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Item 3.2 Carpentier Properties - Stephe's Garage (PUD)3601 Thurston Avenue Anoka, MN 55303 763.231.5840 TPC@PlanningCo.com 1 PLANNING REPORT TO: Otsego Planning Commission FROM: D. Daniel Licht REPORT DATE: 11 May 2023 RE: Otsego – GRC/Steph’s Garage; PUD Concept Plan TPC FILE: 101.02 BACKGROUND Carpentier Properties LLC has submitted a concept plan for development of a minor auto repair use within Outlot A, Shoppes at Great River Centre Second Addition, which is located at the southwest corner of Parson Avenue and 87th Street within the Great River Centre of Otsego commercial development. PUD Concept Plan applications are processed in accordance with Section 11-36-4.C of the Zoning Ordinance to provide comment to the developer as to the acceptability of the land use and identify any issues with the proposed development. The City requires that PUD Concept Plan reviews include a public hearing before the Planning Commission so that surrounding property owners have an opportunity to be informed about the project and ask questions or provide comment. A public hearing to consider the PUD Concept Plan application has been noticed for the Planning Commission meeting on 15 May 2023 at 7:00PM. Exhibits: Site Location Map Concept Images (21 sheets) PUD Design Guidelines (pages 7-11) ANALYSIS Comprehensive Plan. The 2012 Comprehensive Plan guides the subject site within the Great River Centre of Otsego for commercial land use as part of the City’s primary retail, service, and office area. The proposed minor auto repair use will serve both local and regional patrons consistent with the intended land uses for this commercial area. The City has been careful in Item 3.2 2 considering locations appropriate for automobile oriented uses within this commercial area to provide for a balance of business types and compatibility with existing and future land uses in the area. The GRC PUD District Design Guidelines and Zoning Ordinance provide further guidance as to development of uses such a minor auto repair within the area a means test for the Planning Commission to evaluate if the proposed use is appropriate at this specific location. PUD District. The City Council approved a PUD District for the Great River Centre of Otsego on 13 March 2006. The PUD District is based upon the uses and performance standards as allowed within the B-3, General Business District. The City Council approved a Zoning Ordinance amendment on 27 March 2023 establishing the B-1, Retail Business District to provide for a range of uses to develop along the Parrish Avenue (CSAH 42) corridor, including the Great River Centre PUD District. The PUD District also established PUD Design Guidelines to provide additional standards for use and development within the Great River Centre of Otsego. The area within Great River Centre of Otsego bounded by 87th Street/Quaday Avenue/85th Street/Parrish Avenue (CSAH 42) is designated as a Village Commercial where development is to be based upon traditional neighborhood design in terms of uses, site planning, and architecture. This character is to be focused more towards with a build-to line from the Parson Avenue right-of-way, site design requirements intended to orient off-street parking to the side or rear of the site, and maximizing pedestrian accessibility. The City has implemented these recommendations focusing primarily on the abutting lots to the east and west of Parson Avenue:  The Edina Realty office, Lil Explorers day care and The Village apartments have developed on the east side of the street. The uses are retail, service, and residential uses respectively. The site designs include placing the buildings at a maximum 20 foot build-to line from Parson Avenue with windows or active spaces oriented to face Parson Avenue, and each lot has pedestrian connections to the sidewalk on Parson Avenue.  The west side of Parson Avenue between 87th Street and 85th Street is currently undeveloped. There are three potential development sites west of Parson Avenue, including the current proposal, one south of the shared Parson Avenue access to Wings Financial and Tires Plus, and at the northwest corner of Parson Avenue and 85th Street.  Auto oriented uses in the form of Wings Financial, Tires Plus, and Due North Car Wash were approved for development at the west edge of the Village Commercial area abutting Parrish Avenue (CSAH 42). The Planning Commission must consider if the proposed minor auto repair use provides the appropriate activity at this location to fulfill service needs, provide for market attraction, and promote interchange between business consistent with the character desired along Parson Avenue. 