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PLANNING COMMISSION REPORT SUMMARY
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ITEM NO. 11B: PRELIMINARY DEVELOPMENT PLAN FOR PARNELL PARK AFFORDABLE SINGLE-FAMILY HOMES; 1503 HASKELL AVENUE (SLD)
PDP-08-10-04: Preliminary Development Plan for Parnell Park Affordable Single-Family Homes. This proposed planned residential development contains 35 single-family homes and is approximately 5.57 acres. The property is described as being located at 1503 Haskell Avenue. Submitted by Allen Belot for Harold C. and Caroline B. Shepard, property owners of record. This item was deferred from the September meeting.
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STAFF RECOMMENDATION:
Recommendation: Staff recommends approval of the following setback reductions:
1. Reduction of the required side yard from 10’ to 5’ for Lots 1-33 (entire development) 2. Reduction of the peripheral setback from 35’ to 25’ for lots 1-7, 33 and 20.
Recommendation: Planning Staff recommends approval of the Preliminary Development Plan for Parnell Park and forwarding it to the City Commission with a recommendation for approval subject to the following conditions:
1. Provision of a revised Preliminary Development Plan to show a 3’ berm along 15th Street for Lots 1-8 per staff approval; 2. Provision of a screening fence along the north property line of Lot 33 per staff approval to include a mix of wood and masonry fencing materials. 3. Provision of a revised Preliminary Development Plan to correct and update the site summary. 4. Provision of a revised Preliminary Development Plan to revise drainage easements to combined drainage/pedestrian easements. 5. Provision of a revised Preliminary Development Plan to add a note that prohibits mechanical equipment being located in the side yards.
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Applicant’s Reason for Request: |
Proposed single-family detached residential development. |
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KEY POINTS
· Development of the property for single-family land is proposed as an infill development and will require a development plan. · Relationship of the proposed development and the surrounding land use patterns and density will be critical in the development of the subject property. · Development request includes two yard reductions, one for the interior side yards and another for a peripheral setback reduction. |
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FACTORS TO CONSIDER
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ASSOCIATED CASES/OTHER ACTION REQUIRED
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PUBLIC COMMENT RECEIVED PRIOR TO PRINTING Copies of communication are attached to item 11A
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PUBLIC HEARING ITEM:
ITEM NO. 11B: PRELIMINARY DEVELOPMENT PLAN FOR PARNELL PARK AFFORDABLE SINGLE-FAMILY HOMES; 1503 HASKELL AVENUE (SLD)
PDP-08-10-04: Preliminary Development Plan for Parnell Park Affordable Single-Family Homes. This proposed planned residential development contains 33 single-family homes and is approximately 5.57 acres. The property is described as being located at 1503 Haskell Avenue. Submitted by Allen Belot for Harold C. and Caroline B. Shepard, property owners of record. This item was deferred from the September meeting.
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Current Zoning and Land Use: RS-2 (Single-Family Residence) District; existing single-family residence to be removed as part of the proposed development. Proposed PRD-1 (Planned Residential District) per Z-08-38-04. |
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Surrounding Zoning and Land Use: RS-2 (Single-Family Residence) District in all directions; existing residential and community uses including park property to the west. |
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RM-1 (Multiple-Family Residence) District to the north, existing multi-family development. |
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Site Summary: Number of Lots: 33 lots Gross Area: 7.03 acres Right-Of-Way: 1.5 acres Maximum Lot Area: .35 acres (15,548 SF) Minimum Lot Area: .09 acres (4,121 SF) Average Lot Area: .14 acres Gross Area: 7.03 acres Net Lot Area: 5.53 less right-of-way (20-1006(g)) Tract A: .88 acres (Located along west property line includes former railroad right-of-way) Tract B: .15 (Interior pocket park) Tract C: Not calculated. Landscape island located within public right-of-way Open Space Required: 1.10 acres at 20% Open Space Provided: 1.10 acres Number of Units: 33 single-family homes Proposed Density: 5.59 net density less right-of-way. Off-Street Parking Required: 66 spaces Off-Street Parking Provided: 66 parking spaces in garages [excludes driveway parking spaces] |
STAFF ANALYSIS
The proposed Preliminary Development Plan for Parnell Park PRD has been evaluated based upon the following suggested findings of fact and conclusions outlined in Section 20-1010.1 of the Zoning Ordinance for the City of Lawrence:
1) In what respects the plan is or is not in general conformity with the provisions of the Comprehensive Plan of the City.
An evaluation of the conformance of this preliminary development plan with the City's Comprehensive Plan is based on the goals, policies and recommendations in Horizon 2020.
