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PLANNING COMMISSION REPORT Regular Agenda – Public Hearing Item: |
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Staff Report 08/27/08 |
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ITEM NO. 11 SPECIAL USE PERMIT FOR FREE STATE HIGH SCHOOL; 4700 OVERLAND DRIVE (PGP)
SUP-07-05-08: Special Use Permit and Institutional Development Plan for the construction of additional parking and installation of bleachers/restrooms/concessions/lighting/sound systems to accommodate football/softball/soccer/tennis competition on-site at 4700 Overland Drive. Submitted by Landplan Engineering, for City of Lawrence Public Schools USD 497, property owner of record.
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STAFF RECOMMENDATION: Planning Staff recommends approval of SUP-07-05-08, a Special Use Permit for the expansion of athletic fields and associated parking lot improvements, based upon the findings presented in the body of the staff report and pending additional information being provided to the Planning Commission at the meeting as discussed in the conclusion of this report.
If the Planning Commission’s recommendation is for approval, Staff recommends the action be subject to the following conditions:
1. Execution of a Site Plan Performance Agreement. 2. Publication of an ordinance per Section 20-1306 (j). 3. Per Section 20-1307(e), recording of the Institutional Development Plan (Site Plan) at the Register of Deeds Office. 4. Prior to building permits being issued for any of the athletic field light poles, the applicant shall either revise the site plan to show conformance with the 60’ height limit of such poles, gain approval of a variance to exceed the 60’ height limit, or gain approval of a text amendment that provides for heights greater than 60’. 5. Platting of the unplatted western portion of the property prior to any building permits being issued on the unplatted area. 6. Revision of the site plan to provide the following: a. Revise the acres listed in the Legal Description. b. Update the site impervious summary to include the entire 72.6 acre property. c. Provide missing sidewalk connections from the parking lots and Overland Drive to the athletic fields and from the new parking lot to the High School Building. d. Label the number of parking spaces in front of the south side of the high school entrance and along the east driveway. e. Provision of additional details related to bleacher height, light pole heights, and hours of operation for field lights. f. Provision of corrected parking summary regarding required and provided parking based on multiple uses on site per Development Code requirements. g. Expansion of parking summary to identify number of existing spaces, net proposed spaces and total spaces ultimately to be developed. h. Correction of Building Use summary to indicate number of students based on 08/2008 District Preliminary Enrollment Report. i. Provision of additional dimensions and corrections to cross sections to accurately reflect proposed improvements and existing structures. j. Notation that litter will be monitored and picked up on a regular basis. k. Notation regarding the height of screen fencing that will be provided at softball backstop and soccer fields to minimize ‘fly balls’ potential. l. Specific location of concession/restrooms at football field prior to release of plan for permits (under bleachers or stand-alone buildings, not both). m. Show the interior and perimeter parking lot landscape calculations per Sections 20-1003 and 20-1004. 7. Approval of a photometric plan (submitted on 08/21/08). 8. Provision of manufacturer specs for bleachers (with specific size and height info). 9. Approval of a revised traffic impact study and inclusion of any recommended improvements (if determined necessary following staff review). 10. Approval of a revised downstream sanitary sewer study and inclusion of any recommended improvements (if determined necessary following staff review).
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Applicant’s Reason for Request: |
“To enhance and expand the extra curricular activities provided on site for the school, school district and surrounding community.” |
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KEY POINTS · Proposed use will operate from an existing facility with previous history as community related activity. · Property is located at one of the two existing public high school sites in Lawrence. · Development Code requires an Institutional Development Plan/Special Use Permit approval for the proposed improvements to high school property.
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FACTORS TO CONSIDER · Procedural requirements of Section 20-1306; Special Use Permits · Procedural requirements of Section 20-1307; Institutional Development Plan.
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ASSOCIATED CASES/OTHER ACTION REQUIRED · Prior Site Plans · Publication of an ordinance per Section 20-1306 (j).
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PUBLIC COMMENT RECEIVED PRIOR TO PRINTING Communications from the public can be found in the communication attachments.
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Background:
The proposed request is for the construction of an additional parking lot at the southwest corner of the property accessed from an internal driveway from Overland Drive. The proposed improvements also include construction of new bleachers, restrooms and concession buildings at the football, soccer, softball and baseball fields. Improvements also include installation of new field lighting as well as a public address system to be used at the football field and potentially other fields. These improvements are proposed to address facility equity issues and to provide on-site practice and competition facilities so that students do not need to travel off-site to participate in these activities.
