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PLAN COMMISSION 2016/07/13 MinutesThe City of Lake Forest Plan Commission Proceedings of the July 13, 2016 Meeting A meeting of the Lake Forest Plan Commission was held on Wednesday, July 13, 2016, at 6:30 p.m., at City Hall, 220 E. Deerpath, Lake Forest, Illinois. Commission members present: Chairman Ley, Commissioners Rosemary Kehr, Michael Freeman, Tim Henry, Lloyd Culbertson and Monica Ruggles Commissioners absent: Commissioner Guy Berg Staff present: Catherine Czerniak, Director of Community Development 1. Introduction of Commissioners and staff. Chairman Ley introduced the members of the Commission and City staff. 2. Consideration of the minutes of the May 12, 2016 meeting. The minutes were approved as submitted. 3. Introduction – Background and preliminary discussion of a comprehensive redevelopment plan for properties within the area located east of McKinley Road and south of Westminster, sometimes referred to as the “Cultural Corridor”. Consideration of development parameters, opportunities and limitations for the overall area in preparation for the sale of the City owned property located at 361 E. Westminster. Introduction by: City Staff Chairman Ley asked the Commission for any conflicts of interest or Ex Parte contacts, hearing none; he invited a presentation from staff. Ms. Czerniak introduced the agenda item. She stated that the Commission does not always have the luxury of spending time becoming familiar with an area and thinking through the opportunities it offers before a development petition is presented for Commission action. She explained that this matter is presented to the Commission as an introduction. She stated that no action is requested from the Commission at this time and noted that Commission questions, ideas, concerns and requests for additional information are welcome. She reviewed the discussions that have occurred to date about the area. She reviewed that in 2011, at a time when the future of Gorton Community Center was uncertain, the City Manager appointed an Adhoc Task Force to consider the area located east of McKinley Road, west of the adjacent single family homes, between Westminster and Illinois Road. She noted that the term “Cultural Corridor” was attached to the area at that time due to the various institutions nearby: the Library, Gorton Community Center, the Church of the Covenants and the Historical Society. She stated that the goal of the study in 2011 was to look at the area, at a very high level, and consider opportunities to support the cultural institutions and opportunities to share resources or amenities such as parking and open space and ways to provide enhanced pedestrian connections. She added that the Task Force looked at ways to encourage redevelopment in the area in a manner consistent with and supportive of the nearby institutions and the Central Business District ((CBD). She explained that during its work, the Task Force walked the area, talked with stakeholders and had a forward looking discussion about what the area could it be and how it could be redeveloped over time in a way that will contribute to the vitality of the CBD over the long term. She noted that with the exception of the offices located on the east side of McKinley Road in the area now being discussed, commercial uses are located west of the railroad tracks and west of Western Avenue. She explained that the Task Force, consistent with recommendations of earlier groups that studied the CBD, recommended that over time, the office uses on the east side of McKinley Road be eliminated to provide the opportunity for new residential development close to the CBD, within walking distance to the train station and near the community institutions in the area. She acknowledged that at the time the Task Force was meeting, there was still a pedestrian connection across the railroad tracks, mid-block, between the two depot buildings. She explained that it was not the City’s decision to remove the pedestrian crossing, but the railroad’s decision. She stated that as a result, the pedestrian connections between the east side of the railroad tracks and the heart of the CBD are at Deerpath and Westminster. She stated that at the completion of its work, the Task Force issued a report, a copy of which was provided to the Commission, to guide future discussions about the area. She clarified that the report presents ideas for consideration, but does not mandate a particular redevelopment approach. She stated that the Commission’s discussion of this area is timely because a developer recently acquired all three office buildings located on the east side of McKinley Road and because the Historical Society will soon be vacating the City building at 361 Westminster and the City Council has identified the site as surplus property. She stated that currently, the 361 Westminster property accommodates overflow parking for the Library and the adjacent public alley provides a circuitous access from the Library parking lot to Westminster. She acknowledged that at points the sightlines are limited making the alley less than ideal. She stated that the City’s Historic Preservation Commission recently approved the demolition of the building on the City property which was originally the coach house for the Quinlan Estate. She reviewed the basis for the HPC’s decision noting that the building has structural and mechanical problems; it is no longer associated with the original house due to subdivision of the property and changes in