people ordering. The lanes merge into a single lane beside the building where there are two windows on the east building face. The order board would be south of the building and face southeast. Lehmann noted there's also a proposed pedestrian connection from the Highway 1 crossing. For the bakery, Lehmann said it would be constructed on what is now undeveloped land on the south side of the site and vehicular access would be achieved from the one way drive which would run parallel to where the drive -through lanes are. Pedestrian access also will be provided from the coffee shop to this building. Parking loading spaces would be on the north side of the building with enough room to maneuver. Lehmann pointed out some complications are part of the site as already noted because it is undeveloped. There is an existing stormwater channel, so stormwater management has to be carefully considered. Additionally, there are some existing trees which may trigger a sensitive areas ordinance. The role of the Board of Adjustment tonight is to approve, approve with conditions or denying the application based on the facts presented. To approve the special exception the Board must find that it meets all applicable approval criteria which includes specific standards pertaining to the waivers requested and then also general standards for all special exceptions. To begin with the specific standards pertaining to the drive -through are found at 14-4C-2K-3 and are grouped into three sections: (1) access and circulation, (2) location and (3) design standards. For access and circulation, the transportation system has to be capable of safely supporting the proposed drive -through use in addition to the existing uses in the area looking at things like street capacity, level of service, effects on circulation, access requirements, separation of curb cuts, and pedestrian safety which is all considered through several criteria. First, wherever possible and practical drive -through lanes shall be accessed from secondary streets, alleys or shared cross access drives. Staff finds that access is provided from Highway 1 via a private shared access point and frontage road on the property. The private frontage road provides circulation to the property. The proposed drive -through lane is accessed from the one- way internal drive around the building from the west to the east and it's a frontage street, not a primary street. The second criteria is to provide for safe pedestrian movement, the number and width of curb cuts serving the use may be limited. A proposal for a new curb cut on any street is subject to the standards and restrictions in chapter 5 article C of this title. Staff finds there is currently a continuous curb cut along the frontage drive and the proposal replaces that with restricted access with one entry and one exit. Pedestrian access is currently limited on the site as well despite the bus stop and the Highway 1 crosswalk about 15 feet north of the property. The proposal includes a pedestrian route which connects these to the proposed buildings to Board of Adjustment November 18, 2020 Page 3 of 10 provide for safe pedestrian movement and that pedestrian route will be clearly demarcated across the frontage road and internal drives. Third, an adequate number of stacking spaces must be provided to ensure traffic safety is not compromised, a minimum of six spaces is recommended for facilities associated with eating establishments. Staff finds that the proposal includes stacking spaces for 16 vehicles, which exceeds that minimum requirement, 10 of those would be for the standard drive -through lane and six would be for the mobile order lane. In addition, the entry to the drive -through lane is more than 150 feet from the frontage road entry so there are little chances of spillover effects onto that frontage drive. Research does indicate that coffee shop uses can produce long maximum queues in excess of 10 cars in high traffic areas but due to the proposed design queuing is not expected to compromise traffic safety. Fourth criteria is sufficient onsite signage and pavement markings shall be provided to indicate direction of vehicular travel, pedestrian crossings, stop signs, no entrance areas and other controls to ensure safe vehicular and pedestrian movement. The site plan shows directional arrows at all access points to the site, directional signs at each curb cut from the frontage road, and pavement markings that denote drive -through lanes and direct automobile traffic and truck traffic around and through the site. Lehmann reiterated pedestrian crossings are demarcated on the site plan. Next Lehmann discussed the location standards for drive -through lanes. Generally, drive - through lanes and service windows must be located on a non -street facing facade unless the applicant can demonstrate that the street facing location is preferable. In this case, staff finds the drive -through lanes and service windows are not on the street facing facade. Second is that drive -through lanes must be set back at least 10 feet from adjacent lot lines and public rights -of - way and screened from view according to the design standards. Lehmann stated the drive - through lines are set back appropriately as they are more than 15 feet from adjacent properties to the east and west and are further than that from the Highway 1 right-of-way. The site plan also shows appropriate screening provided along the east and west property lines within the five-foot setback and staff will ensure compliance with screening standards during site plan