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HomeMy WebLinkAboutCity Council Minutes 12-14-1999 SpecialAdopted Minutes Joint City Council/Planning Commission Meeting December 14, 1999 A Special Joint Meeting of the City Council and the Planning Commission was called to order by Mayor Tierney at 7:00 p.m. in the Public Safety Training Room of the City Center, 3400 Plymouth Boulevard on December 14, 1999. COUNCIL PRESENT: Mayor Tierney, Councilmembers Harstad, Black, Brown, and Slavik. ABSENT: Councilmembers Johnson and Bildsoe. PLANNING COMMISSION PRESENT: Planning Commission Chair Stulberg, Commissioners Reinhardt, Bobra, and Stein. ABSENT: Commissioners Stoebner, Berkowitz, and Ribbe. STAFF PRESENT: City Manager Johnson, Public Works Director Moore, Community Development Director Hurlburt, Planning Supervisor Senness, Parks and Recreation Director Blank, Housing Supervisor Goldsmith, and City Clerk Paulson. Land Use Plan Issues Community Development Director Hurlburt stated this evening the Council and Planning Commission would be discussing residential densities and how they're calculated, density bonuses, housing types allowed in each plan, concept of mixing uses, and transitions between different land uses. Minimum Residential Densities. Planning Supervisor Senness began the discussion of minimum densities. She explained many communities are establishing minimum residential densities in the Comprehensive Plans as a strategy for achieving housing goals. However, if the Land Use Guide Plan classifications are expressed as a range (as is the case with the City's plan), requiring minimum residential densities is nothing more than following state law. She stressed that the State law requires cities to adopt official controls (zoning, subdivision ordinances, etc.) consistent with their Comprehensive Plans. She stated if the City would be requested to change a residential guiding to reduce density below a required minimum, the City would have a high level of discretion in its subsequent action. The City could choose to utilize this discretion to negotiate with an applicant to provide a certain percentage of affordable housing, additional space, or environmental enhancement in return for a reguiding to a lower density classification. Community Development Director Hurlburt stated staff would continue to utilize the ranges that are currently established unless a change is requested. Adopted Joint City Council/Planning Commission Minutes December 14, 1999 Page 2 of 9 Commissioner Reinhardt asked if in the past developers were able to modify the density levels without changing the Land Use Guide Plan. Planning Supervisor Senness replied yes, in some instances. There were developments approved prior to the change in the law. Planning Commission Chair Stulberg referred to the workhouse property located near Parkers Lake. He stated with that development, the City required that certain units had to produce a certain amount of density. In this case, it was managed correctly and the planned density levels were achieved. He stated perhaps this type of planning needs to be revisited. Community Development Director Hurlburt stated this case was an example of mixed development. This type of large development can certainly be accomplished and encouraged. She stated during preliminary approval of the planned unit development, the modified densities could be approved. Planning Supervisor Senness added offering opportunities for flexibility can be an advantage for the City. Councilmember Black stated she would prefer to follow State law for the density levels. She asked if there are other types of issues with cities in satisfying the density levels. Community Development Director Hurlburt stated yes. She stated the builders, as an industry, are trying to encourage cities to decrease their densities. However, in Plymouth, there is more of a challenge encouraging the developers to increase the densities. Councilmember Brown asked what is the repercussion if the City does not follow State law. Community Development Director Hurlburt stated it provides the opportunity for legal challenge. The Councilmembers and Commissioners were recommending the ranges as proposed and to follow State law. Density Bonuses. Planning Supervisor Senness explained density bonus is a tool that many communities utilize to encourage affordable housing and other related housing goals. She stated for example, in Maple Grove, they utilize a density bonus for the low and medium density classifications. In their low density classification which allows zero to four units per acre, the plan states that density can increase up to 5.5 units per acre with clearly defined and objective bonuses for affordability. This tool has been applied in Maple Grove, but it has not been a major factor in the production of affordable housing. Adopted Joint City Council/Planning Commission Minutes December 14,1999 Page 3 of 9 If this approach was used in Plymouth, the Land Use Plan would state, for example, that a developer could build up to four units