Village of Glenview Plan Commission STAFF REPORT July 25, 2017 TO: Chairman and Plan Commissioners CASE #: P2017-032 FROM: Community Development Department CASE MANAGER: Tony Repp, Planner SUBJECT: Conditional Use, Final Site Plan Review, and Preliminary Subdivision ACTION REQUESTED: Staff requests the Plan Commission review the proposed site plan and operations. OWNER: EHS, LLC E.J. Stern PO Box 2055 Glenview, IL 60025 LOCATION: PROJECT NAME: 1727-1757 Waukegan Road Culver s APPLICANT / CONTACT: Dannie Thomas NKT Management d/b/a Culver s 1151 Lockwood Drive Buffalo Grove, IL 60089 PROPOSAL: The applicant proposes construction of a commercial restaurant building at the former Matty s Wayside Inn site to accommodate a drive-thru restaurant use. Final Site Plan Review, Conditional Use for a drive-through food use, and Preliminary Subdivision approvals are requested. Report Disclaimer: Village staff makes no representations regarding support, endorsement, or the likelihood of approval or disapproval by any Glenview regulatory commission or the Village Board of Trustees.
Site Assessment VILLAGE OF GLENVIEW ZONING: PIN (S): 04-26-401-023-0000 & 04-26-401-067-0000 Current North East South West Glenview B-2 General Business Glenview B-2 General Business Glenview R-3 Single Family Residential Glenview B-2 General Business Glenview B-2 General Business AERIAL PHOTO: 2
Project Summary BACKGROUND: The subject property formerly was improved with a two-story restaurant building, but has been vacant since the building was razed following a fire in 2009. The subject property and the properties to the north, including the Taco Bell site and existing shopping center, are all under common ownership. In 2014, the intersection at Chestnut Avenue and Waukegan Road was modified to include an aligned signalized entrance following the demolition of an existing building on the southern end of the existing shopping center to the north. This design allowed for a more efficient two-phase traffic pattern versus the prior three-phase pattern at this intersection. This improvement was implemented as a result of recommendations in the Waukegan Road Corridor Plan and the implementation of a Business Improvement District on the subject property which helped fund a portion of the necessary improvements. In 2015, the property owner presented a preliminary plan to the Plan Commission in order to gather feedback and direction from the Commission and the public. The preliminary plan included the existing Taco Bell drive-through, a new drive-through restaurant, and a new drive-through coffee use. At that meeting, a number of concerns were raised regarding the intensity of the proposal, impact on surrounding properties, and overall impact on traffic in the area. The Plan Commission shared many of the concerns relayed during the public hearing, as well as other site plan and circulation issues. The Commission provided feedback that called for the reduction in the number of drive-through uses and a very careful study of traffic impacts. The minutes from this Plan Commission meeting have been attached to this report for reference. Previous Development Approval In 2016, based on a recommendation from the Plan Commission, the Board of Trustees granted the necessary development approvals to allow for a drive-thru restaurant and retail building. The proposed development included a 3,500 square-foot drive-thru Culver s restaurant and a 4,200-square foot retail building which would have included up to two tenant spaces for retail and/or restaurant uses. The Village s approval came after three (3) public hearings at the Plan Commission, several rounds of revisions to the development plan, and hours of deliberation among the Plan Commission, Board of Trustees, the Applicant, and the Public. A summary of the concerns presented by members of the public during the 2016 development review are summarized as follows: Traffic: Residents in opposition to the proposed use asserted that given the present traffic conditions and congestion of this section of Waukegan Road, adding a drive-thru use would create even worse traffic and increase the chances for accidents in the area. According to those who testified before the Plan Commission, the existing drive-thru restaurants (Burger King and Taco Bell) already generate unsafe traffic patterns. Residents who live in the adjacent neighborhoods east of Waukegan Road explained the difficulty they have experienced in turning onto Waukegan Road. Many of the residents felt that allowing a drive-thru use would increase the traffic in this area to an unacceptable level and that other uses with lower traffic impacts 3
should be explored. Concerns were also raised about the impacts on pedestrian and bicycle safety based on the vicinity of the proposed drive-thru use. Neighborhood Character: Several residents felt that this type of development was out of character for Glenview and that adding another drive-thru use in an area that already has two (2) drive-thrus would create a cluster of impactful uses that is inconsistent with Glenview s character. Several neighbors also included material and testimony that suggested their property values would be greatly impacted by such a use because the proposal would be more intense than what is allowed by-right in the B-2 zoning district. Operational Impacts: Residents of the homes immediately adjacent to the property raised concerns relating to the operations of the proposed drive-thru restaurant including noise related to deliveries, garbage pick-up, speakers, and cars idling in the drive-thru; the proximity of the garbage enclosures to the adjacent residences; the need for landscape and fencing to buffer the use; and the impacts of the parking lot lighting. During the development review process the Plan Commission reviewed the information submitted by the public, the applicant s traffic study, reviews of the traffic study by the Village s traffic consultant, and the applicant s appraisal information and ultimately recommended approval with numerous conditions. The Board of Trustees adopted the recommendation of the Plan Commission and an ordinance was approved on September 6, 2016. PROJECT DESCRIPTION: Since the September 2016 approval, the applicant has worked toward obtaining the necessary permits, but has encountered issues relating to the development costs of the proposed project. The applicant and property owner approached staff with a revised