STAFF REPORT October 7, 2016 Special Use Permit/Site Plan Application 100 W. Grand River W. Grand River Avenue and Evergreen Avenue

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1 Department of Planning, Building & Development Staff Contact: Darcy C. Schmitt Phone No.: PC Agenda: October 12, 2016 STAFF REPORT October 7, 2016 Special Use Permit/Site Plan Application 100 W. Grand River W. Grand River Avenue and Evergreen Avenue SUBJECT An application for Special Use Permit and Site Plan approval from 100 Grand River, LLC, and 341 Evergreen, LLC, for the properties at W. Grand River Avenue and Evergreen Avenue, to demolish all existing structures and construct two multi-story buildings and a parking structure. Building A: The W. Grand River Avenue properties are proposed for a development with a 12-story, mixed-use building having first floor retail and a residential and hotel lobby; the remaining floors have office space, hotel amenities including meeting rooms, a ballroom and rooftop restaurant/lounge, and guest rooms. Also included are mixed-market residential rental units with 25 efficiency, 29 onebedroom, 43 two-bedroom, 17 three-bedroom, and 63 convertible efficiency units. Building B: The Downtown Development Authority (DDA) properties along Evergreen Avenue are proposed for a development with a public parking structure providing seven levels of parking and overall parking for 597 vehicles.

2 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 2 of 24 Building C: The Evergreen Avenue are proposed for an eight-story building with mixed-market rental units including 7 efficiency units, 133 one-bedroom, 14 twobedroom, seven three-bedroom, and 14 convertible efficiency units. Convertible efficiency units will allow the ability to eliminate 14 residential units on the first two floors to substitute office space as market opportunities presents themselves. An alternative plan for building C is proposed for a Senior Living facility which may include Independent Living, Assisted Living, and Memory Care including residential support and amenities. EXISTING CONDITIONS There are several parcels that make up the two (2) acre proposal. The proposal includes the parcels making up.93 acre owned by the Downtown Development Authority (DDA). The remaining buildings on the Grand River Avenue properties have been vacant for over a decade and cannot be rehabilitated. They will be taken down as part of the redevelopment of this property. Obsolete buildings were recently demolished on the DDA property at the corner of Albert Avenue and Abbot Road and privately owned property at Evergreen. The proposal includes part of the

3 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 3 of 24 DDA property to realign Albert Avenue and the remaining as part of Building A. The DDA properties are all occupied through at least May of 2018 and will be vacated depending on timing of project construction. This section of the City has awkward street alignments that have created unsafe conditions for pedestrians and motorists. Albert Avenue is offset by approximately 30 feet as it traverses Abbot Road and it has created a situation where the left turning vehicle from Albert Avenue onto Abbot Road has a difficult time seeing the eastbound vehicle on Albert Avenue traversing Abbot Road. Since Albert Avenue dead ends into Evergreen Avenue to the west it is common practice for vehicles to cut through Parking Lot 8 to get to the west side of Valley Court while driving at speeds that would be appropriate for a residential street but not a parking lot. The underground infrastructure is over 80 years old. Current sewer and water lines do not have the capacity for new development. This infrastructure will need to be replaced or significantly rehabilitated in the next 10 to 20 years regardless of whether development occurs. The properties are zoned B3, City Center Commercial District and RM32, City Center Multiple-Family Residential. A conditional rezoning is proposed to change the RM32 property to B3 for the purpose of the site plan and special use permit proposed for building C. North of building A is Albert Avenue, City-owned Parking Lot 4, and the Dublin Square restaurant, all of which are also zoned B-3. To the west of building A is The People's Church, which is zoned B-1, General Office Business District. The church is one of the oldest religious institutions in the City and the building is a Landmark historic property under the City s Historic Preservation ordinance. Further to the west is the Showroom Shine Carwash and Crunchy's restaurant, both of which are zoned B-2, Retail Sales Business District. To the east is the core downtown which includes the highest density mixed-use developments in the City and is also zoned B-3. Michigan State University's campus is located directly to the south of the proposed project. PROPOSED DEVELOPMENT Buildings A, B, and C are proposed as one development under a single site plan and special use permit application. In order for the application to be considered as proposed, Ordinance 1389, a conditional rezoning for the Evergreen Avenue property, will first need to be considered. As part of the development proposal the infrastructure will be significantly improved by correcting the awkward street alignment and increasing the capacity of the water and sewer lines. First, Albert Avenue will be aligned as it crosses Abbot Road creating a safer flow for pedestrians and vehicles and providing a better connection between the core downtown and Valley Court Park. Evergreen Avenue will also be modified by terminating the southern end of the Avenue at the intersection of Valley Court. Finally, Abbot Road will get an additional southbound lane starting at the northern part of City Lot 4 ending at Grand River Avenue.

4 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 4 of 24 Realigned intersection. Improved connection between Downtown and Valley Court Park will be created though the reconfiguration of the street layout. Building A Proposed building A is located at W. Grand River Avenue the corner of Abbot Road and Grand River Avenue just east of The Peoples Church. It is designed as a 12-story (140 tall) mixed-use building providing terraced architectural features, green roofs, and multiple outdoor amenities such as a pool, patio, rooftop deck, and plaza. The façade is made of primarily brick, vision glass, and metal panels.

5 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 5 of 24 The underground parking garage shown below is reserved for use of the hotel patrons. It can be entered at the southwest side of the building from Grand River Avenue and exited at the northwest end of the building to Albert Avenue. Retail uses are expected to take up the majority of the first floor and the remaining area at the north side of the building is reserved for a hotel and residential lobby. The residential lobby includes the mail room and elevators for the residential component separating the hotel and residential use. Loading and trash removal areas shown at the northwest side of the building to accommodate building A.

6 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 6 of 24 The second floor shown below includes the ballroom, outdoor terrace, meeting rooms, hotel fitness room, and hotel guest rooms. It also includes mixed-market residential rental units.

7 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 7 of 24 The third floor shown below includes mixed-market residential rental units, the residential pool and outdoor deck. It also includes hotel guest rooms and a green roof area. The fourth through the eleventh floors shown below include mixed-market residential rental units and hotel guest rooms.

8 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 8 of 24 The twelfth floor shown below includes mixed-market residential rental units and a roof top bar with an outdoor deck with access from the hotel. The chart below breaks down the uses by floor and residential unit type: Residential Units Commercial Efficiency/ One- Two- Three- Convert. Office/Retail Hotel Amenities Parking studio Bed Bed Bed Efficiency Rooms Lower Level NA NA NA NA NA NA NA NA 112 spaces 1 st Floor NA NA NA NA NA Yes NA Plaza, NA Lobby for hotel, ballroom, and residential 2 nd Floor NA 9 Hotel NA bathrooms, fitness room, meeting rooms, office space, kitchen, outdoor terrace and ballroom 3 rd Floor NA 16 Residential NA pool, green roof, deck, and community room 4 th Floor NA 16 NA NA 5 th Floor NA 16 NA NA

9 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 9 of 24 6 th Floor NA 16 NA NA 7 th Floor NA 16 NA NA 8 th Floor NA 16 NA NA 9 th Floor NA 16 NA NA 10 th Floor NA 16 NA NA 11 th Floor NA NA NA 16 NA NA 12 th Floor NA NA NA NA Hotel NA rooftop bar and outdoor deck Total Apartments Total Beds 254 Total Hotel Rooms 153 Total Parking 112 Building B Proposed building B is a parking structure 62 in height with seven (7) levels of parking with a total of 597 public parking spaces. It is located on Albert Avenue on the west side of the alley. Patrons will enter and exit the structure from Albert Avenue. Future management and ownership of the structure will be determined later in the approval process and will be spelled out in a Development Agreement. The graphic on the next page shows the south elevation of the public parking structure; and the graphic above shows the east elevation of the proposed public parking structure and part of building C.