per acre in LA -1 (where three is currently stated maximum) in return for building a required percentage of units as affordable. In addition to the plan text, the Land Use Plan map would need to reflect the potential for density bonuses. She stated the advantage to this tool is that it allows a developer to lower land and building costs, thereby providing an incentive to construct affordable housing. The advantage for the City is it provides another tool to assist in meeting stated housing goals. Mayor Tierney asked if developers have asked about this incentive. Community Development Director Hurlburt replied she is unsure if the general public is aware of this. She explained this is just one tool for providing tools for affordable housing Community Development Director Hurlburt gave a scenario on how the bonus point system would work for a development in a LA -2 area. Councilmember Brown asked why this policy didn't work previously. Planning Commission Chair Stulberg explained it was very complicated. Mayor Tierney questioned if it would be better for the City to not include the bonus point system and address the increasing of densities on a case-by-case basis. Councilmember Slavik asked what staff is recommending for increasing the density levels in the respective ranges if the bonus point system was used. Community Development Director Hurlburt stated staff is unsure at this time; however, it would be fairly modest (i.e. up to 1.5 units per acre) and still be in character for the respective zoning area. Planning Commission Chair Stulberg asked if bonus points were granted, would the Comprehensive Plan need to be changed. Community Development Director Hurlburt stated no, not if it is written in the Comprehensive Plan and the titles are changed on the map. Mayor Tierney asked how bonus points would apply to the LA -3 and LA -4 areas. Community Development Director Hurlburt responded bonus points wouldn't need to be applied to those areas. Councilmember Harstad commented higher densities do not always create affordable housing. Adopted Joint City Council/Planning Commission Minutes December 14,1999 Page 4 of 9 Community Development Director Hurlburt requested direction from the Councilmembers and Commissioners if the bonus points should be included in the Land Use Guide plan. Councilmembers Harstad and Slavik stated they are somewhat apprehensive while Mayor Tierney stated it would be acceptable to her. Planning Commission Chair Stulberg stated he would prefer that a public hearing be conducted if the density levels are proposed to be increased. He acknowledged the City needs to encourage affordable housing, but he's not convinced that bonus points are a solution. Community Development Director Hurlburt stressed once the bonus points are written into the Comprehensive Plan, it becomes more of a right than what Planning Commission Chair Stulberg is suggesting which is to change the Land Use Guide Plan and review it on a case-by-case basis. After much discussion, it was recommended to apply the bonus points only for the LA -1 and LA -2 areas. Housing Supervisor Goldsmith added density bonuses could also be offered for design and amenities. Housing Types. Planning Supervisor Senness discussed staff's report that illustrated which housing types are currently allowed in each of the residential guide classifications. She stated currently the City allows the greatest flexibility in unit types in the LA -3 classification and is the most restrictive in the LA -1 classification. She explained by updating the Comprehensive Plan, the City has an opportunity to consider allowing additional flexibility in housing types at lower densities. By allowing additional flexibility, it could offer the following advantages: 1. Assists the City in meeting affordable housing goals. 2. Provides housing for specific groups, such as the elderly. 3. Preserves open space or a stand of trees. Councilmember Black asked about the concept of cluster housing. Community Development Director Hurlburt stated that has been discussed about adding flexibility in the lower density classifications. Adopted Joint City Council/Planning Commission Minutes December 14, 1999 Page 5 of 9 Community Development Director Hurlburt stated staff is recommending the City considers allowing apartments with more than 12 units in LA -3 classifications, as this is a relatively high-density classification where larger structures could be appropriate. Councilmember Slavik asked what LA -3 areas are located in Northwest Plymouth. Community Development Director Hurlburt explained where the four areas were located. Councilmember Brown suggested including townhomes in LA -1 areas and apartments in LA -2 areas. Councilmember Harstad stated he is in favor of cluster housing which has a smaller footprint, and it allows more open/green space. He stated he would support apartments up to 12 units in LA -2 areas. Planning Commission Chair Stulberg stated it would be very confusing to expand what types of developments are allowed in the classifications and