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PLAN COMMISSION 2015/10/22 Minutes The City of Lake Forest Plan Commission Proceedings of the October 22, 2015 Regular Meeting A regular meeting of the Lake Forest Plan Commission was held on Thursday, October 22, 2015, at 6:30 p.m., at City Hall, 220 E. Deerpath, Lake Forest, Illinois. Commission members present: Chairman Michael Ley and Commissioners Rosemary Kehr, Guy Berg, Lloyd Culbertson and Michael Freeman Commissioners absent: Commissioners Jeff Kuchman and Tim Henry 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. He noted that Commissioner Freeman was recently appointed to the Commission and welcomed him. 2. Information and Input: Consideration of a request for approval of a Special Use Permit for a car wash, gas station and convenience store located on the southeast corner of Everett and Waukegan Roads. Applicant: Waterway Gas and Wash Company Henry Dubinsky, Officer and Director Property Owner: IP Properties Lake Forest, LLC Robert D. Stuart, Jr. 1996 Declaration of Trust Alexander D. Stuart Representative: Ken Magnus, Bleck Engineering Chairman Ley asked the Commission for any conflicts of interest or Ex Parte contracts. Commissioner Freeman stated that he met Mr. Goldman but stated that he will be able to consider the petition impartially. He swore in all those intending to speak on this matter and invited a presentation from the petitioner. He stated that the Commission is not scheduled to take action on this petition at this meeting. Mr. Goldman introduced the petition and the members of the project team. He provided background on the Waterway Gas and Wash Company. He noted that high quality customer service is the basis of the company. He stated that the business locations are not franchises. He described the full range of car wash services that are offered and noted that gas pumps and convenience stores are provided as part of the business. He stated that the business locates in high quality communities. He described Plan Commission Meeting – October 22, 2015 Page 2 of 12 the proposed location, on the southeast corner of Everett and Waukegan Roads, the site of a former gas station and Pasquesi Garden store. He noted that the site is a t the entrance to the commercial district. He noted that currently, the site is covered with asphalt and deteriorating buildings. He stated that the business does not operate 24 hours, but has more limited hours. He stated that the car wash equipment is designed to minimize noise. He reviewed the site plan noting that the area of the greatest activity is located as far as possible away from the adjacent residential development. He reviewed the operations as envisioned on the site and reviewed a site circulation plan. He reviewed the proposed ingress and egress from the site noting that the curb cut on Everett Road is proposed as an exit only. He stated the intent to limit turning movements from the northernmost curb cut on Waukegan Road to certain times during the day. He stated that the southernmost curb cut on Waukegan Road will be configured to carefully direct traffic. He presented an artist’s image of the propose d building noting that the architectural style is based on other buildings in the area. He stated that the building is 6,400 square feet. He provided various streetscape views. He talked about the perimeter of the site noting that a brick wall is proposed between the development and the residential area to the east. He stated that there have been initial conversations with the neighbors and their ideas are being taken into account to provide an enhanced barrier. He stated that the landscape plan is being prepared by Mariani, a local landscaper. He pointed out that along Waukegan Road, plantings may be limited by IDOT but stated that significant plantings are proposed at the corner of the site, near the intersection. He reviewed some changes made to the plans since the materials were provided to the Commission. He stated a willingness to work with neighbors to replace trees on their properties if additional screening is desired. He acknowledged the neighbors’ concerns about lighting and stated that only LED lights will be used on the exterior of the building and on the site. He stated that light fixtures will be selected to limit light spillover to areas off the site. He stated that the new business will generate sales tax revenue for the City. He stated that the property is zoned B-1 and that a Special Use Permit is required for the gas station and car wash. He stated that the B-1 District is intended to meet the needs of residents in the area. He noted that there are limited opportunities to get gas in the area and no car washes within several miles. He stated that the store will offer convenience for residents. He stated that Waterway businesses provide a service for people passing by and do not add to traffic already using the nearby streets. He described the queuing for the car wash noting that up to 12 cars can be accommodated, more than is needed. He stated that the company uses products that are environmentally