PLAN COMMISSION 2016/08/17 MinutesThe City of Lake Forest
Plan Commission
Proceedings of the August 17, 2016 Meeting
A meeting of the Lake Forest Plan Commission was held on Wednesday, August 17,
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, Guy Berg and Monica Ruggles
Commissioners absent: None
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 July 13, 2016 meeting.
The minutes of the July 13, 2016 meeting 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 and The Lakota Group
Chairman Ley asked the Commission for any conflicts of interest or Ex Parte contacts
on the broad topic that is before the Commission for discussion at this time. Hearing
none; he introduced the agenda item and invited a presentation from staff and the
City’s consultant.
Ms. Czerniak noted that at the July meeting, the Commission heard an introduction
to the McKinley Road redevelopment area and reviewed some background work
that was done several years ago by the Cultural Corridor Task Force. She explained
that the area of focus now is just a portion of the larger Cultural Corridor Area, the
McKinley Road redevelopment area. She noted that the minutes from the July Plan
Commission meeting provide a good summary of the information presented to the
Commission and a summary of the discussion that occurred at that meeting. She
stated that since the July meeting, City staff worked with a consultant, The Lakota
Group, to get an outside perspective on the opportunities presented by the
redevelopment area. She stated that the consultant reviewed the minutes from the
July meeting and the earlier study. She added that the consultant also visited the
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area prior to developing recommendations for broad themes and goals that should
be considered as the area redevelops. She stated that the direction to the
consultant was to look at the area holistically in the interest of achieving a
redevelopment plan that will be an amenity to the Central Business District and a
project that will stand the test of time and be worthy of the prominent location of the
site. She noted that the City Council recently identified the City owned property at
361 E. Westminster as surplus property and explained that part of the Commission’s
charge is to identify the highest and best uses for the City property to help the
Council determine the future of the property. She confirmed that a single developer
now owns the three office parcels fronting on McKinley Road and is prepared to
quickly bring forward a redevelopment proposal for the properties. She stated that
the work now being done by the Commission is intended to provide the developer
with some understanding of the Commission’s expectations so that a plan can be
developed in the context of those expectations at the outset. She introduced Kevin
Clark from The Lakota Group.
Mr. Clark, Associate Principal with the Lakota Group, confirmed that his firm looked at
the area holistically in an effort to identify themes to guide the redevelopment in a way
that would benefit the Central Business District long term. He reviewed the overall area
and noted that the three office parcels in question are a series of linear parcels. He
noted the fences and the lack of connectivity through the area. He pointed out the
location of the City owned parcel at 361 E. Westminster, the nearby condominium
building and the adjacent single family home. He reviewed context photos of the area
and commented on the relationships that exist now; the building masses and scale,
building heights, the expanses of asphalt, parking lot configurations and the
streetscapes. He noted that his firm looked at the area with an eye toward what works
now, and what does not work well. He provided additional context photos of the
broader surrounding areas. He noted the single family homes, the Church, the train
station and Market Square. He stated that the connection of the area to the high
quality Central Business District is important and commented that the redevelopment
should be an extension of that high quality character. He suggested themes and a
framework that could be considered by the Commission in an effort to fully capture the
opportunity offered by the area. He reviewed suggested themes, including access and
connectivity. He stated that both pedestrian and vehicle connections to the Library
and train station are important. He pointed out that currently, the back of the Library is
congested and uninviting, yet visible from the interior of the site. He stated that careful
thought should be given to how to organize the public space in a meaningful way. He
noted that the street frontages, new and existing, and how streets loop through the site
need to be carefully considered. He noted that multi-family residential development
will serve as a transition from the business district to the single family homes to the east.
