Discussion:
Site Information:
Property Owner: Scott County Community Development Agency
Lot Area: 2.06 Acres
Current Zoning: Traditional Neighborhood District (R-1C)
Proposed Zoning: Planned Unit Development (PUD)
Current 2040 Comprehensive Plan Classification: Institution
Proposed 2040 Comprehensive Plan Classification: Downtown Transition
Project Details:
UrbanWorks Architecture in partnership with Ivy Properties, applicants, and Scott County Community Development Agency (CDA), property owner, have proposed a Comprehensive Plan Amendment to reguide the property located between 5th Avenue E and 6th Avenue E and Holmes Street S and Lewis Street S from Institution to Downtown Transition in the 2040 Comprehensive Plan, a Preliminary and Final Plat of CDA SHAKOPEE ADDITION, and a Planned Unit Development (PUD) District #13 (Scott County CDA Office and Senior Housing).
The applicant is proposing a three-story, 60 unit senior housing building with an attached, approximate 17,000 sq. ft. one-story office building on the 2.06-acre property known as the Central Family School site. The east and south portions of the building will be residential and the northerly section will be the new office for the Scott County CDA.
Comprehensive Plan Amendment
The applicants are proposing to amend Figure 4.12 - Planned Land Use in the 2040 Comprehensive Plan to reflect the removal of the Institution land use and reguide the 2.06 acre property to Downtown Transition. As stated previously, the Institution land use ceased in 2020 when the school district vacated the building followed by the demolishing of the building and clearing the site for redevelopment in 2023. The proposed redevelopment of the site for a 3-story affordable senior housing complex and 1-story office use (Scott County CDA) meets the requirements of the Downtown Transition classification requirements and is a reasonable transition from the large Institution classification to the northwest (Scott County Government Center) and Mixed Residential to the east. The close proximity to the Scott County Government Center and location along Minnesota Valley Transit Authority bus routes compliments these proposed uses.
The following are the criteria evaluated in the granting of a Comprehensive Plan Amendment. The City Council may grant a Comprehensive Plan Amendment with a super majority when it finds that one or more of the following criteria are met:
1) The comprehensive plan was in error.
The comprehensive plan is not in error as the property was used for Institutional purposes up until 2020. It was understood by the city and property owner that a comprehensive plan amendment would be necessary as part of any redevelopment activity with a primary use that was not school, government, or recreation related.
2) Significant changes in community goals and policies have taken place.
Significant changes in community goals and policies have taken place. Senior housing is needed and the school has closed and been demolished.
3) Significant changes in development patterns have occurred.
Significant changes in development patterns of this area occurred when the school district vacated the building in 2020, demolished the building, and sold the property in 2023.
4) The Comprehensive Plan does not require a different provision.
The comprehensive plan does not require a different provision.
Staff finds that the amendment meets 2 of the 4 criteria necessary to be approved by the City Council.
The applicants conducted a neighborhood meeting on April 24, 2024 with 19 people in attendance (not including project representatives). Discussion was had regarding parking, construction traffic/hours/timeframe, CDA office hours/staffing, removal of the school playground, and snow removal.
City departments and other outside agencies were given the opportunity to review and provide comments regarding these applications. City Engineering, Shakopee Public Utilities (SPU), and Planning staff have provided memos/comments that have been redlined on the plan sets and incorporated into the draft Ordinance and Resolution as appropriate. Engineering is requiring drainage and utility easements be provided around the perimeter of the property as well as over the proposed underground infiltration tank beneath a portion of the at-grade parking. In addition to the redline comments on the civil plan set which will need to be addressed prior to the issuance of a building or sewer/water permit, SPU is requiring the owner to enter into the appropriate agreements for water and electric service, pay the Water Capacity Charge Fee, and establish a service account with SPU.
Preliminary & Final Plat
The entire city block is proposed to be platted as CDA Shakopee Addition, which combines the existing ten city lots and the previously vacated alley into one parcel with the required drainage and utility easements.
The primary residential entry will be on the south side facing 6th Avenue E with the primary office entrance facing northwesterly towards 5th Avenue E/Holmes Street S. Vehicular access to the residential underground parking and on-site, at-grade parking stalls will be from Holmes Street S. A total of 36 on-street parking stalls will be available as part of this project (19 new angled parking stalls along 5th Avenue E in addition to three new stalls and 14 existing stalls along 6th Avenue E) to accommodate office clients and guests at the property. Overnight parking on the street will not be allowed. The proposed landscaping is consistent with city code requirements. A total of 75 trees are required for this project, which the applicant is proposing to exceed. The trees are proposed to be installed around the perimeter of the building, in the interior courtyard area as well as to supplement the existing boulevard trees on this block. Park dedication fees have not been collected on this site previously and will be required prior to recording the Final Plat.
Planned Unit Development
As part of the PUD, the applicants are requesting a mix of multi-family senior residential (requires a CUP in R-1C) and office uses (not allowed in R-1C) as well as deviations from the following:
- Building height: Residential component requesting approximately 40 feet which exceeds the 35-foot maximum height in the R-1C zoning district; and
- Window Coverage: Office component exceeds the minimum window requirements at the main entrance (25% required, 27% proposed) and facades facing right of ways (5% required, 13% and 16% proposed). The Residential building window percentages are less than the required 30% for the R-1C district (proposed 29%, 22%, 20% and 11%/24%); however, the window size has been maximized while keeping in consideration the location of elevators, stairwells and other features that are less conducive to large window installations.
