CITY COUNCIL AGENDA ITEM
ACTION REQUESTED:
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Receive the staff report for 109 W. Benton Ave., 133 W. Benton Ave., 129 W. Benton Ave., and 5 N. Main St., Naperville, IL (Benton + Main) - DEV-0109-2025 (Item 1 of 3)
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DEPARTMENT: Transportation, Engineering and Development
SUBMITTED BY: Sara Kopinski, AICP
BOARD/COMMISSION REVIEW:
The Planning and Zoning Commission (PZC) considered the Petitioner’s request on October 15, 2025, and voted to recommend approval (Approved 7-2). Staff concurs.
BACKGROUND:
The subject property is comprised of four parcels totaling approximately 0.82 acres at the northwest corner of Benton Avenue and Main Street. Calvary Temple Church of Naperville (“Church”) has historically owned the subject property; however, the property is no longer essential to the Church’s ministry or aligned with its current operational needs, so the former church building was demolished, and the property is now vacant.
M/I Homes of Chicago is the contract purchaser of the subject property and is proposing to build seven single-family attached units and two duplexes, for a total of 11 units (hereinafter collectively referred to as rowhomes). The project will be developed as a planned unit development (PUD) to be known as Benton + Main.
The subject property is zoned TU (Transitional Use) district and is located within the boundary of Downtown Naperville in accordance with the Naperville Downtown 2030 plan. The Naperville Downtown 2030 plan designates the future land use of the Subject Property as “North Downtown Special Planning Area” and “Multi-Family Residential.”
Staff finds the petitioner’s proposal to be consistent with these designations.
DISCUSSION:
Benton + Main PUD and Preliminary/Final PUD Plat
The subject property is partially located within the North Downtown Special Planning Area Overlay District outlined in Section 6-2-33 of the Naperville Municipal Code. As such, the petitioner’s proposal is subject to the requirement that it be developed as a PUD to ensure that the level of design and creativity, as recommended in the Naperville Downtown 2030 plan, is achieved.
The subject property is currently vacant and is in a transitional area between Downtown Naperville and adjacent single-family homes. The proposed development features rear-loaded rowhomes, a streetscape design, and reduced curb cuts along Benton Avenue; all of which contribute to the TU zoning district’s transitional form and walkable environment. Staff finds the proposed rowhomes to provide a natural transition in scale and intensity between the Downtown core and nearby neighborhoods.
The three-story rowhomes will offer a unique housing product comprised of 100% brick or masonry materials, oversized windows, ornamental detailing, and traditional rooflines with rooftop terraces. The parking provided onsite exceeds code requirements.
Common Open Space
Downtown development projects are exempt from PUD open space requirements; however, they are required to incorporate common area or site amenity features that achieve multiple purposes such as beautification of public ways beyond the minimum standards established by Code and the installation decorative landscaping or public art for the common benefit. Benton + Main meets these amenity requirements by incorporating a planter bed with a seat wall and pavers at the corner of Benton Avenue and Main Street and oversized parkway trees with parkway plantings. The petitioner’s proposal also includes pedestrian connections between all units and the guest parking spaces provided along the rear property line. The proposed Landscaping Plan exceeds code requirements, and an entrance pier at the corner of Benton Avenue and Main Street will include a plaque to honor the Church that owned the subject property for so long.
Findings of Fact
Staff believes that the proposed development and common area or site amenity features satisfy the intent of the City’s PUD standards. The petitioner’s responses to the Standards for Granting or Amending a Planned Unit Development can be found in the attachments. Upon review, the PZC and staff agree with the petitioner’s Findings and recommend their adoption by City Council.
PUD Deviations
Several deviations are requested in conjunction with the PUD request. Combined, these deviations facilitate the unique residential development Benton + Main is envisioned to be:
• Density: The petitioner proposes 11 units (four duplex units and seven townhome units) on a 0.82 acre/34,810 sq. ft. property, resulting in a density of approximately 3,165 sq. ft. of lot area per dwelling unit. Section 6-7I-5:1 of the Code requires 6,000 square feet of lot area per duplex and 4,000 square feet of lot area per townhome, which would permit a maximum of nine units on the subject property. The petitioner is seeking approval of a deviation to reduce the minimum required lot areas and allow for an increased density of 11 units.
The Downtown 2030 Plan recommends a density of 15 units per acre (or 2,904 square feet per unit) for townhome or rowhouse residential development. Staff is supportive of the petitioner’s proposed density deviation of approximately 3,165 sq. ft. of lot area per dwelling unit and finds the plan to be less dense than the Downtown 2030 Plan’s recommendation, while serving as a transition between the more intense development pattern of the Downtown core and surrounding single-family neighborhoods.