He noted that residential development near the train station will offer a convenience
not currently available. He noted that other uses could be considered for the area but
noted that appropriate transitions will need to be considered. He discussed how the
City parcel could be included in the larger development area and provide the
opportunity to offer a range of residential product types. He noted that the
redevelopment should be considered with the understanding that the Library and
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Church uses will remain but could be modified to some extent over time. He reviewed a
graphic illustrating opportunities for connectivity through the redevelopment area. He
noted the importance of opening the area up with a street connection to avoid a
“super block” that cannot be penetrated visually or by pedestrians or vehicles. He
reviewed three concepts for the area which begin to address connectivity, provide an
appropriate transition between uses and fit within the context of the existing uses. He
reviewed concept A noting the reorganized parking, elimination of the existing fences
and a mix of three story condominiums, townhomes, row homes and duplexes. He
noted the shared driveways and access points which result in fewer conflict points
between pedestrian and cars. He noted the concept of a walkway leading to the train
station. He reviewed concept B which relocates the existing alley access on the east
side of the site with rowhomes fronting on the street as a transition to the existing single
family homes. He noted that this concept provides a central open space and
reorganized parking near the Library. He pointed out the option of having buildings
front on McKinley Road instead of turning the buildings sideways to the street. He
reviewed concept C which suggests a wider, one-way street. He noted the opportunity
for overflow parking for the Library when needed. He estimated that overall, the site
could accommodate upwards of 40 units depending on how it is developed. He noted
that all of the concepts presented use the same principles, but are organized in slightly
different ways. He noted that based on the themes presented, staff prepared draft
recommendations for the Commission’s consideration to use as a guide for
redevelopment of the site. He summarized the suggested themes: promote walkability
for those living on the site and others, provide safe access to the Library, minimize
potential conflict points between pedestrians and vehicles, limit curb cuts, consider
shared access roads that could benefit the larger area, develop the area holistically
rather than piecemeal. He added that consideration should be given to hardscape
treatments that slow traffic and make the space unique and meaningful noting that
continuous sidewalks, street lights, street trees and landscaping will all play a role in
creating a high quality character. He commented on the value of underground
parking for residential units and the importance of limiting surface parking lots. He
stated that street parking could provide for shared spaces to meet the intermittent
needs of various surrounding uses. He discussed building massing commenting that the
new buildings should be secondary to the important surrounding buildings, Market
Square, the Church, Library and train station. He noted the importance of properly
organizing the buildings along the streetscape to avoid the appearance of
incremental, fragmented development. He noted that McKinley Road is a counter
point to Market Square, a prominent street and establishes a buffer between the
business district and the residential neighborhoods. He noted the importance of view
corridors, high quality architectural design and landscaping. He reiterated that the
previous studies identified this area for redevelopment with residential uses or
community uses, keeping retail and office uses on the west side of the railroad tracks.
He noted the benefit of providing housing near the Central Business District and train
station and encouraged various types of housing units, sizes and price points. He noted
that the public alley, adjacent to the City property, or some version of it, is critical for
access to open up the area and improve circulation. He directed the Commission to
the draft recommendations at their places.
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In response to questions from Commissioner Freeman, Mr. Clark stated that the density
of the 333 E. Westminster condominium site, including the adjacent single family home,
is about 16 units per acre. He stated that the schemes prepared by the Lakota Group
are in the range of about 20 units per acre. He stated that the 333 E. Westminster
building is three stories in height, about 35 feet.
In response to questions from Commissioner Freeman, Ms. Czerniak reviewed the past
work of the Central Business District Task Force and later, the Cultural Corridor Task Force,
noting that both study groups looked carefully at the future use of the parcels on the
east side of the railroad tracks. She noted that there was a conscious decision to cluster
non-residential uses; offices, retail businesses and restaurants, on the west side of the
railroad tracks. She explained that the thought was that locating non-residential uses in
proximity to each other would create a synergy that is important to a vital Central
Business District. She added that enhancing the area around the Central Business
District, including McKinley Road, with new residential development was identified as a
need in the community and a way to support the Central Business District. She added
that the McKinley Road redevelopment area is designated for multi-family residential in
the City’s Comprehensive Plan and she explained that the current zoning on the parcels
permit office uses, but also allow multi-family residential development by right.
Commissioner Freeman commented that dating back to the 1998 Comprehensive Plan,
and continuing on through the work of later task forces, the McKinley Road area has
been consistently identified for redevelopment with multi-family residential uses.
