Planning Commission Agenda 07-15-2019 (Special Meeting)AGENDA
SPECIAL MEETING - MONTICELLO PLANNING COMMISSION
Monday, July 15th, 2019 - 6:00 p.m.
Mississippi Room, Monticello Community Center
Commissioners: Sam Murdoff, Marc Simpson, John Alstad, and Alison Zimpfer
Council Liaison: Charlotte Gabler
Staff: Angela Schumann, Steve Grittman (NAC), Jacob Thunander, Ron
Hackenmueller
1. General Business
A. Call to Order
2. Public Hearings
A. Public Hearing - Consideration of a request for Variance to the 25' maximum
height requirement for principal structures in the Mississippi Wild and Scenic
Recreational River District to 35' in height for a Multi-family/Assisted Living
Facility in the R-4 (Medium-High Density Residence) District
Applicant: Monticello Senior Housing Owner, LLC — Michael Hoagberg
3. Adjournment
Planning Commission Agenda — 07/15/2019
2A. Public Hearing - Consideration of a repuest for Variance to the 25' maximum
hei�ht requirement for principal structures in the Mississippi Wild and Scenic
Recreational River District to 35' in hei�ht for a Multi-family/Assisted Livin�
Facilitv in the R-4 (Medium-Hi�h Densitv Residence) District. Applicant:
Monticello Senior Housin� Owner, LLC — Michael Hoa�ber� (NAC)
Property:
Planning Case Number:
Legal: Lot 1, Block 2, Riverview Square
Address: Unassigned
2019 - O10
A. REFERENCE & BACKGROUND
Request(s):
Deadline for Decision:
Land Use Designation:
Zoning Designation:
Overlays/Environmental
(MW SRR)
Current Site Use:
Surrounding Land Uses:
Variance to allow construction of a senior and assisted
living facility in an R-4 zoning district at a height of 35
feet.
August 26th, 2019
Places to Live
R-4, Medium-High Density Residential District
The purpose of the "R-4" Medium-High Density
Residential District is to provide for medium to high
density housing in multiple family structures of 13 or
more units per building, and at densities of between 10
and 25 units per acre.
Mississippi Wild and Scenic Recreational River District
Vacant
North: Single Family Residential / Places to Live (R-1)
South: Commercial and Vacant / Places to Shop (B-2B-4)
East: Institutional (Church) and Single Family Residential /
Places for Community and Places to Live (R-A/R-2)
West: Commercial and Vacant / Places to Shop (B-4)
Project Description: Headwaters Development is in the midst of requesting
approval of a 125-unit senior living facility to be
Planning Commission Agenda — 07/15/2019
constructed upon a 5-acre site located south of County
Road 39 (Riverview Drive) and east of Hart Boulevard.
The proposed building is to be 35 feet in height,
consistent with the DNR's rules allowance for buildings
in the MWSRR. However, the City's ordinance version
governing construction in this overlay district limits
height to 25 feet. The applicant seeks a variance to
build up to the 35 foot limit.
ANALYSIS
Project Overview
Earlier this year, the City approved an amendment to the Comprehensive Plan
designation for the subject site, changing from Places to Work (Commercial) to
Places to Live (Residential). As a companion action, the City approved a rezoning of
the site from B-4, Regional Business to R-4, Medium and High Density Residential
District.
The City Council, in its resolution rezoning the property, made note of the intent for
residential uses on this property to occur without the need for departures from the
zoning ordinance regulations. The rezoning expressed a definite preference for senior
housing rather than general market multi-family, based on the location and proximity
to other land uses in the area, and the low-impact aspects of senior housing on traffic,
parking, lot coverage, and several other land use elements.
Early on, City staff had confirmed with DNR personnel that the applicable height
limit for the proposed building would be 35 feet. This determination was based on a
series of factors, including whether the property was annexed to the city at the time of
adoption of the Wild and Scenic regulations by the City. At the time of the original
adoption of the MSWRR ordinance regulations by the city, the height limit in the
MWSRR was set at 35'.
Multi-family and Assisted living facilities are listed as a conditional use in the R-4
District. In a companion application, the developer is seeking approval of a CUP for
a senior and assisted living facility on the subject property.
As noted above, it was understood as the proj ect applications were initiated that the
applicable building height for this site was 35 feet.
The applicant prepared plans on that basis, and proceeded through Planning
Commission review at a public hearing on the Conditional Use Permit, on the
presumption that the proposed 35 foot height as designed was a permitted condition.
