PLANNING COMMISSION REPORT

Regular Agenda - Public Hearing Item

PC Staff Report

07/26/06

ITEM NO. 8: USE PERMITTED UPON REVIEW FOR EXPANSION AT LAWRENCE MEMORIAL HOSPITAL; 325 MAINE STREET (LAP)

UPR-04-04-06: Use Permitted upon Review request for the expansion of Lawrence Memorial Hospital, located at 325 Maine Street. Submitted by Landplan Engineering, PA, for the City of Lawrence, property owner of record. This item was deferred from the June Planning Commission meeting.

STAFF RECOMMENDATION: Planning staff recommends approval of the Use Permitted upon Review for the expansion of Lawrence Memorial Hospital and forwarding it to the City Commission with a recommendation for approval, subject to the following condition: 1. Submittal of a Site Plan Performance Agreement. 2. Recordation at the Register of Deeds Office of a final plat.

Reason for Request:

To revise the Lawrence Memorial Hospital Master Plan to relocate the surgery addition from the northwest corner of the main building to the northeast corner of the main building, reconfigure a parking area at the southwest corner of the site to add approximately 100 parking spaces, add an access point off Maine Street, reconfigure the parking lot off Maine, and construct parking lots at the corner of Maine and 4^th Streets. Note: This item was deferred from the June Planning Commission meeting to allow time for evaluation of the closure of the 300 block of Arkansas Street. The subject plan proposes maintaining this portion of Arkansas Street as a private through street.

KEY POINTS

• The proposal includes the reconstruction of the existing southwesternmost parking lot to add approximately 100 parking spaces and the addition of left turn lanes at 4^th/Maine and 4^th/Michigan.
• The proposed development would not occur outside the established boundaries of the hospital complex.
• A site plan will need to be submitted for each phase of development (new buildings/parking areas) shown on the master plan prior to receiving building permits.
• A site plan was approved in May, 2006 for the parking lot at the corner of 4^th and Maine Streets. This parking lot was recently constructed.

GOLDEN FACTORS TO CONSIDER

CHARACTER OF THE AREA

• The area is characterized by a mix of community facilities and residential and office uses.

CONFORMANCE WITH HORIZON 2020

• The proposed use is in conformance with several recommendations and policies of Horizon 2020.

ASSOCIATED CASES/OTHER ACTION REQUIRED

· SP-06-11-71 – Maintenance Shop

· SP-05-12-75 – LMH (4^th and Maine)

· SP-03-07-79 – 1956 Hospital Wing Improvements

· SP-05-31-85 – Building Addition

· UPR-08-09-85 – Satellite Receiver

· SP-11-97-89 – Staff Parking Lot

· SP-12-67-91 – Incinerator Addition

· SP-04-27-92 – New Parking lot

· UPR 06-07-93 – LMH Master Plan

· SP-07-35-93 – New Parking Lot

· BZA-08-19-93 – Parking Lot Setback (4^th and Missouri)

· SP-09-54-93 – Medical Office Building

· SP-02-12-94 – Building Expansion

· SP-05-30-95 – Heliport Facility

· SP-04-29-98 – MRI Facility

· UPR-03-03-99 – Staff Parking Lot (3^rd and Arkansas)

· BZA-04-06-99 Parking Lot Setback (Arkansas)

· SP-08-51-01 – Parking Lot and Medical Office Expansion (4^th and Missouri)

· UPR-07-06-02 – Parking Lot Expansion (325 Arkansas)

· BZA-08-26-02 – Parking Setback (325 Arkansas)

· UPR-09-07-05 – Revision of the LMH Master Plan [This application was unanimously recommended for approval by the Planning Commission on 11/16/05 and was approved by the City Commission on 12/6/05.]

· SP-11-88-05 – X-ray Storage Building [This application was approved by the City Commission on 12/8/05.]

· B-04-13-06 – Variance Requests for Building and Parking Lot Setbacks. [These variances were approved by the Board of Zoning Appeals on 5/4/06.]

· SP-03-23-06 – New/Temporary Parking Lots at 4^th and Maine Streets. [This application was approved by the City Commission on 5/23/06.]