friendly and recycles water. He noted that an electric vehicle charging station will be provided. He stated that all applicable standards will be followed, City, State and Federal. He stated the intent to continue a dialogue with the neighbors. He stated that there will always be a manager on site noting that the position involves years of training. He stated that Waterway will be involved in the community. Ms. Czerniak reviewed the process. She stated that to date, staff has met with the petitioner and received some preliminary plans for the site which were provided to the Plan Commission Meeting – October 22, 2015 Page 3 of 12 Commission and made available to the public. She stated that a full set of engineering plans has not yet been submitted. She stated that this meeting is an opportunity for the Commission, nearby property owners, businesses and residents to hear about the project and identify areas of concern. She noted that at the conclusion of the meeting, the Commission should provide direction on whether there is general support for the petition and whether or not further work should be pursued. She noted that the property was in the ownership of the Wilson family for many years and was developed with the gas station and the Pasquesi Garden store. She noted that during some seasons, traffic in the past was fairly heavy at the site. She stated that several years ago, the Wilson family sold the site to a developer and a plan was approved to redevelop the property with a stand-alone drug store and a smaller building that could accommodate several tenants. She stated that during the review of that proposal, concerns about traffic and impacts on the neighboring residential properties were discussed. She stated that due to a change in market conditions, the approved development did not proceed and the property changed ownership. She stated that the Waterway petition is now before the Commission as a new development proposal. She noted that the City is planning some improvements to the intersection of Everett and Waukegan Roads, the addition of some turn lanes. She noted however that the project is not yet funded. She noted that as currently configured, there are four curb cuts from the site on to Waukegan Road. She stated that the current proposal would reduce the number of curb cuts on Waukegan Road to two and noted that the petitioner is giving some thought to limiting turning movements at those points. She stated that since Waukegan Road is under the State’s jurisdiction, IDOT will need to review and approve the ingress and egress plans. She noted that the site is at the entrance to the business district along Waukegan Road and is an important part of the streetscape. She stated that it will be important to understand how the proposed development will be screened from the adjacent residential development to the east and south. She noted that the plan as presently proposed appears to provide very limited areas for plantings along the property lines. She stated that given the adjacency to residential development, lighting, noise and hours of operation need to be carefully considered as well. She confirmed that the property is zoned for commercial use, small scale retail and service businesses that support local residents. She stated that in recent years, the City has received calls from residents expressing concern that the property is an eyesore and is not produc ing any sales tax revenues for the City. She concluded stating that the design aspects of the project will require review by the Building Review Board at the appropriate point in the process. In response to questions from Commissioner Culbertson, Mr. Goldman stated that the parcel is 71,000 square feet and the proposed building, 6,600 square feet. He stated that most of the Waterway parcels are about an acre, to an acre and a half in size. He stated on this site, a smaller building is planned than is typical. He stated that the retail area will be about 2,500 square feet and the car wash tunnel and equipment room, just over 3,000 square feet. He added that there will be mechanical rooms as well. He stated that as presently planned, left turns out of the site on to Waukegan Road will be Plan Commission Meeting – October 22, 2015 Page 4 of 12 limited at the northernmost access. He stated that left turns out of the site from that location would not be permitted during peak traffic times. He reviewed the internal site circulation plan and confirmed that the fuel pumps can be accessed from both sides. Commissioner Culbertson observed that there is the potential for some traffic congestion near the fuel islands with two way traffic and traffic entering the car wash. In response to questions from Commissioner Culbertson, Mr. Goldman confirmed that the loudest part of the car wash operation is the vacuum condensers. He said the machinery will be located inside the building, surrounded by stone and brick. He stated that the dryer, inside the building, also generates noise. He stated the sound can be baffled, but not silenced. Commissioner Culbertson asked that going forward, more information