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PLANNING COMMISSION REPORT Regular Agenda - Public Hearing Item |
ITEM NO. 2A: Z-9-24-11 RSO (Single-Dwelling Residential office) District aND CS (COMMERCIAL STRIP) DISTRICT TO CS (commercial strip) District; 3.3 ACRES; 2600 ReDBUD LANE, 2620 IOWA STREET, 2626 IOWA STREET, AND 2032 W 27TH STREET (SLD)
Z-9-24-11: Consider a request to rezone approximately 3.3 acres from RSO (Single-Dwelling Residential-Office and CS (Strip Commercial) to CS (Strip Commercial) District, located at 2600 Redbud Lane, 2620 Iowa Street, 2626 Iowa Street, and 2032 W 27th Street.
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STAFF RECOMMENDATION: Staff recommends approval of the request to rezone approximately 3.3 acres, from RSO (Single-Dwelling Residential-Office) District and CS (Strip Commercial) to CS (Strip Commercial) District based on the findings presented in the staff report and forwarding it to the City Commission. |
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Reason for Request: |
The applicants own four tax parcels at the northeast corner of 27th Street and Iowa Street. All but one of such properties are zoned CS. Plat No. U12946 is zoned RSO, and is a vacant tract. Along with this application, the applicant is requesting the vacation of a portion of Redbud Lane right-of-way. The legal description attached to this application, describing 3.334 acres, consists of all four tax parcels, plus that portion of Redbud Lane included in the vacation request. This rezoning request is submitted to ensure CS zoning for the entire northeast corner of 27th Street and Iowa Street, in anticipation of full infill retail development. |
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KEY POINTS · Property includes is developed commercial lots and vacant lots. · Request is required to facilitate redevelopment of an existing commercial corner. |
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ASSOCIATED CASES/OTHER ACTION REQUIRED · PP-9-9-11; preliminary plat approval · Submission and approval of a final plat · Submission and approval of a site plan |
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PLANS AND STUDIES REQURIED · Traffic Study – Not required for rezoning. · Downstream Sanitary Sewer Analysis – not required for rezoning · Drainage Study – Not required for rezoning · Retail Market Study – Request will result in less than 50,000 SF |
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ATTACHMENTS · Area map |
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PUBLIC COMMENT RECEIVED PRIOR TO PRINTING · None received to date |
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Project Summary:
This property includes four separate parcels. Three parcels are currently zoned CS. The fourth parcel, located at 2600 Redbud Lane, is zoned RSO. Redevelopment of the commercial intersection requires a more uniform zoning boundary to accommodate planned development and associated off-street parking.
1. CONFORMANCE WITH THE COMPREHENSIVE PLAN
Applicant’s Response: This request is consistent with the strategies outlined for commercial development in Lawrence. A primary goal of Horizon 2020 is to “encourage infill development and/or redevelopment of existing commercial areas with an emphasis on Downtown Lawrence and existing commercial gateways.” 6-1 Iowa Street is a principal arterial street and is considered an existing Regional Commercial Center. Commercial use of the property conforms with the Commercial Chapter of Horizon 2020.
Horizon 2020 describes existing strip commercial developments as: characterized by developments that do not meet current standards for lot dimension and area, lot frontage, curb cut locations, or the presence of internal frontage roads for cross access. The Plan goes on note that this type of development occurred under conditions where development standards allowed for smaller lots, shallower lot depth, and lack of access management standards. The Plan recognizes the need for adequate lot depth to accommodate circulation and adjustment to increased traffic volumes and congestion (Page 6-10) of today’s traffic. South Iowa is designated as an existing commercial area in Horizon 2020. The plan states:
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· S. Iowa Street (23rd Street to the South Lawrence Trafficway)
S. Iowa Street is considered an existing Regional Commercial Center. S. Iowa is a strip development that is intensely development between 23rd Street and K-10. The corridor connects with existing commercial development along 23rd Street. With recent development at the northeast corner of 31st Street and Iowa Street, and the location of several discount stores in close proximity to one another, this commercial corridor has evolved into a Regional Commercial Center, serving regional shopping and entertainment needs.
