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
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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