CITY COUNCIL AGENDA ITEM
ACTION REQUESTED:
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Receive the staff report for Naperville Elderly Homes located at 310 Martin Avenue, PZC 17-1-019 (Item 1 of 5).
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DEPARTMENT: Transportation, Engineering and Development
SUBMITTED BY: Kasey Evans, AICP
BOARD/COMMISSION REVIEW:
The Planning and Zoning Commission considered this matter on May 3, 2017 and voted to recommend approval of the request (approved 7-0). Staff concurs.
BACKGROUND:
The property is located at the southwest corner of Martin Avenue and Brom Drive, and is zoned OCI (Office Commercial and Institutional District). The property is adjacent to Naperville Park District facilities to the west and north, a cemetery to the north, and medical/hospital uses to the east and south. The property is approximately 3.3 acres and is currently improved with a 3-story brick building containing 121 dwelling units for low income seniors.
DISCUSSION:
The petitioner, Naperville Elderly Homes Inc., requests approval of a subdivision plat to subdivide the property into 2 lots, a conditional use to allow multi-family dwellings in the OCI district, and several variances necessary to permit the construction of 68 new dwelling units at 310 Martin Avenue. The 68 new dwellings units will be located in a new 5-story building located behind (south of) the existing building. The two buildings will be connected with a 1-story glass atrium.
Preliminary Subdivision Plat and Deviations
The petitioner is requesting approval of a preliminary plat of subdivision for Naperville Elderly Homes in order to subdivide the property into 2 lots. The subdivision is necessary for ownership and financing purposes. In addition to the subdivision plat, the petitioner is also requesting deviations to the School and Park Donation requirements due to the age-restricted nature of the project. The petitioner has discussed the requested deviation with School District 203 and anticipates the School District’s support. The School District has supported similar requests for age-restricted developments in the past and the petitioner will provide confirmation from the School District at the June 6, 2017 City Council meeting. The petitioner and the Naperville Park District have agreed that in lieu of the cash donation, the petitioner will construct a direct connection from the subject property to the path system within Knoch Park. Staff finds that the proposed Preliminary Plat of Subdivision for Naperville Elderly Homes meets all other technical requirements for approval.
Building Elevations
The proposed 5-story 68-unit building will be located behind the existing 3-story brick building. The architectural style of the building is designed to complement the style of the existing building, with long horizontal lines and similar window shapes and placement. The petitioner proposes to construct the new building with entirely fiber cement siding. Due to financial constraints on the project, the petitioner does not intend to use any brick/masonry on the new building. Therefore, the petitioner is requesting a variance from Municipal Code Section 5-2C-3 (Exterior Wall Construction) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT5BURE_CH2COFIPRRE_ARTCBU_5-2C-3EXWACO>, which requires that a minimum of 50% of the exterior wall construction for all multiple-family dwellings shall be constructed of solid masonry, face brick, manufactured concrete stone veneer set individually into mortar bed, or other masonry products as approved by the City Council. While the new building does not meet the minimum Code requirement and staff would prefer the building include at least some masonry materials, staff understands the unique constraints on the project and does not object to the proposed building materials. This variance request is subject to review by the Building Review Board (BRB) and was considered at the May 17, 2017 BRB meeting. One BRB commissioner preferred that the building include some masonry materials, or at least the appearance of masonry. Following additional discussion, the Building Review Board moved to recommend approval of the variance to Section 5-2C-3 to waive the 50% masonry requirement (approved 5-1). Staff concurs with the Building Review Board’s recommendation. BRB Commissioner Meyer-Smith voted against the proposed variance.
Conditional Use for Multi-family Dwellings
Per Municipal Code Section 6-7F-3 (OCI: Conditional Uses) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH7BUDI_ARTFOCOFCOINDI_6-7F-3COUS>, multi-family dwellings are permitted in the OCI district with approval of a conditional use. Pursuant to Ordinance #80-5, the property currently has a conditional use for a nursing facility. While staff believes this conditional use was intended to permit the existing 121 senior apartments on the property, not an actual nursing facility, the current request for 68 additional apartments provides an opportunity to clarify and properly entitle the property with a conditional use for the existing and proposed multi-family dwellings in OCI district.