ownership over the years, and the fact that the building has been modified considerably over time impacting its historic integrity. She stated that consistent with the City’s Property Disposition Policy, the City Council recently approved a Resolution declaring the property surplus and Plan Commission Meeting Minutes – July 13, 2016 Page 3 of 10 stating the intention to dispose of the property. She reviewed key aspects of the Task Force’s vision for the area which includes residential uses replacing the office use, shared parking and open space and the potential for underground parking in the area instead of additional surface parking lots. She stated that the Task Force recommended that a vision be developed for the area to avoid incremental development that could preclude the ability to achieve a grander vision over the long term. She asked the Commission to consider the themes in the Task Force’s Report, discuss them and weigh in on which themes should be pursued as development parameters are prepared for further Commission review. She emphasized the unique opportunities presented by this site given its location in proximity to so many amenities within walking distance. She stated that this site presents an opportunity to add residences close to the CBD to replace residential units that have been lost in the past 20 years or so. She added that out of the Commission’s discussion, if appropriate, the Council may decide to place parameters, requirements or restrictions on the City property as conditions of sale. She noted that the City property could serve as a buffer for the single family residences to the east, play a role in access through the area or be incorporated into a larger development parcel. She explained that currently, the Comprehensive Plan designates this area for residential use, including multi-family residential, and for community uses. She confirmed that the vision outlined in the Task Force’s report is consistent with the Comprehensive Plan. She noted that since a City owned property is part of the area being studied, the City has brought in a consultant, The Lakota Group, to recommend redevelopment themes and development parameters for the Commission’s consideration. She stated that a representative of The Lakota Group will attend the Plan Commission’s meeting in August to offer observations and recommendations for the Commission’s consideration. In response to questions from Chairman Ley, Ms. Czerniak confirmed that the vacant parcel located between the Church and the single family residence on McKinley Road is owned by the Church. She explained that the Church ownership includes the single family residence and extends south to the Church itself which is located on the northeast corner of Deerpath and McKinley Road. Chairman Ley invited questions from the Commission. In response to questions from Commissioner Ruggles, Ms. Czerniak reviewed the zoning of the properties in the area noting that the parcels fronting on McKinley Road are zoned O-1, Office District. She explained that a variety of uses are permitted in the Office zoning district including office, residential and community uses. She stated that the City parcel to the east is zoned for residential use. She confirmed that the direction envisioned by the Task Force is consistent with the current zoning. She confirmed that the height limitation is 35 feet in the O-1 zoning district. She pointed out that there are some buildings in the general area that exceed 35 feet and noted that if the Plan Commission and ultimately, the City Council, determined that the applicable criteria are satisfied, a variance could be granted. In response to questions from Commissioner Freeman, Ms. Czerniak reviewed the ownership of the properties in the study area. She confirmed that the north boundary of the Church ownership approximately lines up with the north line of the City owned parcel on which the Library is located. She confirmed that the three office parcels are now owned by the same developer. She confirmed that the alley is a public right of way and the parcel east of the alley is owned by the City. She confirmed that the garage of the existing condominium on the southeast corner of McKinley Road and Westminster is accessed from the alley. She stated that although the office parcels are now in a single ownership, the developer may want to phase development. Commissioner Freeman stated that in his opinion, the full length of the alley may not be needed as the area redevelops. He agreed that the alley in its present configuration provides less than ideal access from the back of the Library to Westminster. He discussed the comment in the Task Force Report about maintaining the north portion of the City owned parcel as green space along Westminster. He questioned the appropriateness of that approach noting the houses located to the east and west of the parcel. He stated that development of that area with a single family residence would be consistent with the existing streetscape. In response to questions from Commissioner Freeman, Ms. Czerniak noted that the residence to the west of the alley is associated with the condominium building on the corner. In response to questions from Commissioner Freeman, Ms. Czerniak confirmed that the Plan Commission is not constrained, in its big picture thinking about this area, by the current lot lines or other limitations. In response to questions from Commissioner Kehr and Chairman Ley, Ms. Czerniak stated that staff has not had any recent conversations with the