SUBJECT: Application for Planned Unit Development and Rezoning 1725 Winnetka Road

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1 TO: FROM: CHAIRMAN BILL VASELOPULOS AND MEMBERS OF THE PLAN & ZONING COMMISSION STEVE GUTIERREZ DIRECTOR OF COMMUNITY DEVELOPMENT MEETING DATE: September 5, 2017 SUBJECT: Application for Planned Unit Development and Rezoning 1725 Winnetka Road PETITIONER The petitioner is Edward R. James Partners, LLC, on behalf of 1725 Winnetka Avenue, LLC. REQUEST In order to build 34 rental townhome units on the parcel located at 1725 Winnetka Road, the petitioner is seeking approval for: a change zoning from the current M-1 Light Manufacturing designation to R-6 Multiple Family Residential; approval of a Special Use permit in the form of a Planned Unit Development; relief from Zoning Code requirements related to minimum lot area per dwelling unit, maximum dwelling units per acre, minimum front yard setback, maximum floor area ratio, maximum lot coverage and maximum building height. The variations will be described in more detail further on in this report. The three level townhome units will be distributed into eight buildings. The units will have either 1,926 square feet (SF) or 1,964 SF of floor area. All units will have three bedrooms and a two car garage on the first level. The architectural design, landscaping, hardscapes, lighting and entry features will be reviewed by the Architectural Commission but are described in detail in the petitioner s application. EXISTING CONDITIONS The 2.16 acre subject site currently is improved with a 17,179 SF one-story building which was used by Illinois Bell/AT&T as a service facility from 1959 until The site also contains a large surface parking lot, storage shed and an underground vault housing fiber optic equipment. The site was acquired by the petitioner in January The site is bounded to the west by the Commonwealth Edison right of way (ComEd ROW) on which they have overhead power lines and towers; to the north by light manufacturing buildings and three single family residences; to the east by the Landmark residential complex and a seven unit rental complex; and south of Winnetka Road the Meadowlake condominium complex. The North Shore Senior Center and the North Shore Mosquito Abatement District parcels are just west of the ComEd ROW. The Northfield Fire/Rescue Station and Public Works is southwest of the site. ZONING ANALYSIS The PUD approval process is designed to allow larger sites to be planned in a comprehensive manner. The PUD can provide relief from certain Code requirements or it may require development features that exceed Code requirements. For example, while our Zoning Code does not dictate architecture, the PUD provides the Village an opportunity to ensure that the

2 architectural elements of a project are in keeping with the character of the surrounding neighborhood and community. The Village Code states that In order to to facilitate advantageous developments of larger tracts of land under a unitary site plan compatible with the existing uses within any zoning district and neighboring areas, the owner or owners of land may apply to the corporate authorities for approval of a planned unit development The Code outlines the following objectives for PUDs: Sec. 17-3: Objectives A. A residential planned unit development shall: (1) Offer residential settings that promote appropriate architecture features and encourage the placement of structures in proper relationship to the natural characteristics of the site; and (2) Preserve natural environmental areas that achieve a sense of spaciousness and counteract the effects of urban monotony, congestion and paving; and (3) When located within an established neighborhood, provide harmonious architecture and site design at a scale, character and density that are appropriate to the site and surrounding areas. Along with seeking a PUD the petitioner is seeking to rezone the site to R-6 Multiple Family. This requires an amendment to our Zoning Map. The R-6 designation is the only multi-family zoning district the Village has. The recently adopted Northfield Road Corridor Plan recommends rezoning the AT&T parcel to R-6 multi-family. The petitioner is also seeking variations to the R-6 standards related to minimum lot area per dwelling unit, maximum dwelling units per acre, minimum front yard setback, maximum floor area ratio, maximum lot coverage and maximum building height requirements. In the zoning analysis table below we compare the R-6 Zoning Code requirements to what is being proposed. The items requiring variations are shaded. REGULATION R-6 CODE PROPOSED REQUIREMENT Land Use Multi-Family Multi-Family NOTE Min. Lot Area 65,000 SF 94,176 SF Requirement for residential PUD Min. Lot Area Per 5,000 SF/DU 2,770 SF/DU Dwelling Unit Max. Dwelling Units Per 8 DU/Acre DU/Acre Acre Minimum Front Yard Measured from Winnetka Road ROW Minimum Rear Yard Measured from north property line Minimum Side Yard 6 40 /27 Measured from east/west property lines Maximum Floor Area Ratio (FAR) Land area divided by floor area of homes Maximum Lot Coverage 50% 62% Percentage of impervious surfaces being proposed Maximum Building 35 and 41-6 Height 2.5 stories 3 stories Parking 2 space per unit 2 car garages Measured to highest point of highest structure Page 2 of 8