3 Building Exterior. The principal building is a one-story structure approximately 6,000 square feet in area. The majority of the building area is the eight service bays accessed via individual doors on the east and west elevations. There is a service writing desk and waiting area in the north fifth of the building with windows facing out towards 87th Street. The architectural rendering illustrates a sleek, modern design with vertical brick face materials separating large windows and dark colored panels surrounding the lobby area. Brick face extends from the lobby along the east and west elevations with glass overhead doors for access to the service bays. The south elevation is entirely a brick wall with changes in color shown in the illustration to provide variation. The exterior materials are to comply with Section 11-17-4. D of the Zoning Ordinance. The Planning Commission should also reference sections of the PUD Design Guidelines (attached) with respect to comments regarding the building design pertaining to character, mass and scale, and architectural details. The relevant pages of the PUD Design Guidelines are attached for reference. Building Height. The Great River Centre PUD District establishes height limitations intended to preserve viewsheds of the SuperTarget store as the anchor of the Great River Centre of Otsego development from TH 101 and Parrish Avenue (CSAH 42). The height of the building within the subject site is limited to three stories or 40 feet. The proposed building is within this height limit. Site Design. The PUD Design Guidelines provide direction as to the building and parking lot placement for the Village Centre. Building on corner lots are to be placed at or near the sidewalks to “hold the corner”. The building is also to be placed to screen the majority of parking from view of streets and sidewalks with parking areas to the side or rear of the building. The build-to-line shown in the PUD Design Guidelines is a requirement for buildings to serve as a maximum setback for building placement within the Village Commercial area. 4 The general layout of the submitted concept plan is in conflict with the PUD Design Guidelines by centering the building east/west within the site with overhead doors, drive aisles and parking stalls in the yard adjacent to Parkview Avenue. The developer did revise the building plan at the suggestion of City staff to locate the office/waiting room area on the north side the building for a better visual presentation to 87th Street. Lot Requirements. The proposed development requires platting a lot from the north half of Outlot A, Shoppes of Great River Centre of Otsego north of the east/west shared private drive. The area of the proposed lot would be approximately one acre with frontage to 87th Street and Parson Avenue. There is no minimum lot area or width requirement for subdivision of lots within the Great River Centre of Otsego PUD District with the necessary area and width of a specific lot based on required setbacks and a functional site plan. Setbacks. The following setbacks are required for buildings upon the subject site based on the requirements of the PUD District Design Guidelines and the B-1 District. The concept plan complies with these requirements with the exception of the build-to-line requirement from Parson Avenue. City staff recommends that the site plan be revised to locate the principal building not more than 20 feet from Parson Avenue with no parking or drive aisles within the yard abutting Parson Avenue consistent with the PUD Design Guidelines. 87th St. Parson Ave. (BUILD TO) West South Parking ROW Interior 30ft. 20ft. 0ft. 0ft. 15ft. 5ft. Access. The subject site abuts 87th Street and Parson Avenue. There are existing access to both streets shared by Wings Financial and Tires Plus that are also to be used by the proposed use, as well as an additional development south of the east/west private drive. An ingress/egress easement is in place to provide for the shared access to public streets for each of the existing and future uses. The north/south and east/west shared private drives were constructed as a temporary roadways through the subject site. It will be required that the private drive be improved to a full 24 foot wide section with curb and gutter abutting the proposed lot as part of the proposed development. Off-Street Parking. The concept plan illustrates 39 off-street parking stalls, which will be reduced to provide for Americans with Disabilities Act required accessible stalls. Auto repair uses are required to provide one off-street parking stall for each 200 square feet of net floor area. Based on a building area of approximately 6,000 square feet, 27 off-street parking stalls are required. Note that Section 11-75-6.F.5 of the Zoning Ordinance specifically requires storage of damaged vehicles, vehicles being repaired, and vehicle parts and accessory equipment must be completely inside a principal or accessory building. 