The proposed development is an example of infill development. This is an underutilized property proposed for redevelopment within an existing neighborhood context. The Comprehensive Plan supports infill development over new residential development (annexation). The plan states “the character and appearance of existing residential neighborhoods should be protected and enhanced. Infill development, rehabilitation or reconstruction should reflect architectural qualities and styles of existing neighborhoods.” These elements are set out as principal strategies for addressing residential land use. The Comprehensive Plan does not specifically address the Brook Creek or adjacent neighborhoods specifically. The Plan generally anticipates that new development will predominantly be characterized by low-density development. Low- density development is defined as 6 or few dwelling units per acre. The proposed zoning district would allow a maximum density of 7 dwelling units per acre. This density is technically defined as medium-density in Horizon 2020. The Comprehensive Plan does not provide a standard for measuring fractions between particular groupings.
A series of goals are provided in the Comprehensive Plan that address neighborhood conservation. The overall goal is stated as follows: “The character and appearance of existing low-density residential neighborhoods should be protected and improvements made where necessary to maintain the values of properties and enhance the quality of life” (Residential Neighborhood Goal 3). This particular section of Horizon 2020 addresses the existing housing stock and related infrastructure. More specific language addresses the provision of a “variety of compatible housing types” and that infill development should “conform to lot size, housing type, scale, and architectural style of the area in which it is proposed” (Residential Neighborhood Policy 3.3).
Staff Finding - The proposed development includes a mix of generally smaller residential lots and homes with identifiable front doors. Housing proposed is single-family detached homes on individual lots. Individual lots are substantially smaller lots than the conventional platted lots in the surrounding area. The planned unit development approach allows for a minimum lot size of 4,000 SF and requires the provision of separate or common open space. The conformance with the general architectural character of the surrounding area should be made a specific condition of approval to assure that the compatibility is maintained between the subject property and the surrounding neighborhood. The proposed development plan is consistent with the residential recommendations found in Horizon 2020 regarding infill development and neighborhood concepts. However, the zoning code with regard to density has not been updated to be consistent with the density recommendations [six versus seven dwelling units per acre].
2) In what respects the plan is or is not consistent with the Statement of Objectives of Planned Unit Development.
The statement of objectives of planned unit developments is found in Section 20-1002 of the Zoning Ordinance, which reads as follows:
(1) To promote and permit flexibility that will encourage innovative and imaginative approaches in residential, commercial, and industrial development which will result in a more efficient, aesthetic, desirable and economic use of the land while maintaining density and intensity of use consistent with the adopted Comprehensive Plan for the City;
There are two competing land use recommendations found in the Comprehensive Plan related to the proposed development. The plan clearly states that low-density residential development is defined as “six dwelling units per acre” and that low-density residential development is the predominant anticipated land use. The competing policy addresses the character of the existing surroundings and recommends that these defining features be included as central criteria for evaluation of a new project.
The subject property is located within the Brook Creek Neighborhood; it is also adjacent to the Barker Neighborhood to the west and the East Lawrence Neighborhood to the northwest. Staff analyzed several areas within each of these neighborhoods and found a range of densities. The Brook Creek Neighborhood has several areas of single-family detached homes on lots less than 7,000 SF that result in a density of six to seven dwelling units per acre. Other areas in the vicinity are found to be in the four to five dwelling unit per acre range. These areas are typified by multiple “double wide lots” where standards lot size is
(2) To promote development within the City that can be conveniently, efficiently and economically served by existing municipal utilities and services or by their logical extension;
The subject property is currently served with municipal water and sewer. These primary utilities can easily be extended. Public improvement plans will be required to assure that each new individual lot is provided with appropriate access to utilities. This element will continue to be evaluated through the final development plan and subdivision plat review stages.
(3) To promote design flexibility including placement of buildings, and use of open space, pedestrian and vehicular circulation facilities to and through the site, and off-street parking areas in a manner that will best utilize potential on-site characteristics such as topography, geology, geography, size or proximity;
The most significantly unique feature of the property is the shape and proximity to an arterial street (Haskell on the east) and former railroad right-of-way on the west. The proposed development plan removes direct access to the abutting arterial street and provides for an eventual outlet or access to the property to the east. The ability to extend a street to the south is limited by the existing development pattern. Connectivity with the surrounding neighborhood relies heavily on the use of green space and the public sidewalk network to facilitate pedestrian circulation to and through the site.
(4) To provide for the preservation of historic or natural features where they are shown to be in the public's best interest including but not limited to such features as: drainageways, floodplains, existing topography or rock outcroppings, unique areas of vegetation, historic landmarks or structures.