K-10 provides a physical barrier and edge to the commercial corridor that has developed. Additional retail commercial uses shall not occur south of the highway, except for the possible location of an Auto-Related Commercial Center. Two of the four corners of the intersection have existing auto-related uses. Located at the northwest corner is a hotel and an automobile dealership is located on the northeast corner. Because of access to two major highways (K-10 and US-59) the area south of K-10 could be a location for an Auto-Related Commercial Center. Both corners are an appropriate location for an Auto-Related Commercial Center, provided that the floodplain issues for the southwest corner can be addressed.
Commercial property exists both east and west of S. Iowa Street along 31st Street. Emphasis shall be given to maintaining this commercial node and requests to extend the commercial corridor for additional retail development shall not be considered; however office and office research activities would be appropriate land uses along this arterial corridor.
In general, development and redevelopment along the Iowa Street segment shall emphasize consolidated access, frontage roads, coordinated site planning and design, and high quality development. Development signage should be in scale with sites and should complement and not compete with signage of adjoining parcels. Improved landscaping would enhance the visual appeal of the corridor. Landscaped transition yards should be established between residential and non-residential uses. |
With regard to redevelopment the Plan states: “A combination of innovative tools should be developed to assist owners of lots within the existing strip development areas to redevelop. These tools need to include regulations that provide accommodations for shallow lot depth, the combination of lots and access points, and the creation of cross access between lots to minimize the need for individual lot access to arterial streets.” (pg 6-10) This proposed development request, including the preliminary plat, is intended to address these criteria.
The Plan specifically states: “Existing Strip Commercial Development areas shall not be permitted to expand or redevelop into the surrounding lower-intensity areas. Redevelopment within Strip Commercial Development Areas shall be approved only when the redevelopment complies with any adopted redevelopment plan or access management plan for the area. Cross access easement and curb cut consolidation should be considered a standard element of any redevelopment plan, as shall a solid screen or buffer along all property lines that adjoin residentially zoned or developed areas.”
The proposed request will remove the Residential Office use zoning encroachment into the commercial strip area. The revised district boundary will allow for appropriate land use transition between the commercial and residential uses along Redbud Lane.
Staff Finding – Horizon 2020 encourages the retention and redevelopment of established commercial areas of the community. This proposed request will facilitate the redevelopment of the commercial corner with a construction that will comply with current development standards consistent with recommendations included in Horizon 2020.
2. ZONING AND USE OF NEARBY PROPERTY, INCLUDING OVERLAY ZONING
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Current Zoning and Land Use: |
RSO (Single-Dwelling Residential-Office) and CS (Commercial Strip) District; vacant restaurant and office building and two undeveloped parcels.
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Surrounding Zoning and Land Use: |
CS (Commercial Strip to the north, west and south; existing medical office use and apartment building to the north, restaurant use to the south, and mixed uses commercial to the west.
RM12 (Multi-Dwelling Residential) and RM24 Multi-Dwelling Residential) District to the east; existing residential uses on the east side of Redbud Lane.
RM32 (Multi-Dwelling Residential) District to the northeast; existing apartment building. |
Staff Finding – The property is surrounded by commercial zoning to the north, south and west. Redbud Lane establishes the boundary of the commercial uses along this segment of Iowa Street. Uses transition from high density to lower density east of Redbud Lane.
3. CHARACTER OF THE NEIGHBORHOOD
Applicant’s Response: The RSO zoned tract is surrounded on three sides by commercial zoning, and is vacant. The commercial parcels located on the west and south of the site are dilapidated, empty and obsolete commercial buildings. The area to the east of the site is zoned medium to high density residential.
The northeast corner of Iowa Street and W 27th Street is not located within a designated neighborhood boundary. The Indian Hills Neighborhood is located to the east and the Prairie Meadows Neighborhood is located to the west (west of Iowa Street). The property is within the South Iowa Street Commercial Corridor. Commercial properties, especially on the east side of Iowa Street, are generally smaller with less depth. Multi-family is the most common use that provides a transition between the commercial corridor and the residential neighborhood to the east.