5 Pedestrians. There is an existing sidewalk abutting the subject site along 87th Street. The development plan for Great River Centre of Otsego includes construction of a sidewalk on the west side of Parson Avenue. A plan for a pedestrian sidewalk along the east side of the north/south and east/west private drives must also be developed to allow for access to the proposed use, as well as the lot south of the propose use and through the subject site to Wings Financial and Tires Plus. Within the site there are to be sidewalk connections from the front entrance of the proposed building to the perimeter sidewalks. Landscaping. The concept plan illustrates general plantings adjacent to and within the proposed lot. There are existing shade trees within the boulevard along 87th Street that will need to be inspected and replaced if necessary, including replacement of one or two trees that have been removed previously. The shade trees are continued along Parson Avenue. The area between the parking area and sidewalks is shown with native grass clumps and, in the yard adjacent to Parson Avenue, metal panels that provide screening and visual interest. An application for a PUD Development Stage Plan will require a landscape plan outlining proposed location, type, size, and quantities of proposed plantings along with planting details meeting the requirements of Section 11-19-2 of the Zoning Ordinance. An irrigation system is required to be installed by Section 5-2-3.C.2 of the City Code. Signs. A plan for all signs is to be submitted with a PUD Development Stage Plan application and must comply with the GRC PUD District Design Guidelines and the Zoning Ordinance:  Wall signs may be installed on all four sides of the proposed principal building with the area of the signs limited to 15 percent of the area of the walls facing 87th Street and Parson Avenue with no individual wall sign exceeding 100 square feet.  One freestanding sign is allowed to be shared with the future use of the lot south of the east/west drive and located at the corner of 87th Street and Parson Avenue. This sign is limited to 64 square feet in area and the structure is limited to a height of 14 feet. Exterior Lighting. The design and location of exterior lighting within the subject site must comply with Section 11-16-6 of the Zoning Ordinance. An exterior lighting plan, including photometric measurements, is to be submitted with a PUD Development Stage Plan. Waste Storage. The concept plan does not illustrate waste storage within the principal building or an area for an enclosure for outdoor container storage. Handling of waste storage must be identified as part of a PUD Development Stage Plan. Utilities. The proposed development would be served by City sewer and water utilities and there are existing trunk sewer and water lines adjacent to the subject site. The proposed development would be subject to payment of utility availability charges based on the area of the proposed lot and connection charges based on the residential equivalent connection rate for the auto repair use in accordance with the City fee schedule in effect at the time of approval. 6 Stormwater. The concept plan does not illustrate provisions for a stormwater basin within the subject site. The majority of stormwater for the Great River Centre of Otsego development is managed through regional stormwater basins. However, the proposed development will be required to provide for infiltration upon the site in accordance with updated stormwater management requirements of the Minnesota Pollution Control Agency adopted after Great River Centre of Otsego was initially developed. All grading, drainage, and erosion control issues are to be subject to review and approval of the City Engineer. Park Dedication. The initial final plat of the Great River Centre of Otsego was credited as having satisfied park dedication requirements through trail improvements within the subdivision. No additional park dedication is required for approval of a final plat for the existing outlot as a lot/block. RECOMMENDATION The developer is seeking comment from the Planning Commission as to the acceptability of the proposed land use and any potential regarding the proposed building or site plan in terms of compatibility, aesthetics, or functionality in consideration of the requirements of the Zoning Ordinance and PUD Design Guidelines for Great River Centre of Otsego. The feedback provided by the Planning Commission is intended to advise the developer in making their decision as to whether to proceed with formal development applications. If the Planning Commission believes the proposed use is appropriate at this location, City staff recommends support for the proposed concept plan subject to the comments outlined below. POSSIBLE ACTIONS A. Motion to recommend support of a concept plan for Steph’s Garage subject to the following comments: 1. The proposed developement requires application for the following approvals: a. PUD Development Stage Plan b. Preliminary Plat c. Final Plat d. Vacation of existing drainage and utility easements 2. The use shall comply with the performance standards established by Section 11- 75-6.F of the Zoning Ordinance. 3. There shall be no off-street parking or drive aisles, other than the shared east/west private drive, within the yard abutting Parson Avenue. 7 4. The site plan shall comply with the following setback requirements: 87th St. Parson Ave. (BUILD TO) West South Parking ROW Interior 30ft. 20ft. 0ft. 0ft. 15ft. 5ft. 5. The existing shared private driveway shall be improved to a minimum width of 24 feet with concrete curb abutting the proposed lot, subject to review and approval of the City Engineer. 