This proposal to develop the Active Recreation uses on this site has the potential to substantially change activity levels on this site and constitutes a significant change that triggered the requirement to submit an Institutional Development Plan (IDP) for the property. Because the site is more than 10 acres in size, the IDP is also required to be reviewed as a Special Use Permit (SUP) with public hearing and review by the Planning Commission and City Commission.
Section 20-1307(a) states the Purpose for the Institutional Development Plan:
The purpose is to provide a community vision for the long-term use and development of public institutional space and lands so that they are designed to be compatible with surrounding land uses and contribute to the neighborhood and character of the area in which they are located. Providing this community vision for institutional Buildings and sites also allows adjacent and nearby property Owner to anticipate future non-residential development patterns and plan for the use and enjoyment of their property accordingly.
This section sets out standards in which to review these types of properties. In staff’s opinion, the standards were written with an expectation that property would be undeveloped and master planned with initial improvements. Many of the developed school sites present challenges in that mature neighborhoods have developed around or near the properties. Compliance with adopted standards needs to be evaluated on a case-by-case basis in an effort to achieve a reasonable balance between the school district’s needs and the surrounding property owner’s concerns. Development should be tailored to best achieve the district’s goals while minimizing or mitigating impacts to the surrounding community.
The development of competition athletic facilities does not occur on a routine basis in the community. Therefore, the type of information needed to review a proposal is different than typical planning proposals. Staff has worked diligently with the applicant to identify the additional information that is needed to thoroughly evaluate the potential impacts related to the proposed changes. In staff’s opinion, additional review is necessary regarding potential traffic impacts and adequacy of parking to support large-scale competition events. Additional review process/approvals will be necessary to permit the proposed field lights which will range from 65’ – 90’ in height. Additional information is also needed regarding the potential noise impacts from the proposed public address system.
Review and Decision-Making Criteria (20-1306(i))
1. WHETHER THE PROPOSED USE COMPLIES WITH ALL APPLICABLE PROVISIONS OF THIS DEVELOPMENT CODE
Applicant’s Response – “The proposed development is for sports fields and accessory facilities for use by the school and local community, under GPI the only use requiring Special Use approval is entertainment sports (i.e. professional major and minor league sports) as such the use falls within the scope of permitted uses.”
Staff Finding – The proposed use is for the development of competition fields and the construction/installation of accessory components to support these uses on the Free State High School property. Proposed improvements include permanent spectator bleachers with restroom & concession facilities as well as installation of field lighting, use of a public address system and construction of an additional parking lot.
The existing football field/track, tennis courts, softball/baseball fields were constructed as accessory uses to the existing High School Use prior to the Development Code (which went into effect on July 1, 2006). Additional uses or intensification of the property (noise, traffic, outdoor field lighting or increased stormwater runoff) are now subject to an Institutional Development Plan/Special Use Permit.
The city operates and maintains an indoor swimming pool which is on a separate 5 acre lot located in the middle of the school property.
Most of the existing Free State High School improvements predate the period when public schools were required to site plan. Free State School Site Plan approvals for this property include: the high school building in 1995 [SP-06-39-95], a greenhouse addition in 2000 [SP-01-01-00], a cellular tower in 2004 [SP-11-79-04], a 7,441 square foot building addition to the west side of the high school in 2005 [SP-11-93-05] and the lighting of the softball field in 2007 [SP-12-83-07]. A Use Permit upon Review for the City’s Aquatic Center was approved in 1999 [UPR-03-04-99]. In July 2008, SP-06-44-08 was administratively approved to permit the installation of an artificial turf surface for the football playing field.
The proposed use, as conditioned complies with the provisions of the development code.
2. WHETHER THE PROPOSED USE IS COMPATIBLE WITH ADJACENT USES IN TERMS OF SCALE, SITE DESIGN, AND OPERATING CHARACTERISTICS, INCLUDING HOURS OF OPERATION, TRAFFIC GENERATION, LIGHTING, NOISE, ODOR, DUST AND OTHER EXTERNAL IMPACTS
Applicant’s Response – “For the facilities proposed most use will be confined to early afternoon and limited night time use, as well as daytime weekend use limiting disruption of the surrounding residential areas.”
The development of a competition facility on-site will increase the activity level on the high school property. With the new practice facilities, more students will remain on campus after school and with the competition fields, more students and spectators will be on the school property in the afternoons, evenings and potentially weekends for a variety of events.