review. Design standards for drive -through uses look at the number of drive -through lanes, stacking spaces and paved area necessary so the drive -through facility will not be detrimental to adjacent properties or detract from or interrupt pedestrian circulation or the commercial character of the area. The Board of Adjustment may increase or reduce these standards depending on circumstances. The first design standard is to promote compatibility with surrounding development, the number of drive -through lanes should be limited such that the amount of paving and stacking space does not diminish the design quality of the streetscape or the safety of the pedestrian environment. Staff finds in this case that properties in all directions have commercial zoning and uses including those across from Highway One. Also the site plan shows two 11-foot wide drive -through lanes merging into a single lane on the site plan. The drive -through lanes are at the rear and side of the building, which limits effects to the streetscape and where pedestrian routes cross the frontage road, drive -through lanes or internal access drives, they are clearly the marked which ensures pedestrian safety. Second, the drive - through lane bays and stacking spaces shall be screened from views from the street and adjacent properties and more for residential properties. Lehmann reiterated this site is not near any residential properties and screening is proposed along the easternmost property lines within the five-foot setbacks. Third is that multiple windows servicing a single stacking lane should be considered to reduce the amount of idling on site. This proposal has a mobile order bypass lane in addition to the primary drive -through lane which contains the order board, and a second Board of Adjustment November 18, 2020 Page 4 of 10 service window is also included in the proposal. Fourth, stacking spaces, driveways and drive - through windows shall be located to minimize potential for vehicular and pedestrian conflicts and shall be integrated into the surrounding landscape and streetscape design of the neighborhood in which it is located. Lehmann showed on the site plan pedestrian access is through the site from Highway 1 by the coffee shop and to the bakery. Given the lot dimensions, vehicular and pedestrian conflicts are minimized to the extent possible, there are a couple pedestrian crossings over stacking spaces and driveways but again, given the relatively narrow lot layout, it meets that criteria. In addition, the automobile and truck traffic provided through one-way drives minimizes conflicts between the two. However, truck traffic may temporarily impede traffic flow on internal drives as it accesses the bakery but it's expected to be minimal. Finally, stacking spaces, driveways and drive -through windows are generally hidden from the streetscape and are consistent with the design of the area. Fifth, the lighting for the drive - through facility must comply with the outdoor lighting standards set forth in chapter 5 article G of this title and must be designed to prevent glare on residential properties. Staff will review new lighting for compliance with current code standards during site plan review and there are no surrounding residential properties. The sixth criteria was repealed in 2016. The final seventh criterion is that loudspeakers or intercom systems if allowed should be located and directed to minimize disturbance to adjacent uses. Special consideration should be given to locations adjacent to residential uses to ensure they do not diminish residential character. Lehmann stated the intercom systems in the order boards are directed southeast towards the parking lot of the adjacent commercial property and there are no residential uses in the area. Lehmann next discussed the specific standards on general manufacturing use in a CC-2 zone found at 14-413-4C-1 which is regarding the bakery on the site. He explained there are five related criteria and the first is the proposed use is limited to a "cottage industry" as defined in chapter 9 article A of this title. The "cottage industry" definition in the zoning code is "a firm that manufacturers and/or assembles goods that are intended for retail sale to the general public. The goods may also be sold at wholesale to other outlets or firms but retail sales is a significant component of the operation. The manufacturing component for such a firm is small in scale. Size limitations may apply to such uses in commercial zones to keep the uses and scale and character with surrounding land uses." In this case, the bakery will provide goods to coffee shops for direct retail sale and the manufacturing component complies with size limitations associated with this zone. Therefore, the proposed use does meet the City's definition of a it industry". Second, related to the size limitations, the proposed use is limited to 5,000 square feet of gross floor area, except as provided in subsection C1 e of this section. In this case the proposed use is 14,922 square feet, but meets the expectation as provided in C1 e and will be discussed in the fifth criteria of this case. Third, the proposed use must meet the performance standards for offsite impacts contained in chapter 5 article H. Lehmann stated those standards not about administration in Chapter 5 include performance standards for noise, air quality standards, odor standards, vibration and storage of combustible and flammable materials. In this case, the use is a bakery, so staff does not expect any significant issues related to