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ITEM 2.1ITEM 2_y TPC3601 Thurston Avenue N, Suite 100 Anoka, MN 65303 Phone: 763.231 .5840 Facsimile: 763.427.0520 TPCgPlan ningCo.corn PLANNING REPORT TO: Otsego Planning Commission FROM: Daniel Licht, AICP DATE: 1 October 2015 ACTION DATE: 10 December 2015 RE: Otsego — ISD 728; E-8 School Facility TPC FILE: 101.02 BACKGROUND Elk River Area School District (ISD 728) has submitted plans for development of a proposed E-8 school facility, with a design capacity for 750 students to open for the 2017-18 school year. The proposed E-8 school is to be developed on 82.84 acres owned by ISD 728 at the northeast corner of MacIver Avenue and 80th Street. The proposed development requires consideration of a Comprehensive Plan amendment, Zoning Map amendment, Planned Unit Development - Conditional Use Permit (PUD -CUP) and preliminary/final plat. A public hearing to consider these applications was noticed for the Planning Commission meeting on 8 September 2015. At ISD 728s request, the public hearing was opened and continued to the Planning Commission on 5 October 2015 to allow ISD 278 to make substantial revisions based on internal project issues. Exhibits: A. Site Location B. Urban Service Staging Plan Map C. Future Land Use Plan Map D. Architectural Plans dated August 10, 2015 (4 sheets) E. Construction Documents dated 9/22/15 (27 sheets) ANALYSIS Comprehensive Plan. The subject site is located within Urban Service Expansion Area W2 and guided for future low density residential uses by the 2012 Comprehensive Plan. Development of the proposed E-8 school, to be served by municipal sanitary sewer and water utilities, requires amendment of the Urban Service Staging Plan to include the subject site within the West Sewer District and to change the future land use designation to public/quasi-public land uses. The School District acquired the subject site in 2006 after working with City staff to identify suitable locations for a future elementary school and/or middle school to meet the facility needs of Otsego's residents. This effort is consistent with the policy established by the Comprehensive Plan to "assist the school districts in locating sites for new facilities that are accessible, compatible with adjacent land uses and natural environment amenities, and offer the necessary land to meet the physical needs of the school use." The location of the subject site is accessible to both utilities and transportation systems needed to develop the proposed E-8 school and the site will be compatible with surrounding planned residential uses. Zoning. The subject site is zoned A-1, Agriculture Rural Service District based on its location outside of the West Sewer District and current cultivated use consistent with the Interim Land Use policies of the 2012 Comprehensive Plan. Development of the proposed E-8 school requires consideration of a Zoning Map amendment to rezone the subject site to INS District, which allows elementary and middle school facilities as a permitted use. ISD 728 is also requesting consideration of a PUD -CUP to allow establishment of specific lot requirements and setbacks for the proposed development. Consideration of the Zoning Map amendment and PUD -CUP is to be based upon, but not limited to, the following criteria: The proposed action's consistency with the specific policies and provisions of the Otsego Comprehensive Plan. Comment: The 2012 Comprehensive Plan establishes a goal to provide for proper school facilities by working with school district officials to meet the needs of existing and future populations. The proposed E-8 school addresses the increase in population occurring in Otsego (and the overall school district) and planned future growth needs. The proposed E-8 school is also consistent with the policies of the 2012 Comprehensive Plan to develop facilities at locations where they will be neighborhood and community focal points and are accessible and compatible with adjacent land uses and natural environment amenities. 2. The proposed use's compatibility with present and future land uses of the area. Comment: The table below summarizes the existing and planned land uses surrounding the subject site: 2 Direction Land Use Plan Zoning Map Existing Use North LD Residential A-1 District Agriculture Rural Residential East LD Residential A-1 District Agriculture South LD Residential R-6 District A-1 District Single Family Rural Residential West LD Residential A-1 District Agriculture Based on the area of the subject site and site plan, the proposed school facility will be compatible with existing and future land uses in the area. Note that the agricultural use to the west includes a registered feedlot, for which the Zoning Ordinance establishes minimum separation requirements for new residential dwellings, but not for facilities such as the proposed E-8 school. 