• Height: The petitioner seeks approval of a deviation to Section 6-7I-8 (TU/Height Limitations) to increase the permissible building height from 35 feet to 46 feet. The TU zoning district has a maximum building height of 35 ft.; however, Section 6-2-33 (North Downtown Special Planning Area Overlay District) of the Code permits a maximum building height of 57 ft. for parcels with frontage along the west side of Main Street, and the Downtown 2030 Plan recommends a 50-foot height limitation for multi-family residential developments.
Staff is supportive of the requested height deviation and finds the proposed height to be consistent with the recommendations for the North Downtown Special Planning Area, as well as with the Downtown 2030 plan. The proposed building height is complementary to existing buildings in the vicinity of the Subject Property, including:
Additionally, staff finds the design of the buildings to help minimize perceived building bulk and massing by incorporating oversized windows and a recessed upper story to accommodate rooftop terraces overlooking Benton Avenue.
• Setback and Yard deviations: The City’s zoning ordinance establishes setback and yard requirements to ensure there is appropriate separation between adjacent properties and uses. The unique shape of the subject property results in the Benton Avenue frontage being classified as the front property line, the Main Street frontage being classified as the corner side yard property line, and the two northern property lines running parallel to Benton Avenue both being classified as rear yard lot lines as depicted in the image below:
This configuration necessitates the following setback and yard deviations:
i. Rear yard lot coverage: The petitioner seeks approval of a deviation to Section 6-2-10:5 (Percentage Of Required Yard Occupied) to allow more than 25% of required rear yard to be occupied. Staff notes that the subject property is unique as it is not rectangular in shape, therefore the rear yard is not one rectangular area like most properties.
The subject property has two north property lines that both function as rear yard lot lines, effectively creating two rear yards. As a result of this configuration, approximately 48.5% of the combined rear yards will be occupied as depicted in the attached Rear Yard Exhibit attached to this agenda item.
In general, the rear yards are occupied by parking facilities that will be constructed of permeable pavers and do not result in vertical bulk for neighboring properties. The proposed duplex units encroach into a required rear yard; however, staff notes that the unique shape of the subject property causes this area to function practically as a side yard when viewed from Main Street or the neighboring property to the north. Staff considers this deviation a result of the property’s unique lot configuration and technicalities of the City’s zoning ordinance.
To mitigate any visual impacts of the requested rear yard lot coverage deviation, the petitioner has agreed to install a decorative 6-foot fence and landscaping along the north/rear lot lines to visually buffer these areas from adjacent residences.
ii. Rear Yard Setback Deviation: The petitioner seeks approval of a deviation to Section 6-7I-7 (TU/Yard Requirements) to permit a reduced rear yard setback of approximately 11 feet 3 inches in lieu of 25 feet, adjacent to the duplex buildings. As shown on the site plan, the petitioner proposes duplexes on the eastern portion of the site, oriented towards the subject property’s Main Street frontage. As such, the north property line adjacent to these duplex units functions as an interior side yard when viewing the property from Main Street, despite being technically categorized as a rear yard.
The TU zoning district requires a 6 ft. interior side yard setback. The proposed setback is nearly double this requirement and results in more spacing than required between units fronting Main Street. The petitioner proposes installation of a decorative 6-foot fence and landscaping along this property line to visually screen the subject property from adjacent properties. Staff is supportive of the petitioner’s requested rear yard setback deviation.
Changes made following the October 15 PZC meeting:
It should be noted that the petitioner’s original request included a deviation to reduce the required rear yard setback from 25 feet to 12 feet. During the October 15, 2025, PZC public hearing, in response to PZC concerns, the petitioner and PZC discussed reorienting Building 2 so that these duplex units would be oriented towards Benton Avenue instead of internal to the site.
Following the meeting, the petitioner revised the plans in accordance with PZC’s discussion and direction. The reorientation of Building 2 resulted in a rear yard setback of 11 feet 3 inches, as opposed to the original 12-foot setback shown. Accordingly, the resulting rear yard setback is 9” less than shown on the original plans presented at PZC.
Given that Section 6-2-3:5.2 of the Naperville Municipal Code provides buildings or structures with a 6-inch encroachment allowance, staff does not believe that the additional 3-inch encroachment alters the intent or concept of the plans which were reviewed by the Planning and Zoning Commission and does not object to the change. Additionally, in accordance with Section 6-3-3:2.2 of the Naperville Municipal Code, since this change was based upon a recommendation of the PZC, staff does not find this modification to require additional Planning and Zoning Commission review. The City Council may approve the change as part of the ordinances presented to Council.
iii. Front Yard Setback Deviation: The petitioner seeks approval of a deviation to Section 6-7I-7 (TU/Yard Requirements) to reduce the required front yard setback from 15 feet to 10 feet along the subject property’s Benton Avenue frontage. Staff is supportive of the request noting the properties on the south side of Benton Avenue are zoned B4 and have no minimum front yard setback; rather, the B4 zoning district has a maximum setback of 6 feet along the front property line. Additionally, the adjacent property to the west was granted a variance to allow a pergola, wall and patio to be constructed at the property line along the required front yard along Benton in May of 2013, resulting in no front yard setback.