leadership of the Church. She noted that a representative of the Church is present and will likely offer comments during the public testimony portion of the meeting. She stated that the Church representative agreed to meet with staff sometime after this meeting. Chairman Ley encouraged staff to get input from the Church. In response to questions from Commissioner Henry, Ms. Czerniak explained that The Lakota Group was retained by the City to take an objective and comprehensive look at the area. She stated that when a City owned property is involved, the City often engages a consultant to bring an outside perspective. Plan Commission Meeting Minutes – July 13, 2016 Page 5 of 10 In response to questions from Commissioner Freeman, Ms. Czerniak stated that the Task Force did not discuss density for the area. She acknowledged that the consultant may offer some input on density. In response to questions from Commissioner Ruggles, Ms. Czerniak stated that in general, office uses generate more traffic than residential uses. She stated that at the time a specific development proposal is presented, a traffic study will be required with consideration given to appropriate ingress and egress points and the location and adequacy of parking. She added that an advantage of this site is that it is located within walking distance to many amenities and the train station and may attract residents who will rely less on cars. Chairman Ley commented that currently, there are a large number of parking spaces associated with the existing office buildings. Commissioner Henry added that the majority of those spaces are empty. In response to a request from Commissioner Kehr, Ms. Czerniak agreed to provide information on the heights of various buildings in and around the area. Commissioner Kehr thanked the 2011 Task Force for their work. She commented that she does not see a need to have a Greensward in the area; a wide median, as contemplated in the Task Force’s report, noting that the views from such an area will end at the train station and not provide views into Market Square. She stated that in her opinion, the area overall provides excellent transit oriented, multi-family housing opportunities. She stated that the buildings could be located close to the streetscape, with some green space. She stated that depending on the overall plan, the alley may be needed for access to parking spaces. She expressed an interest in hearing from the Church about any future plans for that property. She observed that the property owned by the Church is not as deep as the office parcels and as a result, can likely stand alone. She stated that exploring whether there is an opportunity for shared parking with the Church would be worthwhile. She stated support for considering how the City property on which the Historical Society is now located could be incorporated into redevelopment of the area. She added that the opportunity to provide some overflow parking near the Library should be considered as the area redevelops. She stated that parking near the Library, as opposed to parking on the other side of Deerpath, could be beneficial. She noted that the Task Force Report contemplates a mid-block pedestrian crossing on McKinley Road, to the train station. She questioned the safety of a mid-block crossing particularly since the mid-block pedestrian crossing on the railroad tracks was removed from between the train station buildings. She stated that directing pedestrians to Westminster and Deerpath would be better. She suggested that the Commission may want to recommend that the City Council consider a land lease, rather than offer the 361 E. Westminster property for sale. She stated a land lease could preserve options for the City in the long term to meet future needs of the Library. She noted that the Task Force Report recognizes the suitability of the area for senior housing and affordable housing. She agreed with the comments of Commissioner Freeman regarding the opportunity to develop the north end of the City property, along Westminster, in a manner consistent with the setback and density in that area. Chairman Ley agreed that consideration should be given to the long term plan for the Library. He stated that he is unaware of a master plan for the Library but stated that the future needs of the Library should be considered. Commissioner Henry noted that this is a unique opportunity to redevelop an under- performing area near the Central Business District. He pointed out that the 2011 report and the Comprehensive Plan align in calling for redevelopment of this area with multi-family residential development. He encouraged the Commission to provide clear direction so that the developer can prepare a plan that responds to that direction. He noted that the Commission should have a focused discussion to allow the review and approval process to move forward in a positive and expedited manner. He stated that questions about density, traffic, parking and building height should be addressed early in the process. He stated that redevelopment of the area will be an improvement over what exists today. He cautioned the Commission about focusing on grandiose plans for which funding does not exist. Commissioner Freeman requested clarification on whether the properties in the area have an easement or a right to access from the alley. He stated that he would like to understand whether the City has the option of vacating the alley and selling the property. He stated that the idea of a land lease is interesting but noted that