3. The proposed use's conformity with all performance standards contained within the Zoning Ordinance and other provisions of the City Code. Comment: The development of the proposed E-8 School will comply with the applicable requirements of the Zoning Ordinance, Subdivision Ordinance and Engineering Manual, including any modifications approved as part of the PUD -CUP. 4. Traffic generation of the proposed use in relation to capabilities of streets serving the property. Comment: Service boundaries for the proposed E-8 school are not defined. Existing streets accessing the subject site include MaclverAvenue, which is designated by the Transportation Plan as a residential collector street, 80th Street and Marlowe Avenue/83rd Street. In conjunction with the site development, ISD is funding a City project to improve 80th Street east of MacIver Avenue to accommodate vehicle access to the proposed E-8 school. The City will complete construction of 70th Street for traffic between Odean Avenue and MaclverAvenue in 2015 providing an east -west connection across the City. The 2015 Capital Improvement Plan includes construction of 85th Street between Nashua Avenue and Mason Avenue in 2018 using Minnesota State Aid (MSA) funding allocated to the City from gas taxes. Future improvements to extend Maclver Avenue and 85th Street on the east and north sides of the property, respectively, will be undertaken in the future to increase access to the subject site. The capacity of MacIver Avenue, improvements to 80th Street and other exiting public streets is sufficient to accommodate traffic generated by the proposed E-8 school. 5. The proposed use can be accommodated by existing public services and facilities and will not overburden the City's service capacity. Comment: The City has adequate capability, including sanitary sewer and water utilities, to serve the proposed E-8 school. Building Design. The proposed E-8 school has 122,000 square feet of total floor area between two floors and an 87,500 square foot footprint. The building is 32.75 feet in height, which is within the 40 foot height limit allowed for principal buildings within the INS District. Section 20- 17-4.D.2 of the Zoning Ordinance requires that the exterior finish of the facades of the proposed building facing a public street (west and south for the proposed E-8 School) to consist of 65 percent brick, stone, glass walls or textured precast concrete panels, the use of precast concrete panels, rockface block or EIFS materials used for 90 percent of the other facades. The proposed exterior finish of the E-8 school utilizes with two types of brick, two types of glass walls, three types of finished metal panels and metal louvers to create a varied appearance for the exterior of the building on all four elevations that is enhanced further by its sectioned design that minimizes mass. The overall appearance of the building is contemporary and aesthetically will serve as an example for private development and create a source of community identity and pride consistent with the policies of the 2012 Comprehensive Plan and the intent of the Zoning Ordinance. Landscaping. The submitted plans include a landscape plan for the proposed site. Currently, the property is cultivated and there are no trees in the area to be developed for the proposed E-8 school. The submitted landscape plan provides for installation of trees along the interior driveways, parking lot islands, and the building perimeter. The sizes of the proposed trees comply with the requirements of Section 20-16-7.0 of the Zoning Ordinance. The types of trees are also appropriate, but there are only three varieties in the types of proposed trees, which make the site susceptible to disease. The landscape plan must be revised to provide for evergreen trees planted 25 feet on center in a staggered row to the east of the bus corral to provide for screening of the area from future residential uses to the east. Areas of the subject site shown to be sodded or seeded with turf grass, including the ballfield and playfield area, are also identified on the landscape plan to have an irrigation system installed as required by Section 5-7-3.B.4.b of the City Code. A revised landscape plan will be subject to review and approval of City staff. Lot Requirements. The INS District establishes a minimum lot requirement of 15 acres for elementary schools and 30 acres for middle schools. There is no minimum lot width requirement in the INS District. ISD 728 intends to develop approximately 38 acres of the subject site for the proposed E-8 school, with the remaining portion of the site reserved for future facility expansions. The lot area requirements are to be considered with the PUD -CUP in relation to the site plan for the initial E-8 school and anticipated