3 COMPREHENSIVE PLAN: The Village s Comprehensive Plan (Northfield Vision Plan) provides the following general goals and objectives for all residential areas: Village Image, Design and Identity Goal: A strong, positive community image based on a high quality environment and a convenient, attractive physical setting for living, working and shopping. Objectives: Protect and enhance the essentially single-family character of the Village. Emphasize continued appearance and maintenance improvements in all business and residential areas of the Village. Develop a thematic approach to the design image and appearance of new development in the community which emphasizes a traditional character. Define and enhance the Village Center as a physical focal point and community gathering place that facilitates pedestrian and vehicular movement. The proposed development is a multi-family development that is consistent in the type of use recommended for this site in the 2016 addendum to the Comprehensive Plan (Northfield Road Corridor Plan). The proposed architecture emphasizes a thematic approach to the proposed buildings and is traditional in character. The proposed architecture, landscaping and hardscape generally represent an improvement in appearance over the existing building and expansive parking lot. Residential Areas Goal: A housing stock and living environment which supports the local population and maintains the overall character of Northfield. Objectives: Maintain the predominately single-family character of the Village. Promote a strong neighborhood concept where individual neighborhoods are well served by a sufficient number and variety of community facilities and services. Maintain a housing stock that accommodates a variety of styles, sizes and needs. Promote residential development and/or redevelopment that is complementary to and consistent with surrounding neighborhoods. Preserve the character and scale of existing neighborhoods through the use of bulk, scale and height controls. Protect residential areas from the encroachment of incompatible land uses and the adverse impacts of adjacent activities. Preserve sound existing housing through efficient code enforcement and preventive maintenance. The proposed development is not connected to adjacent residential areas to create a larger neighborhood, however, the Landmark complex to the west has a wall and fence isolating it from the subject property and the adjacent properties directly to the north are a mixture of light manufacturing, storage, office and single family residential properties. Page 3 of 8

4 The following table compares the height, front yard setbacks and density of the proposed development with surrounding multi-family residential uses: Residential Complex Proposed (1725 Winnetka Rd.) Landmark (NW Corner Happ Rd. and Winnetka Rd.) Winnetka Road Meadowlake (SW Corner of Happ Rd. and Winnetka Rd.) Height Front Yard Setback (off of Winnetka Rd.) Land Area (Acres) Number of Dwelling Units 3 stories stories stories stories Dwelling Units Per Acre The proposed development would provide a type and quality of rental multi-family housing the supply of which appears to be limited in Northfield. The existing site conditions and the possible light manufacturing uses that could occupy the site without a formal approval process (i.e. auto repair, manufacturing, etc.) would be incompatible with the surrounding residential uses. The Comprehensive Plan was amended in 2016 to incorporate the Northfield Road Corridor Plan, ( The Corridor Plan studied the 1725 Winnetka site and recommended redeveloping it as a multi-family planned residential development. As part of that study, an economic analysis of this site was conducted. That analysis concluded that building the 16 units permitted by the R-6 zoning, would not be financially viable and therefore the Plan suggests a higher intensity project be considered for the site. Excerpts of the Plan are attached. DEPARTMENT/CONSULTANT REPORTS The proposed plans were routed to the Village Engineer, Building, Planning, Fire Prevention, Public Works, Fire and Police Departments for review and comment. Their reports are attached. In their attached reports the Village Engineer and the Village s consulting engineer Gewalt Hamilton Associates (GHA) both indicate the proposed storm water management plan will meet our flood plain and storm water management ordinance requirements. The proposed plan will improve the existing storm water conditions by decreasing the amount of impervious surface area on the site and through the installation of a storm water management system that meets our current requirements. They will also provide compensatory storage to replace the volume of storm water being displaced by the filling of areas below the base flood elevation on a 1.12 to 1.0 ratio. There are additional technical details that will be required if and when the project gets to the building permit stage. The Village s stormwater water management ordinance provides credit for existing impervious surfaces on a site under the following circumstances: (1) The total site area is less than three (3) acres; Page 4 of 8