10 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 10 of 24 Studio One-bed Two-bed Three-bed 1 st Floor nd Floor rd Floor th Floor th Floor th Floor th Floor th Floor Total Apartments Total Beds 196 Building C Proposed building C is located along the proposed realignment of Albert Avenue and along the section of Valley Court between where the new Albert Avenue runs perpendicular to Valley Court and where the south end of Evergreen Avenue is proposed to terminate. Building C has two different plans proposed for the site based

11 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 11 of 24 on the outcome of Ordinance As mentioned above, the entire project is dependent on Ordinance 1389, an ordinance to conditionally rezone the property at Evergreen Avenue from RM32 to B3. If this ordinance is passed the applicant may be acted upon as a single development. Option 1: An eight (8)-story (90 tall) mixed-market residential rental unit development including 7 efficiency units, 133 one-bedroom, 14 two-bedroom, 7 three-bedroom, and 14 convertible efficiency units. Convertible efficiency units will allow the ability to eliminate 14 residential units on the first two floors to substitute office space. Option 2: An alternative option is an eight (8)-story (90 tall) Senior Living facility, which may include Independent Living, Assisted Living, and Memory Care, including residential support and amenities.

12 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 12 of 24 The façade is proposed to be made of primarily metal panel, vision glass, wood panel and brick. STAFF REVIEW Site Plan A site plan application must meet the specific use and dimensional standards of the zoning district in which it is to be located and a number of other required conditions for development specified in the Zoning Code. A site plan application must substantially comply with the general standards of review specified in Sec of the Code. A site plan must also comply with other applicable local ordinances and state and federal statutes, and be consistent with the objectives of the City s comprehensive plan. A site plan may be approved subject to certain conditions or modifications necessary to bring the plan into conformance with these requirements, including the approval of any variance that may be granted by the zoning board of appeals.

13 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 13 of 24 A. Zoning District Standards The B-3 District is to provide for a wide range of commercial and high density residential land uses designed to serve the residents and shoppers of the East Lansing City Center. Because of its proximity to the Michigan State University campus and nearby residential neighborhoods, a major characteristic of the City Center is its intense core of pedestrian activity. This activity helps to create a unique social environment where people can gather and enjoy the festive atmosphere of a university downtown, attractive landscaping and greenery, and the diversity of retail shops. The B-3 zoning is the downtown core zoning. It is highly mixed in terms of uses, with individual buildings being permitted to have multiple uses. It covers the middle portion of Grand River Avenue in the City, along with the first blocks of the north/south roads coming from Grand River Avenue. Albert Avenue is the main east/west route through the downtown. The municipal parking system provides parking services to any property within the B-3 District. B. General Standards of Review for Site Plan Approval (For a detailed list of the standards, please see Sec of the Code) 1) General site conditions. The site shall be designed and developed to provide a logical relationship between functional elements, to effectively serve the purposes for which it is to be developed, and to be reasonably compatible with surrounding properties. Building A provides a mix of uses that will compliment the downtown. It places additional residential units in the downtown and near campus. Building B may provide a unique residential housing option if senior housing is incorporated. The drive entering into building C breaks up the pedestrian flow along Albert Avenue. (2) Natural features. The site shall be designed and developed to minimize the disruption or loss of its desirable natural qualities and to enhance its overall appearance. There shall be no net loss in either wetland area or wetland benefits due to development of the site. There are no natural features on the site. The applicant is utilizing an already disturbed site and will not be further impacting natural features in the community or on the site. (3) Traffic Access. The site shall be designed and developed to provide safe and efficient access for all forms of travel and to minimize impacts on adjacent public facilities. The Transportation Commission s review is attached. (4) Utilities and public services. The site shall be designed and developed to

14 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 14 of 24 facilitate the efficient provision and maintenance of adequate public services. The Engineering Department will provide comments prior to the Planning Commission taking action on the application. Extensive infrastructure work will be required as part of this project including the reconstruction of water lines, sanitary/storm sewers, and streets. (5) Environmental protection. The site shall be designed and developed to minimize any risk of pollution of natural resources and to protect the public health, safety and welfare. No pollution is expected as a result of this proposal and the public health, safety, and welfare will be protected. C. Other Applicable Local Ordinances and State and Federal Regulations Prior to the approval of finals plans and the issuance of any construction permits, in addition to complying with all applicable local construction standards and specifications, the applicant will need to secure permits from Construction Containment Plan Percent for Art Requirement(Building Permit) D. Objectives of the Comprehensive Plan The Comprehensive Plan calls for mixed, urban uses on the site, up to 10 stories in height. Specifically, the project supports the following goals of the Comprehensive Plan. Objective 3-1: Support both commercial and residential development opportunities downtown. o Action 3-1.8: Require any redevelopment of existing commercial areas to include mixed-use, multiple-story buildings rather than strip development. Objective 4-1: Promote plans, programs, and activities that will encourage continued growth. o Action 4-1.3: Research and implement incentives for the redevelopment and revitalization of underutilized properties such as: 4. Downtown s west end between Delta Street and Abbot Road Objective 5-2: Allow for and encourage land development patterns which can reduce the necessity for the use of automobiles. o Action 5-2.1: Provide opportunities for concentrated residential development within and adjacent to commercial and employment centers. STAFF REVIEW Special Use Permit The applicant is requesting a special use permit for building A and building B to allow multiple-family housing in the B3 district, and to allow the building height to increase above the base height of four stories or 64 feet.

15 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 15 of 24 A Special Use Permit application may be approved if it meets the requirements for Site Plan approval reviewed above and if the applicant makes an affirmative showing and the City finds that the application meets the following additional standards of review specified in Sec of the Code. A Special Use Permit may also be approved subject to reasonable conditions or certain modifications necessary to ensure that the use conforms to all applicable requirements. A. All uses. Except as may be provided elsewhere in the Zoning Code, each Special Use Permit application shall meet each of the following standards: (1) The proposed use shall be consistent with the purpose of the use district in which it is located and the purpose and provisions of this division. (a) The purpose of this district is to provide for a wide range of commercial and high density residential land uses designed to serve the residents and shoppers of the East Lansing City Center. Because of its proximity to the Michigan State University campus and nearby residential neighborhoods, a major characteristic of the City Center is its intense core of pedestrian activity. This activity helps to create a unique social environment where people can gather and enjoy the festive atmosphere of a university downtown, attractive landscaping and greenery, and the diversity of retail shops. (b) The provisions of this district are intended to encourage the planned development of pedestrian amenities and public and private open space, and closely regulate the need for direct automobile access to each establishment. Also important in the future development of the City Center is the concept of mixed-use development promoted by this district and the East Lansing Comprehensive Plan. Mixed-use development for purposes of this district is defined as the combination of commercial and residential land uses within the same building. Since the City Center contains only limited geographic area for expansion, intensifying development through a mixture of uses within the same building is of major importance to the city's efforts to expand the tax base and broaden the housing and shopping opportunities available in the City Center. The project meets the intent of the district by promoting additional retail opportunities in the downtown and providing high density, quality residential development. Within the limited area of the downtown, the project is intensifying the land uses. (2) The site plan for the property shall be approved in accordance with the provisions of section of this chapter. The site plan application was submitted correctly, with the proper information, as required in Section (3) The proposed size, height, architectural character and placement of new or expanded structures on the site shall be reasonably compatible with the existing or anticipated buildings on adjacent properties. Building A is proposed as a 12-story building which would be the tallest building in East Lansing, however the design of the building incorporates

16 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 16 of 24 architectural features such as terracing, green roofs, decks, terraces and public plaza which minimize the impact a taller building has in this location. (4) Streets and access facilities serving the site shall be able to safely accommodate the expected traffic generated by the proposed use; the use shall not cause excessive traffic congestion or delays, obstruct access to adjacent properties, or imperil the safety of motorists, pedestrians or bicyclists. The Transportation Commission s review is attached. (5) The proposed use shall not adversely affect the use and enjoyment of adjacent properties by generating excessive noise, vibration, light, glare, odors or any other form of pollution or nuisances. Excessive noise, vibration, light, glare, odor, or any other nuisance or pollution are not expected from this proposal. All applicable City ordinances related to soil erosion, noise, lighting, etc. will be enforced through construction and operation of the project. (6) The proposed use shall not materially diminish the economic value of adjacent properties or the city as a whole. The proposed use is not expected to diminish the economic value of adjacent properties or the City as a whole. The project could have a net positive impact on the City by bringing more persons downtown (potential shoppers and patrons) and by making a substantial investment in the community, contributing to the long-term viability of the City s tax base. (7) The proposed use shall not materially diminish the privacy, safety, security or enjoyment of any residential dwelling or residential neighborhood within the vicinity of the site. There is no direct evidence that this proposal would diminish the privacy, safety, security, or enjoyment of any nearby residential dwelling unit or neighborhood. Although the buildings will change sight lines for neighboring properties, only one direction will be affected in most cases. (8) The proposed use shall be located with direct access to and frontage on a major street as designated in the major street plan, or within an area designated for adaptive reuse in the city center element of the comprehensive plan. The site has frontage on a major street, West Grand River Avenue. B. Specific uses. In addition to the standards above, to address their unique characteristics, certain uses shall also meet the applicable standards below. (4) Multiple-family dwellings in business districts. Where multiple-family dwelling units are provided in conjunction with business uses on a property in