The subject property was recently denuded through a fill project that altered the existing topography and elevated the property more uniformly. The subject property is not located within any historic districts or areas. It should be noted however that a portion the abandoned AT&SF railroad right-of-way is included in the subject property. It is not a natural feature. A portion of the right-of-way will become a part of the City’s rails-to-trails program as a function of this development as an easement. A 10’ pedestrian easement is proposed along the western boundary of the property that will encompass the actual path as it crosses the subject property. Additional access is provided within the proposed development to the future rails-to-trails site.
Staff Finding – The proposed development is generally in conformance with the statement of objectives. Additional discussion regarding the architectural and lot area issues is included later in this report and will result in conditions to assure full compliance with the intent of the regulations and compatibility with the surrounding neighborhood.
3) The nature and extent of the common open space in the Planned Unit Development, the reliability of the proposals for maintenance and conservation of the common open space, and the adequacy or inadequacy of the amount and function of the common open space in terms of the densities and dwelling types proposed in the plan.
The proposed development plan includes a dedicated open space area within the residential development as a pocket park (Tract B) and uses the abandoned railroad right-of-way as a dedicated green space that serves multiple functions including utility service. Open space is also accommodated on individual lots as part of the front, side and rear yards. A peripheral boundary is required around the perimeter of the entire proposed PRD. This boundary includes areas that are part of individual lots and thus are not “common” in the ability for them to be used by any resident within the proposed development. [See waiver discussion below.]
Each individual lot is provided with a front, rear and side yard similar to what is found in conventional residential development. The proposed homes are situated closer to the front building lot that conventional residential development. Because of the shape of the property several lots have extensive rear yards, however, a percentage of these rear yards is encumbered by the peripheral setback. These lots also provide an opportunity for a larger house footprint providing flexibility and options as to housing choice within the proposed development.
The proposed development includes two tracts of land that are dedicated as “common open space.” These tracts are located along the west property line that makes up the abandoned railroad-right-of-way and a small area west of Lot 16 as a pocket park. Both are integral elements to the design of the subdivision.
The west 10’ of Tract A (located along the west property line) is dedicated as a pedestrian easement to accommodate the future rails-to-trails project. A connection is provided between the path and the public street (Parnell Drive) via a drainage easement. This easement should be revised to be dedicated as either a combined drainage/pedestrian easement or divided in such a manner to provide a separate pedestrian connection from the interior of the development to the common open space. This element will continue to be reviewed as part of the Final Plat and Final Development Plan process.
The subject property abuts a public park (Parnell Park) along the west property line providing additional open space opportunities to the future residents of the proposed development.
Staff Finding – The plan provides the required internal open space and includes pedestrian easements for access within the proposed development.
4) Whether the plan does or does not make adequate provisions for public services, provide adequate control over vehicular traffic, and further the amenities of light and air, recreation and visual enjoyment.
Staff Finding – As noted earlier public utilities can be extended to serve the proposed development. The proposed preliminary development plan also includes the dedication of right-of-way for 15th Street and Haskell Avenue. These rights-of-way dedications will be required for any redevelopment of the property and are not unique to the proposed redevelopment project.
5) Whether the plan will or will not have a substantial adverse effect on adjacent property and the development or conservation of the neighborhood area.
The subject property is bounded on the north and east by collector and arterial street right-of-way and a public park on the west. Access to a collector street is a minimum requirement for the location of a planned unit development. Community facility uses are located on the north side of 15th Street and multi-family residential uses are located to the northwest and southeast. The subject property abuts conventional low-density residential development to the south. The proposed development is contained and provides only one access to the abutting street network and is therefore somewhat isolated from the surrounding neighborhood. The need to provide pedestrian or non-vehicular connections between the subject property and the surrounding neighborhood is important.
A specific effort was made to provide a pedestrian connection from the interior of the development to the abutting park property and to make a visual connection within the development. Interior sidewalks along the public streets provide an additional connection from the interior of the development to 15th Street.
The subject property is an irregular shape. Only the north leg of the property abuts Haskell Avenue. There are two relatively large parcels located between the subject property and the platted residential lots to the south. Both properties take direct access to Haskell Ave (an arterial street). Direct residential access to arterial and collector streets is not considered to be beneficial or desirable to long term stability of neighborhoods in most instances. These properties typically become isolated from the surrounding neighborhood and lack connectivity with neighboring properties. For this reason, the proposed plan includes right-of-way to the east property line for Parnell Drive. The proposed drawing however shows this street ending in a cul-de-sac and not constructing that street connection initially which may give future lot owners and residents the impression that the street will not extend to the east. A temporary cul-de-sac would be more appropriate in the design and will be further reviewed as part of the Final Plat and Final Development Plan process.