· PF-05-13-06 – Final Plat for Lawrence Memorial Hospital Addition. [This application was recommended for approval by the Planning Commission on 6/26/06.]

· The subject UPR application must be approved by the City Commission.

PUBLIC COMMENT RECEIVED PRIOR TO PRINTING

• At a meeting with the Pinckney Neighborhood Association, Landplan Engineering representatives, and LMH staff on Monday, July 10, 2006, neighbors expressed general support for the revised Master Plan, but were concerned about the safety of pedestrians crossing Maine Street.

GENERAL INFORMATION
Current Zoning and Land Use:	H (Hospital) District (formerly RM-1, RS-2 and RO-2 Districts); existing hospital facility.
Surrounding Zoning and Land Use:	RS7 (Single-Dwelling Residential), OS (Open Space), IG (General Industrial) Districts (formerly RM-1, RS-2, and M-2 Districts) to the north; Woody Park and Mobile Village. RS5 (Single-Dwelling Residential) District (formerly RS-2 District) to the west; Single-family homes. GPI (General Public and Institutional Use) and RSO (Single-Dwelling Residential-Office) Districts (formerly RO-1 and RO-2 Districts) to the east; community facilities and offices. RS5 (Single-Dwelling Residential) District (formerly RS-2 District) to the south; single-family residences.

Site Summary

Site area: 18.514 acres

Proposed building square footage: 126,825 square feet

I. ZONING AND LAND USES OF SURROUNDING PROPERTIES

Staff Finding – The properties surrounding the hospital facility are zoned industrially and residentially. Single-family homes, a mobile home park, City parkland, community facilities, and offices border the subject property.

II. CHARACTER OF THE AREA

Staff Finding – The area is characterized by a mix of residential and office uses, as well as community facilities. Predominantly residential uses are located to the north, south, and west, while office uses and community facilities are located directly to the east.

III. SUITABILITY OF SUBJECT PROPERTY FOR THE USES TO WHICH IT HAS BEEN RESTRICTED

Staff Finding – The proposed buildings would not alter the base zoning districts of RM-1, RS-2, and RO-2. The proposed use [Hospital, general, not including animal] is identified in Use Group 7 and is permitted in residential districts subject to approval of a Use Permitted upon Review application. It is important to note that the City’s new Development Code went into effect on July 1, 2006, at which time the hospital property converted to the H (Hospital) District.

The hospital campus is well-established and suitable for additional hospital structures and parking areas. The proposed development is located within the hospital campus boundaries and does not encroach into residential areas. Site plan review will be necessary prior to obtaining building permits for each new development or redevelopment as indicated on the subject master plan.

IV. LENGTH OF TIME SUBJECT PROPERTY HAS REMAINED VACANT AS ZONED

Staff Finding – Hospital facilities have existed on the subject site since the early 1920’s. The majority of the hospital property has been zoned RM-1 and RS-2 since the adoption of the 1966 Zoning Ordinance. A small southwestern portion of the property was rezoned from the RM-1 to the RO-2 District in 1971. The LMH property includes little open space and comprises the main hospital campus, associated accessory structures, and parking areas.

V. EXTENT TO WHICH REMOVAL OF RESTRICTIONS WILL DETRIMENTALLY AFFECT NEARBY PROPERTY

Staff Finding – The proposed development would not alter the base zoning districts of

RM-1, RS-2, and RO-2 (now H). As the new buildings and parking areas are proposed for location on the existing hospital campus, it is not anticipated that the new development will have an adverse impact on nearby properties. However, traffic impacts will need to be evaluated with each phase to ensure adequate street infrastructure is in place. Left-turn lanes are proposed for 4^th/Maine and 4^th/Michigan as part of the subject master plan. Each proposed master plan phase will be further evaluated for conformance with the City standards through the site plan review process.

VI. RELATIVE GAIN TO THE PUBLIC HEALTH, SAFETY AND WELFARE BY THE DESTRUCTION OF THE VALUE OF THE PETITIONER’S PROPERTY AS COMPARED TO THE HARDSHIP IMPOSED UPON THE INDIVIDUAL LANDOWNERS

Staff Finding – Approval of the request would allow the City’s only hospital facility to provide expanded medical services and associated parking to the residents of Lawrence and the surrounding areas. The additional parking areas as shown will result in a net gain of 122 spaces for the hospital site. Denial of the request would not affect the hospital’s ability to provide health care services, but it may limit the facility’s ability to serve certain types or numbers of patients.