implementing bonus points. The City could be in the position of constantly rewriting the Comprehensive Plan. Community Development Director Hurlburt stated perhaps the flexibility could be allowed for in the planned unit developments and is reviewed on a case-by-case basis. Councilmember Black stated she would also support allowing apartments with more than 12 units in LA -3 areas. Community Development Director Hurlburt stated staff would draft this section of the Comprehensive Plan based on the comments received. Mixed Use. Planning Supervisor Senness stated the Land Use Plan would propose two approaches for allowing mixed use development. Mixed use development includes the mixing of higher intensity land uses in one building (vertical mixing), or physically integrating different uses on the same lot or within close proximity (horizontal mixing). She stated this could be accomplished through the planned unit development. After a brief discussion, the Councilmembers and Commissioners stated staff could include the language to allow for mixed use development. Transitions. Planning Supervisor Senness stated the Land Use Plan would recommend strategies and techniques for transitions between different land uses at both the land use planning and site development level. Land use planning techniques for transitions would be reflected in the Land Use Guide Plan map and may be used as development location criteria when considering amendments to the Land Use Guide Plan. The techniques in Adopted Joint City Council/Planning Commission Minutes December 14,1999 Page 6 of 9 the plan would include natural features to separate different land uses (i.e. water bodies, utilizing man made features to separate different land uses (i.e. major highways or parks), placing uses next to different uses of similar intensity (i.e. placing high density residential next to office), graduating land use intensity (i.e. placing low density next to medium density next to high density), and establishing land use patterns that avoid mixing traffic from high intensity uses with low intensity uses on local streets. In addition, she stated the plan would also recommend techniques for establishing transitions on a site planning level. These types of transitions are berms, fences, vegetative screening and landscaped buffer yards. Councilmember Black requested that trees be added as one of the techniques in the plan. Parks Element of the Comprehensive Plan Parks and Recreation Director Blank presented highlights of the proposed Chapter 8 of the Comprehensive Plan which addresses parks, trails, open space, and recreation plan. Listed below are some of the sections that were discussed: 1. Sports would continue to a big factor in the next 20 years. Organizations are expecting more high quality facilities. 2. Possibly classifying the Baer Farm as a potential living farm site. 3. As the City's population increases, try to ensure that golfing activities are available. 4. City's Trail Plan: Consider trails on both sides of major roads, or trails on one side with sidewalks on the other side of the road. 5. Open Spaces: Management plans would be developed for nine sites. The management plan to be developed in 2000 would address the sites purchased through the bond referendum. 6. Recreation Program: Exploring programs for the senior population. 7. City maintaining park facilities that were constructed in the early 1980s. Councilmember Harstad asked when the City receives park dedication funds, can they be used to purchase open spaces as well as park property. Community Development Director Hurlburt stated park dedication funds couldn't be used for the acquisition of natural areas for preservation; they can only be used for acquisition of park lands. Councilmember Harstad stated the City redefined land purchased with park dedication funds and reclassified the property as open spaces under this proposed plan. He stated on the map, he would prefer that the City state those properties are undeveloped park land rather than open space land. He doesn't believe that it was firmly intended that these areas were to remain as open spaces. In addition, he feels a management plan for these Adopted Joint City Council/Planning Commission Minutes December 14, 1999 Page 7 of 9 properties is unnecessary, as the properties have no features similar to the open spaces which the Council has formally preserved and treated separately. Councilmember Black stated she would oppose that change as this would affect the Ferndale North property which the Council has stated this property is to be maintained as open space. Councilmember Harstad stated the Ferndale North property has been altered and is not natural. In his opinion, it doesn't warrant or justify a long-term management plan. City Manager Johnson agreed with Councilmember Harstad that these properties are intended to remain undeveloped but why classify them as open space. Public Works Director Moore stated the management plan for these properties would clearly state what would and would not be allowed. Community