school campus. Setbacks. The table below indicates the setbacks required in the INS District: .19 ROW Side Rear Wetland Required 30ft. 100ft. 100ft. 40ft. Proposed 30ft. 30ft. 30ft. 40ft. Site Plan 470ft. 170ft. NA NA .19 The site plan has been developed based upon a 30 foot setback at the perimeter of the platted lot for all site improvements. Based on the planned school campus to be developed on the subject site, this approach is appropriate for internal setbacks. Future residential uses to the east will be anticipated to have rear lots abutting the subject site, so the proposed 30 foot setback is appropriate along that lot line as well. However, the site plan as presented does comply with the standard 100 foot setback from the east lot line. The proposed setback requirements will be established as a condition of the PUD -CUP governing the initial site plan for the plat and future expansions of the proposed E-8 school. Right -of -Way. The preliminary and final plat for the development of the E-8 school will include dedication of 50 feet of right-of-way for the east one-half of MacIver Avenue north of 80th Street along the west side of the subject site and any additional right-of-way required for the improvements to 80th Street funded by ISD 728 along the south side of the subject site. ISD 728 will be further responsible for the proportional cost of future construction for MacIver Avenue north of 80th Street and 85th Street abutting the north side of the subject site. Based on the Future Land Use and Transportation Plans included within the 2012 Comprehensive Plan, the existing right-of-way for Marlowe Avenue abutting the east side of the subject site is anticipated to be vacated at such time as the property to the east is developed. All right-of-way issues are subject to review and approval of the City Engineer. Vehicle Access. The subject site will be accessed via two driveways from 80th Street, ISD 728 is funding a City project to improve 80th Street from MacIver Avenue east to widen the existing roadway to an urban section street with turn lanes to accommodate traffic exiting and entering the site, as well as turning movements at the MacIver Avenue and 80th Street intersection. The driveways to the subject site separate visitor/staff vehicle access and parking from school bus and delivery traffic for safety reasons. The width of the visitor/staff parking area driveway is designed to allow for two outbound traffic lanes and one in -bound traffic lane for efficient movement and to minimize congestion during peak traffic periods. The one-way driveway adjacent to the building is three lanes wide to accommodate for student drop off and pick up. Service vehicles and buses will enter and exit the site via a two-lane driveway to access the loading area on the south side of the building and bus corral on the east side of the building. Adequate pavement space is provided for delivery vehicle and school bus turning movements. A 20 foot wide fire access driveway extends around the north side of the building connecting the two parking areas for emergency vehicle access. Pedestrian Access. The site plan for the proposed E-8 School facility includes a concrete sidewalk extending from the building entrance to 80th Street adjacent to the visitor/staff driveway. City staff and ISD 728 discussed moving this sidewalk to the west side of the visitor/staff driveway and parking area to avoid having children crossing the site entrance at 80th Street, which is to be incorporated on a revised site plan. The public improvements to 80th Street will include a bituminous trail along the north side of 80th Street to connect with the existing trail on the east side of MacIver Avenue south of 80th Street. Additional sidewalk connections from the existing residential neighborhoods to the south and future residential neighborhoods will be provided at the time surrounding agriculture or rural residential parcels 5 are developed. The sidewalk on the east side of the visitor/staff driveway should be extended straight south from the building to connect to the trail on 80th Street in anticipation of students walking to school from the east in the future. Off -Street Parking. Section 20-21-9.G of the Zoning Ordinance requires one off-street parking stall per classroom, plus one additional stall per 50 students based on the designed capacity of the building for elementary and middle school facilities. The proposed E-8 school has 37 class rooms and a designed capacity of 750 students, which equates to a parking requirement of only 52 off-street parking stalls. ISD 728 has designed the site plan based upon the parking demand experienced at other facilities within the School District. The site plan provides for initial construction of 124 off-street parking stalls with potential expansion up to 243 parking