17 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 17 of 24 a business district, the following additional standards shall apply. a. Except where multiple-family dwelling units may be permitted as the sole principal use of a building to provide unique housing opportunities which are not otherwise available in the City Center, at a minimum, the first floor of any building shall primarily be used for principal permitted business uses, and the number of multiple-family dwelling units and the permitted occupancy of the units shall be limited to maintain a reasonable balance between the business and residential uses on the property consistent with the purpose of each business district. Building A provides retail, hotel and residential uses. The residential units are proposed to be available in a mix of efficiency, one, two, and three-bedroom units. Building B, option 1, proposes an eight (8)-story (90 tall) mixed-market residential rental unit development including 7 efficiency units, 133 onebedroom, 14 two-bedroom, 7 three-bedroom, and 14 convertible efficiency units. Convertible efficiency units will allow the ability to eliminate 14 residential units on the first two floors to substitute office space. Under this circumstance the City Council must determine that project provides unique housing opportunities which are not otherwise available in the City Center and Council must approve the Planning Commission s recommendation for Ordinance 1384 otherwise the development will not have the required 25% reserved housing for residents aged 55 and older r (or 50% as the code requires currently). b. The number of multiple-family dwelling units, the permitted occupancy of the units and the height and size of structures containing such units shall be limited to be compatible with adjacent development patterns and any nearby residential districts. The nearest residential district is located to the north along Evergreen Avenue. There are a number of houses and structures between this proposal and the rental properties that are zoned for residential purposes along Evergreen. c. Reasonable amounts of yard areas and open space shall be provided where necessary to be consistent with surrounding use and development patterns and to provide for the privacy and enjoyment of the residents. There are outdoor spaces for both developments. Valley Court Park is a short walk away to the northwest and would be adequate to serve additional outdoor space enjoyment of the residents. d. The design, type and operational characteristics of the business and residential uses on the property shall be compatible with one another. The only business that has been identified is the hotel and that has a

18 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 18 of 24 separate entrance, lobby and elevator from the hotel. e. The residential units shall be designed and marketed to diversify housing opportunities in the neighborhood and shall not increase existing high concentrations of similar housing units in the neighborhood. The proposal includes a variety of unit types and does not include units with more than three bedrooms. (5) Additional building height. a. Where a special use permit is required to permit building height above the base level permitted in any use district, the compatibility of the building shall be determined in part by the extent to which the use of the building and the building design, its setbacks and its orientation on the site successfully mitigate negative impacts upon neighboring uses, the natural features of the site and public facilities and services. Such buildings may be approved only if they comply with subsection (a) of this section and all of the following additional standards: 1. The building shall not be located in such proximity to a singlefamily or two-family neighborhood so as to cause excessive noise or shadowing impacts, or substantial reductions in personal privacy or property values. The planning and zoning administrator may require the applicant to submit a solar angle diagram and shadow analysis prepared by a registered architect or engineer showing the extent of shadowing caused by the proposed building on adjacent properties and structures. See the attached Zoning map to view the closest single and twofamily residential districts. 2. The portion of the building extending above the base level permitted in each use district shall be located no closer to the property line of a residentially zoned property than a distance equal to the amount of the height in excess of the base level. Building A does not abut a residential district. 3. The building shall not result in traffic generation which exceeds the carrying capacity of adjacent streets, exceeds the parking capacity of on-site spaces or nearby municipal parking facilities, causes excessive congestion or risks to public safety, or causes or substantially contributes to excessive volumes of traffic through residential neighborhoods. Transportation Commission s review is provided in the packet 4. The building shall not generate demands which exceed the capacity of public utilities and services necessary to serve the site. As part of the proposal the applicant will be upgrading the utilities.

19 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 19 of 24 b. In addition, the city council may further increase the maximum permitted building height to the extent and for that area in the B-3 district as specified in section (f) for a building deemed to be of significant public benefit. The city council shall find, upon an affirmative vote of three-fourths of all members of the city council, that such buildings meet subsections a.1 through 4 of this subsection and all of the following standards: 1. The building, through its proposed use, shall contribute substantially to the mix of desirable commercial, residential, social, cultural or employment opportunities or public amenities or open space available in the business district to achieve one or more public goals or objectives, as specified in the comprehensive plan or other strategic plan of the city, to benefit the business district, the adjacent residential or public areas, and the city as a whole. The Comprehensive Plan calls for mixed, urban uses on the site, up to 10 stories in height. Specifically, the project supports the following goals of the Comprehensive Plan. Objective 3-1: Support both commercial and residential development opportunities downtown. Objective 5-2: Allow for and encourage land development patterns which can reduce the necessity for the use of automobiles. o Action 5-2.1: Provide opportunities for concentrated residential development within and adjacent to commercial and employment centers. The proposal includes 343 apartments total in close proximity to Michigan State University a major University and employer. A proposed hotel creates additional employment opportunities and others will develop as retail spaces are occupied. 2. The applicant demonstrates that additional building height is necessary in order to make the proposed development economically feasible for the intended use and no reasonable alternative to additional height exists. The applicant s design of the building to provide outdoor amenities in an urban setting by creating a corner plaza at Abbott and Grand River Avenue, terracing the building back after the 2 nd floor to create additional outdoor space and a pedestrian scale streetscape all contribute to the need and request for additional height on a portion of Building A. 3. The additional building height will cause no significant additional negative impact on adjacent properties, public streets and parking facilities, or public utility and services.

20 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 20 of 24 DOWNTOWN PARKING Public utilities will be improved as part of this proposal. In the B-3 Zoning District, on-site parking is prohibited by the ordinance requirements, except in limited circumstances. The project under review would include 112 on-site parking spaces, but would mostly rely on the municipal parking lots nearby for parking. Section (j) regulates parking in the B-3 District and reads as follows: (j) On-site parking. Consistent with the purposes of this district and the city's policies to assume primary responsibility for providing consolidated parking facilities in the City Center commercial district, on-site parking facilities intended as accessory uses to serve one or more uses on the same lot shall be prohibited; except, the planning commission may waive this prohibition if it makes a specific finding that the applicant has shown that on-site parking is necessary for one or both of the following reasons (1) It is necessary for increased accessibility for handicapped persons; or (2) It is necessary for the customers or residents of the proposed use and it would not cause any significant disruption of pedestrian or vehicular circulation in the area. If the commission finds that on-site parking is necessary, it may stipulate conditions on the arrangement and operation of such parking to ensure that it is used for the purposes for which it is intended and approved or to ensure that it does not cause disruption of pedestrian or vehicular circulation. Based on the proposed Site Plan, 65 commercial parking spaces and 342 spaces are required for the hotel to be located within 500 feet of the use per Section (k). (k) Applications for a building and/or occupancy permit to construct or expand a building or to convert or extend the use of a building which would result in an increased parking demand, as determined from the standards in section , shall first be submitted to the planning and zoning official for review. (1) If the application would result in an increase of ten or fewer spaces for a use within a two-year period, the planning and zoning official shall approve it, if there are adequate and appropriate parking spaces available to serve the use, as defined by the following standards: a. Parking spaces for customers must be located within 500 feet of the use, as measured along probable pedestrian travel paths. Where a portion of an off-street parking lot or a contiguous series of on-street parking spaces falls within the 500-foot area, all of the spaces within the lot or the series of spaces shall be counted.