air quality, noise, odor vibrations or combustible materials. There may be some minor impacts caused by truck traffic but generally surrounding uses aren't potentially sensitive uses like residential uses and staff will ensure that the use meets performance standards for offsite impacts during site plan review. Fourth, general manufacturing uses are prohibited if they are one of six different specific uses, which include (1) chemicals and allied products, (2) milling and processing of grain, (3) leather tanning, (4) motor vehicles, (5) manufacturing or processing of rubber plastics and (6) textile mills. The proposed bakery will provide baked goods to eating establishments which is not a prohibited use. Fifth, which relates to the third criteria, states the Board of Adjustment November 18, 2020 Page 5 of 10 limit on the floor area for proposed use may be increased from 5,000 up to 15,000 square feet by special exception. In this case the proposed use is less than 15,000 square feet and is allowed upon approval of this special exception assuming it is approved. In addition to the specific standards the proposal must meet the general standards listed in 14- 4E-3. The first of those is that the specific proposed exception will not be detrimental to or endanger the public health safety, comfort, or general welfare. Lehmann stated there are several ways that it will improve public health, safety, comfort and general welfare. First, there's a continuous curb cut on the site across the width of the property and the proposal provides better access control to the frontage drive. In addition, generally vehicular and pedestrian circulation is improved over what is currently allowed on the site and conflicts are minimized to the extent possible given the proposed continuous pedestrian route and vehicular access. In addition, the property is accessed via a signalized intersection, which can accommodate heavier traffic, and the proposal will increase traffic but again won't be detrimental to or endanger the health, safety or welfare. Second, the proposed exception will not be injurious to the use and enjoyment of the property in the immediate vicinity and will not substantially diminish or impair property values in the neighborhood. Lehmann noted the stormwater impacts might be an issue on this site and so they must comply with the City standards to ensure surrounding properties don't experience negative effects from the development. Surrounding uses are similar to those of the proposed use so the proposed redevelopment won't impact the ability of neighbors to utilize and enjoy the properties nor will it negatively impact property values. Third, the proposed exception will not impede the normal and orderly development and improvement of surrounding property for use as permitted in the district. Generally, the surrounding neighborhood is already fully developed with a mix of commercial and light industrial uses. Lehmann did add some offsite pedestrian improvements will be needed that connect the highway crossing to the subject property, which will benefit all property owners in the area and staff is recommending that as a condition of the special exception. The proposal also aligns in an orderly manner with adjacent properties and future redevelopment of adjacent properties won't be impacted in this case. Fourth, adequate utilities, access roads, drainage and/or necessary facilities have been or are being provided. In this case, sufficient utilities, roads and facilities are established for the neighborhood and can meet the proposed site requirements. Pedestrian access will be established to the property and proposed internal circulation is sufficient for vehicular, pedestrian, and truck access to all proposed buildings on the site. Lehmann reiterated stormwater drainage currently flows to the south side of the site and along the east property line so as a condition of this special exception staff is recommending that a storm sewer or culvert will need to be included underneath the parking lot and an overland flow route will be needed to accommodate storm water and that will all be approved during site plan review. Also, as part of that, a drainage easement will need to be granted to the City prior to site plan approval. Staff is also recommending as a condition that additional City easements may be needed for public water main and hydrants on the north side of the site so that will be reviewed and approved prior to site plan approval. Fifth, adequate measures have been or will be taken to provide ingress or egress designed to Board of Adjustment November 18, 2020 Page 6 of 10 minimize traffic congestion on public streets. Again, the proposal better controls access to the frontage drive and is near a controlled signalized intersection with capacity to handle trips generated by use. There is adequate space for 16 vehicles to stack in the drive -through lanes with additional space on the internal drive if there is overflow. While coffee services provide longer queues, the site plan that is proposed will not affect ingress or egress on public streets and pedestrian access will also be established between the right-of-way and subject property. Finally, there is adequate space on the site for delivery vehicles to enter the site and to maneuver and access the bakery and coffee shop. Sixth, except for these specific regulations and standards applicable to the exception, it must in all other respects conform to the regulations and standards of the zone in which it is located. Lehmann stated staff will ensure the