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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. 10 SPECIAL USE PERMIT FOR CENTENNIAL BASEBALL AND TENNIS COMPLEX (PGP)
SUP-07-06-08: Special Use Permit and Institutional Development Plan for the construction of additional parking and installation of bleachers/restrooms/concessions/lighting system to accommodate baseball and tennis competition on-site at 2145 Louisiana Street. 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-07-06-08, a Special Use Permit for the creation of baseball and tennis complex at Centennial School, 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. The applicant shall plat the property prior to the release of the site plan for issuance of a building permit. 6. Per City Code Chapter IX Article 9-903(B), a stormwater pollution prevention plan (SWP3) must be provided for this project. This project will not be released for building permits until an approved SWP3 has been obtained. Construction activity, including soil disturbance or removal of vegetation shall not commence until an approved SWP3 has been obtained. 7. Revisions of the site plan to provide the following: a. Rename the title similar to “Special Use Permit for Virtual School t ennis courts, ball field, and parking lot.” b. Update the legal description to include the entire site. c. Provide the required number of bicycle racks. d. Provide sidewalk connections at the northwest corner of the parking lot to the Greever Street sidewalk and a handicap ramp from the Greever Street sidewalk to Greever Street. e. Show the required accessible parking spaces. f. Provide width dimensions of the parking lot aisles. g. Provide the required concrete aprons from the parking lot to the street. h. Correct the spelling of the ‘Fairgrounds’ Addition Plat to the east. i. Reconstruction of sidewalks along the Greever Street and Louisiana Street frontages to meet current 5’ and 6’ width standards. j. Provision of additional details related to bleacher height, light pole heights, hours of operation for field and tennis court lights. k. Provision of corrected parking summary regarding required and provided parking based on multiple uses on site per Development Code requirements. l. Expansion of parking summary to identify number of existing spaces, net proposed spaces and total spaces ultimately to be developed. m. Notation that litter will be monitored and picked up on a regular basis. n. Notation that no gate is proposed along the western perimeter fence (W. 22nd Street/W. 22nd Terrace). o. Approval of a photometric plan (submitted -8/21/08). p. Provision of manufacturer specs for bleachers (with specific size and height information). q. Include the landscaping on the west side of the Tennis Courts in the landscape schedule. Update quantities on landscape schedule – Marshall Seedless Ash. r. A recorded Utility Easement will need to be shown for the sanitary sewer force main. s. Remove condition no. 12 as it just states, “This site plan has been”. t. Show the interior parking lot and perimeter landscape calculations per Sections 20-1003 and 20-1004. 8. Approval of a revised traffic impact study and inclusion of any recommended improvements (if determined necessary following staff review). 9. Approval of a revised downstream sanitary sewer study and including 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. · Development Code requires an Institutional Development Plan/Site Plan Review for the proposed improvements to the school property.
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FACTORS TO CONSIDER · Procedural requirements of Section 20-1306; Special Use Permit. · Procedural requirements of Section 20-1307; Institutional Development Plan
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ASSOCIATED CASES/OTHER ACTION REQUIRED · Publication of an ordinance per Section 20-1306 (j).
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PUBLIC COMMENT RECEIVED PRIOR TO PRINTING Communications from surrounding residents can be found in the communication attachments.
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BACKGROUND
This project is for the construction of a baseball field, 8 tennis courts, concession stand/restroom and expansion/improvements of a parking lot for the USD 497’s Virtual School located at the former Centennial Elementary School Building at 2145 Louisiana Street.
The existing 8 tennis courts located 1 block north at Lawrence High School are being removed to make room for additional parking for the Lawrence High School.
Summary of Project/Process/Identified Issues:
This proposal to develop Active Recreation uses 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. The IDP/Site Plan review of this project is being considered in conjunction with the IDP/SUP active recreation/parking lot improvements for Lawrence High School and Free State High School. It is expected that some of the Lawrence High School students will park in this parking lot during weekdays when Lawrence High School is in session.
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 spaces 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 Building and sites also allows adjacent and nearby property Owners 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 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/approval will be necessary to permit the proposed tennis court lights in close proximity to the residential homes and for the baseball field lights which will range from 65’ - 90’ in height. Additional information is also needed regarding the potential noise impacts from Active Recreation.