plan which eliminated the retail store, reduced the overall parking area, and included an above-ground detention basin. All of these alterations to the previously approved plan have decreased the intensity of the proposed use and allowed the overall costs of the project to be reduced. Modifications to the development site currently proposed include the following: Elimination of Retail Store: The previously proposed retail store has been removed from the plan and the area converted to the main parking field for the proposed Culver s restaurant. The elimination of the 4,200 square-foot building has reduced the activity and traffic impacts associated with the site. Reduction in Parking Stalls: Given the elimination of the retail store, the applicant was able to reduce the number of parking stalls required. The distance between the parking areas and the adjacent residential lots has been increased. Above-grade Detention Basin: Due to the change in the number of buildings and the parking lot configuration, an aboveground detention basin could be added to the plan to eliminate the costs associated with the underground detention vault previously proposed. The above-ground detention also provides a larger landscape buffer between the proposed Culver s and the residential properties to the 4
west. The edges of the detention basin adjacent to the residential lots now include landscaped berms, raising the height of proposed landscaping materials. Relocation of the Trash Enclosure: A shared trash enclosure for the existing Taco Bell restaurant and the proposed Culver s restaurant is shown along the main north/south drive aisle. This design would move the existing Taco Bell trash enclosure further away from residential properties and reduces the overall number of enclosures on the site. POTENTIAL NEIGHBORHOOD IMPACTS: The proposed use would be in a B-3 General Service District use in a B-2 General Business District, allowed via a conditional use ordinance. The use would be located in a commercial corridor adjacent to other existing commercial uses and an existing drive-thru restaurant along Waukegan Road, west of existing residential properties. Concerns gathered from the neighbors during previous Plan Commission meeting include the location of dumpsters, operational hours, noise, lighting, screening, and traffic impacts on the area and nearby residential streets in the neighborhood. Staff has received several letters to date which oppose the proposal in its newest form. These letters include comments on traffic, impacts to adjacent properties, and recommended changes to the plan which may mitigate these impacts. All correspondence received by staff is attached to this report. Plan Commission Review FINAL SITE PLAN REVIEW COMMENTS The purpose of Site Plan Review is to go beyond the basic zoning, subdivision, design and building requirements in order to address site details which these other codes may not regulate in such detail. The review process is intended to promote more orderly and harmonious development and are intended to ensure that all codes and ordinances have been met helping to provide a logical and coordinated review of proposed developments. CIRCULATION The applicant should confirm the number of vehicles that can be accommodated in the proposed drive-through lanes (vehicle stacking) for both the Culver s and Taco Bell uses as measured from each menu board before traffic movements become impeded in the adjacent drive aisles.. The Taco Bell drive-thru entrance has been altered to allow for vehicles from the primary drive aisle to turn into the modified drive-thru lane. Additionally, staff recommends that the applicant enlarge the curb bulb with a mountable curb or via thermoplastic striping to limit entry into the drive-thru to one vehicle while still allowing the area to be utilized for wide-turning vehicles. One-way Only striping should be added to the northern Taco Bell drive aisle. Do Not Block striping and/or signage should be added on the west-bound side of the southern drive aisle immediately south of the entrance to the western drive aisle. This would prevent vehicles 5
waiting to exit onto Waukegan Road that are using the southern entrance from blocking the turning movements of cars entering the site from Waukegan Road and prevent any back up of cars onto Waukegan Road. The radii for the right-in/right-out access points should be altered to accommodate traffic more easily. The AUTOturn diagram for the Village s fire truck shows potential conflicts in these areas. The applicant should identify the location of depressed curbs for the proposed accessible stalls serving the existing and proposed building. Per the Illinois Accessibility Code, proposed depressed curbs or curb ramps must not encroach into the required 16 x 19 accessible stall. As previously requested, a right-turn-only curb improvement has been added for northbound traffic entering the site from the adjacent Napa Auto Parts property. A right-turn only sign should be added at the east lot line informing drivers entering the site from the cross-access drive from the Napa site. BUILDING SCALE The proposed building and signage plans are consistent with the original designs and have been approved by the Appearance Commission. The dumpster enclosure to the east of the proposed Culver s building has been relocated to an area east of the north/south drive-aisle. The design details will require Appearance Commission review and approval. PARKING LOTS The applicant has reduced the total number of parking stalls. The required number of parking stalls, based on the number of seats within the proposed Culver s, is 45. The applicant has provided 48 parking stalls including three (3) accessible stalls. While the parking plan complies with Village s requirements, the applicant should confirm that observed conditions at other operations indicate this is an acceptable number of parking stalls. As required by the Illinois Accessibility Code, the accessible parking stalls on both the Taco Bell and Culver s sites should be relocated so that no proposed parking stalls are located nearer to the proposed primary building entrances than the proposed accessible stalls. In accordance with final subdivision of the property, easements will be required for vehicular and pedestrian cross-access and reciprocal parking sharing, utilities, overland drainage, and detention.. The applicant should confirm where designated employee parking will be located. Designated parking stalls will keep the customers closer to the building entrances and longer term parking areas at the rear of the site used by employees minimize traffic movements and impacts upon adjacent properties. SITE ILLUMINATION The applicant has provided an updated photometric plan which shows the plan is compliant with provisions of the Village s performance standards relating to lighting. The lighting levels at the property lines adjacent to residential properties are 0.1 foot-candles or less. 6