- On-site parking: The minimum on site parking required for the project is 99 stalls (60 residential and 39 office). The applicants are incorporating 98 stalls on-site (66 underground and 32 on-site at-grade) in addition to providing the additional on-street stalls as described above.
- Setbacks: The minimum front yard setback in R-1C is 30 feet when there are fewer than three other principle buildings on the block. The proposed office building will be 17 feet from the property line along 5th Avenue E, which is a larger setback than the previous school structure and a minimum of 15 feet from the property line abutting Holmes Street S. The proposed residential building will be a minimum of 16 feet from the property line along 6th Avenue E and 17 feet from the property line abutting Lewis Street S. The average front yard setback for the residences on 5th Avenue E and 6th Avenue E adjacent to the subject property is 15 feet.
A stipulation of a PUD with dwellings requires the applicant to provide a minimum of 15 percent open space as landscaped areas available for the common use of and accessible by all residents or occupants of the buildings within the PUD. This open space requirement is met with the proposed open space areas including the courtyard area with seating adjacent to the building to the south of the on-site, at-grade parking as well as two outdoor patios areas in the northeast corner and along the south side of the residential building.
The purpose and intent of a PUD is to include most or all of the following (applicants response follows the statement):
1) Provide for the establishment of a PUD zoning district in appropriate settings and situations to create or maintain a development pattern that is consistent with the city's comprehensive plan.
The current guidance for the property is Institution which allows for school, government and recreation facilities as primary uses and open space and parking as secondary uses. The institution use ceased in 2020 when the school district vacated operations in the building. In 2023 the building was demolished and the site was cleared for redevelopment. The proposed PUD will incorporate a mix of affordable, senior residential housing and office uses which will be consistent with the comprehensive plan once the property is reguided to Downtown Transition.
2) Promote a more creative and efficient approach to land use within the city, while at the same time protecting and promoting the health, safety, comfort, aesthetics, economic viability and general welfare of the city.
The proposed development of one building with two, separate uses allows for an aesthetic design that complements the surrounding residential uses while focusing the one-story office use in the direction of the existing government center buildings to the northwest.
3) Provide for variations to the strict application of the land use regulations in order to improve site design and operation, while at the same time incorporate design elements that exceed the city's standards to offset the effect of any variations.
The design standard deviations associated with this request include residential building height, residential window percentages, and one, on-site parking stall in exchange for offering a variety of high quality building materials (brick, glass, fiber cement shingle and lap siding, and accent materials), landscaping which exceeds minimum requirements, and an underground infiltration tank to accommodate stormwater needs which were not addressed previously.
4) Ensure high quality of design and design compatible with surrounding land uses, including both existing and planned.
The proposed building scale and materials are compatible with the surrounding land uses (Scott County Government Center, one- and two story single-family residences, church, and three-story multi-family senior housing building).
5) Maintain or improve the efficiency of public streets and utilities.
No new public streets or utilities are required for this project; however, the number of curb cuts on Lewis Street S will be reduced from two to one.
6) Preserve and enhance site characteristics, including natural features, wetland protection, trees, open space, scenic views and screening.
The existing, healthy boulevard trees will remain along Holmes Street S and Lewis Street S and will be complimented by additional landscaping on the site which exceeds the minimum requirements.
7) Allow for mixing of land uses within a development.
The proposed project incorporates both multi-family residential and office uses in one building.
8) Encourage a variety of housing types, including affordable housing.
The proposed multi-family residential building offers affordable independent living to residents 55+ years and includes a variety of unit styles ranging from studio, 1 bedroom, 1 bedroom plus, 2 bedroom, and 2 bedroom plus den.
9) Ensure the establishment of appropriate transitions between differing land uses.
The proposed one-story office use with on-site, at-grade parking behind the office portion of the building was designed to fit in with the scale of the existing single-family homes across the street.
To be eligible for a PUD district, all development should be in compliance with the following:
1) Where the site of a proposed PUD is designated for more than one land use in the comprehensive plan, the city may require that the PUD include all the land uses so designated or such combination of the designated uses as the City Council shall deem appropriate to achieve the purposes of this chapter and the comprehensive plan; and
2) Any PUD which involves a single land use type or housing type may be permitted, if it is otherwise consistent with the objectives of this chapter and the comprehensive plan and the design substantially exceeds any current standards; and
3) Permitted densities may be specifically stated in the appropriate planned unit development designation and shall be in general conformance with the comprehensive plan; and
4) The setback regulations, parking ratios, building height, lot and building coverage ratio of the most closely related conventional zoning district shall be considered presumptively appropriate, but may be departed from to accomplish the purpose and intent described in division (A) of this section.
The applicant has submitted plans that are generally consistent with these four standards, unless deemed not applicable (i.e. #2 above as this is a mixed use development). Proposed densities will align with the 2040 Comprehensive Plan once the property is reguided to Downtown Transition as Institution does not allow for residential or office uses.
The only concern from the Planning Commission meeting was that the city revisit the current traffic controls in the area once the development is completed since it was previously set up to serve the school.