be provided on how sound will be deadened. In response to questions from Commissioner Culbertson, Ms. Czerniak confirmed that the Code allows fences to be a maximum height of seven feet unless a variance is granted. In response to questions from Commissioner Culbertson, Mr. Goldman, commented on the proposed exterior materials for the building stating that final decisions have not yet been made. In response to questions from Commissioner Berg, Mr. Goldman confirmed that the loudest part of the car wash is the exit. He stated that the entrance is very quiet. He explained that the tunnel is approximately half the width of the building and confirmed that the layout is driven by the configuration of the site. He pointed out that most customers who get gas, pay at the pump, and do not go inside the store. He reviewed the location of the parking spaces on the site noting some spaces near the store. Commissioner Berg suggested that providing access from Everett Road to the gas pumps could be beneficial. He stated that providing access to the site from both Waukegan and Everett Roads would eliminate the need for some difficult left turns. In response to questions from Commissioner Berg, Mr. Goldman reviewed the height of the canopy over the gas pumps and the lighting proposed in that area. He stated that the car wash and the convenience store need to be in one building because customers need to be in one place. Commissioner Kehr thanked Waterway for considering doing business in Lake Forest. She stated concerns about turning movements on to Waukegan Road particularly at times when there is a long queue of traffic at the intersection. She stated that she experienced the queuing at the intersection earlier in the afternoon. She pointed out that a church, school, fire station and the railroad tracks are all located near the Plan Commission Meeting – October 22, 2015 Page 5 of 12 intersection. She suggested that consideration be given to permitting only right turns out of the site near the intersection. In response to questions and comments from Commissioner Kehr, Mr. Goldman stated that the project traffic consultant will look closely at all turning movements. He noted that some provision needs to be made for a left turn out of the site, on to Waukegan Road. Commissioner Freeman acknowledged that the site is challenging, but noted that the proposed uses meet a need in the community. He expressed appreciation for Waterway’s interest in doing business in Lake Forest. He directed questions to City staff. He said that he is interested in having more analysis completed on the traffic study by the City Engineer and in understanding traffic patterns and accident conditions in the area prior to 2008, when the prior businesses were operating. He encouraged staff to look at all of the site plan alternatives that have been considered to date by the petitioner’s team. He acknowledged that the State controls Waukegan Road. He directed questions and comments to the petitioner. He stated that he does not fully agree that the proposed business will not be a destination for some people. He expressed concern about the location of the gas fuel islands, remote from the retail store. He noted concern about the limited options for cars exiting the car w ash noting that some modifications could be made to the finishing area to route traffic in more of a one way fashion. He expressed concern, having been a patron of Pasquesi’s, about the left turns into and out of the site noting he remembers them being difficult at some times and noted that traffic was often backed up at the intersection complicating turning movements. He stated concern about the queue that will be generated by the car wash. He noted that there appears to be limited space on the site for queuing. He stated that all 18 versions of the site layout developed by the petitioner should be re- evaluated. Chairman Ley stated concerns about the internal traffic circulation noting that it seems as though the current layout could cause some confusion. He stated that in his opinion, traffic will be coming to the site primarily from the north, east and west, with only limited traffic from the south. He offered various options for ingress and egress and asked that further study be done on traffic patterns. He asked that ingress and egress be reviewed with consideration given to the various traffic patterns that occur in the area at different times of day. In response to questions and comments from the Commission, Mr. Goldman stated that the project team includes traffic experts and pointed out that many options were studied to date. He agreed to study traffic further. Hearing no further questions from the Commission, Chairman Ley invited public testimony and swore in all those intending to speak. Plan Commission Meeting – October 22, 2015 Page 6 of 12 Richard Sugar, 1059 Mar Lane, stated that the edge of his property is 50 feet from the edge of the proposed development. He stated that he is also speaking as the President of the Lake Forest Chateau Homeowners’ Association. He stated that the Association submitted a