The SUP/IDP submission included stormwater drainage, traffic impact, and downstream sanitary sewer studies. The drainage study has been approved. The traffic impact and sanitary sewer studies are currently under review by city staff. Approval of the SUP/IDP will need to be contingent on ultimate approval of those reports and inclusion of any recommended improvements.
The applicant has provided basic information regarding the types of light fixtures that will be installed. The fixtures include a component that redirects light onto the playing fields to minimize off-site glare and night sky concerns. The submitted information does not yet identify fixture wattage. A photometric plan, indicating expected light levels, has not yet been submitted. The applicant has indicated that the light poles will range from 65’ – 90’ in height dependant upon the type of sport the field is used for. Staff has noted that the Development Code limits the maximum height of outdoor recreation lights to 60’. The applicant has been advised that a request for a variance from this height limit would need to be granted by the Board of Zoning Appeals prior to installation. These components are reflected in the recommended conditions.
The applicant has provided basic information regarding the sound system to be installed for the football field. The information does not identify potential decibel levels. The district’s narrative indicates the system would primarily be used for soccer and football (and may be a portable, rather than fixed system). Additional detail is necessary to adequately assess impact to surrounding properties.
Staff Finding – In staff’s opinion, the district should be afforded the opportunity to establish typical amenities associated with a high school, including competition athletic fields. As discussed, the degree of compatibility with the neighborhood needs to be clarified with regard to the hours of operation, traffic generation, lighting, and noise. The recommended conditions can mitigate certain impacts and incompatibilities with the adjacent uses.
3. WHETHER THE PROPOSED USE WILL CAUSE SUBSTANTIAL DIMINUTION IN VALUE OF OTHER PROPERTY IN THE NEIGHBORHOOD IN WHICH IT IS TO BE LOCATED
Applicant’s Response – “Development of the proposed facilities should increase local property values as the facilities provided will provide enhanced recreational and sports and venues to the local community.”
Staff Finding – The subject property is an existing high school facility close to single-family residential, multi-family residential, the undeveloped Bauer Farm Planned Development and undeveloped City park land. No information has been submitted to determine if there will be any affect, positive or negative, to the other property in the neighborhood by constructing the proposed improvements.
4. WHETHER PUBLIC SAFETY, TRANSPORTATION AND UTLITY FACILITES AND SERVICES WILL BE AVAILABLE TO SERVE THE SUBJECT PROPERTY WHILE MAINTAINING SUFFICIENT LEVELS OF SERVICE FOR EXISTING DEVELOPMENT
Applicant’s Response – “No, the proposed fields will be constructed with a synthetic turf that will reduce storm runoff from the site and provide additional detention as well. The locations proposed for the expansions are large open grass areas that serve as activity fields presently for the school.”
Staff Finding – Public safety at events will be served by the city’s existing public safety agencies and transportation networks are in place to serve the use, though staff is still discussing the traffic impact study with the applicant’s consultant to verify assumptions and conclusions. Staff is also still reviewing the downstream sanitary sewer studies to determine if any improvements will need to be made to those services. No changes to the urban services are proposed for the new use.
5. WHETHER ADEQUATE ASSURANCES OF CONTINUING MAINTENANCE HAVE BEEN PROVIDED
Staff Finding –The site plan will function as the enforcement document to assure that maintenance and use of the property is consistent with the approval.
6. WHETHER THE USE WILL CAUSE SIGNIFICANT ADVERSE IMPACTS ON THE NATURAL ENVIRONMENT
Staff Finding – The subject property is located within a developing urban neighborhood. The improvements also include installation of new storm pipe to collect runoff. The new storm pipe will tie into the existing public system and has been reviewed and approved by the City Stormwater Engineer. The installation will result in a positive change as a result of the proposed project.
7. WHETHER IT IS APPROPPRIATE TO PLACE A TIME LIMIT ON THE PERIOD OF TIME THE PROPOSED USE IS TO BE ALLOWED BY SPECIAL USE PEMRIT AND, IF SO WHAT THAT TIME PERIOD SHOULD BE.
Staff Finding – The installation of Active Recreation facilities for the High School is a major capital program investment of public funds. It would not be appropriate to place a time limit on the period of time for the proposed uses of the High School property.
CONCLUSION: Staff generally supports the proposal, but would like the district to be prepared at the meeting to provide additional information and confirm assumptions staff has made regarding the following issues so that the Planning Commission and public have adequate information by which to base their decisions.