if a plan is presented that makes the best use of the property, retaining ownership may be less of a concern. He agreed that mirroring the open space in Market Square does not seem to be necessary given that the area would dead end into the train station. He agreed that a decision around the appropriate density should be made soon to allow the developer to proceed with preparing plans. Chairman Ley pointed out that the development parameters for the Laurel and Western Avenue site supported four story buildings however, the building height drew opposition early in the process and three story buildings were ultimately approved. He agreed that setting reasonable expectations and parameters at the start of the process is important, parameters that are supported by the community. Commissioner Ruggles stated that given the residential area to the east, it will be important that careful consideration be given to how the service aspects of the development are treated. She stated that careful thought about parking, garage entrances, ingress/egress, mechanical equipment and dumpster areas is needed. She added that the buildings should be high quality designs given the significant and historic buildings in the area. She stated that the buildings should be designed with Plan Commission Meeting Minutes – July 13, 2016 Page 7 of 10 no back side, but instead, designed with attention to the detailing of all four elevations. Hearing no further questions from the Commission, Chairman Ley invited public testimony. Resident of 333 E. Westminster, (formerly known as Westminster Gardens) reviewed the location of his building in relation to the other buildings in the area. He asked for clarification on which properties are proposed for redevelopment. He stated that parking east of the railroad tracks is at a premium and stated that new development should provide adequate parking. He stated that the portion of the City property which is used for overflow parking for the Library is in disrepair. He noted that along McKinley Road, parking is only available for commuters, not residents. He asked for clarification on the permitted building height and questioned whether three story buildings could be constructed. He questioned whether the Cultural Corridor should include Gorton Community Center. He stated that he is interested in understanding the potential impacts of the new development on the 333 E. Westminster building. In response to questions raised by the speaker, Ms. Czerniak stated that it is her understanding that all three office parcels are in the ownership of a single developer. She stated that the house on McKinley Road is owned by the Church and that the Church ownership extends to Deerpath and includes the house, the vacant lot south of the Church, the parking lot and the Church. She stated that it is her understanding that the Church has no interest in selling any property. She stated that the Code permits buildings up to 35 feet in this area which could accommodate a three story building depending upon the design. Commissioner Kehr requested that information on the size of each of the office parcels and clarification of the ownership be provided to the Commission. Mary Sanders, 391 E. Deerpath, stated that she just learned that this area is being discussed and she only briefly read through the report from the earlier Task Force. She questioned what is meant by synergy between the properties. She stated her preference that the City keeps its property noting that in the future, the property could serve as an annex to the Library. She discussed the parking lot on the southeast corner of Deerpath and McKinley Road and the recommendation in the report for that area. She stated that there used to be a park on that corner and expressed concern about two levels of parking or a building on the site that would eliminate some of the parking. In response to questions from Ms. Sanders, Ms. Czerniak explained that the Task Force encouraged looking at the area comprehensively and consideration of opportunities for properties to support and enhance each other. She noted that the Task Force discussed encouraged pedestrian connections between properties and streets, shared parking and open space and other aspects that could enhance the area overall. She clarified that the City Council declared the 361 E. Westminster parcel as surplus property after determining that the City does not have a long term need for the parcel. She said that the Council could consider a land lease, but noted that decision is strictly under the purview of the Council, not the Plan Commission. She stated that the Council is looking to the Commission for input on the best long term use for the property input on the role it could or should play as the area redevelops and limitations or requirements that might be put on the property. She confirmed that the City Council has made a decision to demolish the building for health and life safety reasons. She stated that the concepts in the Task Force Report for the parking lot on the southeast corner of Deerpath and McKinley Road were presented as long term possibilities noting that property is not the subject of the present discussion. She stated that the Task Force studied parking in the Central Business District and found that parking spaces are always available. Chairman Ley invited further public comment. Linda Lyon, 75 S. Asbury Court, stated that she is speaking as an individual and not for the Historical Society. She noted that she has been a member of the Historical