proposal conforms with all other applicable zoning standards and regulations during site plan review which includes screening and street tree requirements. He noted there are several matures trees on the site which may constitute a grove and trigger the sensitive areas ordinance so the applicant will need to perform a site inspection prior to submittal of a site plan to determine if that sensitive areas ordinance will be triggered or not. Seventh, the exception must be consistent with the Comprehensive Plan of the City. Lehmann noted the Comprehensive Plan Future Land Use Map shows this area as General Commercial for the district plan which in this case is the South Central District it shows areas of retail and Community Commercial. The Comprehensive Plan generally supports commercial development defined nodes that meet present and future needs for those living in the City and the District Plan also discusses the importance of upgrading landscaping and creating pedestrian access to sites in the area. So in this case, the drive -through and bakery are consistent with the Comprehensive Plan and District Plan. Staff recommends approval of EXC20-0002, to allow an accessory drive -through facility in a CC-2 zone, and EXC20-0003 to allow a general manufacturing use of between 5,000 and 15,000 square feet in a CC-2 zone, for the property located at 531 Highway 1 West subject to the following conditions: 1. Substantial compliance to site plan dated November 6, 2020. 2. Offsite pedestrian improvements shall be approved by the City Engineer prior to site plan approval and installed by the developer at the developer's expense prior to the issuance of a certificate of occupancy. 3. The owner must grant the City a drainage easement for stormwater. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. 4. The owner must grant the City additional easements for the public water main and hydrant on the north side of the property if required by the City Engineer. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. Lehmann noted in closing they did receive one public comment correspondence on the application, and it was in support of the application. Hazell asked if the bakery building will have customers walking into it. Lehmann said no, only the coffee shop building should have customers, but the applicant can confirm that. Board of Adjustment November 18, 2020 Page 7 of 10 Chrischilles asked about the pedestrian crossing at Highway 1. Lehmann showed a map of the area and the path the pedestrian crossing would take to the site. He added they may have to install a button and signal for the crossing at the frontage drive. Chrischilles asked if the bakery will have sit down service. Lehman stated the bakery will provide baked goods to this coffee shop and other coffee shops in Eastern Iowa, but no sit- down service. John Marner (MMS Consultants) noted Lehmann did a great job of highlighting the key points on both of these applications. Regarding the question on the bakery, it is not a walk-in bakery, it's strictly for the production of baked goods for various other locations throughout Eastern Iowa and actually into Des Moines and possibly even the Quad Cities. The bakery will support multiple locations. There won't be any walk-up service, it's just for production. Marner also noted that pedestrian access was very important and being able to tie into the existing crossing that's already there and provide access from the recently completed trail on the north side of Highway 1, back across to not just this site, but also to the gas station and to the other businesses that are in that location. He noted with a drive -through they always pay a lot of consideration to the amount of stacking and not just the stacking as it approaches the pickup windows and the menu boards but also exiting the site. Marner reiterated there's one continuous curb cut across the entire front edge and it shares the frontage road with the gas station to the east, which he noted is always a bit of a congestion point. So reducing the curb cuts and funneling the traffic through the entrance lane on the west side of the site will help considerably with making sure that the intersection doesn't back up and congest in the future. They also set the building back a little further from the frontage road to allow extra cars stacking up behind the pickup window without entering the frontage road. He added they tried to pay a lot of attention to ingress and egress to the site knowing its history. Regarding a few other issues, just to quickly summarize, they've done a preliminary investigation of the woodlands and it's right on the borderline of whether or not it's a grove. If they are required to go through a sensitive areas review they will complete the necessary steps to provide that application. Regarding stormwater, right now most of the detention basin, all the way over to the Walmart site, eventually flows through this detention storm channel, it has separate releases at various points but that drainage area ultimately flows through this channel. So one of the aspects of this would be to connect into the storm sewer and bury storm sewer pipe to handle the capacity as it releases from the detention basin back by the Derry Ford parking lot through the site command to the site to another large storm sewer that's on the northeast corner, sitting between the existing building and the and the gas station. Andrea Farley (director of operations for Eastern Iowa Food Service of Burlington) stated the bakery folks are working second shift to make the