VII. CONFORMANCE WITH THE COMPREHENSIVE PLAN

The following Horizon 2020 goals and policies support the UPR application:

COMMUNITY FACILITIES GOALS AND POLICIES

Goal 1: Provide Facilities and Services to Meet the Needs of the Community (page 10-15)

Policy 1.1: Maintain Existing Facilities (page 10-15)

STRATEGIES: RESIDENTIAL DEVELOPMENT

“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.” (Page 5-1)

Staff Finding – Horizon 2020 does not specifically address Uses Permitted upon Review, however, it does address community facilities. The UPR application conforms to the goals and policies of Horizon 2020 in that the existing hospital facility will continue to be maintained and utilized during the expansion process. Horizon 2020 also supports infill development when it preserves the character and appearance of existing residential neighborhoods. The proposal does not include modification of properties beyond the hospital’s established complex.

STAFF REVIEW

Variance Requests

As the parking areas along the edges of the property encroach into the 25-foot parking and building setbacks, variances were sought from the Board of Zoning Appeals (BZA) on May 4, 2006. Three of the five variances were needed to recognize existing conditions, while two were needed for new construction – the parking area at the corner of 4^th and Maine Streets and the parking deck along Arkansas Street. The parking deck is no longer proposed. All variances were approved unanimously by the BZA.

UPR Criteria

Section 20-1611 of the Zoning Ordinance states, "It is necessary to give special consideration to certain uses because they are unique in nature, require large land areas, require greater density, are potentially incompatible with existing development or because effects of such uses cannot definitely be foreseen, or more intensely dominate the area in which they are located than do other uses permitted in the district..."

The Zoning Ordinance provides two criteria for UPR applications, in addition to the findings of fact:

(a) “The proposed use and site plan conform to the purpose and intent of the ordinance.”

(b) “The proposed use and site plan will not under the circumstances of the particular case regarding setback, height, density, and similar aspects be objectionable or be detrimental to the general welfare of the community and neighborhood in which it is proposed to be located.”

The most recent LMH Master Plan UPR approval [UPR-09-07-05] included the following changes/additions to the site: x-ray storage building, surgery addition, emergency and maternal/child expansion, three-story office building, central plant expansion, and parking area. The x-ray storage building was constructed earlier this year. In 1999 [re: UPR-03-03-99], the boundaries of the hospital campus were amended to include parcels on the southwest corner of Arkansas and 3^rd Streets for the construction of a staff parking lot. Three years later [re: UPR-07-06-02], the campus boundaries were further amended to include additional parcels on the northwest corner of Arkansas and 4^th Streets for the construction of a staff parking lot.

With the subject LMH Master Plan, the applicant proposes to change the location of the surgery addition from the northwest corner of the main building to the northeast corner of the main building, reconfigure a parking area at the southwest corner of the site to add approximately 100 parking spaces, add an access point off Maine Street, reconfigure the parking lot off Maine, construct parking lots at the northwest corner of Maine and 4^th Streets, add left-turn lanes at the corners of 4^th/Maine and 4^th/Michigan, and reconstruct or add 5-foot wide sidewalks to the perimeter of the site. The parking lot at the corner of 4^th and Maine Streets was approved by the City Commission on May 23, 2006, and was recently constructed. The proposed project phases include extensions or modifications of existing hospital facilities, and will not extend beyond the boundaries of the established LMH campus (between Maine and Arkansas Streets, north of 4^th Street, and on the western side of Arkansas Street, between 3^rd and 4^th Streets).

The expected phasing of the new buildings/parking areas is as follows: 1) west tower expansion, boiler plant expansion, parking lot reconstruction at the southwest corner of the site, sidewalk improvements; 2) east tower expansion and east parking lot expansion; 3) surgery addition and 4^th/Maine and 4^th/Michigan improvements; and 4) medical office building addition and south parking lot expansion. 