6. Pedestrian Access: a. The developer shall construct a sidewalk along the west side of Parson Avenue in accordance with Section 10-8-5.D of the Subdivision Ordinance. b. The developer shall construct a five foot wide private sidewalk to be overlaid by public sidewalk easement along the east side of the north/south private drive. c. The site plan shall provide for connections from the sidewalks at the perimeter of the proposed lot to the principal building, subject to review and approval of the Zoning Administrator. 7. A landscape plan subject to review and approval of the Zoning Administrator shall be submitted outlining proposed location, type, size, and quantities of proposed plantings along with planting details meeting the requirements of Section 11-19-2 of the Zoning Ordinance, and: a. Existing trees abutting the subject site to be preserved shall be in good health and condition or be replaced with similar species, as determined by the Zoning Administrator. b. The landscape plan shall provide for replacement of trees specified on the landscape plan for Great River Centre that have been previously removed. c. An irrigation system is required to be installed by Section 5-2-3.C.2 of the City Code. 8. All signs shall comply with Chapter 37 of the Zoning Ordinance, subject to review and approval of the Zoning Administrator. 9. All exterior lighting shall comply with Section 11-16-6 of the Zoning Ordinance, subject to review and approval of the Zoning Administrator. 8 10. Details and locations for any exterior waste storage shall comply with Section 11- 18-4.B of the Zoning Ordinance, subject to review and approval of the Zoning Administrator. 11. All grading, drainage, and erosion control issues shall be subject to review and approval of the City Engineer. 12. All utility issues shall be subject to review and approval by the City Engineer as part of a PUD Development Stage Plan and preliminary plat application. B. Motion to recommend the concept plan not be supported based on a finding that the proposed use and site plan is inconsistent with the Comprehensive Plan and intent of the Great River Center of Otsego PUD District. C. Motion to table. c. Adam Flaherty, City Administrator/Finance Director Audra Etzel, City Clerk Ron Wagner, City Engineer David Kendall, City Attorney Steph's Garage Site Location Map 921 ft Overview Legend Roads CSAHCL CTYCL MUNICL PRIVATECL TWPCL Highways Interstate State Hwy US Hwy City/Township Limits c t Parcels Steph’s Garage Otsego, Minnesota April 13, 2023 Great River Centre of Otsego Guidelines 7 IV. Site Development Outdoor Spaces Site Development Diagram Street Character Forming Elements The interaction of buildings, sidewalks, parking, streets and landscaping shape the character of the GRC and the users’ experiences. A pedestrian friendly environment requires continuous building frontage on smaller streets and can be achieved by a well coordinated built environment. Carefully planned and sized walkways, minimal pedestrian and vehicular conflicts and human scaled proportions of buildings, parking and landscape will create an appealing place to walk and drive through. Building and Parking Lot Placement At intersections, buildings should be placed at or near the sidewalk of both streets to “hold the corner.” • Within the Village Commercial District, buildings should be placed to screen the majority of the parking areas from sidewalks and streets. • Parking areas should be placed at the side and rear of buildings. All off-street parking and drive aisles shall be setback at least 10’ from the public right-of-way. • All structures must be set back a minimum of 30’ from the right-of-way of CSAH 42. • The build-to-line represents the minimum setback for building facades. The buildings must be placed 10’-18’ from the right-of-way within the Village Commercial District. • Building setbacks for the General Merchandise and Office/ Warehouse Districts must adhere to city standards as a maximum setback. A shorter front setback is encouraged. Corner Building Great River Centre of Otsego Guidelines 8 Pedestrian Access Pedestrian Access and Connectivity All buildings and parking lots must comply with ADA standards. This includes, but is not limited to, parking spaces, passenger loading, building entrances, curbs, sidewalks and trails. In order to maintain a connected pedestrian network through the site, each property owner must provide a continuous pedestrian route through the property that is visually defi ned from the vehicular traffi c. Parking Lot Edge Treatments Parking lots should be screened from sidewalks and streets with a combination of over and understory trees, hedges, massings of ornamental grasses, shrubs and perennials, and ornamental railings. Major Screening and Buffering The visual screening and sound buffering of loading and service areas is an important part of making the development an overall positive experience. Loading docks are prohibited along the front facades of buildings and must be completely screened from views from the public streets and open spaces. The exception to this are buildings on the retail main street that may maintain two front facades. Trash, recyclables and related equipment must be stored indoors or completely screened from view. Compactors must be screened from public streets and