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Planning Commission Agenda — 07/15/2019
Just prior to City Council consideration of the request, City staff was informed that
while the DNR's applicable height limit was 35 feet, the City would still be bound by
its ordinance, limiting height to 25 feet throughout the MWSRR overlay district. The
City Council tabled action on the CUP in June, and the applicant filed a request for a
variance (the subj ect of this staff report). Action by the City Council on the CUP is
being held over until the City has reached a decision on the height variance issue,
unless Monticello Senior Housing Owner, LLC requests tabling of the CUP request.
As a parallel action, the City is preparing to consider an amendment to its regulations
that would preserve the 25 foot height limit in the Shoreland area within the 300 feet
of land closest to the river, but increase the limit to 35 feet in the remainder of the
MWSRR, consistent with the DNR requirements of those separate regulations. Such
ordinance amendments require DNR review that would occur on a separate calendar —
the variance request is being considered to more closely synch with the ongoing CUP
application.
For Planning Commission reference on the height requirement, the City adopted
amendments to both the Wild and Scenic Recreational River regulations and the
Shoreland regulations in a comprehensive update in 2011. Because these areas
overlap along the river, DNR staff suggested amending the Wild and Scenic height
standard (35 feet) to mirror that of the Shoreland standard, which is 25 feet. This was
done, but without contemplating the impacts on the Wild and Scenic areas that are not
also covered by the Shoreland ordinance.
Over time, the City has applied the 25 foot rule in the Wild and Scenic area.
However, building height beyond 25 feet only occasionally comes into play. Most
recently, the City encountered this height standard with the Bondhus expansion. The
City approved, with DNR consent, a height variance and conditional use permit for
that expansion, exceeding both the Wild and Scenic and the I-1 zoning height
standards for that proj ect.
Moreover, the Wild and Scenic height standard applies within a rather variable
district boundary, which can result in properties that are as close as 200 feet from the
river out of the district, or as far as 2,000 feet from the river inside the district. In
contrast, the Shoreland district is generally a consistent 300 feet from the river. This
wide variation in the district boundary has created the need to address the height
standard on a case by case basis through the variance process.
The DNR Area Hydrologist was notified of the variance application and has indicated
that DNR has no comment on the application at this time.
The Planning Commission acts as the Board of Adjustment on variance applications
to the city. The Zoning Ordinance applies the following requirements for Board of
Adjustment consideration of variances:
Planning Commission Agenda — 07/15/2019
Purpose and Scope. The Variance process is intended to provide
limited relief from the strict requirements of this ordinance in those
cases where strict application of a particular requirement will create
practical difficulties due to circumstances unique to the individual
property under consideration. It is not intended that Variances be
granted to allow a use not permitted by the underlying zoning district,
nor to merely remove inconveniences or financial burdens that the
requirements of this ordinance may impose on property owners in
general. Variances are intended to address extraordinary, exceptional, or
unique situations that were not caused by the applicant's act or omission.
Variance Criteria. Approval of a Variance may only be made upon a
determination that practical difficulties will result based on all of the
following criteria:
(i)The property in question cannot be put to a reasonable use if the
provisions of this ordinance are strictly applied.
(ii)The circumstances rendering the property unusable are unique to the
property.
(iii)The circumstances rendering the property unusable were not created
by the owner thereof.
(iv)A Variance, if granted, will not alter the essential character of the
locality.
(v)Economic considerations alone shall not constitute a sufficient basis
for a Variance if reasonable use for the property exists under the terms
of the regulation.
In summary, the applicant must convince the City that the use is a reasonable one,
and that the ordinance and the site conditions present practical difficulties in putting
the property to this reasonable use.
In this case, the use in question is the specific one anticipated by the City Council
when it acted to amend the Land Use Plan and rezoned the property. The
reasonableness aspect comes into play in the following ways:
The use and density proposed are consistent with the R-4 District. It
would be possible for the applicant to construct a 2-story building of this
same density, but the floor plan would have to be expanded, increasing lot
coverage by as much as 50% of the proposed size, possibly more. This
would have the result of dramatically reducing green space on the site,
increasing stormwater impacts, and filling much more of the buildable
area.
2. The location of the site is outside the 300 foot Shoreland District
boundary, where the 25 foot height is required by the DNR Shoreland
height rule. Instead, it is subj ect to the Wild and Scenic regulations, which
�
Planning Commission Agenda — 07/15/2019
would allow a 35 foot height under the DNR rules for MWSRR, but for
the City's additional ordinance restriction. This is a unique condition of
this particular site in that it is zoned R-4, in the Wild and Scenic overlay
district, outside the Shoreland overlay district, and located within a mix of
other land uses.