stalls. Additionally, the bus corral can be striped to provide 61 off-street parking stalls for special events in the gymnasiums. The supply of off-street parking stalls will be adequate for the proposed E-8 school. Parking stalls are nine feet wide by 20 feet deep and accessed by 24 foot wide drive aisles as required by Section 20-21-4.H.1 of the Zoning Ordinance. The parking areas, drive aisles, bus corral and fire lane are all paved surfaces, striped and surrounded by perimeter concrete curb as required by Section 20-21-4.H.12, 13 and 15 of the Zoning Ordinance. Exterior Lighting. Section 20-16-10 of the Zoning Ordinance establishes performance standards regulating exterior lighting requiring that all light be cast downward and that glare to public streets or adjacent properties be prevented. ISD 728 provided a photometric lighting plan based on the initial site plan for development of the subject site indicating the location and illumination pattern of proposed exterior lighting. The revised site plan essentially shifts the development of the site northeast without effecting the location of the light fixtures relative to the improvements. Nonetheless, the photometric lighting plan will need to be revised and resubmitted based on the current site plan and is subject to review and approval of the Zoning Administrator for compliance with Section 20-16-10 of the Zoning Ordinance. Signs. Uses within the INS District are allowed signs as provided for by Section 20-37-5.D of the Zoning Ordinance. One freestanding sign with an area up to 100 square feet and up to 20 feet in height is allowed and must be setback a minimum of 10 feet from any property line. There is no limit on the number or area of wall signs for the proposed E-8 school. No sign located on the property may use electronic changeable copy or dynamic displays, which are prohibited for all uses by the Zoning Ordinance. The submitted plans do not indicate a free standing sign. The architectural plans indicate one 40 square foot sign and one 352 square foot sign on the south fagade facing 80th Street. A sign on the west fagade that is visible from future MacIver Avenue, which will be the major roadway abutting the subject site, may also be advisable. Installation of any signs upon the property is subject to issuance of a sign permit approved by the Zoning Administrator. Trash. The receiving area of the proposed E-8 School is at the southwest corner of the building accessed by the service truck/school bus access. Trash storage facilities are not specifically identified on the site plan or architectural plans, but there is a fence shown on the south I elevation architectural plans adjacent to the loading area. Section 20-16-15.8.3 of the Zoning Ordinance requires any exterior trash container storage be screened from view within an enclosure constructed of the same material as the principal building. Details regarding trash storage and plans for an enclosure using materials consistent with that of the principal building are to be submitted and are subject to review and approval of the Zoning Administrator. Park and Trail Dedication. Section 21-7-18 of the Subdivision Ordinance establishes provisions for dedication of land or cash fees in lieu of land for development of the City's parks and trails system. Based on these provisions, the City may require ISD 728 to dedicate 12% of the land being platted or an equivalent cash fee to the City to be used for park development purposes. The 2012 Comprehensive Plan policies promote joint use of City parks and school recreational facilities to maximize the benefits to both residents and students. The proposed E-8 school will include open recreation area for outdoor playfields, one developed ballfield and two indoor gymnasiums, which would be operated by ISD 728 as part of its core educational program for students and also community education programs for recreational users. Additionally, the public improvements on 80th Street being funded by ISD 728 include an off-street trail. These facilities and programing contribute to the overall parks and trails system within Otsego available to the public and satisfy the intent of the City's park and trail dedication requirements. Utilities. The proposed E-8 school is to be served by municipal sanitary sewer and water utilities. The public improvements being funded by ISD 728 include extension of a trunk sewer forcemain north of 80th Street within the MacIver Avenue right-of-way to a temporary lift station, where the proposed E-8 school will connect via a gravity sewer line. Trunk water will also be extended north of 80th Street within the MacIver Avenue right-of-way to a service connection to the school building. The water service is to be looped to the north side of the building to provide for a second connection to the east in the future