21 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 21 of 24 b. The price and tenure rates for available parking spaces must be consistent with the expected parking habits of customers, employees, and tenants of the proposed use. c. The parking spaces must be available at all times consistent with anticipated peak parking demands of the proposed use. Based on the proposed Special Use Permit, 490 residential parking spaces are required within ¼ mile of the residential uses. Section (c) outlines the requirements for off-site parking. Since the applicant has not indicated otherwise, staff assumes this will be provided through parking permits in the municipal parking system. Section (c) states the following: (c) Off-premises parking. In order to encourage the use of public transportation, limit the amount of impervious surface, thereby reducing storm water runoff, and support redevelopment efforts in older structures, the City of East Lansing allows for off-premises parking in certain circumstances. For multiple-family uses, office uses, or uses located in any of the B business districts of this chapter, the required off-street parking facilities may be provided on a property separate from that of the use such facilities are intended to serve, subject to the following requirements: (1) Off-premises parking facilities must be located within one of the B business districts, the P parking district, or in the municipal parking system. (2) Off-premises parking facilities must be located within ¼ of a mile of the use they are intended to serve, as measured between properties. (3) Off-premises parking facilities must be improved and maintained in accordance with the requirements of this chapter. (4) Evidence must be submitted that such off-premises parking facilities will remain available to serve the intended use. If utilizing a municipal parking facility, parking passes must be purchased on a yearly basis or approval under this section is invalidated. (5) Off-premises parking facilities must not be necessary to meet the requirements of another use. (6) Off-premises parking facilities shall be reviewed in conjunction with the use they are intended to serve and shall be considered an integral part of any approval granted to the use they are intended to serve. (7) Not withstanding items (1) through (6) of this subsection, city council may approve or deny the request for off-premises parking based on the proximity of public transit, the type(s) of uses proposed for the site, the proximity to major employment and/or education facilities and the general standards of section 50-36

22 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 22 of 24 Based on our current Code and the most recent parking report, staff concludes that the municipal parking system can accommodate the commercial parking spaces in Lots 1, 4, and 8, along with other metered spaces in the vicinity. From a residential parking perspective, 75 permits are available in the Charles Street ramp to accommodate residents from the development. The Division Street ramp is also just within ¼ mile of the proposed development and could accommodate an additional 50 permits. SUMMARY COMMENTS Following the public hearing on this application, we will respond to additional concerns and questions in a final report.

23 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 23 of 24 ZONING ANALYSIS Development: W. Grand River Ave Zone: B3 Standard Proposed Conformity Min. Site Area: None 50,788 Sq ft Yes Min. Floor Area Ratio 1.25 (63,475 sq ft) 201,931 Sq ft Yes Max. Building Height*: 4 stories or 64 feet 140 Feet Yes Max Building Cover 80 % + bonuses, up to 100 % 75% Yes Max. Ground Cover 85 % + bonuses up to 100 % 96% (includes 8% permeable pavement) Yes Min. Bldg Setbacks**: North 0 0 Yes South 0 7 feet Yes East 0 12 feet Yes West 0 20 feet Yes Parking Spaces ***: Min. Required Yes Max. Permitted N/A Max. Small Spaces N/A Min. Barrier Free Spaces 5 5 Yes Min. Bike Spaces(Hotel exempt) Yes * Maximum building height shall be four stories or 64 feet; except buildings may be up to eight stories or 112 feet in height, subject to an approved special use permit as provided by article II, division 3, of this chapter; and except further, that within that portion of the area zoned in this district bounded by Grand River Avenue, Bailey Street, Albert Avenue, Grove Street, Linden Street, Abbot Road, City Parking Lot 15, the north-south alley west of Abbot Road and 200 West Grand River Avenue (The Peoples Church)the city council may, upon an affirmative vote of three-fourths of all members of the city council, permit an increase in stories or a maximum building height of up to 140 feet for a building deemed by the city council to be of significant public benefit subject to an approved special use permit as provided in article II, division 3 of this chapter. **No set backs are required unless the rear yard or side yard abuts any residential district ***On-premises parking. Consistent with the purposes of this district and the city's policies to optimize use of its consolidated parking facilities in the City Center commercial district, on-premises parking facilities intended as accessory uses to serve one or more uses on the same lot shall be prohibited, except where: The applicant has demonstrated that the parking is necessary for the residents or customers of the proposed use and the municipal parking facility cannot accommodate the use; or The applicant has demonstrated that the parking is necessary for increased accessibility for handicapped persons

24 Staff Report W. Grand River Ave. and Evergreen Ave. October 7, 2016 Page 24 of 24 ZONING ANALYSIS Evergreen Ave Development: Zone: Conditional B3 Standard Proposed Conformity Min. Site Area: None 76,861 sqft Yes Min. Floor Area Ratio: 1.25 (96, sqft) 205,736 sqft Yes Max. Building Height*: 4 Stories or 64 feet Parking Structure Height: 4 Stories or 64 feet 90 feet Yes 62 feet Yes Max Building Cover: 80 % + bonuses up to 100% 70% Yes Max. Ground Cover : 85% + bonuses up to 100 % 74% (Without Park Plans) Yes Min. Bldg Setbacks (Residential): North 0 8 Yes South 0 5 Yes East (side) Yes West 0 4 yes South West 0 3 Yes Min. Bldg Setbacks ( Parking Structure): North (Rear) 10 3 No South 0 7 Yes East 0 2 Yes West 0 88 Yes Parking Spaces: Min. Required Yes Max. Permitted Yes Max. Small Spaces Yes Min. Barrier Free Spaces 12 0 No Min. Bike Spaces Residential No Min. Bike Spaces Parking Structure 44 0 No * Maximum building height shall be four stories or 64 feet; except buildings may be up to eight stories or 112 feet in height, subject to an approved special use permit as provided by article II, division 3, of this chapter.

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29 PUBLIC WORKS AND ENVIRONMENTAL SERVICES Quality Services for a Quality Community MEMORANDUM TO: FROM: Tim Dempsey, Director of Planning, Building and Development Lori Mullins, Community and Economic Development Administrator Steven Roach, Design Engineer DATE: September 21, 2016 City of East Lansing PUBLIC WORKS AND ENVIRONMENTAL SERVICES 1800 E. State Road East Lansing, MI Mailing Address: 410 Abbot Road East Lansing, MI (517) SUBJECT: Transportation Commission Recommendation of 100 Grand River Avenue and 341 Evergreen Avenue Traffic Impact Studies This memorandum is to inform you that the Transportation Commission reviewed and discussed the Traffic Impact Studies (TIS) for 100 Grand River Avenue and 341 Evergreen Avenue Developments. The meeting was held Monday evening September 19, Approval of the studies was unanimous by a vote of 7-0, with the understanding that the following conditions will be evaluated and addressed by the developer and their consultant with recommendations reported back to the City: 1) That the developer further investigate and take appropriate action of the items found in the City's third party review completed by DLZ. In particular the lack of consideration and analysis of pedestrian data incorporated in the TIS and the absence of an assessment of likely impacts on non-motorized facilities and compliance with the City's non-motorized plan. With an expressed priority in any approved site plan, that a clearly delineated facility for bicyclists be placed in the roadway on southbound Abbot through the intersections of Albert Ave. and Grand River Ave. to complete connective with the MSU campus. 2) Evaluate an alternative bike lane location adjacent to the Abbot Road west curb line along with the possible implementation of a bike storage box at the Grand River intersection. Item 2 served as an amendment to the original motion forwarded by the Transportation Commission as there were concerns of safety with motorists crossing the bike lane at Albert Avenue and again at Grand River Avenue. The motion language is summarized under item 1. As needed, the office memorandums from the third party review consultant DLZ are attached. Minutes from the September 19, 2016 Transportation Commission are also included.