3. The applicant did not create the conditions leading to the unique
conditions of this site.
4. The variance is not solely dependent on economic justification.
5. Consideration of the variance results in a more reasonable use of the
property — negligible impact on the area in which it is located, but much
less impact on the site itsel£ Without the additional height considered by
this variance request, it is possible that a much more massive structure
would occupy the property to house the same number of units, resulting in
negative impacts noted above, in addition to significant negative visual
impacts on the neighborhood. One note to be aware of: because of the
way height is measured (the average height of a sloped roof), a gabled
roof could be foreseen with a ridge line of 30 feet or more, and still meet
the technica125-foot measured height. (See illustration below):
measu red
height T
ridge
eave
B. ALTERNATIVE ACTIONS
L Motion to approve Resolution PC-2019-022 approving the variance to allow a
senior multi-family/assisted living facility in an R-4 District at a building height
of 35 feet, based on findings in said resolution.
2. Motion to deny Resolution PC-2019-022 denying the variance to allow a senior
multi-family/assisted living facility in an R-4 District at a height of 35 feet.
Findings for denial should added as a part of this motion.
3. Motion to table action on the requested variance to allow a senior multi-family/
assisted living facility in an R-4 District at a height of 35 feet, pending additional
information as identified by the Planning Commission and staff report.
5
C.
Planning Commission Agenda — 07/15/2019
STAFF RECOMMENDATION
The R-4 District makes a specific allowance for multi-family and assisted living
facilities as a conditional use. The site was guided and zoned for this use in a recent
action by the City Council, with the understanding — based on information available
at the time — that the applicable building height would be 35 feet.
Staff recommends approval of the variance subject to the conditions listed in Exhibit
Z and based on the findings in the accompanying resolutions. As noted in the report,
the proposed proj ect is consistent with the intent of the Comprehensive Plan
amendment and rezoning as recently adopted by the City Council.
In the opinion of Staff, the 35 foot building height is the suitable height standard
applying to this use on this site, for the reasons cited in the Analysis above. Most
significantly, the additional height accommodates a change in building design from
two to three stories, resulting in a significantly smaller footprint and lot coverage,
along with the consequent increase in green space and reduction in stormwater
impacts, among other advantages.
It is noted that in contrast to other zoning and subdivision applications, the Planning
Commission sits as the Board of Adjustment and Appeals, meaning that the
Commission is making a decision on the application, rather than its more common
recommendation to Council. If an affected party objects to the Commission's
decision, that party may appeal to the City Council if they file such an appeal with 10
business days of the Commission's action.
D. SUPPORTING DATA
A. Resolution PC-2019-022
B. Aerial Site Image
C. Applicant Narrative
D. Site Development Plans
E. Shoreland and Mississippi
Exhibit
Z. Conditions of Approval
Wild and Scenic Recreational Overlay District
�
Planning Commission Agenda — 07/15/2019
EXHIBIT Z
Monticello Senior Living Facility
Variance to Wild and Scenic River District
Height Limit of 25 feet
Lot 1, Block 2, Riverview Square
1. The applicant successfully completes processing of the Conditional Use Permit for
the proj ect, and complies with the conditions of approval required by the City
Council.
2. Other conditions of staff and Planning Commission.
7
CITY OF MONTICELLO
WRIGHT COUNTY, MINNESOTA
RESOLUTION NO. 2019-022
A RESOLUTION OF THE BOARD OF ADJUSTMENT AND APPEALS
APPROVING A VARIANCE TO THE MAXIMUM HEIGHT REQUIREMENTS
FOR A BUILDING IN THE MISSISSIPPI WILD AND SCENIC
RECREATIONAL RIVER OVERLAY DISTRICT (MWSRR)
LOT 1, BLOCK 2, RIVERVIEW SQUARE
WHEREAS, Michael Hoagberg on behalf of Monticello Senior Housing, LLC, is requesting a
variance to the maximum height requirements for a building in the MWSRR Overlay District to
construct a building up to 35 feet in height; and
WHEREAS, the applicant has submitted a site drawing and other documents illustrating the
location of the proposed building on the property for review; and
WHEREAS, the proposed use is subject to an application for Conditional Use Permit, separately
from the height variance; and
WHEREAS, the applicable height allowance under the City's current Mississippi Wild and
Scenic Recreational Overlay District regulations is 25 feet; and
WHEREAS, the State of Minnesota would allow a building height up to 3 5 feet under its
existing rules; and
WHEREAS, the proposed use is consistent with all other requirements of the base zoning
district of R-4, Medium and High Density Residence District; and
WHEREAS, the requested additional height would accommodate the allowable density on three
floors, rather than two floors of units; and
WHEREAS, the additional height would substantially reduce the lot coverage necessary for the
building to house the allowed number of units; and
WHEREAS, the additional height would increase green and open space on the property; and
WHEREAS, the additional green space would have the effect of reducing stormwater impacts
from the proj ect; and
WHEREAS, the additional height would have the likely effect of reducing building massing of
the project, and decreasing visual impact from surrounding streets or property; and
WHEREAS, the Planning Commission held a public hearing on July 15, 2019, on the
application and the applicant and members of the public were provided the opportunity to present
information to the Planning Commission; and
WHEREAS, the Planning Commission has considered all comments and the staff report, and,
acting as the Board of Adjustment and Appeals, makes the following Findings of Fact in regard
to the proposed variance:
1. The applicant has demonstrated practical difficulties in improving the property in a
reasonable manner, due to the location of the lot and the impacts of the varying height
requirements applicable to buildings in the base zoning district and overlays.