The applicant may be required to request a waiver from the Appearance Commission to allow for a uniformity ratio in excess of 4:1 across the site in order to control light levels at the property lines while still preserving appropriate light levels within parking areas for safety. Due to the revised site plan, lighting fixtures are only located on the building and in the parking lot. All light fixtures would be 17.0 feet in height with shield on the residential side of the fixture to eliminate any glare or light spillover facing east. LANDSCAPING The applicant should confirm that there will be sufficient landscape plantings and screening along the eastern property line. The applicant should submit a tree preservation plan to indicate which existing mature trees may be retained to contribute to the overall screening of the property. The subject property would be permitted fencing along the east and southeast lot lines at a height of up to 8.0 feet. The applicant is requesting that a standard 8.0 solid privacy fence be installed and the requirement for sound attenuation be removed due to the increased buffering provided by the above-ground detention system. Neighbors from the adjacent residential properties have requested the applicant pursue a variation for a 9.0 foot tall fence with sound attenuating material. If the Plan Commission believes a fence in excess of 8.0 feet in height is appropriate, staff requests the Plan Commission provide comments regarding the benefits of such a fence for the Zoning Board of Appeals to take under advisement. An improved landscaping treatment should be proposed along Waukegan Road along the entire property frontage north to the traffic signal. Proposed landscaping shall be subject to additional review by the Appearance Commission. A detailed landscape plan for the area around the ground sign should be provided for Appearance Commission review. SIGNAGE Wall, ground, and menu board signage were previously approved by the Appearance Commission and no changes are proposed at this time. Any future alterations to the signage plan and details shall be subject to the review and approval of the Appearance Commission. 7
Technical Review COMPLIANCE WITH VILLAGE PLANS: Village Plan Compliance Yes / No / N/A Comments Comprehensive Plan Yes The Comprehensive Plan included plans for retail and a mix of uses in this area. Official Map Yes The official map included commercial land uses in this area. Waukegan Road Corridor Plan Yes As part of the reconfiguration of the Chestnut Avenue and Waukegan Road intersection, shared cross-access points were added to be consistent with the Waukegan Road Corridor Plan. The Plan also reduces curb cuts and traffic conflicts through right-in/right-out only access (except for the stop light) and a proposed crossaccess connection to the existing Napa Auto Parts site to the south. Milwaukee Avenue Corridor Plan N/A - Downtown Revitalization Plan N/A - Natural Resources Plan N/A - Bike & Sidewalk Master Plan Yes The property is already served by sidewalk in the Waukegan Road right-of-way. The GNAS Design Guidelines N/A - 8
LAND USE STATISTICS: CULVER S: Allowed/Permitted Proposed Compliance Zoning B-2 B-2 (Conditional Use) Yes Lot Size 6,250 sq. ft. 79,056 sq. ft. Yes Building Height <40.0 feet 23.0 feet Yes Minimum Front Yard Setback 50.0 feet from centerline 110.36 feet Yes Minimum Side Yard Setback 0 or >3 feet 175.41 feet Yes Minimum Side Yard Setback 0 or >3 feet 16.25 feet Yes Minimum Rear Yard Setback >20.0 feet 71.89 feet Yes PARKING REQUIREMENTS: The Zoning Ordinance stipulates formulas to be applied to various possible land uses in order to establish the minimum number of required parking stalls. These parking formulas have been examined by staff to establish the most restrictive requirements, which can be summarized as follows: Parking Requirements Restaurant Formula 1 parking space for every 3 seats Quantity Total Required 134 Seats 45 Total Proposed 45 (+ 3 accessible stalls) Compliance Yes 45 48 Yes TRAFFIC IMPACT ANALYSIS: The applicant s traffic consultant, KLOA, has prepared an addendum to the original traffic study which removes the projected impact of the previously proposed retail/restaurant building which has been removed from the plan. During previous reviews of the the applicant s traffic materials, the Village s third-party consultant deemed KLOA s projections to be accurate for peak periods. All previous traffic memos and reviews have been attached to this report for reference. Additionally, an assessment of the applicant s newest traffic addendum by the Village s third-party consultant is expected to be available prior to the scheduled Plan Commission public hearing. A summary of the traffic consultant s assessment will be provided by staff. ENGINEERING COMMENTS: Revised preliminary engineering plans have been submitted for review. A review of the revised materials could not be completed prior to the release of the staff report, but based upon engineering designs to date and additional reviews and revisions to be completed prior to the Final Engineering phase, there is sufficient information available to confirm that there is nothing inherent to the project s preliminary design to indicate that the project (if approved) can advance to final engineering designs, and no issues exist which would prevent the project from proceeding for further review. 9