Staff finds the proposed front yard setback of 10 feet to be appropriate given the development’s proximity to the downtown, the enhanced streetscape proposed along the Benton Avenue frontage, and compatibility with surrounding land uses fronting Benton.
• Downtown Streetscape Standards (adopted in 2019): The petitioner is requesting several deviations from the Naperville Downtown Streetscape Standards, including: a reduction in the required sidewalk width; providing grass instead of pavers in both the amenity zone and the carriage walk area; exclusion of street furniture and cultural amenities; and, providing trees outside of the raised planters. Staff does not have concerns with the requested deviations.
Changes made following the October 15 PZC meeting:
Since this case appeared before PZC on October 15, 2025, staff worked with the petitioner to confirm the required streetscape improvements as well as the ownership and maintenance obligations for said improvements. The proposed streetscape improvements have been modified since presented at PZC to now depict one 45-foot-9-inch by 12-foot-2-inch planter bed with a seat wall and brick pavers adjacent to the planter bed at the northwest corner of Benton and Main, one streetlight on the north side of Benton Avenue, and eight parkway trees with landscaping at the base of the trees. The planted parkway trees will be 4-inch caliper trees, which is larger than the minimum required size of 2.5-inches per Naperville Municipal Code Section 5-10-3.2.2. The parkway trees will consist of six red oak trees and two triumph elm trees.
As a result of staff discussions, the proposed streetscape improvements are anticipated be installed by the petitioner. Once construction is complete, all structural components of the streetscape improvements will be deeded over to the City for future maintenance, repair and replacement. The developer will pay a one-time cash payment to cover the future maintenance costs for these improvements. The landscaping of the streetscape improvements will be required to be maintained by the owner and developer and the Benton and Main Homeowner’s Association (HOA) upon formation. These obligations will be included in the Benton and Main HOA declaration which will be recorded against the property.
Findings of Fact
The petitioner’s responses to the Standards for Granting a PUD Deviation can be found in the attachments for each deviation requested. Upon review, the PZC and staff agree with the petitioner’s Findings and recommend their adoption by City Council.
Plat of Subdivision and OAA
The petitioner proposes a preliminary/final plat of subdivision to resubdivide the subject property into three lots and one outlot. Staff finds the proposed preliminary/final plat of subdivision meets the technical requirements for approval and is supportive of the resubdivision.
An Owner’s Acknowledgement & Acceptance Agreement has been referenced within the ordinance approving the preliminary/final plat of subdivision. Within the OAA, specific provisions are included regarding the petitioner’s required school and park donations. The owner and developer will satisfy school and park impact fees by payments of cash in lieu of land, with payments being made prior to the City’s issuance of a building permit for the subject property.
Additional conditions to be included in the OAA include but are not limited to formation of The Benton and Main Townhome Association, a traffic control plan detailing how traffic will be managed during construction, and streetscape obligations.
Planning and Zoning Commission Action
The Planning and Zoning Commission conducted a public hearing to consider DEV-0109-2025 on October 15, 2025. Three members of the public provided comments in opposition to the development as proposed, raising concerns regarding the density, building height and bulk, setbacks, parking, and streetscape considerations. The PZC voiced concerns with the number of entitlements requested and adjacency to single-family homes but ultimately found the proposed development and entitlement requests appropriate for the subject property due to the location of the property in the City’s TU zoning district, the context of the property in the downtown, and the density of existing and proposed development along Benton Avenue.
Following discussion, the PZC closed the public hearing and voted to recommend approval of the petitioner’s requests (Approved 7-2). Commissioners Bansal and Castagnoli cast the dissenting votes.
Conclusions and Key Takeaways
The petitioner requests approval a conditional use to establish the Benton + Main PUD and a preliminary/final PUD plat along with multiple deviations to the Naperville Municipal Code to develop the property with seven townhome units and two duplexes (for a total of 11 units).
• The PZC and staff are supportive of the PUD and finds the proposal to be consistent with the intentions of the TU zoning district and the Downtown 2030 Plan.
• The petitioner proposes deviations to increase the permitted density, building height and percentage of rear yard occupied, and to reduce required setbacks and streetscape amenities. The PZC and staff are supportive of each deviation requested finding that the proposed development provides an appropriate transition between the more intense development pattern of the Downtown core and surrounding lower-density neighborhoods.