Traffic will be marginally increased for the area as a change from one single-family residence to 33. However, no additional traffic improvements to the adjacent streets and intersections are recommended as a result of this proposed development. Additionally, the center median in the right-of-way of Parnell Drive is not an identified traffic calming element and should be removed from the public right-of-way. The entry way of the development shall be required to follow adopted public street standards for maximum width as well. This may result in a modification of the intersection as the Final Plat and Final Development Plan are reviewed. Staff recommends the Preliminary Development Plan be revised to remove the median.
Staff recommends that the right-of-way be extended (stubbed) to the abutting property of the Gannon property. The two parcels immediately east of the subject property contain approximately 2.8 acres and could be redeveloped. Stubbing the proposed street to the larger of the two will provide greater flexibility for future redevelopment.
Staff Finding – The proposed development plans provides a consistent residential approach to the neighborhood given the physical constraints and isolation of the property. The proposed development plan makes provisions for the incorporation of other isolated properties upon future redevelopment. Traffic will be marginally increased for the area as a change from one single-family residence to 33. However, no additional traffic improvements to the adjacent streets and intersections are recommended as a result of this proposed development. Additionally, the center median in the right-of-way of Parnell Drive is not an identified traffic calming element and should be removed from the public right-of-way. The entry way of the development shall be required to follow adopted public street standards for maximum width as well. Staff recommends the Preliminary Development Plan be revised to remove the median.
6) In what respects the plan is or is not in conformance with the development standards and criteria of this article.
a) The general development standards pertaining to all planned unit developments are found in Section 20-1006, "General Development Standards - Planned Unit Developments," of the Zoning Ordinance. Specific development standards for Planned Commercial Developments are listed in Section 20-1008, "Development Standards - Planned Commercial Developments".
b) Preliminary Development Plan requirements are listed in Section 20-1010, "The Preliminary Development Plan".
The proposed development plan identifies minimum submission requirements and design standards that must be addressed as part of any review. The plan proposes two deviations from the design standards with respect to building setback from side lot lines and a reduction in the peripheral setback for lots abutting 15th Street.
The interior setback for individual lots for planned unit developments is 10’ while conventional side lot setbacks for residential development is only 5’. This is a design standard discrepancy that has been noted and will be addressed in a future version of the zoning code. The intent for planned development is to closely mimic conventional development while providing the flexibility to reduced lot sizes and “clustered” development in a manner that provides or maintains open space. The Planning Commission is specifically granted the authority to reduce building setbacks within planned unit developments.
Staff supports the reduced interior side yard setback from 10’ to 5’ as it is consistent with conventional development and other approved similar developments. However, with this reduced interior setback there should be a stipulation that no mechanical equipment be placed in the side yards.
The proposed peripheral setback along 15th Street was discussed by staff and the applicant as it applied to Lot 33 (originally lot 35 in the original design) to accommodate a more visually accessible entrance to the green space along the west property line. This widening of the pedestrian path provides a vista when viewed from the east end of Park Court. In order to accommodate the recommended width for pedestrian access, the lot lines and building envelopes needed to shift closer to the north and south boundaries of the development. The north end is more constrained than the south, thus necessitating the peripheral setback reduction. The 25’ setback is again comparable to what a typical front yard setback would be in conventional development.
The remaining lots located along 15th Street and east of Parnell Drive are reduced to accommodate a somewhat larger building footprints and a cul-de-sac at the east end of Park Court. The reduction allows for a consistent 25’ setback along the entire section of 15th Street. The proposed reduction will allow for a mix of housing styles within the development. The lots abut 15th Street which is a collector street along this segment. A berm with dense landscaping is recommended to shelter the residential activity from the abutting street traffic.
Staff Finding - The development plan is not in conformance with the development standards and criteria of this article with regard only to the two proposed waivers; interior setback reduction and peripheral setback reduction along 15th Street. Otherwise the plan complies with the minimum standards. Staff recommends the Preliminary Development Plan be revised to prohibit mechanical equipment in side yards. Staff also recommended the Preliminary Development Plan be revised to include a berm along 15th Street with appropriate landscaping.
7) In what respects the plan is or is not in compliance with the requirements for application for tentative approval of the Planned Unit Development.