Development Director Hurlburt stated if these properties aren't classified as open spaces, she cautions labeling them neighborhood parks. Mayor Tierney stated the Council decreed the Ferndale North property as open space. Therefore, she feels it is very important that there is a distinction for these properties. Park and Recreation Director Blank stated the seven parcels are similar to the Ferndale North situation. The residents view these areas as open spaces and maintained as such. Community Development Director Hurlburt stated the City Attorney requested staff to be very clear in how the park dedication fees are calculated so that it does not provide the opportunity to be challenged. Councilmember Black stated the open spaces are not listed in any of the Citywide or neighborhood facilities. Adam Arvidson, a consultant with SRF Consulting, stated these open spaces are not considered a park, but they are indicated on the map. Councilmember Black stated she would prefer that the designation of these nine areas be integrated more into the whole context of the park plan. Park and Recreation Director Blank reiterated the management plans of the open space properties would state how the properties could be used. Adopted Joint City Council/Planning Commission Minutes December 14,1999 Page 8 of 9 Councilmember Black requested that the second paragraph on page 8-33 of the plan be deleted. She explained this paragraph states that "if designed properly, golf courses can help to preserve or restore native habitats such as forests, streams, wetlands, and grasslands because golf requires large tracts of undeveloped land." She stated in her opinion, a golf course is a recreational area that provides limited habitat on a maintained and groomed area. The areas are maintained for golf use only. The majority of the Councilmembers and Commissioners disagreed and stated this paragraph should not be removed. Community Development Director Hurlburt stated she understands Councilmember Black's concern, and staff would try to "soften" the language of this paragraph. A brief discussion was held regarding the roadway crossings and intersections. Park and Recreation Director Blank stated there would be further discussion on how to provide safety at the crossings, safety striping, etc. Public Works Director Moore added the topography is an important factor with the underpasses and overpasses. Scheduling of Meeting Dates for Completion of Comprehensive Plan Update Community Development Director Hurlburt requested the Councilmembers and Commissioners cancel the January 25, 2000 Joint Meeting that was previously scheduled, but schedule an all day Joint Meeting to be held on February 12, 2000 from 9:00 a.m.- 4:00 p.m. at a site to be determined. If necessary, another Joint Meeting could be conducted on February 29, 2000 at 7:00 p.m. She stated following these meetings, staff is recommending open houses for the public be conducted on March 15, 2000 and March 16, 2000 from 5:00 p.m. to 8:00 p.m. each evening. She explained after the public open houses, the Planning Commission could conduct a formal public hearing on the draft of the Comprehensive Plan on March 29, 2000 at 7:00 p.m. The Council then, at their Regular Meeting on April 18, 2000, could approve the plan for submission to the Metropolitan Council. In June or July 2000, after completion of the Metropolitan Council review, the Planning Commission would conduct a public hearing to consider any plan changes prior to formal adoption of the plan by the City Council. She also stated staff could send the plan to the surrounding cities for the required 6 -day review on or about March 1, 2000. Adopted Joint City Council/Planning Commission Minutes December 14, 1999 Page 9 of 9 Planning Commission Chair Stulberi stated rather than conducting to evening open houses on March 15'h and March 16 , he suggested deleting the March 16th open house and conducting an open house on a Saturday instead. After a brief discussion, there was a consensus to conduct a Saturday open house on March 18, 1999 from 9:00 a.m.-1:00 p.m. Staff will workout the details and provide a confirmation to the Council and Commissioners at a later date. Motion was made by Councilmember Black, and seconded by Councilmember Brown, to cancel the January 25, 2000 Joint Meeting, but schedule an all day Joint Meeting on February 12, 2000 from 9:00 a.m. to 4:00 p.m. at a site to be determined. With all Councilmembers voting in favor, the motion carried. Motion was made by Planning Commission Chair Stulberg, and seconded by Commissioner Reinhardt, to cancel the January 25, 2000 Joint Meeting, schedule an all day Joint Meeting on February 12, 2000 from 9:00 a.m. to 4:00 p.m. at a site to be determined, and schedule a Planning Commission Special Meeting on March 29, 2000 at 7:00 p.m. for the purpose of conducting a formal public hearing on the draft of the Comprehensive Plan. With all members voting in favor, the motion carried. Mayor Tierney adjourned the meeting at 9:35 p.m. 6./ andra R. Paulson, City Clerk