In response to further questions from Commissioner Freeman, Ms. Czerniak confirmed
that the work of the earlier task forces concluded that there are sufficient opportunities
for office, retail and restaurant uses on the west side of the railroad tracks. She added
that the thought was that directing non-residential uses to the west side of the railroad
tracks could promote redevelopment of some parcels that could benefit from
upgrading.
In response to questions from Chairman Ley, Mr. Clark confirmed that underground
parking is highly recommended for the multi-family residential buildings. He explained
that incorporating traffic calming features into the area will help to limit the speed of
traffic within the site. He stated that the current overflow parking spaces for the Library,
on the City parcel, are convoluted, not well signed and he noted that the access into
and out of the area is not optimum. He suggested that overflow parking could be
provided for the Library in a manner that functions better than the current configuration.
In response to questions from Commissioner Culbertson, Mr. Clark explained that the
representation of a central open space, as envisioned by the Cultural Corridor Task
Force, could be accommodated in different ways as the area redevelops along with a
well-designed streetscape.
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Commissioner Henry stated that in his opinion, a central open space, to mimic Market
Square, is not necessary. He pointed out that the site has limited connectivity and
visibility and no direct physical access to Market Square. He noted that access to
Market Square from this area is on Westminster and Deerpath, at the end of the block
since there is no longer a mid-block crossing. He agreed that the architecture of the
new buildings should be of a similar quality as the other buildings in the area. He stated
support for considering one-way access into and out of the redevelopment parcel. He
said that it is important to consider the City parcel in the context of the larger
development area noting that the future of the City parcel should be driven by the
concept for the larger area.
In response to questions from Commissioner Henry, Mr. Clark described different
opportunities for the location of open space on the site explaining that it could be semi-
private and more centrally located or located in a way that makes the green space
more accessible to the public.
Commissioner Henry pointed out that there is a change in topography on the site with
the site dropping from west to east. He stated that some allowance on building height
will need to be considered to take the grade change into account. He commented on
the Library stating that in his opinion, there is never going to be access into the building
from the north side. He commented that locating parking on the north side of the
Library, behind the building, will result in a longer walk than from the existing parking lot
located on the south side of Deerpath, at the front of the Library, with a visual
connection to the entrance.
Commissioner Berg noted th at there are three privately owned parcels in the area
being discussed for which a redevelopment plan will soon be presented to the
Commission. He questioned whether the discussion of possible public amenities is
coming too late given that a private development is already being planned. He
agreed that some kind of public amenity would be nice as part of the project. He
questioned whether discussions have occurred about how the back of the Library could
be re-addressed. He noted that the area north of the Library would be a wonderful
location for a public open space. He noted that the City parcel could play a role in
compensating the developer for providing a public amenity. He noted that centering
the Library dome on a public open space could be of mutual benefit. He noted that in
the future, thought could be given to having a secondary entrance at the back of the
Library.
In response to questions from Commissioner Culbertson, Ms. Czerniak reviewed that the
City Council has declared the 361 E. Westminster parcel to be surplus property, meaning
that there is not a long term need for the City to hold the property in its present form.
She stated that the City Council is looking to the Plan Commission for some input on
whether the parcel should be considered as a stand-alone parcel or as part of the
larger redevelopment.
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Commissioner Kehr commented that she is familiar with the traffic volumes on McKinley
Road from driving her children to the high school. She stated that in her opinion, fewer
driveways and curb cuts will result in better overall use of the land. She stated concern
about locating a roadway adjacent to the single family homes to the east and stated
that instead, the existing alley could be widened to provide for access. She noted that
in another community, there was a public and private partnership to create
underground parking with a surface parking lot for public use. She stated that she
prefers to park in the overflow lot to the north of the Library, rather than crossing
Deerpath, particularly in the dark. She stated concern about mixing residential traffic
and traffic from the Library. She acknowledged that a traffic study would be provided
as part of any redevelopment proposal and asked that the mixing of traffic be
evaluated. She stated that it is difficult for the Commission to know what is financially
feasible, since the Commission does not get into that aspect of projects, in comparison
to what the community wants.