Staff Finding – The property is located within a commercial corridor. Development is older and typically inconsistent with current development standards for screening and land use transition in this area.
4. PLANS FOR THE AREA OR NEIGHBORHOOD, AS REFLECTED IN ADOPTED AREA AND/OR SECTOR PLANS INCLUDING THE PROPERTY OR ADJOINING PROPERTY
The northeast corner of Iowa Street and W 27th Street is not located within a designated neighborhood boundary or special planning area. Redevelopment of the site will be subject to applicable Development Code standards and access management practices. Iowa Street is a designated arterial street. W 27th Street is a designated collector street. Access to Iowa (1 existing curb cut) is not proposed to be altered with this redevelopment request. Ultimately access to 27th Street will include the removal of the two existing driveways between Iowa and Redbud Lane thus improving access management at the intersection. Specific details regarding access are addressed as part of the subdivision and site plan review processes. The guiding land use document for this area is Horizon 2020.
Staff Finding – The northeast corner of 27th & Iowa and the surrounding area is not specifically included in any neighborhood or area plan. Horizon 2020 is used as the guiding land use plan for development considerations in this area.
5. SUITABILITY OF SUBJECT PROPERTY FOR THE USES TO WHICH IT HAS BEEN RESTRICTED UNDER THE EXISTING ZONING REGULATIONS
Applicant’s Response: “The relatively small size of the RSO-zoned property makes its use as medium density residential impractical. Because the subject property is adjacent to other commercial tracts, however, CS zoning is an optimal use of the site, and is necessary to permit the infill redevelopment of the balance of the northeast corner of 27th and Iowa Street. The rezoning eliminates an outlying RSO-zoned tract.”
The development pattern and zoning boundary of the S. Iowa Street commercial corridor is generally 150 to 200+ feet deep. In the block between 26th Street and 27th Street, the RSO district projects into the commercial corridor. Approval of the request will allow the property to be efficiently redeveloped. To comply with the land use recommendations for redevelopment of obsolete commercial properties the existing RSO zoning is not suitable for this location.
Staff Finding – A majority of the property has CS zoning. The existing .267 acres of RSO hinders the ability to redevelopment the northeast corner and is not suitable.
6. LENGTH OF TIME SUBJECT PROPERTY HAS REMAINED VACANT AS ZONED
The property includes both developed and vacant tracts. The property located at the immediate corner of Iowa and W 27th Streets was developed with a restaurant until the building was demolished in 2003. The property was not annexed into the city limits until sometime after 1966. The 1966 zoning map stops just south of W 26th Street along this segment of Iowa Street. The properties that include 2620 Iowa and 2600 Redbud Lane were rezoned in 1973 to commercial and residential office district zoning. [Z-3-8-73 and Z-3-9-73]. Based on the May 1973 Planning Commission staff report, the property located along 27th Street was commercially zoned at that time. The area had originally developed as a residential subdivision prior to annexation into the City. The surrounding area was developed with commercial and multiple-family uses. The area has a history of non-residential or multi-family uses. The original 1973 request for 2600 Redbud Lane was for commercial zoning. The Planning Commission denied that request and ultimately the property was rezoned to a residential office district.
The current CS and RSO zoning districts were established in 2006 with the adoption of the Development Code.
Staff Finding – Only 2600 Redbud Lane has remained vacant since annexation in the early 1970’s. This segment of Redbud Lane was not constructed.
7. EXTENT TO WHICH APPROVING THE REZONING WILL DETRIMENTALLY AFFECT NEARBY PROPERTIES
Applicant’s Response: “Approving this rezoning will not adversely affect the neighboring properties. The RSO-zoned parcel is surrounded on three sides by property zoned CS. Property adjacent to the east side of the property is zoned RM12, and there are RM24 and RM32 zoning districts to the northeast and southeast of the property. All of such neighboring residential areas are familiar with retail businesses at the intersection, as evidenced by the former retail businesses that previously operated at the intersection.”
The property abuts residential zoning and uses to the east. A local street separates the uses. The area is developed with commercial uses along Iowa Street and multi-family and office uses along Redbud Lane. Approval of the request will facilitate redevelopment of the corner into a cohesive development with improved access circulation at the intersection. Development will require appropriate land use transition between residential and non-residential uses.