5 (2) There is no existing stormwater detention facility on the site; (3) There must be a net decrease in the volume and rate of the stormwater runoff from the site; (4) There must be extenuating circumstances, which limit the ability to provide the required stormwater detention; (5) There must be some public benefit provided such as enhanced site improvements; (6) The development must demonstrate the need for the requested level of credit for existing impervious areas; and (7) The development must be in keeping with the village's comprehensive plan. The Village Engineer has confirmed the proposed plan meets the first three requirements and it is up to the Plan & Zoning Commission to find whether the petitioner has adequately addressed requirements 4 through 7. The petitioner addresses each of these requirements in his application. GHA also makes note of the fact that there is a storm sewer and associated easement on the east edge of the subject site that serves the Landmark complex. The plans show this storm sewer being relocated. This will be subject to the approval of the Landmark home owners association. The Landmark HOA has been made aware of this. In the same report GHA also reviewed the traffic study included in the application material. In their attached report, GHA expresses their concern with the proposal to create five on-street parking spaces along Winnetka Road, citing the relatively high speed of through traffic on Winnetka Road. They also note that arrangements should be made for off-site guest parking to augment the proposed on-site guest parking and that the petitioner study the ability of vehicles to back out of units 7,8 and 9 in the northwest corner of the site where the drive aisle narrows to 16 feet. GHA concurs with the petitioner s traffic consultant that the proposed development will have a limited impact on traffic operations in the site vicinity and will not trigger the need for any geometric improvements on Winnetka Road at the site access drives. In his report the Police Chief notes the existing congestion at Winnetka Road and Happ Road and indicates that residents of the Meadowlake condominium complex have expressed concern about cars cutting through their property to avoid this intersection. It should be noted, that the Village and Cook County Highway Department are working on a preliminary engineering study for Happ Road. As part of this effort the Winnetka/Happ intersection is being evaluated. Both Winnetka and Happ Roads are under County jurisdiction. The Fire Department indicates they need to maintain 20 of clear roadway width to access the proposed townhomes in an emergency and that the turn radii appear to be tight. STAFF COMMENTS The petitioner is seeking to build at a density of 15.7 units per acre versus the 8 units per acre allowed under the requested R-6 zoning or a total of 34 units versus 16. They are providing the required roadway dimensions, sidewalks and adequate guest parking spaces. The proposal has a density 26% greater than that of the Landmark complex, 6% greater than the Meadowlake complex and 10% less than the units at Winnetka Road. One of the criteria for allowing greater density under a PUD is that the proposed plan would be no less beneficial to the homeowners in and around the proposed site than what would be allowed under the R-6 standards. The re-occupancy of the existing site with many of the uses Page 5 of 8

6 allowed under the M-1 zoning would have a negative impact on the surrounding residential properties. The second criterion for allowing more density is to provide the required R-6 setbacks along the boundaries of the development. The petitioner is providing the required rear and side yard setback but is seeking a variation of 5 from the 30 front yard setback requirement. In order to qualify for the variation on density the petitioner should work to find a way to meet the required setbacks. As studied in the Northfield Road Corridor Plan, it appears something more than 16 units would be needed to make a residential development on this site financially viable. It is incumbent on the petitioner to prove that their requested 34 units are necessary. On September 11 the Architectural Commission, will initiate their review of the proposed architecture, building materials, signage, fencing, landscaping and hardscapes. PUBLIC COMMENTS We ve attached a number of s and letters from neighboring homeowners expressing their concerns with the proposed development. REVIEW STANDARDS The Zoning Code provides review standards for PUDs (Section 17-4); requires that each of a mandatory set of findings be achieved (Section 17-5); establishes criteria for approving zoning code variations (Section 17-7) and maintains the applicability of the special use review standards to PUDs (Section 16-3). All of these Code sections are attached for your reference. COMMISSION DIRECTION There may be issues such as density, setbacks, traffic and parking that the Plan & Zoning Commission may want the petitioner to address further before voting on the project. If the Commission has enough information to vote on the project it may choose to simply reject it or if at some point the Commission wishes to vote in favor of the application it may wish to consider the following motion: Motion to recommend to the Village Board approval of a PUD, the rezoning to R-6 Multiple Family Residential and the associated Zoning Code variations to allow the development of 34 residential units on a 2.16 acre parcel, in accordance with the petitioner s application and supporting materials, date stamped July 18, 2017, subject to the following conditions: 1. The petitioner shall repair or replace any public sidewalk that the Village Engineer deems necessary to repair or replace due to the construction of the proposed development. 2. The proposed landscaping, lighting, signage and architectural design shall be subject to the approval of the Architectural Commission and any conditions they may require. 3. The petitioner shall enter into a formal agreement with The Landmark Home Owners Association to relocate the existing storm sewer which serves the Landmark complex, prior to the issuance of building permits. The agreement shall be subject to the review and approval of the Village Attorney. Page 6 of 8