Hearing no further questions or requests for clarification from the Commission, Chairman
Ley invited public comment.
Catherine Lemmer, Director of the Library, stated that the Library Board appreciates the
opportunity to comment on the redevelopment of this area early in the process. She
provided some background on the programming offered by the Library now and the
ideas for programming in the future. She stated that the Library offers programs during
the day, in the evenings and on the weekends. She added that the Library also has
Sunday hours. She stated that 80 percent of Lake Forest residents have library cards
and last year, there was an average of 130 users each hour that the Library was open.
She stated that over 3,300 people attended recent children’s programs. She stated
that when she arrived at the Library, a goal was to increase the programs offered to
adults. She stated that this fall, over 65 programs, for adults and children combined, are
planned. She stated that the Library’s goals are similar to those discussed by the
Commission. She stated that there is a need for safer access for pedestrians and
bicycles near the Library. She stated that the existing overflow parking must be
maintained or, additional parking provided. She stated that she does not want
residents to stop using the Library because parking is difficult. She stated that safe
access is needed for seniors and for families with small children. She stated that she
does not want to see people pushed to use the parking lot on the south side of
Deerpath. She stated that the crosswalk is not visible and cars do not stop. She stated
that today, there are 45 parking spaces and 3 accessible parking spaces on the Library
site. She stated that the Library relies on the 16 overflow parking spaces behind the
Historical Society building. She confirmed that people park behind the Library and walk
around to the front. She stated that Library staff park in the municipal parking lot. She
expressed concern that with the addition of residential units in the area, traffic will
increase. She stated that a significant buffer will be needed between the new
residences and the Library noting that there is regular activity on the Library site such as
deliveries and late night book drop offs. She expressed concern about residents living in
new three story buildings looking down on the Library noting that at times, the site is busy
and noisy and the back of the building can appear unkempt at times. She expressed
Plan Commission Meeting Minutes – August 17, 2016 Page 7 of 11
concern about nearby residents complaining about the everyday activities. She noted
that the Library building and the surrounding courtyards are stunning and expressed
concern that if a three story building is constructed at the back of the Library, it will do
damage to the historic character of the building. She stated that the Library wants to
be a good neighbor and intends to stay involved in the discussion.
Carrie Travers, resident of Lake Forest for 20 plus years and Library Board Trustee, stated
that she is speaking on behalf of herself, not the Library Board. She stated that the
Library is a beloved institution and the most visited tax payer supported facility. She
noted that the Library has strong historical ties to the community. She stated that last
year, 441,000 individuals visited the Library. She stated that the Library is not just used by
people checking out books, but instead, it is used by people of all ages. She stated for
instance, it is regularly used as a tutoring center by high school students and others. She
stated that traffic studies should consider the Library as though it were a community or
senior center due to the variety of uses that occur there. She agreed that it is difficult to
navigate the parking lot. She stated that there is insufficient parking on the Library site
adding that they have not been successful in obtaining additional parking areas. She
added that the existing Library parking lot is convoluted. She said that before the City
parcel is sold, the City should work with the developer to assure that additional parking
is provided for the Library. She noted that for those parking on the south side of
Deerpath, there is a steep hill to climb to get to the front door of the Library and crossing
Deerpath is difficult. She stated that parking is more of a problem in this part of the
Central Business District than elsewhere noting that today; the parking lot on the south
side of Deerpath was full. She asked that a parking study be done when school is in
session.
Chairman Ley pointed out that the parking lots may seem more heavily used today
than usual because the parking lot behind City Hall is closed for resurfacing.
Dan Siebald, 560 Ivy Court, noted that the existing three story condominium building at
333 E. Westminster is hidden by trees. He questioned what is proposed for the
streetscape of the area to be redeveloped and requested information on the
architectural design of the buildings. He agreed that access on to McKinley Road
should be limited. He noted that sufficient parking should be provided in a creative
way, perhaps in the form of a two level parking deck. He questioned whether
underground access could be provided to the Library. He stated that it would be
beneficial to find residents that do not have cars. He stated that two parking spaces
are not needed for each unit. He agreed that it is challenging to cross the street to get
to the Library from the parking lot on the south side of Deerpath.