Ultimately, development of the vacant lot on the east side of Redbud Lane will require extension of the public street. This new residential opportunity would have to recognize the existence of commercial development to the east. Redevelopment of the property will result in increased traffic at the intersection of 27th Street and Redbud where that activity currently occurs closer to the intersection with Iowa Street to the west.
Redevelopment of the property and construction of Redbud Lane north of its existing pavement may result in a perceived loss of open space. There is an undeveloped lot on both the east and west sides of Redbud Lane extended. The multi-dwelling residences located on the east side of Redbud Lane will experience additional traffic from customers and employees as well as commercial delivery to the site. Orientation of the commercial buildings and appropriate screening will mitigate these impacts.
Staff Finding – Approval of this request will result in facilitation of redevelopment of the northeast corner of Iowa Street and W 27th Street. Non-residential development near the intersection of Iowa Street and W 27th Street will experience an improvement in overall circulation though the reduction of curb cuts to W 27th Street close to the intersection. Multi-dwelling residential uses east of Redbud Lane will experience increased traffic on Redbud Lane as it becomes the primary access to the proposed redevelopment.
8. THE GAIN, IF ANY, TO THE public health, safety and welfare due to the denial of the application, as compared to the hardship imposed upon the landowner, if any, as a result of denial of the application
Applicant’s Response: “Approval of this rezoning application will enable the infill redevelopment of a very visible corner along Iowa Street. The corner is presently blighted and in need of revitalization. The rezoning will allow a vacant parcel of land to be brought back to use while providing the City with tax revenue of a developed commercial site rather than continued vacant ground.”
Evaluation of this criterion includes weighing the benefits to the public versus the benefit of the owners of the subject property. Benefits are measured based on anticipated impacts of the rezoning request on the public health, safety, and welfare.
The key consideration of this request is the intrusion of the RSO zoning west of Redbud Lane. This parcel of land hinders redevelopment efforts and would require the application of landscape requirements that would not otherwise be beneficial to the project or to the surrounding area. Approval of the request will facilitate efforts to redevelop the corner providing a modern and upgraded appearance to the commercial corridor at this location. Redevelopment will make use of existing infrastructure available to the site and result in an improved intersection functioning at Iowa Street and W 27th Street through the removal of driveways on 27th Street.
Staff Finding – Approval of the request facilitates redevelopment of the site and improved traffic flow at the intersection of Iowa Street and W 27th Street. Denial of the request would result in the application of certain Development Code standards that would not best suit a redevelopment of the property in an efficient manner or result in multiple requests for variances from buffering and setback requirements where the commercial zoning abuts the RSO zone.
9. Professional staff recommendation
Staff recommends approval of the request to facilitate redevelopment of the northeast corner of Iowa Street and 27th Street. Approval of this rezoning request is an initial step of the redevelopment. Additional approvals are required to replat the land. A site plan development approval is also required. This review will address specific screening, setback and transition elements as they related to the residential zoning to the east.
In this application, the intrusion of the zoning and land use is into the commercial corridor from the lower intensity zoning. The proposed request will not result in a change or intrusion of commercial into the adjacent residential neighborhood but realigns the district boundary to a more usable configuration.
CONCLUSION
This request is for the implementation of a redevelopment project on the northeast corner of Iowa Street and 27th Street. The generally shallow depth of commercial property along this side of Iowa Street prevents efficient development of the area. Rezoning the property to a uniform district, coupled with a subdivision plat to create appropriate sized lots, will facilitate redevelopment of the area.
Development Summary
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2032 W 27th Street · SP-5-30-77; Office Bldg.; NW corner 27th & Redbud Lane
2626 Iowa Street · SP-10-75-96; redevelopment of existing site for Glory Days Pizza
2620 Iowa Street · SP-2-6-07; storage addition to Plum Tree restaurant. · SP-6-55-89; Plum Tree drive-thru window · SP-4-17-77; Western Sizzler
2600 Redbud Lane · No site plan records for this property. · Apartment building constructed in 1964 according to Appraisal records.
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