Additionally, Village engineering staff worked closely with the applicant during the redesign of the site to confirm the above-ground detention system conforms to the applicable codes and requirements. CONDITIONAL USE STANDARDS: Per Sec. 98-50 of the Municipal Code, the Plan Commission shall evaluate any petition for Conditional Use Permit in accordance with the following standards before offering a recommendation to the Village Board of Trustees: 1. The proposed conditional use at the particular location is necessary or desirable for the public convenience; and it will not be injurious to the use and enjoyment of property already permitted in the immediate vicinity; nor will it diminish or impair property values in the neighborhood; nor will it affect a significant change in the character of the neighborhood. 2. The location and size of the conditional use, the nature and intensity of the operation involved in or conducted in connection with it, the size of the site in relation to it, and the location of the site with respect to streets giving access to it, shall be such that it will be in harmony with present development and the appropriate and orderly future development of the district in which it is located, as well as other butting districts. 3. The location, nature, and height of buildings, walls, and fences, and the nature and extent of the landscaping on the site shall be such that the use will not unreasonably hinder or discourage the appropriate development and use of adjacent and nearby land and buildings. 4. Parking areas shall be of adequate size for the particular use, properly located, and suitably screened from adjoining residential uses, and the entrance and exit drives shall be laid out so as to prevent traffic hazards and nuisances, and minimize traffic congestion in the area. 5. A use which is permitted in another district by conditional use shall comply with all applicable bulk regulations of the district in which the use is located. Please refer to the applicant s Conditional Use application within the attached application materials for details regarding the applicant s responses and justifications for the proposed use in regard to the Conditional Use Standards. Condition September Ordinance Current Sample Motion Future use must be consistent with traffic and Condition Present Condition Present conditions associated with Culver s Drive-Thru Hours: 10 am - 10 pm (Sun-Wed) and 10 am 11pm (Thurs-Sat) Condition Present Condition Revised (until 11 pm daily) Delivery Hours: 7 am 10 am Condition Present Conditions Revised (until 5 pm daily) No refuse pickup between 8 pm and 7 am Condition Present Condition Present Applicant responsible for picking up litter daily Condition Present Condition Present Right-in / Right-out access to Waukegan Only Condition Present Condition Present Applicant shall seek approvals to erect a 9.0 tall Condition Present - fence with sound attenuating material Applicant shall erect a guardrail along fencing Condition Present - area Various traffic control and site plan changes Conditions Present Conditions Present 10
PROJECT TIMELINE: Submittal/Meeting/Action Date A. Preliminary Plan Commission Review 06/23/2015 B. Preliminary Site Plan Review 03/29/2016 C. Application Submitted 04/25/2016 D. Public Notice Published 05/05/2016 E. Public Notice Mailed 05/05/2016 F. Plan Commission Meeting 05/24/2016 G. Appearance Commission Meeting (Preliminary) 05/25/2016 H. Plan Commission Meeting (continued without comment) 06/14/2016 I. Plan Commission Meeting 06/28/2016 J. Plan Commission Meeting (continued without comment) 07/12/2016 K. Plan Commission Meeting 07/26/2016 L. First Consideration by Board of Trustees 08/16/2016 M. Second Consideration by Board of Trustees 09/06/2016 N. Revised Application Submitted 06/23/2017 O. Public Notice Published 07/06/2017 P. Public Notice Mailed 07/06/2017 Q. Plan Commission Meeting 07/25/2017 R. Appearance Commission Meeting (Lighting / Landscaping) 07/26/2017 S. First Consideration by Board of Trustees TBD T. Second Consideration by Board of Trustees TBD 11
REQUIRED APPROVAL(s): The following chart details the necessary required approvals. Required Regulatory Review A. Annexation B. Annexation with Annexation Agreement C. Comprehensive Plan Amendment D. Official Map Amendment E. Rezoning F. Planned Development G. Conditional Use H. Final Site Plan Review I. Second Curb Cut J. Subdivision (Preliminary, Final, and Waivers) TBD K. Variation(s) (Zoning Board of Appeals) L. Certificate of Appropriateness (Appearance Commission) M. Final Engineering Approval & Outside Agency Permits N. Building Permits O. Building & Engineering Inspections P. Recorded Documents (Development Agreements, Easements, Covenants, etc.) Q. Business License R. Certificate of Occupancy Attachments & Exhibits 1. Sample Motion 2. Public Notice 3. Excerpt from Minutes of June 23, 2015 Plan Commission Meeting 4. Excerpt from Minutes of May 24, 2016 Plan Commission Meeting 5. Excerpt from Minutes of June 28, 2016 Plan Commission Meeting 6. Excerpt from Minutes of July 26, 2016 Plan Commission Meeting 7. Excerpt from Minutes of the August 16, 2016 Board of Trustees Meeting 8. Excerpt from Minutes of the September 6, 2016 Board of Trustees Meeting 9. Previous Traffic Studies and Memos a. Traffic Impact Study from KLOA, dated April 21, 2016 b. Traffic Engineering Review Memorandum from JJ Benes and Associates, dated 05/18/2016 c. Addendum to the Traffic Impact Study from KLOA, dated June 21, 2016 d. Addendum to the Traffic Impact Study from KLOA, dated June 22, 2016 e. Traffic Engineering Review Memorandum from JJ Benes and Associates, dated 06/23/2016 f. Addendum to the Traffic Impact Study from KLOA, dated June 30, 2016 g. Traffic Engineering Review Memorandum from JJ Benes and Associates, dated 07/08/2016 h. Cut-Through Traffic Memorandum from JJ Benes and Associates, dated 07/20/2016 10. Public Correspondence up to 07/21/2017 11. Revised Application & Exhibits 12
Sample Motion If the Plan Commission believes the available exhibits, testimony and other evidence meet the conditional use standards of Sec. 98-50(d)(1) of the Municipal Code, the following motion should be used: Based upon the petitioner s application materials, testimony, and discussion relating to the petition which together demonstrate compliance with Chapter 98, Article II of the Municipal Code, I move in the case of P2017-032, Culver s at 1727-1757 Waukegan Road, the Plan Commission recommend the Village Board of Trustees grant approval of an Ordinance in accordance with the following: 1. A Conditional Use in accordance with the provisions of Chapter 98, Article III, Section 98-132(d) and Article II, Section 98-50(a)(3) of the Glenview Zoning Ordinance to allow a dine-in and carry-out food and beverage establishment with a drive-through window offering service to patrons in vehicles, a B-3 General Service District Use in a B-2 General Business District, to occupy a tenant space