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31 OFFICE MEMORANDUM DATE: September 9, 2016 TO: FROM: SUBJECT: Steven Roach, P.E. City of East Lansing Jason Whitten and Wes Butch Traffic Impact Study Review for the Proposed 100 Grand River Development INTRODUCTION At the request of the City of East Lansing (City), DLZ reviewed the Traffic Impact Study (TIS) for the 100 Grand River Development, dated August This TIS was prepared by Traffic Engineering Associates, Inc. (TEA or the consultant ) for a proposed multi-use development called the 100 Grand River Development (project). The project is located at the northwest corner of Grand River Avenue (M-43) and Abbot Road. The project is proposed to be completed in the spring of PROPOSED SITE PLAN The project consists of a hotel with 150 rooms, residential apartments with 176 units, and a retail of approximately 23,700 square feet. The retail area will be broken down into a 13,700 square foot urban grocery store, a 5,000 square foot sit-down restaurant, and the remaining 5,000 square feet is projected to be used for the sale of merchandise. An underground parking lot would be constructed for hotel guests, while patrons and residents of the proposed development would use the existing public parking surrounding the development. Summary of TIS Existing (2016) Conditions Existing traffic volume counts were taken at separate times for the intersections with the project area. In September 2012, after MSU students were back in school, counts were taken at: Abbot Road and Albert Avenue Abbot Road and Grand River Avenue (M-43) In October 2012, traffic counts were taken at the following locations: Grand River Avenue (M-43) and Hillcrest Avenue 1425 Keystone Ave, Lansing, MI OFFICE ONLINE Akron Burns Harbor Chicago Cleveland Columbus Detroit Fort Wayne Frankfort Hammond Indianapolis Joliet Kalamazoo Lansing Louisville Madison Pittsburgh Saint Joseph South Bend Toledo

32 100 Grand River TIS Review City of East Lansing Page 2 of 8 Grand River Avenue (M-43) and Delta Street Valley Court and Delta Street In February 2014, traffic counts were taken at the following locations Grand River Avenue (M-43) and Michigan Avenue Grand River Avenue (M-43) and MAC Avenue MAC Avenue and Albert Avenue Albert Avenue and Evergreen Avenue Evergreen Avenue and Oakhill Avenue Oakhill Avenue and Abbot Road To develop 2016 traffic volumes for the existing conditions analysis, an annual growth factor of 0.57 percent was applied to the 2012 traffic counts over three and a half years and to the 2014 traffic counts over two years. A SYNCHRO analysis was performed by the consultant to obtain the Level of Service (LOS) for the project area intersections under the existing conditions. The analysis indicates that all movements at the study intersections currently operate at an acceptable level of service (LOS D or better) during both peak hours (AM and PM), with the exception of the following movement and corresponding LOS/seconds of average delay per vehicle: Southbound thru-left movement at Abbot Road/Grand River Avenue (M-43) (AM F/98.5 s) Base Year (2018) Conditions (Background Scenario) The consultant stated a target build out date for the project is in spring of The TIS used a background growth rate of 0.57% for annual traffic growth from 2016 (existing) to In addition, one new development was identified near the 100 Grand River Development that was also included as development related background growth. The proposed The Gateway development is located between Grand River Avenue (M-43) and Valley Court. The proposed site will contain a four story building in which the ground floor will consist of parking, a 3,557 square foot bank, a 2,430 square foot retail development, and a 447 square foot leasing office. The second through fourth floors will contain 39 residential units. This analysis also assumed the improvements for Delta Street between Grand River Avenue (M-43) and Valley Court would be implemented as part of a separate project, and these improvements were included in the model for this TIS.

33 100 Grand River TIS Review City of East Lansing Page 3 of 8 The background traffic analysis indicates that all movements at the study intersections will continue to operate at an acceptable level of service (LOS D or better) during both peak hours (AM and PM), with the exception of the following movement and corresponding LOS/seconds of average delay per vehicle: Southbound thru-left movement at Abbot Road/Grand River Avenue (M-43) (AM F/99.2 s) Opening Year (2018) Future Scenario Site Access The TIS states that the proposed project will have one public access point, accessible from a one-way drive off of westbound M-43. The site plan shows short-term temporary on-street parking that will be designated as a hotel drop off near the proposed hotel lobby. Site Traffic The consultant used the ITE Trip Generation Manual (9 th edition) rates to estimate the total new trips generated by the proposed uses of the 100 Grand River Development. The ITE Trip Generation Land Use Code (LUC) 310 was used to estimate the number of trips generated by proposed Hotel space. The ITE Trip Generation Land Use Code (LUC) 220 was used to estimate the number of trips generated by the proposed apartment units. The ITE Trip Generation Land Use Code (LUC) 826 was used to estimate the number of trips generated by the proposed retail space. The ITE Trip Generation Land Use Code (LUC) 932 was used to estimate the number of trips generated by the proposed restaurant space. The ITE Trip Generation Land Use Code (LUC) 850 was used to estimate the number of trips generated by the proposed supermarket. The consultant states in the TIS that an internal trip reduction rate of 22% was applied to the estimated trips generated by the planned apartment, restaurant, retail, and supermarket developments, for the AM and PM peak hours. In addition to the internal trip reduction rate, the consultant also applied a 4% reduction to each the trip generated by the apartment, restaurant, retail and supermarket developments, for both the AM and PM peak hours. Combining the trip generation estimates and applicable trip reduction rates, the project is projected to generate 195 new trips in the AM peak hour and 229 new trips in PM peak hour. Trip generation analysis for the 100 Grand River Development is shown in Table 3 of the TIS. Site Traffic Distribution and Opening Year Conditions Based on traffic distribution within the network, the consultant analyzed the anticipated operation of the aforementioned intersections and site driveways. Existing driveway traffic patterns were utilized to determine trip distribution of the proposed development. The capacity analysis was performed by the consultant using SYNCHRO for the future traffic scenario. All background geometrics and existing traffic control was utilized for the future conditions except for the following;

34 100 Grand River TIS Review City of East Lansing Page 4 of 8 A new eastbound exclusive left turn lane will be installed on Albert Avenue at Abbot Road to align with the westbound left turn lane The capacity analysis for the Opening Year (2018) Future Scenario showed that all movements in the study area will continue to operate at acceptable level of service (LOS D or better), with the exception of: Southbound thru-left movement at Abbot Road/Michigan Avenue (M-43) (AM F/103.8 s) Westbound left turn movement at Abbot Road/Albert Avenue (PM E/77.6 s) Northbound left turn movement at Grand River (M-43)/Delta Street (PM E/40.6 s) Southbound left turn movement at Grand River (M-43)/Delta Street (PM E/38.1 s) Non-Motorized Traffic Considerations The TIS does not provide a description of consistency with the City s non-motorized plans, proposed crossing locations, facilities, signage, signals, or signal timings for non-motorized traffic. Conclusions and Recommendations The consultant indicates the existing geometrics and traffic control devices for the majority of the roadway system are sufficient to handle the background traffic plus the total additional project traffic. The consultant identified needed improvements at specific locations in order to handle the additional project traffic and reduce vehicle delay as follows: The traffic signal at the Albert Avenue and Abbot Road intersection should be replaced with a new traffic signal that will provide protective/permissive operation for the east and west approaches on Albert Avenue to improve the overall level of service and decrease the vehicle delay. Additionally, the installation of the eastbound left turn lane on Albert Avenue to align with the westbound left turn lane should be completed. Construct the Albert Avenue proposed driveway location with one, one-way northbound lane, and in accordance with the City of East Lansing driveway standards. No changes are required at the Grand River Avenue (M-43) and Abbot Road and the Grand River Avenue (M-43) and Delta Street intersections as the vehicle delay increases are minor and are not expected to require any mitigation measures. DLZ REVIEW COMMENTS The TIS was checked for conformity with the City of East Lansing s Ordinance Number 1162, Section This ordinance section leaves considerable discretion to the City as to what analysis/information may be required in any particular TIS, based on a pre-application conference with the

35 100 Grand River TIS Review City of East Lansing Page 5 of 8 City Engineer. In this context, some items we have noted below as not consistent with the City s ordinance may in fact be acceptable to the City with no further analysis needed. DLZ reviewed the TIS report and supplemental information and made the following findings which are provided for consideration by the City. Findings which may require further investigation or action by the consultant are shaded in gray. The headings below coincide with the headings in the TIS, and comments are ordered similar to the progression of the TIS. Traffic Counts 1. The traffic counts were performed during typical weekday peak hours of adjacent street traffic following standard practices. 2. Counts at the intersections of Abbot Road and Albert Avenue, Abbot Road and Grand River Avenue (M-43), Grand River Avenue (M-43) and Hillcrest Avenue, Grand River Avenue (M-43) and Delta Street, and Valley Court and Delta Street are approximately four years old (2012). 3. The consultant s selection of intersections to include in the study is appropriate based on the location of the site and the configuration of the surrounding roadways. Capacity Analysis 1. It appears that pedestrian volumes were not entered into the SYNCHRO models for any of the study intersections under any of the scenarios. Pedestrian volumes should be entered as pedestrian conflicts or pedestrian calls in the SYNCHRO model. If pedestrian calls are used at the intersections, the delays could be worse than reported in the TIS. All of our review comments below are subject to change based on this issue. 2. MDOT recommends a range for Peak Hour Factors (PHFs) of minimum 0.60 to maximum The consultant calculated existing PHFs to be within this range. Also, the consultant input the PHFs by approach as recommended by MDOT. Existing Conditions 1. The results and conclusions of the existing conditions capacity analysis may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. The existing conditions capacity analysis should be completed with pedestrian calls/conflicts. 2. Volume balancing was conducted for the existing turning movement counts. DLZ agrees with this balancing as the balanced traffic volumes are within 3-5 percent between nodes, except for northbound Abbot Road at Oakhill Avenue, southbound Abbot Road at Albert Avenue, and westbound Albert Avenue at Abbot Road. The volume difference for these movements ranged from seven percent (southbound Abbot) to 45 percent (northbound Abbot). This unbalance is likely due to the number of driveways and side streets between the intersections allowing traffic to enter/exit the roadway between intersections.