surrounding properties. Equipment used for mechanical processing, bulk storage tanks, or equipment used for suppressing noise, odors, and the like that protrudes from a side of a building or is located on the ground adjacent to a building shall be screened from public view as much as practical with materials matching the design of the building. Where miscellaneous exterior equipment cannot be fully screened with matching building materials, landscaping may be used as additional screening. Parking Buffers Great River Centre of Otsego Guidelines 9 V. Architecture The overall character of the GRC will be largely infl uenced by the architecture of its buildings. Therefore, the applicability of these guidelines should extend throughout the site as much as possible, including the village retail district and the offi ce/ warehouse district. The anchor general merchandiser and adjacent in-line retail building on Lots 2 and 3, Block 1 will form an integral part of the overall experience and aesthetic of the GRC. The proposed building design, shown in the PUD submittal package, will present its own design and personality through its high end architecture and user friendliness. The new and innovative style has been received well and embraced by the retail community on a national scale. For this reason the buildings on Lots 2 and 3, Block 1 are designed to be complimentary to the rest of the GRC site, but are not to be held verbatim to the architectural standards defi ned in the Design Guidelines Manual. Character and Style The buildings of GRC Otsego can fi nd inspiration in the agricultural and lumber milling heritage of the Otsego area. Some of these characteristics include warm-colored stone foundations, clean functional lines, and honest structural expression. Their forms are simple and straight-forward, using a limited number of exterior materials, often with panelized cladding systems. Decoration is minimal. Massing is additive and often organic - function drives scale, resulting in buildings that ramble across the landscape, broken by shadow. Otsego, unlike many other towns in the area, does not have an historic core of late 19th and early 20th century buildings – therefore, attempts to replicate or evoke stylistic elements from that era should be avoided. Some of these elements include built-up neoclassical cornices, arched or Palladian windows, pediments, repetitive pilasters or stepped massing resembling multiple, narrow lot buildings. Mass and Scale • The lines of commercial and retail buildings should be primarily horizontal, with sharp pitched roof forms providing contrast to present a bold silhouette on the horizon. The pitched roofs are also functional, offering the possibility of higher ceilings in restaurant spaces and increased daylight into stores. • New structures must be compatible in scale with the surrounding buildings and respect the pedestrian-oriented nature and urban goals of the GRC. The mass, form and scale should relate to the pedestrian scale of the street. • Each primary building on a site, regardless of size, should have clearly-defi ned, highly-visible customer entrances with features such as the following: • Canopies or porticos • Overhangs • Recesses/ projections • Arcades or pergolas • Peaked roof forms • Display windows • Integral planters or wing walls that incorporate landscaped areas and/or places for sitting. • Building Corners – Intersections and well designed building corners can evolve into unique spaces of concentrated activity where pedestrians gather. In addition to the required increase in building setbacks at street intersections, enhanced building corners are strongly encouraged to enliven the streetscape in the Village Commercial District. • Larger building setbacks at corners and enhanced building corner design are encouraged to create spaces for active outdoor uses such as cafe seating, art, plazas, water features etc. • Where possible, active intersections characterized by similarly designed or scaled building corners on opposite sides of the street are encouraged. • Enhanced building corners can include elements such as towers or other architectural appendages, windows, canopies, signs, outdoor seating and building entrances. Great River Centre of Otsego Guidelines 10 Building Materials • The use of quality building materials for new structures reinforces the image and character of the GRC. Particularly on the ground fl oor of buildings, quality building materials convey a sense of richness to the pedestrian environment. Quality, durable materials are encouraged. • Exterior material treatment used on the building walls should be continuous and consistent on all elevations in order to achieve a uniform and complete design and should avoid a “veneer” look. • Quality materials promote a sense of permanence and are encouraged. Building materials and texture on the ground fl oor add to the pedestrian experience. • Parapets, banding, belt courses, reveals, and other types of architectural details in different materials should be incorporated to add visual interest and texture. • Materials such as stone, brick, precast concrete, cast stone and architectural metals can