Section 20-1005, "Development Standards and Criteria," in the Zoning Ordinance states: (a) A plan that is consistent with (1) the "Statement of Objectives for Planned Unit Development," (2) the adopted Comprehensive Plan of the City, (3) the development standards set out herein, and (4) any specific rules and regulations for Planned Unit Developments adopted from time to time by the Planning Commission and City Commission and placed on public record in the office of the City Clerk shall be deemed to be qualified for tentative approval. No such rules and regulations shall be revised or added to so as to be applicable to a specific proposal for a Planned Unit Development after an application for tentative approval has been filed by the landowner or his or her agents.”
Staff Finding - The proposed plan complies with the requirements for application for tentative approval of a PUD with regard to the conformity to the comprehensive plan land use recommendations regarding infill development and the surrounding land use pattern and density. The proposed plan facilitates the future rails-to-trails project and with the exceptions noted above complies with the minimum submission requirements for a planned unit development.
8) The sufficiency of the terms and conditions proposed to protect the interest of the public and the residents of the Planned Unit Development in the case of a plan that proposes development over a period of years.
Staff Finding - The proposed development is not intended to be phased and staff recommends that all public improvements be installed prior to issuance of individual building permits.
9) Stormwater detention calculations and storage of excess stormwater drainage as per City Policy.
Staff Finding –The proposed development has been reviewed by the City Stormwater Engineer and has been approved. Public improvements will be required as part of the development process as well as the dedication of drainage easements to convey stormwater.
As noted the proposed development includes the dedication of right-of-way for both the interior and abutting public streets. Staff recommends that Parnell Drive be revised to include a stub to the abutting property to facilitate future development that will remove direct residential access to Haskell Avenue.
The proposed development is proposed as a single-family detached development on individual lots. The Preliminary Development Plan shows five different house plans that are contemplated for this development. These elevations are generally compatible with the surrounding residential home details of the neighborhood.
Waivers
The proposed development includes two requests to reduce required setbacks. These reductions are as follows:
1. Reduction of the required side yard from 10’ to 5’ for Lots 1-33 (entire development)
As discussed above, staff concurs with request, with a condition that mechanical equipment be prohibited from locating in the side yard.
2. Reduction of the peripheral setback from 35’ to 25’ for lots 1-7, 33 and 20.
The side yard reduction is an acknowledged fault of the Planned Unit Development. Section 20-1007(E) requires a 10’ side yard setback from interior lot lines. Comparatively the RS-2 (Single-Family Residence) District only requires a 5’ setback. This is a typical request and is consistent with the intent for residential development. A text amendment has not be initiated to “correct this fault” given the fact that a new zoning code is anticipated.
There are two proposed peripheral setback reductions associated with this proposed development; Lots along 15th Street and Lot 20 located in the southeast corner of the development.
Staff discussed with the applicant during the preliminary review stage a consideration to reduce the peripheral setback for Lot 33 to increase the pedestrian connection to the public park to the west. A reduction for this lot is considered to be consistent with the existing residential development pattern in the area. As a corner lot with a side yard, the ability it reduce the setback does not impact surrounding properties. Lot 20 is would be adjacent to a similar development or rear lot in the future. The development plan shows a 25’ setback that would far exceed a comparable side yard setback if and when the abutting property is developed.
The additional setback reduction along 15th Street provides both flexibility in design for housing styles and a consistent or uniform building line along the abutting collector street. Staff concurs with the request with a condition that due to the traffic and street classification status the Preliminary Development Plan be revised to include a berm be added to buffer the residential uses along 15th Street. Staff has discussed this option with the applicant who indicated agreement with the exception that a berm will not be feasible for Lot 33 which is intended to be revised to include screening along 15th Street that is a mix of wood and masonry fencing along the north property line.
Recommendation: Staff recommends approval of the following setback reductions:
1. Reduction of the required side yard from 10’ to 5’ for Lots 1-33 (entire development)
2. Reduction of the peripheral setback from 35’ to 25’ for lots 1-7, 33 and 20.
Recommendation: Planning Staff recommends approval of the Preliminary Development Plan for Parnell Park and forwarding it to the City Commission with a recommendation for approval subject to the following conditions:
6. Provision of a revised Preliminary Development Plan to show a 3’ berm along 15th Street for Lots 1-8 per staff approval;
7. Provision of a screening fence along the north property line of Lot 33 per staff approval to include a mix of wood and masonry fencing materials.
8. Provision of a revised Preliminary Development Plan to correct and update the site summary.
9. Provision of a revised Preliminary Development Plan to revise drainage easements to combined drainage/pedestrian easements.
10. Provision of a revised Preliminary Development Plan to add a note that prohibits mechanical equipment being located in the side yards.
11. Provision of a revised Preliminary Development Plan to show a temporary turn-around at the south end of Parnell Drive.