Andrew Lind, 338 E. Westminster, stated support for minimizing roads through the area
and accesses. He suggested that rather than monolithic buildings, the buildings should
be highly articulated similar to other buildings in the area. He suggested that the City
parcel should be developed with single family homes and space for parking for the
Library.
Plan Commission Meeting Minutes – August 17, 2016 Page 8 of 11
A resident of 775 McKinley Road stated that he walks down the alley from Westminster
to the Library frequently. He agreed that parking near the Library is difficult. He
encouraged the Commission to think about providing public space for the community.
He noted that there are not many parks on the east side of the community except
Forest Park. He stated that a park next to the Library, with parking below, could benefit
the community. He suggested that the Library could be expanded to include an
incubator for businesses to allow them to grow. He suggested consideration of row
houses along McKinley Road with underground parking. He stated that the new homes
could attract people who want to walk and bike and could be modest in price to
attract those who want to live in the community, but cannot afford to live here. He
stated that a plan should be developed to better use the space than the plans
presented to date.
Regina Lind, 338 E. Westminster, commented on the streetscape of Westminster noting
the condominium at 333 E. Westminster and the adjacent single family home. She
questioned whether larger structures on the City parcel would be appropriate. She
stated support for development of the City parcel with a single family home fronting on
Westminster.
Paul Hamann, 511 Beverly Place, asked that the Commission consider retaining overflow
parking for the Library on the City parcel and allowing the Historical Society to remain at
the present location until the new building is ready to avoid the need to move twice.
Hearing no further requests to speak, Chairman Ley invited staff response to public
comment.
Ms. Czerniak confirmed that the house at 373 E. Westminster was recently before the
Historic Preservation Commission and was approved for demolition. She stated that a
replacement residence was also approved by the Historic Preservation Commission
although no timeframe for that project is known. She confirmed that the owner of the
373 E. Westminster property is aware of the current discussions about the City parcel.
She noted that the City Council has been working closely with the Historical Society on
the time frame for vacating the City building.
Chairman Ley invited comments and high level direction from the Commission to staff
and the City consultant. He noted that the recommendations offered by staff could
serve as a framework for the Commission’s direction.
Commissioner Berg noted that part of the issue is the interplay between private and
public interests in this area. He encouraged continued discussions between the City,
Library and the developer. He noted that the Library representatives do not want to see
a three story building up against the back of the Library which lends itself to
incorporating some open space as a buffer between the Library and the new
development. He noted that the conversation should be how we can best capitalize
on the opportunities in the area for the benefit of the development as well as the
community. He stated that the ultimate goal is to create a good environment for
Plan Commission Meeting Minutes – August 17, 2016 Page 9 of 11
everyone. He suggested that consideration be given to incorporation of the City parcel
into the development site as an incentive to the developer to provide amenities that
the larger public will enjoy.
Commissioner Henry noted that the Commission should be realistic about what can
happen on the limited site. He noted that instead of fully developing the City parcel, it
can offer benefits through improved access or shared open space to benefit the
Library. He stated that the City should be focused on how the City parcel can be used
as an asset to enhance the development and as a negotiating tool with the developer.
He stated that the most important goal is to create a development that meets the
community’s needs. He stated that the architectural aspects of the project should be
left to the Building Review Board. He stated that the City has a key role because it owns
a valuable piece of property that can be used as an incentive to achieve the priorities
identified. He agreed that improved traffic flows and reduction of impermeable
surfaces in the area would be a benefit.
Commissioner Freeman noted the transitional nature of the area and commented that
today; the area is a jumble of odd parcels and awkward access. He stated that the
community has a good opportunity to create an appropriate transition in this area. He
noted that the existing density in the area is about 16 units per acre and what is
proposed should represent a good transition. He stated that along Westminster, the City
property could be developed in a manner that is consistent with the massing of the
single family homes in the area. He noted that importantly, the previous task force that
stu died this area and, after thoughtful deliberations, supported the direction that is now
proposed. He noted that the opportunity exists to achieve that vision now because the
parcels are now in the ownership of a single developer. He stated that in his opinion,
there is no need to mirror Market Square. He stated that the railroad physically
separates the two areas. He noted that preserving a sightline to the Library dome could
be achieved by creating a parklike setting north of the Library, similar to the front lawn.