be combined to enrich the appearance of a building and highlight architectural features. • All exterior metals and plastics (vents, fl ashing, gutters, etc.) must be screened from view, painted or treated to blend in with the adjacent surrounding material. All utility meter housings must be painted to match the body color of the building. • In the design of commercial buildings, which propose the use of a composite of exterior materials, consideration shall be given to appropriate balance, both in terms of the amount of each material, as well as the specifi c areas of their use. Building walls of more than one material shall change materials along horizontal lines, projecting bays, or other architectural features. Heavier appearing materials shall be used only below lighter appearing materials. • The following materials are recommended for use on exterior walls: • Brick • Natural and cultured stone • Architectural Textured CMU • Smooth, burnished or glazed CMU • Specialty exposed cast-in-place concrete • Prefi nished steel or aluminum panels if not the primary material • Precast architectural concrete or cast stone having a pattern or veneer resembling masonry or stone • Stucco and synthetic stucco • Smooth face CMU as an accent, and not the primary material. The back of the buildings on Lots 2 and 3, Block 1 are an exception, however the smooth face CMU must not be continued to the corner on CSAH 42. • Other comparable or superior materials Architectural Details • The details included in the building façades should contribute to the richness of GRC architecture. The details should also assist in reducing the visual scale of a large building. • Patterns and rhythms in the façade of the building can be created with recessed windows, columns, ledges, changes of materials, and other architectural features. • Recessed entries to individual storefronts are encouraged as it creates a transition from the sidewalk to the interior of a commercial building. The recessed entry emphasizes the entrance, increases window display area, and provides a safe place for the entry door to open without extending into the sidewalk area. • Setbacks and patio areas to allow for outdoor dining and seating areas are encouraged. • Architectural features should be coordinated on all sides of the building. Integrating architectural elements around the building will enhance it as a whole and should augment the architectural character of the building. Facades fronting service or parking areas at the ground fl oor level need not have windows but should include architectural interest rather than a blank appearance. • Awnings and sunshades serve as a transition between the building, the sidewalk and the street, helping visually unite them, and providing pedestrian scale to the development. Awnings, canopies and pergolas provide shelter and shade to pedestrians and reduce glare. • Awnings are encouraged at retail and pedestrian settings. If provided, awnings shall fi t the window Great River Centre of Otsego Guidelines 11 bays to blend with or augment the architectural character of the building. The awnings must be constructed of a material selected to complement the body color of the building. No stripes or patterns will be permitted. • Glass, metal, wood or fabric are acceptable awning materials. Canvas awnings can be either fi xed, fl at awnings or retractable. • Awnings can be an attractive means for store identifi cation with graphics, emblems and store names. Backlit awnings are not allowed. Openings • Visual connection between interior and exterior spaces enhances the pedestrian and shopping experience and allows greater display area without interfering with movement. Storefront windows along pedestrian sidewalks are encouraged. Access to exterior dining areas should be integrated with overall architectural design. • Clear, transparent or translucent windows should be used for all ground fl oor retail uses. No refl ective glass is allowed. Exterior Colors • Choose colors that refl ect local geology, vegetation, and culture, taking cues from earth tones, including: medium-brown pine bark, light gray cottonwood bark, tan river sand and slate green pine needles. • Using subtle yet rich colors rather than intense, bright colors is in keeping with the character and style of the development. Colors should be harmonious with those colors found on adjacent buildings and the environment. Light to medium intensity colors with low refl ectivity are preferred as the background building color. • Bright corporate colors should be limited in use to signage and entry areas. Integrate corporate or tenant identity color sensitively. • Exterior color treatment should be continuous on all elevations. Roofs and Parapets • The roofl ine and parapet are important architectural features that should be strongly defi ned on commercial buildings. Roofl ines should be varied to add visual interest in large buildings. • Roof overhangs at pedestrian entries provide protection for shoppers and are encouraged. • Roof-mounted mechanical equipment shall be concealed from public view on all sides by screening in a manner consistent with the character of the building.