upon the subject property, subject to the following conditions: A. The use shall be permitted in accordance with the Site Plan prepared by SpaceCo, Inc. and dated June 21, 2017. B. If a different use proposes occupancy of the site in the future, the owner/operator of that use shall provide proof that the traffic and use characteristics of the new use are substantially compliant with the conditions described in the traffic impact studies by KLOA and dated 04/21/2016, 06/17/2016, 06/21/2016 and 07/05/2016. C. The drive thru hours of operation shall be from 10 a.m. to 11 p.m. daily. D. All restaurant hours of operation shall be from 10 a.m. to 11 p.m. daily. E. All deliveries of goods to the site will occur between the hours of 7 a.m. and 5 p.m. F. No refuse pick-up shall occur between the hours of 8 p.m. and 7 a.m. and all garbage receptacles and enclosure doors shall remain closed when not being accessed. G. Applicant shall be responsible for picking up litter throughout the extents of the property at least once per day. H. The subject property shall have direct access to Waukegan Road via right-in / rightout access only. I. All site lighting shall be reduced to minimum levels required for security purposes by 11:00 p.m. daily. J. No other outdoor operations shall be permitted except those operations otherwise expressly permitted per the Municipal Code. K. No outdoor dining shall be permitted without a corresponding increase in available parking or reduction in seating so as to comply with parking requirements of the Municipal Code. L. The applicant shall supply and maintain eight foot tall solid fencing along all adjacent residential properties to provide screening. M. There shall be no outdoor displays or attention-getting devices on the premises. N. The petitioner shall be in receipt of a building permit within one (1) year following the adoption of said ordinance, or the conditional use will lapse. 13
O. If the conditional use is abandoned or discontinued for more than three (3) months without substantial attempt to resume such use, the conditional use shall be rescinded. 2. Final Site Plan Review approval is granted for the subject property, in accordance with the requirements of Chapter 54, Article IV of the Village Municipal Code and in compliance with the Site Plan prepared by SpaceCo, Inc. and dated June 21, 2017 subject to the following amendments: A. Do Not Block thermoplastic striping and signage shall be added at the southwest corner of the site at the location of the confluence of the one-way northbound drive aisle, the one-way southbound drive aisle, and the bi-directional east-west drive aisle. B. A Right-Turn Only sign shall be added for northbound traffic from the Napa site cross-access. C. At the signalized access driveway intersection at the east edge of the site north of the Taco Bell restaurant; the applicant shall install and maintain the southbound service drive approach from the adjacent shopping center under stop sign control, the northbound approach from the drive aisle serving Taco Bell and Culver s under stop control, and shall eliminate the eastbound stop sign and stop line from the signalized access driveway. D. At the signalized site access driveway north of the Taco Bell restaurant, the applicant shall install and maintain a Do Not Block Intersection sign on the westbound approach to the internal intersection with the shopping center circulation aisle to the north. E. Mountable curbing shall be added at the entrance to Taco Bell adjacent to Waukegan Road. 3. Final Appearance Commission approval of any site lighting and landscaping is required. Alterations to the already approved architecture and signage will also require Appearance Commission approval. 4. Preliminary Subdivision approval in accordance with the Site Plan prepared by SPACECO, Inc. and dated 06/21/2017; 5. Final engineering approval through the building permit process of the lot comprising the development site. 6. All materials presented to the Commission on July 25, 2017 and associated revisions required by the Plan Commission. 14
PROPOSED CONDITIONAL USE PUBLIC NOTICE P2017-032 Notice is hereby given that a public hearing will be held by the Glenview Plan Commission to consider a petition requesting a Conditional Use in accordance with the Glenview Zoning Ordinance. The meeting will be held on Tuesday, July 25, 2017 at 7:00 P.M., in the Village Hall, 2500 East Lake Avenue, Glenview, IL. The property involved is commonly known as 1727 Waukegan Road and legally described as: LOT 5 IN GLENWOOD SUBDIVISION, BEING A PART OF THE SOUTHEAST QUARTER OF SECTION 26, TOWNSHIP 42 NORTH, RANGE 12, EAST OF THE THIRD PRINCIPAL MERIDIAN, AND THAT PART OF THE NORTH HALF OF THE SOUTHEAST QUARTER OF SECTION 26, TOWNSHIP 42 NORTH, RANGE 12, EAST OF THE THIRD PRINCIPAL MERIDIAN, DESCRIBED AS FOLLOWS: COMMENCING AT A POINT IN THE CENTER OF WAUKEGAN ROAD THAT IS 196.59 FEET SOUTH OF (AS MEASURED AT RIGHT ANGLES TO) THE EAST AND WEST CENTER LINE OF SAID SECTION 26; THENCE RUNNING EAST ON A LINE FORMING AN ANGLE OF 87 DEGREES 54 MINUTES (MEASURED FROM THE NORTH TO EAST) WITH THE CENTER LINE OF WAUKEGAN ROAD, A DISTANCE OF 50.03 FEET TO THE EAST LINE OF WAUKEGAN ROAD AND THE POINT OF BEGINNING OF THE HEREIN DESCRIBED PARCEL; THENCE NORTH ALONG THE EAST LINE AND PARALLEL WITH THE CENTER LINE OF WAUKEGAN ROAD, A DISTANCE OF 135.09 FEET TO A POINT; THENCE EAST ON A LINE FORMING AN ANGLE OF 92 DEGREES 06 MINUTES (MEASURED FROM SOUTH TO EAST) A DISTANCE OF 190.65 FEET TO A POINT ON THE WEST LINE OF LOCKMAN S SUBDIVISION; THENCE SOUTH AT RIGHT ANGLES TO THE LAST DESCRIBED LINE AND ALONG THE WEST LINE OF LOCKMAN S SUBDIVISION, A DISTANCE OF 110.00 FEET TO A POINT; THENCE WEST AT RIGHT ANGLES TO THE LAST DESCRIBED LINE, A DISTANCE OF 36.00 FEET TO THE EAST LINE OF WAUKEGAN ROAD AND THE POINT OF BEGINNING OF THE THEREIN DESCRIBED PARCEL; ALL IN COOK COUNTY, ILLINOIS. The applicant, Dannie Thomas, requests a Conditional Use in accordance with the provisions of Chapter 98, Article II, Section 98-50(a)(3) and Article III, Section 98-84 of the Glenview Zoning Ordinance to allow a dine-in, carry-out, and drive-through restaurant offering service to patrons in vehicles, a B-3 General Service District use in a B-2 General Business District. Final Site Plan Review and Preliminary Subdivision are also requested to allow for the construction of the restaurant building and associated improvements on the site. All persons interested should attend and will be given an opportunity to be heard. For additional information regarding this case, please contact Tony Repp, Planner, at (847) 904-4309. ATTEST: Jeff Rogers Planning Manager Publication Date: July 6, 2017 Glenview Plan Commission Steven K. Bucklin, Chairman 15