The location of the subject property is well situated to meet the needs of the residents of Naperville Elderly Homes as it is near downtown Naperville, and adjacent to Naperville Park District facilities, Edward Hospital, and other medical facilities. Staff finds the existing and proposed senior housing is compatible with the adjacent uses and meets the standards for granting a conditional use. The petitioner’s responses to the Standards for Granting a Conditional Use are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Lot Area per Dwelling Unit Variance
The proposed development includes 121 existing plus 68 new for a total of 189 senior apartments. Per Municipal Code Section 6-7F-5 (OCI: Area Requirements) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH7BUDI_ARTFOCOFCOINDI_6-7F-5ARRE> the lot area on which a structure consisting of multi-family dwellings shall not be less than the number of dwellings times 2,600 square feet. The total area of the subject property is 144,986 square feet. At 2,600 square feet per dwelling unit, the property would be limited to 55 dwelling units. To meet the minimum lot size required by Code, the 189 proposed senior apartments would require a minimum lot area of 491,400 square feet, over 3 times greater than the lot area of the subject property.
The subject property is uniquely suited to accommodate additional dwelling units given the location of the property and the nature of the development. The types of concerns that might be common for other higher density developments are not at issue with the proposed development. First, the property is adjacent to open parks and more intense medical and office uses. The additional dwelling units will not negatively impact the use and enjoyment of the adjacent properties. Second, as a low-income senior housing community there will be less impact with respect to traffic and parking, than may be in a more traditional multi-family development. In addition to having fewer residents per dwelling unit, residents at Naperville Elderly Homes have a lower rate of personal vehicle use and ownership. Allowing the additional dwelling units at the subject property will also help the City towards satisfying an unmet need for more low-income senior housing in Naperville.
Staff finds the number of dwelling units proposed is compatible with the surrounding neighborhood, and will help to provide needed additional low-income senior housing. The petitioner’s responses to the Standards for Granting a Variance are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Parking Variance
Per Municipal Code Section 6-9-3 (Schedule of Off-street Parking Facilities) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH9OFSTPA_6-9-3SCOFSTPARE> multi-family dwellings are required to have 2 parking spaces per each dwelling unit, plus 0.25 guest parking spaces per unit. The subject property currently has 93 parking spaces for the 121 existing senior apartments. As part of the proposed development, the petitioner intends to restripe the parking lot resulting in a new total of 101 parking spaces for the 121 existing plus the 68 new senior apartments. The proposed parking ratio is approximately 0.53 parking spaces per unit (101 spaces divided by 189 dwelling units)
The petitioner conducted parking counts over the course of 4 days at the subject property to determine the current parking demand. The average parking demand was 54 spaces (0.44 spaces per dwelling unit), and the peak parking demand, which occurred on Super Bowl Sunday, was 64 spaces (0.52 spaces per dwelling unit). Since the 68 new senior apartments will be substantially similar to the existing 121 senior apartments, it is anticipated the average and peak parking demand for the property will remain the same after development. Accordingly, the proposed 101 parking spaces at a ratio of 0.53 spaces per dwelling unit are expected to satisfy the parking needs of the existing and proposed units. The petitioner’s responses to the Standards for Granting a Variance are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Building Height Variance
Per Municipal Code Section 6-7F-8 (OCI: Height Limitations/Bulk Regulations) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH7BUDI_ARTFOCOFCOINDI_6-7F-8HELIBURE> the maximum building height for residential projects in the OCI district is 43’, and the maximum floor area ratio (FAR) is 1.5. With proposed FAR’s of 0.68 (Lot 1; existing building) and 1.33 (Lot 2; new building) the development complies with the maximum FAR requirement. However, the petitioner requests a variance to allow the proposed building to be approximately 52’ tall, exceeding the maximum 43’ permitted in the OCI district.