He stated that an open space that enhances the back of the Library may benefit the
community more than a central, tree lined open space in the middle of three buildings.
He stated that a properly placed open space could aid in the transition from higher
density to the single family residential to the east. He stated that the green space
should not be buried and reserved for private use but instead, offer a community
benefit.
Commissioner Kehr stated that from a practical perspective, the Library needs more
parking. She noted that the City owns the adjacent property now and commented
that it would be short sighted for the City to not ensure that the Library has access to
additional parking. She stated that a joint effort between the City and the developer
could assure the long term viability of the Library. She agreed that the amount of
roadway and impervious surface should be limited.
Commissioner Berg noted that one of the concepts presented incorporates parking
behind the library, parking that is not there now. He noted that the addition of parking
Plan Commission Meeting Minutes – August 17, 2016 Page 10 of 11
in combination with green space could be a benefit to the overall development site
and the Library.
Commissioner Ruggles agreed that a green space north of the Library would be a
wonderful amenity and could tie the development into something special. She noted
that the draft recommendations presented to the Commission include great points. She
stated that although not the Commission’s purview, the architecture should be
respectful of the important buildings in the area and in Lake Forest.
Commissioner Culbertson agreed green space behind the Library is essential, whether it
mirrors the front yard of the Library or Market Square. He stated that the opportunity to
add parking for the Library on the north side of Deerpath should be acted on as part of
the redevelopment of the area. He stated that he is not sure that he can accept the
notion of the sale of the City property as a separate parcel. He stated that a
comprehensive plan needs to be developed before a decision is made to sell the City
property.
Chairman Ley asked that a condition be added limiting the development to three
stories. He stated that he would not be inclined to support a request for a height
variance. He stated a preference for a mix of two, two and half, and three story
buildings. He stated that as noted by a speaker, the 333 E. Westminster building is three
stories in height, but well screened.
Commissioner Henry pointed out that there is a grade change on the site and that the
Commission may need to allow for some flexibility due to that characteristic of the
property. He commented that with respect to the City property, the value of the parcel
may be higher to the community if it is used to achieve a good overall development.
He acknowledged however that he is not fully informed about the City’s need to
generate money.
Commissioner Kehr stated that her in her opinion, there is no amount of money the City
can get for the parcel that would justify being shortsighted with respect to the needs of
the Library. She encouraged joint efforts to meet the needs of the developer and the
community.
In response to questions from the Commission, Ms. Czerniak stated that the City Council
declared the property surplus based on the fact that the building is in deteriorated
condition and was recently approved for demolition. She added that the Council saw
an opportunity to evaluate the future of the City property in the context of the three
office parcels now planned for redevelopment. She stated that the Council asked the
Plan Commission to consider the area holistically and to recommend the highest and
best use for the City property, how it can bring the most value to the City over the long
term. She clarified that the developer does not need the City parcel to develop the
office parcels however; there may be a better end product if the area is considered as
a whole. She clarified that in discussions with representatives of the Church of the
Covenants, City staff learned that the Church intends to retain its property as a whole
Plan Commission Meeting Minutes – August 17, 2016 Page 11 of 11
which extends north of the Church and includes the single family house which is
occupied by a member of the congregation.
Chairman Ley stated that the wishes of the Church should be respected and that in his
opinion, the Church property should not be part of the conversation.
In response to a question from Chairman Ley, Ms. Czerniak encouraged the
Commissioners to review the draft recommendations and get any additional feedback
to staff.
Chairman Ley thanked all who participated noting that the discussion was very
productive and has established a good framework for the upcoming review of the
redevelopment plan.
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 8:25 p.m.
Respectfully submitted,
Catherine Czerniak
Director of Community Development