EXCERPT FROM MINUTES OF THE JUNE 23, 2015 PLAN COMMISSION MEETING P2015 026 1727 Waukegan Road Matty s Site (Public Hearing) Chairman Bucklin began by stating that similar to the Kensingston School discussion, the Plan Commission is asked to listen to the details of the case and provide feedback and direction to the petitioner. Mr. Brady summarized that the location of this proposal is the site of the former Matty s Site and includes the current Taco Bell parcel. He outlined the Case Summary: Request for direction regarding proposed 3 drive-thru uses *2 proposed drive-through restaurants (one currently exists), and *1 proposed coffee drive-through Applicant owns adjoining properties to the north, including Taco Bell Proposed ¾ access to the site south of the existing light at Chestnut and Waukegan As part of Waukegan Road Corridor, the intersection of Chestnut and Waukegan Avenue, was one of the Village s worst intersections and the Village has worked with the applicant and IDOT to completely redesign the intersection. Modifications have been made to the drive-through driveway to Taco Bell. Mr. Brady showed a slide of the Taco Bell Site Revisions, which included what currently exists and revisions that have been made, including relocation of the sign. Modifications are still needed for the balance of the site, including the reorientation of the drive-through lane that would allow for northsouth access at the eastern most point of the Taco Bell site. These modifications are still pending. The existing conditions Existing were shown noting that the NAPA development has a right-out at the northern edge of the property and a one-way lane into the former Matty s site and signs that prohibit a left hand turn. As part of the intersection improvements, the stacking distance was significantly increased to accommodate increases in traffic. A Cross Access Exhibit was shown as well as a few Concept Site Plan Comparisons. Mr. Brady summarized that the petitioner has submitted documentation on his difficulty in marketing the site. The following slide was utilized for discussion: 16
Chairman Bucklin noted that the Chestnut/Waukegan intersection was the most dangerous intersection in Glenview. A lot of work has been done and the Chairman complimented the petitioner on the muchimproved design. 17
Commissioner Fallon stated that he prefers Concept Site Plan 2, but questioned if the large amount of shown parking was necessary. Mr. Brady replied that as part of any formal submittal and if all three sites were redeveloped at the same time, a coordinated traffic study would be required. The potential tear down of the current Taco Bell was mentioned. Commissioner Dickson stated that she is partial to Concept Site Plan 2 because the three different drivethrough activities are self-contained. She added her concern in regards to the Taco Bell site is that the Village was trying not to have vehicles come to the intersection traffic. She would also like to see as much landscaping as possible to avoid a sea of asphalt. She also likes Concept Site Plan 2 because a consistent front edge is created for all of the buildings. Commissioner Witt questioned if studies had been done to establish that retail establishments would not be appropriate for these parcels. Mr. Brady commented that the applicant has found that there is very little interest in retail establishments. The Commissioner stated that she also prefers Concept Site Plan 2 due to the safer circulation patterns, but was concerned that this area will be very busy and worried about how much was put in this area, adding the continues to be treacherous traversing these parking lots. While not a reflection on the property owner, Commissioner Igleski added that he was disappointed that this request is a reflection on the current market situation. He is concerned that this intersection has already been dramatically improved and he doesn t want to see that change. Usually fast food restaurants stacked like this are seen in large retail outlets. He concurred with his fellow Commissioners that he preferred Concept Site Plan 2 and added that he would like to see an extremely thorough traffic study on this site. He would also like to know exactly what fast food restaurants would be built. Chairman Bucklin agreed that he does not want to mess up the current intersection improvements. He encouraged the property owners to work together, adding that the owner has the right to build what he wants, however stated that he did not prefer to see three drive-thru restaurants on this site while acknowledging that Waukegan Road can handle this use type. He does not want to see a sea of asphalt. He also prefers Concept Site Plan 2 and would like to see additional landscaping added to soften the area. Chairman Bucklin opened the public portion of the meeting. Mr. Tom Cunningham has been a Glenview resident for eight years, who has three children. When he moved here in 2007, he was directly behind Matty s Wayside Inn. He stated that he had no problem with Mr. Stern s plan for the three parcels, but felt the area might appear sterile with three drive-thru restaurants. He felt that three fast food restaurants would create significant traffic during the lunch and dinner hours. He is concerned about light pollution, trash, traffic patterns and idling cars (air pollution). While having no opposition to Mr. Stern, he feels that this plan is not the best for this location. Mr. Jim Planey, who lives on the block east of this parcel, noted the increase traffic that three drive-thru restaurants would create. He asked that the Village focus on traffic studies. Ms. Kristen Utiley stated that she understands that the property owners have the right to build in the area, but stated that she calls the police at least once per month about noise and cars parked behind the Taco Bell at night. She has squirrels eating tacos in her trees. The Day Care Center across the street was noted, with poor parking. She questioned the concept of our Village what does Glenview want to be? 18