2. The existing parcel is of otherwise sufficient size and area.
3. Additional building height will accommodate a reduced impact on the property in terms
of impervious surfaces and stormwater runoff.
4. The proposed height will increase green and open space on the subj ect property
compared to a lower building of the same density.
The increased height will result in a reduced visual impact from surrounding property due
to significantly less building mass and lot coverage.
6. These facts constitute reasonable use of the property under the request, and for which the
site conditions and code requirements create practical difficulties in achieving this
reasonable use.
NOW THEREFORE, BE IT RESOLVED BY THE PLANNING COMMISSION OF
MONTICELLO, MINNESOTA, SITTING AS THE BOARD OF ADJUSTMENT AND
APPEALS, that the requested variance to the maximum height requirements for a building in the
Mississippi Wild and Scenic Recreational River Overlay District is approved.
ADOPTED BYthe Monticello Planning Commission this 15m day of July, 2019.
CITY OF MONTICELLO
Sam Murdoff, Chair
ATTEST:
Angela Schumann, Community Development Director
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Headwaters Development — Monticello Senior Livin� Variance Narrative
June 27, 2019
From: Headwaters Development
As indicated in the City of Monticello Variance Application Checklist we hereby submit the following
narrative for the purpose of demonstrating that the criteria for a variance as set out in Section 2.4(C)(4)(a)
have been met for the proposed project at the property location legally described as Lot 1, Block 2, River
View Square, Wright County, MN, Parcel ID# 155117002010.
• The circumstances rendering the property unusable are unique to the property.
o Given that the zoning for this property is limited to senior housing, the existing ordinances
in place, in combination with a 25' height restriction would make this property unusable
and therefore is unique specifically to this property.
• The circumstances rendering the property unusable were not created by the owner thereof.
o All of the restrictions related to this property that cause it to be unusable were created
via City and State ordinances
• A Variance, if granted, will not alter the essential character of the locality.
o As discussed in several other meetings and in the project narrative, the essential character
of this locality will remain. This property is a perfect transition from surrounding
properties which include high and medium density residential, and several unique
commercial sites.
• Economic considerations alone shall not constitute a sufficient basis for a Variance if reasonable
use for the property exists under the terms of the regulation.
The proposed senior housing project met all requirements and ordinances set forth by the City to receive
a Conditional Use Permit to proceed with this project at the site based on the existing Minnesota
Department of Natural Resources Wild and Scenic height restrictions of 35-feet, which to our
understanding had historically been applied to this property.
At the June 24, 2019 City Council meeting additional potential restrictions for the site were brought to our
attention, which may limit the height of the building to a previously determined 25-foot height limit.
Adding this restriction to the current R4 zoning with a limitation of only building senior housing would
make this site unbuildable. The combination of these restrictions, among other City ordinances, such as
unit size minimums, would make a 125-unit senior housing community, unfeasible and therefore it is
highly unlikely that any senior housing developer would proceed with a project on this property.
By providing a variance to the City's ordinance restricting the height to 25-feet and following the State's
application of 35-feet, the project would be able to proceed as planned, allowing us to fulfill our mission
of providing the highest quality of senior housing care to the residents of Monticello for many decades to
come.
We are therefore requesting a variance from the City of Monticello's 2011 ordinance for Wild and Scenic
from 25-feet to the Minnesota state restriction of 35-feet.
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