36 100 Grand River TIS Review City of East Lansing Page 6 of 8 3. The traffic crash data analysis provides a high-level summary of the most recent three years of available crash data ( ) and concludes there are no apparent correctable crashes. Based on the information provided, we agree with this high-level conclusion. However, the data provided is not adequate to evaluate crashes at a site-specific level. Therefore, we have no comment on that topic. Background Conditions 1. The results and conclusions of the background conditions capacity analysis may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. The background conditions capacity analysis should be completed with pedestrian calls/conflicts. 2. The consultant utilized a 0.57% annual traffic growth rate based on coordination with the City. This growth rate appears to be reasonable and acceptable given the project area and recent economic conditions. 3. The TIS report states that there is one other development planned in the study area that was included in the background traffic projections: the proposed Gateway Development. The consultant properly incorporated the generated site traffic, traffic distribution models, and recommended mitigation measures of this planned development into the background traffic analysis. 4. The minimum green time during Phase 4 for the Abbot Road and Albert Road signal is very short with only eight seconds of split time (four seconds green plus yellow and all-red interval). Minimum green time should be revised to meet the minimum requirements in the MDOT Signal Optimization Guide (typically five to seven seconds). Future Conditions 1. The results and conclusions of the Future Build Scenario capacity analysis may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. The Future Build Scenario analysis should be completed with pedestrian calls/conflicts. 2. The TIS report followed standard practice in developing trip generation and trip distribution estimates for the proposed project, and the results are acceptable. DLZ has calculated slightly different trip generation values for the proposed Hotel space; however, we believe that the overall conclusions in the TIS will not change, so we are not recommending these be re-calculated. 3. The consultant correctly implemented internal trip reductions, assuming the report accurately summarizes the results of coordination with the City of East Lansing Planning Department. 4. The TIS does not specify how the CATA Route 1 bus system might affect the number of new trips to and from the project site. However, it is reasonable to assume the 4% transit reduction rate can be applied to the CATA bus system. 5. The consultant recommends that the traffic signal at the Albert Avenue and Abbot Road intersection should be replaced with a new traffic signal that will provide protective/permissive operation for the east and west approaches on Albert Avenue. Additionally, the installation of an eastbound left turn lane on Albert Avenue is recommended. We note that for this location, the SYNCHRO model does not show enough split time for the protected left-turn phase. The model only shows 4 seconds of green,

37 100 Grand River TIS Review City of East Lansing Page 7 of seconds of yellow, and 0.5 seconds of all-red time. Minimum green time should be revised to meet the minimum requirements in the MDOT Signal Optimization Guide. 6. The consultant recommends construction of the proposed driveway location with one, one-way northbound lane, and in accordance with the City of East Lansing driveway standards. DLZ agrees with this recommendation. 7. The intersection of Abbot Road and Albert Road is modeled as semi-actuated uncoordinated for the AM peak hour. This should be modeled as coordinated. 8. For the PM peak hour along Abbot Road, there is poor progression shown between Albert Road and Grand River Avenue. By adjusting the offsets, the LOS could be improved from C to B. 9. The minimum green time during Phase 4 for the Abbot Road and Albert Road signal is very short with only eight seconds of split time (four seconds green plus yellow and all-red interval). Minimum green time should be revised to meet the minimum requirements in the MDOT Signal Optimization Guide (typically five to seven seconds). 10. We compared the delay and LOS for each of the failing future mitigated movements against the background conditions delay/los presented in the TIS. For the northbound and southbound left turn movements at Grand River (M-43)/Delta Street, the P.M. background delays/los operate at LOS D with 34.2 and 33.3 seconds of delay, respectively. Under the future build scenario, these movements operate at LOS E with 40.6 and 38.1 seconds of delay, respectively. Because the proposed development would result in degradation of these movement and is projected to operate below LOS D (the typical threshold for mitigating impacts from a development), we are recommending that the City should consider whether additional mitigation needs to be evaluated and implemented by the developer. Other Comments 1. The TIS report indicates existing geometrics and traffic control devices for the majority of the roadway system are sufficient to handle the background traffic and the additional traffic from the project. DLZ agrees with the consultant s recommendations regarding those locations that do not need evaluation for potential mitigation. This comment will may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. 2. According to Section (15) of the TIS Ordinance Description of site circulation and available sight distances at site driveways is listed as an item that may need to be included in a TIS (if determined applicable by the city engineer or his/her designee). This information was not included in the TIS. If not already done, it is recommended that the City would confer with the consultant and discuss whether this analysis is to be added. 3. The drop-off along Albert Avenue could have the potential to queue traffic onto Abbot Road and potentially affect operations at the Abbot Road & Albert Road intersection. DLZ recommends that the TIS address this access management situation. 4. DLZ recommends that the TIS should describe: impacts/changes to existing non-motorized facilities; proposed non-motorized facilities and how they comply/fit with the City s non-motorized plan; proposed crossing locations; and proposed signal timings for non-motorized traffic.

38 100 Grand River TIS Review City of East Lansing Page 8 of 8 5. The TIS should identify and assess any potential new conflict points created as part of the proposed improvements. 6. DLZ recommends that the TIS should also be reviewed by MDOT against their TIS guidelines/standards and the City would, as a condition of TIS approval, require the consultant to adjust the TIS per MDOT s review comments. If you have any questions or need additional clarification, please feel free to contact us. M:\PROJ\1441\6636 -City of East Lansing As-Needed\08-Park District Development TIS Review\Report\100 Grand TIS Review Memo (9-9-16).docx

39 OFFICE MEMORANDUM DATE: September 13, 2016 TO: FROM: SUBJECT: Steven Roach, P.E. City of East Lansing Steve Jewell and Wes Butch Traffic Impact Study Review for the Proposed 341 Evergreen Development INTRODUCTION At the request of the City of East Lansing (City), DLZ reviewed the Traffic Impact Study (TIS) for the 341 Evergreen Development, dated September This TIS was prepared by Traffic Engineering Associates, Inc. (TEA or the consultant ) for a proposed residential apartments and parking structure development called the 341 Evergreen Development (project). The project is located at the north side of Albert Avenue (extended), west of Abbot Road. The project is proposed to be completed in the spring of PROPOSED SITE PLAN The project consists of 175 residential apartments and a seven (7) level parking garage, situated on a site that vacates Evergreen Avenue and extends Albert Avenue to Valley Court. Summary of TIS Existing (2016) Conditions Existing traffic volumes counts were taken at separate times for the intersections with the project area. In September 2012, after MSU students were back in school, counts were taken at: Abbot Road and Albert Avenue Abbot Road and Grand River Avenue (M-43) In October 2012, traffic counts were taken at the following locations: Grand River Avenue (M-43) and Hillcrest Avenue Grand River Avenue (M-43) and Delta Street Valley Court and Delta Street 1425 Keystone Ave, Lansing, MI OFFICE ONLINE Akron Burns Harbor Chicago Cleveland Columbus Detroit Fort Wayne Frankfort Hammond Indianapolis Joliet Kalamazoo Lansing Louisville Madison Pittsburgh Saint Joseph South Bend Toledo