Society since the 1980’s. She questioned why the Historical Society cannot stay in the building for another year or two since there is no plan for the property at this time. In response to Ms. Lyon, Ms. Czerniak stated that the Property and Public Lands Committee of the City Council is working closely with the Historical Society to determine when the building will be vacated. She confirmed that the City Council has identified serious problems with the building and has asked that the building be vacated sooner, rather than later. Chairman Ley invited further public comment. Catherine Lemmer stated that she is the new Library Director. She noted that she will speak with the Library Board about this issue and will present comments on behalf of the Library as appropriate. She stated that the Library wants to be a good neighbor. She stated that in her short time at the Library, she has become very concerned about parking. She noted concern about families crossing Deerpath, from the parking lot across from the Library, since there is not a well-defined crosswalk at the mid-block crossing. She stated that the Library has many programs and some are attended by over 100 people. Ruth Brueggeman, representative of the Church of the Covenants and Lake Forest resident at 55 Farnham Lane, stated that she previously lived in a house located just north of the Church. She explained that the house was in disrepair and had to be torn down. She stated that the Church still owns the lot where the house was located and the existing house to the north. She said that the Church has acquired Plan Commission Meeting Minutes – July 13, 2016 Page 9 of 10 the properties north of the Church with the intent to one day complete the building as originally designed with the addition of a fellowship hall and classroom to the north end of the Church. She stated that the Church has the original Howard Van Doren Shaw plans. She emphasized that the Church is not interested in losing or sharing the property owned by the Church. She stated that the remaining house is a home for senior members of a family affiliated with the Church. She stated that the remaining house has been upgraded and is regularly maintained. She stated that at times, such as for funerals, the Church has a parking problem. She said that several years ago the Church considered expanding the parking lot on the Church property but noted they were encouraged to use the City lots instead of adding asphalt on the site. She stated that this is the first the Church has heard about the upcoming redevelopment of the area. She acknowledged that the Church was approached six to seven years ago about the possibility of the City leasing the Church parking lot to allow use by the Library. She stated that the Church is not interested in allowing outside use of the parking lot due to traffic and liability. She asked that the Church property be left in the Church ownership and not be included in the redevelopment plan. She stated that the Church worked hard to acquire the various properties now in their ownership. She stated that the Church is strong and has recently made some significant improvements including a new slate roof and acquiring a new organ which increased the historic value of the building. She stated that the Church intends to keep all of the property with the future hope of finishing the building as originally intended however she acknowledged that at this time, there is no timeline for that work. She asked that the City respect the Church’s interest to be left out of the redevelopment area. She added that with respect to traffic, it is difficult pulling out of the Church parking lot at certain times of day when school is in session. Chairman Ley encouraged Ms. Brueggeman to meet with City staff. He stated that there will be additional opportunities for the public to address the Commission on the redevelopment of this area. He stated that the goal is to provide direction that will assist a future developer in creating a plan that will serve the community well. In response to questions from Chairman Ley, Ms. Czerniak confirmed that the Commission will continue this discussion in August. She invited members of the public to sign up on the interested parties list at the back of the room to receive future notices about Commission meetings on this topic. She stated that she would contact representatives from the Library and Church to invite more input. Commissioner Kehr stated that the Commission should provide direction on density and the kind of multi-family units that are needed in Lake Forest. She stated that it may be difficult to have driveway accesses on to McKinley Road right across from the train station and stated that the alley may need to be looked at for access opportunities. She stated that it will be interesting to hear if the Library sees a need for additional space in the future and to better understand the Library events, the times and number of participants. Hearing no further comments from the Commission, Chairman Ley concluded the discussion on this matter until the next meeting. He stated that the threshold question for him is whether the Comprehensive Plan needs to be amended to allow the desired uses in the area. 5. Additional public comment on non-agenda items No additional testimony was presented on non-agenda items. 6. Additional information from staff. No additional information was presented by staff. The meeting was adjourned at 7:57 p.m. Respectfully submitted, Catherine Czerniak Director of Community Development