when the abutting property develops to ensure continuous water supply and water quality for the proposed E-8 school. All utility plans are subject to review and approval of the City Engineer. The extension of the trunk sewer forcemain will be a City cost but the temporary lift station will be funded by ISD 728 as part of their project costs. The extension of trunk water will be a City cost. ISD 728 will pay sewer and water availability charges for the platted area of the subject site as a condition of final plat approval, as well as sewer and water connection charges at the time a building permit is issued, in accordance with Chapter 6, Section 1 of the City Code. Grading. ISD 728 has provided a grading plan for the proposed site development that minimizes the extent of earthwork within the subject site in contrast to the initial site plan, which would have required extensive importation of material. The grading plan provides for two storm water basins to the northeast and southeast of the proposed E-8 school for water quality and rate control such that water leaving the subject site after development is not greater than predevelopment conditions. Additional storm water basins will also be constructed at the southwest corner of the subject site to capture storm water from the playfields and 80th Street/MacIver Avenue intersection, which will be designed in coordination with the public street improvements. The storm water basin at the southeast corner of the 7 subject site impacts a degraded farmed wetland that is proposed to be filled and mitigated adjacent to the storm water basin at the northeast corner of the proposed E-8 school. All storm water issues, wetland impacts/mitigation and grading, drainage and erosion control issues are subject to review and approval of the City Engineer. ISD 728 is also required to pay a storm water impact fee for Otsego Creek based on the net area platted as a condition of final plat approval. Easements. Section 21-7-15 of the Subdivision Ordinance requires dedication of 10 foot drainage and utility easements at the perimeter of the proposed preliminary plat. Drainage and utility easements will also be required over storm water basins, mitigated wetlands, wetland buffers, and the proposed water service loop within the subject site. All drainage and utility easements are to be subject to review and approval of the City Engineer. Preliminary/Final Plat. ISD 728 is proposing to plat approximately 38 acres of the 82.84 acre subject site for development of the E-8 school. The plat will consist of one lot for the building and accessory improvements and an outlot encompassing the playfield/ballfield area of the proposed development. ISD 728 must submit preliminary and final plat documents incorporating all of the data outlined by Section 21-6-2 and 21-6-3 of the Subdivision Ordinance, including the dedication of right-of-way and easements as outlined above. All preliminary and final plat documents are subject to review and approval by City staff. Development Agreement. The City Attorney will prepare a development agreement related to the proposed E-8 school and plat to provide for construction of the project, completion of all public improvements, establishment of required securities, and payment of applicable fees. ISD 728 has previously entered into an agreement with the City regarding payment for the public street and utility improvements to be undertaken by the City in relation to the proposed E-8 school. The Development Agreement is to be adopted by resolution and executed prior to recording of the final plat. RECOMMENDATION The applications from ISD 728 for development of a proposed E-8 school are consistent with the policies of the Comprehensive Plan and requirements of the Zoning Ordinance and Subdivision Ordinance. City staff recommends approval of the applications as outlined below. POSSIBLE MOTIONS Decision 1— Comprehensive Plan Amendment A. Motion to recommend City Council approval of an amendment of the Comprehensive Plan to include the preliminary/final plat for the proposed E-8 school within the West Sewer District and guide the subject site for public/quasi-public land uses based on the following policies: ■ Assist the school districts in locating sites for new facilities that are accessible, compatible with adjacent land uses and natural environment amenities, and offer the necessary land to meet the physical needs of the school use. ■ Promote school site design that results in the facilities becoming neighborhood and community focal points and gathering areas. ■ Enter into agreements for joint use of City parks and school recreational facilities to maximize the benefits to both residents and students. ■ Establish safe and convenient trail access to each school site within the community. B. Motion to recommend denial of the application