Do we want to be Hoffman Estates, Schaumburg or do we want to be Wilmette, Winnetka, Highland Park, Kenilworth or better? She is against the proposed three drive-thru restaurants. She added that the Kensington School would be welcomed in this area. Commissioner Igleski questioned why Ms. Utiley called the police; she replied that teenagers go behind the Taco Bell because it is a dark place to hang out. She added that it is a sad concept that Glenview is even considering these types of retail development along Waukegan Road. Chairman Bucklin closed the public portion of the meeting. Chairman Bucklin noted that screening from residents is necessary in addition to trash collection, lighting and storm water detention. The petitioner, Mr. Stern stated that the parcel has been vacant for over six years. He owns several other shopping centers and noted that the large box retailers are squeezing out the mom & pop establishments. Although he has tried, the only interest in this property is the fast food businesses. He thanked the neighbors for their comments and added that he would address all of their concerns. Commissioner Igleski asked if Mr. Stern could name the businesses that could potentially fill these parcels. Mr. Stern noted that he is in discussion with Wendy s and Culvers. Culvers sales have a 60% customer sit down sales rate, which is very different from other fast food establishments. 19
EXCERPT FROM MINUTES OF THE MAY 24, 2016 PLAN COMMISSION MEETING P2016 019 1727 Waukegan Road Culver s/chipotle Retail Center (Public Hearing) Chairman Bucklin began the meeting by stating that requesting guidance - the property owner appeared before the Plan Commission in June 2015. At that meeting, the Commission discussed the impact on surrounding properties as well as several other site issues. The Chairman added that the best available information has been gathered and tonight s meeting will examine data as well as hear from the petitioner. Tonight s meeting would review circulation, building structures and scale, site illumination, parking lots, landscaping and signage. Chairman Bucklin stated that in 2015, the owner presented a preliminary plan to the Plan Commission in order to gather feedback and direction from the Commission and the public. The preliminary plan included the existing Taco Bell drive-through, a new drive-thru restaurant, and a new drive-through coffee use. At that meeting, a number of concerns were raised regarding he intensity of the proposal, impact on surrounding properties, and overall impact on traffic in the area. The Plan Commission shared many of the concerns relayed during the public hearing, as well as other site plan and circulation issues. The Commission provided feedback that called for the reduction in the number of drive-through uses and a very careful study of the traffic impacts. Mr. Jeff Brady stated that this site includes the former Matty s establishment, which has been vacant since a 2009 fire. The property currently has a Taco Bell and Napa on site. Mr. Brady briefly addressed an outline describing how tonight s meeting would be managed. The Village has received numerous emails in relation to this case and those documents have been included in the Commissioners packets. Chairman Bucklin confirmed that the Commissioners had received these documents. Mr. Jeff Brady stated that this is a request for a Conditional Use Final Site Plan Review at the former Matty s site at the southeast corner of Chestnut and Waukegan, which also includes the property that has Taco Bell on site. He noted that the Conditional Use proposal was inadvertently omitted from the online materials. He went on to describe the previous conditions, which also included old photos: Home of Matty s Wayside Inn (est. 1931) which burned down in 2009 The site has been vacant for seven years Restaurant featured @ 200 seats at full capacity and 102 parking stalls Weekend hours were permitted until 1a.m. There has been very little interest in this site; Mr. Brady reviewed what the Plan Commission would review tonight, make recommendations on and ultimately, at a future meeting, make recommendations to the Village Board of Trustees. Mr. Brady reviewed the Site Zoning and Entitlements: Currently zoned B2 General Business District Permitted uses restaurants, retail, and service uses Proposed Chipotle restaurant and identified retail use Drive-thrus permitted in B2 through conditional use process Conditional Uses allow case-by-case review of specific uses 20
Plan Commission can apply conditions to mitigate projects impacts Proposed - Culver s drive thru-restaurant Final Site Plan Review Review of traffic and circulation; building location; parking landscaping, lighting; signage Proposed - site plan is compliant B2 zoning requirements; no variances requested Preliminary Subdivision Site plan reflects ownership division of property Outlines probable location of required easements (detention, ingress/egress, etc.) In 2010, the Village began a process to evaluate the Waukegan Road Corridor because the State was beginning a resurfacing project and the Village wanted to evaluate the project and make recommendations. Mr. Brady showed a graphics from 2010 on the 1) Chestnut Avenue issues and 2) Taco Bell/Matty s Wayside Inn. The goals of the Waukegan Road Corridor Plan were: Reduce curb cuts Improve Chestnut Avenue intersection Increase landscaping Encourage cross-access between properties While sharing Concept Plan 1 and Concept Plan 2, Mr. Brady briefly reviewed the June 2015 preliminary public meeting with the Plan Commission: Property owner requested Plan Commission guidance on two different concept plans Two new drive-thrus (restaurant/coffee) 1 existing drive-thru (Taco Bell) Plan Commission discussed impacts to new stoplight and Waukegan access Residents concerned with traffic, garbage, noise, lighting, and buffering Plan Commissioners relayed that 3 drive-thru uses were too intense for site Applicant took comments into consideration and submitted reviewed plans Mr. Brady presented the Case Summary: 2013-14 Chestnut/Avenue/Waukegan Road Intersection Improvements: Village installed intersection improvements at Chestnut/Waukegan Previous level of service at intersection was a grade D (non-satisfactory) and falling After improvements, improved to a grade C (satisfactory) Traffic and circulation: Applicant s Traffic Consultant and Village s Traffic Consultant reviewed site o Existing roadways had capacity for additional traffic creased by new uses o Traffic study assumed all new trips (e.g., no existing Waukegan Road trips were counted) o o According to both Traffic Consultants, acceptable level of service during peak hours Modify light timing to allow additional eastbound time due to increased southbound lefts Reduction of 3 Waukegan curb cuts replaced by 2 right-in/right-out access points Connector road to Chestnut/Waukegan traffic signal Northbound cross connection with property to the south (Napa Auto Parts) 21