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.”
The proposed use of the property for school facilities and accessory athletic fields, including spectator facilities, is permitted in the GPI District. Staff has determined that the intensification of use to support competition events is substantial and triggers the requirement for an Institutional Development Plan. Section 20-1307(c)(2) identifies the criteria for an Institutional Development Plan:
(i) Bufferyards – applicant has proposed alternative compliance; staff has suggested revisions to include continuous double rows along entire west and south sides adjacent to residential properties.
(ii) Access – site is bordered by Louisiana Street which is designated as a minor arterial and Greever Street which is a local residential Street.
(iii) Sidewalks – applicant proposes to repair existing as necessary. Code requires sidewalks to be provided along all street frontages as part of first phase or at time of development. Existing sidewalks along the majority of Louisiana and Greever Streets do not meet current code width of 6’ and 5’ respectively. These upgrades would be included as a condition of approval. The proposed improvements appear to need a short connecting sidewalk to provide a pedestrian connection with the Greever Street sidewalk at the northwest corner of the parking lot.
(iv) Bicycle lanes or recreational paths - specific bicycle system improvements are not proposed with this project. As noted above, the project includes internal sidewalk improvements.
(v) Location furthest from RS zoned areas to reduce noise and light impacts – the Virtual School site is surrounded by RS zoned property to the north, east and west. As noted earlier, review of the IDP criteria will require balancing interests when evaluating infill projects in developed neighborhoods. The tennis courts are located on top of a 6’ high retaining wall and are approximately 14’ from the west property line. Some landscaping will be provided between the top of the retaining wall and the tennis courts. Staff has requested additional information regarding number/frequency of events that will draw significant crowd sizes and decibel levels anticipated by any sound system on this site.
(vi) Exterior lighting – this section of the code indicates lights should not be operated between 10PM and 7AM; however Section 20-1103 establishes ‘special standards for outdoor recreational uses’ and permits lighting of recreational areas until 11:30PM. In staff’s opinion, the applicant needs to propose ‘hours of operation’ for the competition field that identifies a limited number of events that may go later than 10PM.
(vii) Parking facilities shall be designed to be shared between multiple users – the additional parking provided will serve the athletic events and provide more on-site student parking for everyday school use. The applicant has been requested to provide historical attendance numbers for athletic events so that staff may better evaluate the potential impacts of these events.
(viii) Bus stops shall be included in the planning and development of the site – there is an existing area available for a bus pull out in front of the Virtual School on Louisiana Street, no additional improvements are proposed.
Staff Finding – In staff’s opinion, additional information is necessary to fully evaluate the traffic, parking, lighting and noise impacts associated with the proposed improvements. Revisions to the submitted plan would be needed to address items that staff has identified as deficient.
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 Virtual School property. The property is also used for Johnson Community College day and evening classes. 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 with conditions that are reflected in the recommended conditions of approval from the City’s Stormwater Engineer. 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 from the tennis courts and baseball field and to clearly articulate frequency and hours of any sound system anticipated to be used on this site.
The most significant impact to surrounding neighbors will be from the installation of the 8 tennis courts 14 feet from the west property line and the parking lot expansion on Greever Street. Impacts potentially include light trespass, noise and litter, as well as the visual change resulting from tennis court and parking lot improvements.
Staff Finding – In staff’s opinion, the district should be afforded the opportunity to establish typical amenities associated with a school, including competition athletic fields and tennis courts. 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.
This request comes with certain tradeoffs. For example, the proposed improvements will address recognized storm water issues and daily parking issues associated with the school operations, but will create other impacts such as lighting, activity and different parking issues that will be arguably to a lesser degree than what exists currently.
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 school facility located near single-family residences, a church lot, and the back side of a commercial retail strip. 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 developed urban neighborhood. The improvements also include regrading of portions of the western and southern areas of the site and installation of new storm pipe and stormwater detention pipes under the tennis courts to collect runoff. The new storm pipe will tie into the existing public system along and has been reviewed and approved by the City Stormwater Engineer. The installation will improve a known drainage problem in the area and 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 – Staff does not believe it is appropriate to place a time limit on the use.
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.