letter to the Commission. He emphasized that the issue of greatest concern to the homeowners is traffic impacts on Mar Lane. He stated that cars exiting the car wash tunnel will turn right on Everett Road and then turn right again on the Mar Lane and circle back to Waukegan Road. He stated that Mar Lane is already used by some cars as a cut through when traffic is heavy and the intersection is backed up. He stated that additional traffic through the neighborhood, on the narrow road, is a safety issue noting that the area has no sidewalks. He asked that consideration be given to eliminating any access on to Everett Road from the development and asked that all traffic enter and exit on to Waukegan Road. He added that mitigating the noise and light is also important. Joe Passalino, 631 W. Everett Road, stated that his father built the Lake Forest Chateau development which is located to the east of the proposed car wash. He agreed that directing traffic east out of the car wash, on to Everett Road, will create traffic in the Lake Forest Chateau residential development. He noted that the roads in that development are not designed to support cut through traffic. He suggested that no egress or ingress be permitted on Everett Road. He noted that the Church and school both generate traffic on Everett Road. He said that if access to Everett Road is permitted, traffic should be encouraged to turn left on to Everett Road. He stated that he would like to see the proposed development move forward, but only with access from Waukegan Road. Dan Sebald, 560 Ivy Court, stated that he is neutral on the proposed use of the property. He questioned what the life span of the buildings will be and asked what will be sold at the convenience store. He questioned what percentage of the sales will be alcohol and tobacco. He questioned whether the proposed building will fit with the context of the surrounding buildings. He expressed concern about people walking from the gas pumps to the store. Wayne, a resident of Mar Lane, stated that Everett Road is congested during school start and end times. He stated that there are similar services offered by nearby businesses and commented that the proposed use will make the area more congested. He stated that the car wash in Northbrook is in the middle of now where rather than adjacent to residential development. He stated that the proposed use does not belong on this site. Delores Schwartz, 1036 Mar Lane Drive, said that her property backs up to the proposed car wash site and stated that the proposed development will impact her property value. She stated that traffic from the business will use Mar Lane. She questioned why the City would allow this type of use at this location but did not approve Costco. She Plan Commission Meeting – October 22, 2015 Page 7 of 12 stated that the car wash and gas station will not present an ideal welcome into Lake Forest. She stated that the proposed use will be a detriment to the area. Gary Span, 1111 S. Waukegan Road, stated that he lives in the townhouse complex located to the south of the property proposed for redevelopment. He stated that he is a Board member. He stated that the property line is within 10’ of the northern townhouse building. He stated that the constant flow of cars at the ten gas pumps will be a severe detriment to the property. He stated that there is no need for this use. He pointed out that gas is available at Costco and that there is a car wash nearby on Route 41. Mary, 1111 Waukegan Road, stated that she is a Board member of the townhome development. She stated that traffic from the townhomes enters and exits on to Waukegan Road. She noted that Waukegan Road dips and curves many times making site lines difficult. She noted that the traffic lanes are backed up for long distances. She asked for clarification about the types of uses permitted in the B-1 zoning district. At the request of Chairman Ley, Ms. Czerniak responded to questions from the speaker, explaining that the B-1 zoning district is intended to provide goods and services for local residents. She stated that gas stations are permitted in the B -1 district as a special use. Gretchen Siedel, 1111 Waukegan Road, agreed that traffic will be funneled through the residential neighborhood on Mar Lane. She stated that the increased traffic will impact pedestrians in the area and people walking to the train station who will need to cross several curb cuts along Waukegan Road. She agreed that traffic backs up in the area noting that the proposed use will generate more traffic in the area. She disagreed that the proposed development will not be a destination. She expressed concern about the hours of operation noting that people live right next door. She stated that the lights will be an issue. She noted that there is a car wash in east Lake Forest and noted that it has shorter and more reasonable hours. She asked that the residents in this area be given the same consideration as residents in other areas of the community. Laura Berk, 1111 S. Waukegan Road, stated that her unit and bedroom face the site and stated that she will