40 341 Evergreen Development TIS Review City of East Lansing Page 2 of 8 In February 2014, traffic counts were taken at the following locations Grand River Avenue (M-43) and Michigan Avenue Grand River Avenue (M-43) and MAC Avenue MAC Avenue and Albert Avenue Albert Avenue and Evergreen Avenue Evergreen Avenue and Oakhill Avenue Oakhill Avenue and Abbot Road To develop 2016 traffic volumes for the existing conditions analysis, an annual growth factor of 0.57 percent was applied to the 2012 traffic counts over three and a half years and to the 2014 traffic counts over two years. A SYNCHRO analysis was performed by the consultant to obtain the Level of Service (LOS) for the project area intersections under the existing conditions. The analysis indicates that all movements at the study intersections currently operate at an acceptable level of service (LOS D or better) during both peak hours (AM and PM), with the exception of the following movement and corresponding LOS/seconds of average delay per vehicle: Southbound thru-left movement at Abbot Road/Grand River Avenue (M-43) (AM F/98.5 s) Base Year (2019) Conditions (Background Scenario) The consultant stated a target build out date for the project in spring of The TIS used a growth background rate of 0.57% for annual traffic growth from 2016 (existing) to In addition, two new developments were identified near the 341 Evergreen Development that were also included as development related background growth. The proposed The Gateway development is located between Grand River Avenue (M-43) and Valley Court. The proposed site will contain a four story building in which the ground floor will consist of parking, a 3,557 square foot bank, a 2,430 square foot retail development, and a 447 square foot leasing office. The second through fourth floors will contain 39 residential units. The second new development is the 100 Grand River Development located at the northwest corner of Abbot Road and Grand River Avenue. This proposed site will contain a hotel with 150 rooms, 176 residential apartments, and retail area consisting of a 13,700 square foot urban grocery store, a 5,000 square foot sit-down restaurant and 5,000 square feet of retail space. The planned development also includes underground parking for the hotel patrons. The TIS analysis for this 341 Evergreen Development assumed the improvements for Delta Street between Grand River Avenue (M-43) and Valley Court are implemented as part of a separate project and included in the model for this TIS. The analysis also assumed the proposed recommendations in the 100 Grand River project are implemented.

41 341 Evergreen Development TIS Review City of East Lansing Page 3 of 8 The background traffic analysis indicates that all movements at the study intersections will continue to operate at an acceptable level of service (LOS D or better) during both peak hours (AM and PM), with the exception of the following movements and corresponding LOS/seconds of average delay per vehicle: Southbound thru-left movement at Abbot Road/Grand River Avenue (M-43) (AM F/103.7 s) Grand River Avenue (M-43)/Delta Street northbound left turn (PM E/41.1 s) and southbound left turn at (PM E/38.5 s) Opening Year (2019) Future Scenario Site Access The TIS does not describe the proposed project site access. However, the overall site master plan drawing included in the supplemental documentation shows one public access point to the residential building via a one-way access drive off of Albert Avenue. The new garage will have two drives off of Albert Avenue; one drive accesses the lower parking floor and the other drive accesses the remaining six (6) floors. Site Traffic The consultant used the ITE Trip Generation Manual (9 th edition) rates to estimate the total new trips generated by the proposed uses of the 341 Evergreen Development. The ITE Trip Generation Land Use Code (LUC) 220 was used to estimate the number of trips generated by the proposed apartment units. The consultant states in the TIS that a trip reduction rate of 22% was applied to the estimated trips generated by the planned apartments for the AM and PM peak hours for the pedestrian population that walks. In addition, the consultant also applied a 4% transit reduction to the trips generated by the apartment for both the AM and PM peak hours. Combining the trip generation estimates and applicable trip reduction rates, the project is projected to generate 65 new trips in the AM peak hour, 84 new trips in PM peak hour and 1,184 weekday trips. Trip generation analysis for the 341 Evergreen Development is shown in Table 3 of the TIS. Site Traffic Distribution and Future Conditions Based on traffic distribution within the network, the consultant analyzed the anticipated operation of the aforementioned intersections and proposed site driveways. The capacity analysis was performed by the consultant using SYNCHRO for the future traffic scenario. All background geometrics and existing traffic control was utilized for the future conditions except for the following: Albert Avenue will be extended to the west from Abbot Road to align with Evergreen Avenue to the north, and Evergreen Avenue south will be removed between Grand River Avenue and Valley Court.

42 341 Evergreen Development TIS Review City of East Lansing Page 4 of 8 A new eastbound exclusive left turn lane will be installed on Albert Avenue at Abbot Road to align with the westbound left turn lane and new traffic signal timing will be installed. The capacity analysis for the Opening Year (2019) Future Scenario showed that all studied intersections are projected to operate at an acceptable level of service (LOS D or better), and that all movements in the study area will continue to operate at acceptable level of service (LOS D or better), with the exception of: Southbound thru-left movement at Abbot Road/Grand River Avenue (M-43) (AM F/101.6 s); a decrease of 2.1 seconds from background conditions [LOS F to F] Northbound left turn movement at Grand River (M-43)/Delta Street (PM F/54.7 s); an increase of 13.6 seconds from background conditions [LOS E to F] Southbound left turn movement at Grand River (M-43)/Delta Street (PM E/42.8 s); an increase of 4.3 seconds from background conditions [LOS E to E] Southbound thru movement at Grand River (M-43)/Michigan Avenue (PM E/55.1 s); an increase of 1.6 seconds from background conditions [LOS D to E] Non-Motorized Traffic Considerations The TIS does not provide a description of consistency with the City s non-motorized plans, proposed pedestrian crossing locations, facilities, signage, signals, or signal timings for non-motorized traffic. Conclusions and Recommendations The consultant indicates the changes in vehicle delays at Grand River Avenue (M-43) and Abbot Road, and Grand River Avenue (M-43) and Delta Street are minor and that the existing geometrics and traffic control devices for the majority of the roadway system are sufficient to handle the background traffic plus the total additional project traffic. Therefore, no mitigation measures are required. DLZ REVIEW COMMENTS The TIS was checked for conformity with the City of East Lansing s Ordinance Number 1162, Section This ordinance section leaves considerable discretion to the City as to what analysis/information may be required in any particular TIS, based on a pre-application conference with the City Engineer. In this context, some items we have noted below as not consistent with the City s ordinance may in fact be acceptable to the City with no further analysis needed. DLZ reviewed the TIS report and supplemental information and made the following findings which are provided for consideration by the City. Findings which may require further investigation or action by the consultant are shaded in gray. The headings below coincide with the headings in the TIS, and comments are ordered similar to the progression of the TIS.

43 341 Evergreen Development TIS Review City of East Lansing Page 5 of 8 Roadways and Intersections 1. Typo on page 8 under the Michigan and Grand River Avenue (M-43) section: (35) should be (32). Traffic Counts 1. The traffic counts were performed during typical weekday peak hours of adjacent street traffic following standard practices. 2. Counts at the intersections of Abbot Road and Albert Avenue, Abbot Road and Grand River Avenue (M-43), Grand River Avenue (M-43) and Hillcrest Avenue, Grand River Avenue (M-43) and Delta Street, and Valley Court and Delta Street are approximately four years old (2012). 3. The consultant s selection of intersections to include in the study is appropriate based on the location of the site and the configuration of the surrounding roadways. Capacity Analysis 1. It appears that pedestrian volumes were not entered into the SYNCHRO models for any of the study intersections under any of the scenarios. Pedestrian volumes should be entered as pedestrian conflicts or pedestrian calls in the SYNCHRO model. If pedestrian calls are used at the intersections, the delays could be worse than reported in the TIS. All of our review comments below are subject to change based on this issue. 2. It appears that signal timing permits were provided for the analyzed signalized intersections. We confirmed that the consultant properly input the signal timings into SYNCHRO for use in the capacity analyses where applicable. 3. MDOT recommends a range for Peak Hour Factors (PHFs) of minimum 0.60 to maximum The consultant calculated existing PHFs to be within this range. Also, the consultant input the PHFs by approach as recommended by MDOT. 4. The traffic movements in the SYNCHRO model for the intersection of Grand River Avenue (M-43) and Michigan Avenue do not match up with the movements for this intersection in all of the LOS tables. For example: the tables show a southbound thru movement, and there is no southbound movement (this is a T-intersection). It appears this movement in the table should be the westbound thru based on the SYNCHRO delay results. If the movement is for the westbound thru, reference to this movement must be corrected throughout the whole document. 5. The intersection LOS is missing from all of the LOS summary tables for Grand River Avenue (M-43) and Delta Street. Existing Conditions 1. Volume balancing was conducted for the existing turning movement counts. DLZ agrees with this balancing, as the balanced traffic volumes are within 3-5% between nodes, except for northbound Abbot Road at Oakhill Avenue, southbound Abbot Road at Albert Avenue, and westbound Albert Avenue at Abbot Road. The volume difference for these movements ranged from eight percent (southbound Abbot) to 29 percent (northbound Abbot). These unbalanced volumes are likely due to the number of driveways and side streets between the intersections allowing traffic to enter/exit the roadway between intersections.