Mr. Brady showed two photos (2012 & 2015), and contrasted/explained the grade D non-satisfactory level of service in 2012 to the 2015 grade C satisfactory level of service. He continued the Case Summary: Buffering Tree requirements compliant (perimeter & interior) Additional landscaping requested along property line Setbacks to proposed parking areas are similar to existing conditions Buildings are located along Waukegan Road Applicant should confirm plan for fencing; investigate sound attenuation material Lighting Compliant light levels (footcandles at property line, average lighting levels, etc.) Pole and fixtures are 14 ft. tall; request to move two lights further away from residential Operations Applicant should confirm menu board speaker faces towards Waukegan (to help with residential noise reduction) Garbage enclosures should be near buildings and away from residential Applicant should confirm deliveries and waste pickup are occurring at reasonable hours A multi-tenant sign at the intersection should be included to direct visitors to the stoplight Mr. Brady proceeded to a new graphic that showed a much more detailed Site Plan with existing buildings. Utilizing the detailed Site Plan, he explained the: Proposed Culver s w/drive through Proposed Chipotle/retail space Drive thru entrance Stormwater detention areas (above ground) Proposed trash enclosure (Chipotle) Connection to Chestnut and Waukegan Signal Right-in/right-out access to Waukegan Road (replacing full access points) Cross connection to Napa site A new graphic should Village Staff Report Comments to include: Do not block striping and Signage Addition of a tree No left turn sign and Stop Bar New curb configuration Relocate Chipotle Trash Enclosure Add stop bars Add landscaped island Light poles should not be installed along east side A graphic showing the proposed Landscape Plan was shown; Mr. Brady noted that the applicant needs to investigate opportunities for larger sizes and quantities of plant materials to improve screening in identified areas. The Appearance Commission will definitely get into more details at the May 25 th meeting tomorrow. Renderings were shown with views looking southeast and northeast. The 22
Conditional Use criteria used by the Plan Commission was shown as well as included in tonight s packet and online; the applicant needs to show how the Conditional Use standards have been met. Commissioner Bucklin noted that a lot of information has been reviewed on a very detailed proposal. This site has been vacant for seven years and the applicant has worked closely with Village Staff and all of the information gathered and shared tonight will be considered as the proposal is continued to the June 14 th Plan Commission meeting. Circulation Mr. Dean Thomas, the owner/operator of Culver s stated that he has been working with Village Staff and remains very sensitive to the community. He feels he is very open and transparent with the community and will continue to remain approachable to his residential neighbors. Commissioner Fallon inquired about if the level of services, after the new development, would remain at a grade C level. Mr. Brady replied yes. Referencing to the traffic study, Commissioner Dickson asked if the proposal would impact Waukegan Avenue s northbound traffic only; Mr. Brady replied yes, all exiting traffic would only be allowed to head northbound. All incoming traffic would be from a southbound direction (left in at the stop light at the Waukegan/Chestnut intersection). Incoming traffic would enter northbound at the site s south, middle or the aforementioned stop light. Commissioner Dickson asked for confirmation that northbound traffic (at the stop light area at the Waukegan/Chestnut intersection) was currently rated at grade levels B, A, and A and in the projected added traffic volume due to this new site the grade levels would remain at B, A, and A. Mr. Brady replied yes. Referencing the Waukegan/Chestnut intersection, Glenwood Avenue, and the site s access points, the applicant s Traffic Consultant, Mr. Michael Werthmann stated that traffic was counted in the morning, mid-day and during peak periods. Mid-day are peak times for both Culver s and Chipotle traffic. In relation to trip generation, the volume of new traffic will be reduced. Restaurants can generate a lot of traffic, however, both Culver s and Chipotle do not have morning hours therefore there would be no impact on peak morning traffic. Culver s and Chipotle peak traffic times are mid-day and evening. Mr. Werthmann noted the site access drives along Waukegan; three would be eliminated and replaced with two right-in/right-out drives. The benefits of this type of site access will improve traffic flow and safety as well as create cross access along a long stretch along Waukegan Road. Cross access is a tenant of good traffic planning. Changing the signal timing at the Waukegan/Chestnut intersection could also be addressed to provide better traffic flow. Commissioner Fallon noted that Waukegan Road traffic is bad, especially on the weekends, and with this proposed new development, Saturday traffic would increase during the lunch time hours. Mr. Werthmann noted that Saturday traffic was not examined and that weekend traffic is not impacted by the traffic that is generated by the trains. During the week, there are currently four hundred left turns in the morning northbound and westbound. Level of service criteria allows for certain delays that are acceptable within an intersection. Utilizing these criterions, this intersection s delays are within accepted standards. The Waukegan Corridor Plan improvements significantly impacted this area and now allow for additional traffic volumes. Commissioner Igleski noted the site s close access points to the nearby residential area (although the restaurants will be closer to Waukegan Road than the rear of the property), connection with the Waukegan/Chestnut traffic signal, and new frontage traffic. He asked about the percentage of traffic 23