based on a finding that the request is inconsistent with the policies of the Comprehensive Plan. C. Motion to table. Decision 2 — Zoning Map Amendment A. Motion to recommend City Council approval of a Zoning Map amendment rezoning the preliminary/final plat for the proposed E-8 school to INS, Institutional District based on a finding that the request is consistent with the policies of the Comprehensive Plan and criteria of the Zoning Ordinance. B. Motion to recommend the application be denied based on a finding that the request is inconsistent with the policies of the Comprehensive Plan and Zoning Ordinance criteria. Decision 3 — PUD -CUP and Preliminary/Final Plat A. Motion to recommend City Council approval of a PUD -CUP and Preliminary/Final Plat for the proposed E-8 school on a finding that the request is consistent Zoning Ordinance and Subdivision Ordinance, subject to the following conditions: 1. Approval of the preliminary plat shall not guarantee access to sanitary sewer service; the City shall only allocate sanitary sewer capacity to approved final plats with signed development contracts to assure the City of timely development. 0 2. The preliminary/final plat shall provide for dedication right-of-way as determined necessary by the City Engineer for: a. The east half of future MacIver Avenue north of 80th Street. b. Any additional right-of-way for improvement of 80th Street, including the intersection of 80th Street/MacIver Avenue, as required for the proposed development. 3. The principal buildings and accessory uses within preliminary/final plat shall be subject to the following setback requirements: ROW Side Rear I Wetland 30ft. 30ft. 30ft. 1 40ft. 4. A revised landscape plan shall be submitted and is subject to review and approval of City staff to address: a. Installation of evergreen trees planted 25 feet on center in a staggered row to the east of the bus corral its full length, including the turnaround area. b. Provision of greater varieties of deciduous shade trees. C. The irrigation system must include the boulevard area abutting 80th Street. 5. The site plan shall be revised to provide for a minimum five foot wide sidewalk along the west side of the visitor/staff driveway from 80th Street to the north line of the parking area connecting to the school entrance and extending the sidewalk adjacent to the drop-off/pick-up drive aisle directly south to 80th Street, subject to review and approval of City staff. 6. A revised photometric lighting plan based on the current site plan shall be submitted and is subject to review and approval of the Zoning Administrator for compliance with Section 20-16-10 of the Zoning Ordinance. 7. All signs shall comply with Section 37 of the Zoning Ordinance and require issuance of a sign permit prior to installation, subject to approval of the Zoning Administrator. 8. Any outdoor storage of trash containers shall be screened from view within an enclosure constructed of the same exterior materials as used for the principal 10 building in compliance with Section 20-16-15.13.3 of the Zoning Ordinance, subject to review and approval of the Zoning Administrator. All utility plans are subject to review and approval of the City Engineer. 10. ISD 728 shall pay sewer and water availability charges for the platted area of the subject site as a condition of final plat approval, as well as sewer and water connection charges at the time a building permit is issued, in accordance with Chapter 6, Section 1 of the City Code. 10. All grading, drainage, erosion control, wetland impacts and wetland mitigation plans and issues are subject to review and approval of the City Engineer. 11. ISD 728 shall pay a storm water impact fee for Otsego Creek based on the net area platted as a condition of final plat approval. 12. The preliminary and final plat shall dedicate all drainage and utility easements as required by Section 21-7-15 of the Subdivision Ordinance, subject to review and approval of the City Engineer. 13. ISD 728 shall submit preliminary and final plat documents incorporating all of the data required by Section 21-6-2 and 21-6-3 of the Subdivision Ordinance, including the dedication of right-of-way and drainage and utility easements, subject to review and approval of City staff. 14. ISD shall execute a Development Agreement with the City prior to recording of the final plat, subject to review of the City Attorney and approval of the City Council. B. Motion to recommend the application be denied based on a finding that the request is inconsistent with the policies of the Comprehensive Plan and does not comply with the Zoning Ordinance and Subdivision Ordinance. C. Lori Johnson, City Administrator Tami Loff, City Clerk Ron Wagner, City Engineer Andy MacArthur, City Attorney Greg Hein, ISD 728 Josh Grenier, Wold Architects and Engineers 11