The intent of the OCI district is to provide a transitional zone between intense business areas and residential neighborhoods. While the height limitation for residential developments in the OCI district helps to ensure a smooth transition between uses, the subject property is located adjacent to an established medical and office area, including Edward Hospital, and there are no nearby residential areas. The appearance of the height of the proposed 5-story building from Martin Avenue and Brom Drive will be moderated due to its location behind (south of) the existing 3-story building. In addition, the nearby buildings range from 1-story to more than 5 stories. Staff does not have any concerns with the requested height variance. The petitioner’s responses to the Standards for Granting a Variance are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Building Setback Variance
Because the new units must be located on a separate lot from the existing units due to ownership and financing requirements, the property is being subdivided into 2 lots; the existing senior apartments located on Lot 1 and the new senior apartments located on Lot 2. In order to have the existing and new buildings located on separate lots, while also maintaining a connection between the buildings, the buildings must be located up to the new interior property line. Municipal Code Section 6-7F-7 (OCI: Yard Requirements) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH7BUDI_ARTFOCOFCOINDI_6-7F-7YARE> requires a minimum interior side yard setback of 10’, therefore, the petitioner requests a variance to allow up to a 0’ setback from the interior property line as depicted on the Site Plan.
The 2 buildings will function as one unit with the main entrance to the new units provided through the existing main entrance to the existing building. The existing and new wings of the building will maintain compliance with the overall setbacks from the exterior property lines, and the 0’ setback will be imperceptible to users of the property or from adjacent properties. The setback variance is solely necessitated due to the requirement to have the new apartments located on a separate lot from the existing apartments. Staff finds the building setback variance to be a technical matter related to the need for the buildings to be located on separate lots, and that it will not have a detrimental impact on the neighborhood. The petitioner’s responses to the Standards for Granting a Variance are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Drive Aisle Setback Variance
Municipal Code Section 6-9-2:4 (Yard Requirements for Off Street Parking Facilities) <https://www.municode.com/library/il/naperville/codes/code_of_ordinances?nodeId=TIT6ZORE_CH9OFSTPA_6-9-2OFSTPAFA> requires a minimum 5’ setback for parking facilities. The petitioner requests a variance to allow a drive aisle to be located as close as 1’-9” from the west property line and as close as 2’-2” from the south property line. The proposed drive aisle is approximately 20’ wide and is required by the Fire Department to ensure emergency vehicle access in the rear of the property. Proposals to locate the drive aisle outside of the 5’ setback resulted in the drive aisle being located too close the building, such that Fire Department vehicles and equipment would not be fully functional. Several iterations of the emergency access drive aisle were reviewed by staff and the petitioner. Ultimately the proposed design was determined to best meet the needs of the Fire Department. The drive aisle will be constructed with permeable pavers. The petitioner’s responses to the Standards for Granting a Variance are included in the Development Petition. Staff is in general agreement with the petitioner’s Findings.
Key Takeaways
§ In order to develop 68 new low-income senior apartments on the subject property, the petitioner requests approval of a conditional use to allow multi-family dwellings in the OCI district; a variance to reduce the minimum lot area per dwelling unit; a variance to reduce the number of required parking spaces; a variance to increase the permitted building height; a variance to reduce the side yard building setback; and a variance to reduce the rear and side yard drive aisle setback.
§ Staff supports the proposed development, and associated entitlements, as it provides a needed housing type in the City of Naperville, it is well positioned to meet the needs of the residents, and is compatible with the surrounding neighborhood.
Planning & Zoning Commission Action
The Planning and Zoning Commission considered this matter at their meeting on May 3, 2017. No members of the public testified at the hearing. The Planning and Zoning Commission inquired about parking, project funding, building elevations and cross access. The petitioner provided clarification on those points, and the Planning and Zoning Commission moved to adopt the findings of fact as presented by the petitioner and approve PZC 17-1-019 (approved 7-0). Staff concurs with the Planning and Zoning Commission's recommendation.
FISCAL IMPACT:
N/A