donuts. They load them on the semis and those trucks are leaving the lot in the middle of the night and are returning at the latest around 6am, which is well ahead of the congestion time on Highway 1 therefore she is not concerned about truck traffic causing any issues. As far as pedestrians going in and out of the building, this building will be a ghost town during the day, people will be coming in around 2pm or 3pm and the bakers will then leave late in the evening after the trucks are loaded. There is no retail over the counter service of any time from the bakery. The bakery is really a kitchen and is self- contained. Having this type of bakery enables them to open more locations throughout the state. Chrischilles asked if there will be a sit-down area inside the coffee shop. Farley replied yes, while presently at their locations it is not allowed, they hope to be able to resume dine -in Board of Adjustment November 18, 2020 Page 8 of 10 service. Even so, most folks come in, order their food, order their drinks, grab them and then leave the restaurant and most of their businesses drive -through. Chrischilles asked then what is the purpose of the pedestrian walkway from the coffee shop to the bakery. Lehmann noted that was in the site design criteria for commercial uses in this zone, there is a requirement to try and connect buildings with pedestrian walkways. In this case, it would be if there were employees that were walking there to work or biking there would have some sort of demarcated path. The public hearing is now closed. Pretorius closed the public hearing. Chrischilles moved approval of EXC20-0002, to allow an accessory drive -through facility in a CC-2 zone subject to the following conditions: 1. Substantial compliance to site plan dated November 6, 2020. 2. Offsite pedestrian improvements shall be approved by the City Engineer prior to site plan approval and installed by the developer at the developer's expense prior to the issuance of a certificate of occupancy. 3. The owner must grant the City a drainage easement for stormwater. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. 4. The owner must grant the City additional easements for the public water main and hydrant on the north side of the property if required by the City Engineer. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. Hazell seconded the motion. Pretorius said there's not much to talk about here, it was a very thorough presentation and makes a lot of sense. She is a big fan of businesses going in where businesses have been previously closed for a period of time. Chrischilles stated regarding agenda item EXC20-0002 he concurs with the findings set forth in the staff report of this meeting date, November 18, 2020 with the recommended conditions presented by staff, and concludes that the general and specific criteria are satisfied unless amended or opposed by another board member. He recommends that the Board adopt the findings in the staff report for the approval of this proposal. Hazell seconded the findings. A vote was taken and the motion carried 3-0 (Parker abstained). Chrischilles moved approval of EXC20-0003 to allow a general manufacturing use of between 5,000 and 15,000 square feet in a CC-2 zone, for the property located at 531 Highway 1 West subject to the following conditions: 1. Substantial compliance to site plan dated November 6, 2020. 2. Offsite pedestrian improvements shall be approved by the City Engineer prior to site plan approval and installed by the developer at the developer's expense prior to the issuance of a certificate of occupancy. Board of Adjustment November 18, 2020 Page 9 of 10 3. The owner must grant the City a drainage easement for stormwater. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. 4. The owner must grant the City additional easements for the public water main and hydrant on the north side of the property if required by the City Engineer. The easement area must be approved by the City Engineer, terms approved by the City Attorney, and the easement granted to the City prior to site plan approval. Hazell seconded the motion Chrischilles stated regarding agenda item EXC20-0003 he concurs with the findings set forth in the staff report of this meeting date, November 18, 2020 with the recommended conditions presented by staff, and concludes that the general and specific criteria are satisfied unless amended or opposed by another board member. He recommends that the Board adopt the findings in the staff report for the approval of this proposal. Hazell seconded the findings. A vote was taken and the motion carried 3-0 (Parker abstained). Pretorius stated the motions declared approved, any person who wishes to appeal this decision to a court of record may do so within 30 days after this decision is filed with the City Clerk's Office. CONSIDER THE OCTOBER 14, 2020 MINUTES: Chrischilles moved to approve the minutes of October 14, 2020. Hazell seconded the motion. A vote was taken and the motion carried 4-0. ADJOURNMENT: Chrischilles moved to adjourn this meeting, Hazell seconded, a vote was taken and all approved. Board of Adjustment November 18, 2020 Page 10 of 10 BOARD OF ADJUSTMENT ATTENDANCE RECORD 2020 NAME TERM EXP. 118 2/12 4/8 5113 5/27 6/10 7115 10/14 11118 CHRISCHILLES, GENE 12/31/2022 X X X X X X X X X COX, ERNIE 12/31 /2020 X O/E X X X X X O/E O/E HAZELL, ZEPHAN 12/31 /2021 X O/E X X X O/E X X X PARKER, BRYCE 12/31 /2024 0/E X X X X X X X X PRETORIUS, AMY 12/31 /2023 X X X X X X X X X Key: X = Present O = Absent O/E = Absent/Excused -- -- = Not a Member