7 4. The petitioner shall enter into a formal agreement with neighboring property owner to secure over-flow guest parking. The agreement shall be subject to the review and approval of the Village Attorney. 5. All roadways and drive aisles shall be kept clear of snow from curb to curb and snow may not be deposited onto the Winnetka Road right of way. 6. No on-street parking spaces shall be installed on Winnetka Road. 7. The representations made in the application and supporting documents are binding upon the Petitioners. There shall be no additional uses permitted beyond those specifically enumerated herein or permitted by the Village of Northfield s Zoning Ordinance. 8. The Village of Northfield Health, Fire, and Building Officials shall be granted access to the subject property at any reasonable time for purposes of conducing inspections for compliance with Village Codes and Ordinances. 9. An approval pursuant to any requested review by a Village consultant, Village staff member, Village Commission or Village Board Committee shall be an approval of only those items specified in any motion, resolution, ordinance, or written report. Such approval shall not be deemed to be an approval of any matter which is within the jurisdiction of any other Village consultant, Village staff member, Village Board Committee or Village Commission that has not issued a report or given its approval. Neither shall such approval be deemed the approval of any County, State or Federal Agency. Under no circumstances shall the approval be deemed to be an approval of any matter not included in this ordinance by virtue of the fact that such a matter appeared on a supporting document which is not attached as an exhibit to this ordinance or incorporated as an exhibit as part of this ordinance. 10. The petitioner shall comply in all other respects with the ordinances of the Village of Northfield and nothing in this PUD shall be construed as a waiver of any of those requirements. 11. Violation of any condition of this PUD Ordinance shall be cause to revoke said permit by the Corporate Authorities upon ten (10) days proper notice to the Petitioner. Alternatively, the Village Manager shall have the right to assess fines, not to exceed $ per violation, for violation of this PUD Ordinance. Such assessment of fines may be appealed to the Corporate Authorities by filing written notice of appeal within three (3) days of the assessment. 12. Changes in the project may only be made as follows: A. Minor Field Changes. Minor changes in locations or sizes shown on exhibits may be approved, in writing, by the Director of Community Development. Typically, a minor field change will not involve a percentage change greater than 3%. However, not all changes of less than 3% shall necessarily be deemed to be minor. The determination of the Director of Community Development as to whether a change is a minor field change shall be final. B. Village Board Approved Changes. The Village Board may approve, without referral to the Plan & Zoning Commission, such other changes as it believes are in the best interest of the Village and which do not involve changes in numbers found in the text of the Ordinance and which do not have a substantial, direct impact on adjacent properties. The determination of the Village Board as to whether a requested change should be referred to the Plan & Zoning Commission shall be final. C. Changes Requiring a Public Hearing. Any change involving a size, quantity or other numerical value found in the text of the Ordinance or any change having substantial, direct Page 7 of 8

8 impact on adjacent properties shall not be made except after a public hearing before the Plan & Zoning Commission. Additionally, the Village Board or the Director of Community Development may refer any requested change to the Plan & Zoning Commission for public hearing when either believes it would be in the best interest of the Village to do so. ATTACHMENTS: 1. Vicinity Maps 2. Comprehensive Plan Excerpts 3. Village Engineer/GHA Report 4. Departmental Reports 5. Letters/ s from Neighboring Home Owners 6. Standards for Review 7. Petitioner s Application date stamped July 8, 2017 ( ) Page 8 of 8

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