44 341 Evergreen Development TIS Review City of East Lansing Page 6 of 8 2. As noted under the Capacity Analysis section, DLZ recommends that the pedestrian volumes be entered into the SYNCHRO models. Depending on the amount of pedestrian volumes, the vehicular delays may change. 3. The traffic crash data analysis was not specifically provided for this TIS; however, crash data was provided for the 100 Grand River Development TIS, and we have assumed that same crash data is applicable for this TIS area as well. The crash data provided a high-level summary of the most recent three years of available crash data ( ) and concludes there are no apparent correctable crashes. Based on the information provided, we agree with this high-level conclusion. However, the data provided is not adequate to evaluate crashes at a site-specific level. Therefore, we have no comment on that topic. Background Conditions 1. The results and conclusions of the background conditions capacity analysis may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. The background conditions capacity analysis should be completed with pedestrian calls/conflicts. 2. The consultant utilized a 0.57% annual traffic growth rate based on coordination with the City. This growth rate appears to be reasonable and acceptable given the project area and recent economic conditions. 3. The TIS report states that there are two other developments planned in the study area that were included in the background traffic projections: the proposed Gateway Development and the proposed 100 Grand River Development. The consultant properly incorporated the generated site traffic, traffic distribution models, and recommended mitigation measures of these planned developments into the background traffic analysis. Future Conditions 1. The results and conclusions of the Future Build Scenario capacity analysis may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. The Future Build Scenario analysis should be completed with pedestrian calls/conflicts. 2. The TIS report followed standard practice in developing trip generation and trip distribution estimates for the proposed project, and the results are acceptable. 3. The consultant correctly implemented internal trip reductions, assuming the report accurately summarizes the results of coordination with the City of East Lansing Planning Department. 4. The intersection of Abbot Road and Albert Road is modeled as semi-actuated uncoordinated for the AM peak hour. This should be modeled as coordinated. 5. For the PM peak hour along Abbot Road, there is poor progression shown between Albert Road and Grand River Avenue. By adjusting the offsets, the LOS could be improved from C to B. 6. The minimum green time during Phase 4 for the Abbot Road and Albert Road signal is very short with only eight seconds of split time (four seconds green plus yellow and all-red interval). Minimum green time should be revised to meet the minimum requirements in the MDOT Signal Optimization Guide (typically five to seven seconds).

45 341 Evergreen Development TIS Review City of East Lansing Page 7 of 8 7. The capacity analysis performed by the consultant for the Future Build scenario showed that all movements in the study area will continue to operate at an acceptable level of service (LOS D or better), with the exception of the following: a) Southbound thru-left movement at Abbot Road/Grand River (M-43) (AM F/101.6 s); a decrease of 2.1 seconds from background conditions [LOS F to F] b) Northbound left turn movement at Grand River (M-43)/Delta Street (PM E/54.7 s); an increase of 13.6 seconds from background conditions [LOS E to F] c) Southbound left turn movement at Grand River (M-43)/Delta Street (PM E/42.8 s); an increase of 4.3 seconds from background conditions [LOS E to E] d) Southbound thru movement at Grand River (M-43)/Michigan Avenue (PM E/55.1 s); an increase of 1.6 seconds from background conditions [LOS D to E] 8. The consultant recommends that no improvements are required to provide acceptable LOS at the intersections noted above. Where the delay increases a small amount (1 4 seconds) in comparison to the background traffic, we concur this may not warrant mitigation, even if the increase moves the LOS from D to E or E to F. It should be noted that an increase of 13.6 seconds of delay is significant at the Grand River and Delta Street intersection for the side street approach. Because the proposed development would result in degradation of this movement and is projected to operate below LOS D (the typical threshold for mitigating impacts from a development), we are recommending that the City should consider whether additional mitigation needs to be evaluated and implemented by the developer. Other Comments 1. The TIS report indicates existing geometrics and traffic control devices for the majority of the roadway system are sufficient to handle the background traffic and the additional traffic from the project. Other than the Grand River Avenue at Delta Road intersection, DLZ agrees with the consultant s recommendations regarding those locations that do not need evaluation for potential mitigation. This comment may change depending on the pedestrian volumes that were not entered in the SYNCHRO models. 2. According to Section (15) of the TIS Ordinance Description of site circulation and available sight distances at site driveways is listed as an item that may need to be included in a TIS (if determined applicable by the city engineer or his/her designee). This information was not included in the TIS. If not already done, it is recommended that the City would confer with the consultant and discuss whether this analysis is to be added. It is difficult to determine if the garage driveways provide adequate sight distance, especially to pedestrians walking in front of the garage. 3. The TIS should identify and assess any potential new conflict points created as part of the proposed improvements. 4. DLZ recommends that the TIS should describe: impacts/changes to existing non-motorized facilities; proposed non-motorized facilities and how they comply/fit with the City s non-motorized plan; proposed crossing locations; and proposed signal timings for non-motorized traffic.

46 341 Evergreen Development TIS Review City of East Lansing Page 8 of 8 5. The proposed driveways to the new garage are very close together. We also cannot determine from the information provided whether adequate storage is being provided in the garage entrance for vehicles to stack while waiting on tickets (or if ticket booths are being proposed) so the backlog does not block the street. With entering and exiting traffic occurring at both driveways at the same time, resulting in crossing movements, the potential for crashes may increase. DLZ is recommending this access design be reevaluated. 6. DLZ recommends that the TIS should also be reviewed by MDOT against their TIS guidelines/standards and the City would, as a condition of TIS approval, require the consultant to adjust the TIS per MDOT s review comments. 7. DLZ has recently provided comments on the TIS for the 100 Grand River Development. Consultant may need to revise this 341 Evergreen Development TIS based on comments regarding the 100 Grand River TIS (since the 100 Grand River project is included in the background traffic for this current TIS). If you have any questions or need additional clarification, please feel free to contact us. M:\PROJ\1441\6636 -City of East Lansing As-Needed\09-Evergreen Ave TIS Review\DLZ Review Memo\341 Evergreen TIS Review Memo ( ).docx

47 BOARD OF WATER AND LIGHT MEMO October 6, 2016 TO: City of East Lansing Planning, Building & Development Department Darcy Schmitt FROM: John Folino, Supervisor of Customer Projects, Marketing & Development RE: Site Plan Review W. Grand River Ave. & Evergreen Ave. Electric Utility Approved with the following comments: The BWL can provide an underground and/or overhead electric service to serve the new development based on the Board s Rules and Regulations for Electric Service. A copy of the final site, grading, and electrical plans for the proposed development must be supplied to the Customer Projects Department before a final cost for electric service and service agreement can be provided to the owner/ developer. Owner/ developer must contact BWL Customer Projects Department, Tim or Anthony to initiate service agreement process. There are substantial conflicts with the proposed development and the existing BWL electric distribution facilities. The cost for BWL to resolve these conflicts will be substantial. BWL Electric System Integrity will need to be consulted to provide and approve the options to resolve these conflicts. Two existing active underground duct lines will have to be abandoned. One runs South to North from W. Grand Ave up Evergreen Ave. in existing ROW and the other runs West to East from Evergreen Ave. to Abbott Rd. in an existing easement. There are also some overhead lines on the West side of Evergreen Ave. that will need to be removed. These lines currently provide services to traffic signals and street lights on W. Grand Ave. There is also an existing transformer vault at the location of 100 W. Grand River and all BWL equipment will need to be removed from the vault prior to the demolition of the building. Contact persons: Tim , Anthony or John