According to the square footage summary on the face of the subject master plan, the total proposed square footage for the hospital expansion is 126,825 square feet. The medical office building will gain 46,600 square feet, the hospital will gain 78,625 square feet, and the central plant will gain 1,600 square feet with the expansion project.

Plan Update

The previously submitted master plan, which was deferred from the June Planning Commission meeting, included the closure of the 300 block of Arkansas Street, placement of parking spaces within the street portion, and reconstruction of the parking lot to the east of Arkansas Street. This closure and subsequent parking lot layout posed several issues for traffic flow and connectivity.

The revised subject master plan proposes to maintain the 300 block of Arkansas Street as an open, through street, and to modify the existing southwesternmost parking lot to add approximately 100 parking spaces. Parallel on-street parking spaces will also be located along the western side of the block. The City Commission considered an associated replat application to vacate the 300 block of Arkansas Street after staff report printing on July 18, 2006. With approval of this vacation, this portion of the street will be maintained by the hospital as a private drive. The vacation of right-of-way allows parking spaces to be located closer to the street, as setback standards do not apply. It is important to note that any future proposals to close the vacated portion of Arkansas Street will need to be reviewed by City staff.

The subject master plan proposal addresses staff’s previous concerns by accomplishing the following:

1. Proper vehicular flow within the parking lots off Arkansas Street. The access point into the lot along the west side of the street will be moved to line up with a drive aisle.

2. Sidewalks and street trees along Arkansas Street.

3. Left-turn lanes for each leg of the 4^th/Maine and 4^th/Michigan intersections, instead of the previously-proposed traffic signals. New five-foot wide sidewalks will be added at each corner of these intersections, as well.

4. Existing transit stops and routes will be maintained. While the City’s Transit Administrator and Transit Advisory Board have expressed interest in moving forward with an alternate route through the hospital property, the revised route/stops should be discussed between the Transit Administrator and hospital board separately, so that the subject master plan can be processed more quickly. The change in route/stops can be accomplished without notation on the master plan at this time.

The additional access point off Maine Street, the substandard condition of 2^nd and 3^rd Streets, and the project’s impact on the recently completed drainage project were also listed as concerns with the previous master plan. Signage will be important for each access point off Maine Street, as the access point for the relocated emergency entryway will need to be differentiated from the access point to the parking lot at the corner of 4^th and Maine Streets. The issue of improving 2^nd and 3^rd Streets is no longer relevant at this time, as the need to improve the streets arose in response to the previous road closure request and anticipated change in area traffic patterns. These roads will continue to be maintained as part of the City’s road maintenance program. Regarding drainage, City engineers do not expect the newly reconfigured parking lot to have an adverse impact on the 2^nd, 3^rd, Michigan, and Arkansas Street drainage project, as the reconfigured lot will not increase the impervious surface area of the existing lot by more than 10%. If a site plan for any individual project phase shows an increase in impervious surface area of more than 10%, a drainage study will be required.

On Monday, July 10, 2006, neighborhood residents/representatives, Landplan Engineering representatives, and LMH staff met to discuss the subject master plan. Neighbors expressed support for maintaining Arkansas Street as a through street, but were concerned about the safety of pedestrians crossing Maine Street at 4^th Street. With the pending intersection improvements, pedestrian markings and sidewalks will be added to each leg of the intersection, which will provide a clear path for those crossing Michigan, Maine, and 4^th at these intersections. The 4^th and Maine Street intersection currently includes stop signs at 4^th Street, but does not include stop signs along Maine Street. Additional stop signs will be added as warrants are met. Additionally, a resident who lives at the corner of 4^th and Maine Streets expressed concerns about the loss of greenspace and mature trees with the pending intersection improvements. A note has been included on the plan, stating that the locations of sidewalks may be adjusted to limit the impact on adjacent properties and to preserve existing trees.

The LMH Master Plan complies with the policies and recommendations of Horizon 2020. Approval of the revised UPR and LMH Master Plan will permit the applicant to submit individual site plan applications in anticipation of each new phase of the master plan. A revised master plan will need to be submitted prior to site planning structures not noted on the subject UPR application or with changes in building/parking area locations.