be directly impacted by the lights. She expressed concern about the hours and the noise. She added that she is very concerned about increased traffic in the area noting that making a left turn out of the townhomes is difficult now. Jill Kaz, 1045 Mar Lane, stated that she visited the Northbrook Waterway and found it to be a beautiful facility. She noted however that the noise from the blowers in the car wash is really loud. She stated that it is her understanding that a good business day is 500 cars. She stated that the proposed business will attract traffic from outside the local area. She stated that currently, the business district is walkable but the proposed business seems to be a disconnect from the character of the area. Plan Commission Meeting – October 22, 2015 Page 8 of 12 Hearing no further public comments Chairman Ley asked for staff response to public testimony. Ms. Czerniak stated that staff has noted the comments heard so far from the Commission and the public, in particular, the concerns about traffic, site circulation, noise and light. She stated that given the number of site layouts considered by the petitioner, staff review of alternative concepts will be worthwhile. She stated that the City Engineer and his associates are working to complete their review of the traffic study. She noted that as part of the ongoing review, attention will be paid to the concern about cut through traffic on Mar Lane. In response to questions from Commissioner Kehr, Ms. Czerniak stated that staff has not yet received input from IDOT on the proposed plan. In response to questions from Commissioner Berg, Ms. Czerniak stated that she has no specific knowledge about minimum IDOT requirements. She noted however that reducing the number of curb cuts on Waukegan Road is likely to be seen as a positive. She confirmed that in the plan approved for a previous development on this site, one of the buildings was closer to the street, with parking internal to the site. She acknowledged that layout was intended to enhance the streetscape and the entrance to the commercial district. She noted however that existing commercial developments in this area have parking along the streetscape. She confirmed that the earlier redevelopment plan for this site received approval from the Plan Commission, Building Review Board and City Council, but was never constructed. Commissioner Berg commented that on a smaller site like this, screening parking from the streetscape may be easier than on a larger site. Chairman Ley invited a response to public testimony from the petitioner. Mr. Goldman clarified that there will be no self-service car cleaning services on the site. He stated that the hours of the car wash will be more limited than those for the fuel pumps. He stated that more information will be brought forward on the traffic to respond to the concerns raised. He stated that more fuel pump islands than are needed are proposed specifically to minimize queuing on the site. He stated that the site is not expected to be a high volume site. Chairman Ley invited final questions from the Commission. In response to questions from Commissioner Kehr, Mr. Goldman confirmed that to date, there have only been informal discussions with IDOT about the curb cuts on Waukegan Road. Plan Commission Meeting – October 22, 2015 Page 9 of 12 In response to questions from the Commission, Eric Russell, Traffic Engineer, KLOA, stated that a submission was made to IDOT several weeks ago but no comments on the plan have been received to date. He noted that currently, there are four curb cuts on Waukegan Road but only two are proposed to serve the new development. He stated that the curb cuts will be shifted to the south, away from the intersection , to the extent possible. He stated that the proposed curb cut on Everett Road is at about the same location as the existing easternmost curb cut on the site. He acknowledged that IDOT may restrict access near the intersection to right in/right out. He stated that IDOT is not likely to restrict access to the site by prohibiting all left turn movements along Waukegan Road. He stated that the curb cuts are located to improve sightlines over what exists today. He stated that Everett Road is under the City’s jurisdiction. He stated that the queuing at the intersection was studied and noted that at times, it extends beyond the curb cut proposed on Everett Road so, the exit, as proposed, is proposed to only allow exiting to the east. He stated that based on study to date, traffic does clear out of the intersection to create gaps long enough for cars to make left turns out of the site and on to Everett Road. He stated that this is a c hallenging site but added that efficient ingress and egress can be provided in a manner that avoids impacts to the neighborhoods. He reviewed traffic counts taken in July and in April. He noted that a gap study was done in August, when school was in session, to help determine the best ingress and egress solutions. In response to questions from Commissioner Freeman, Mr. Russel acknowledged that some modifications to the proposed ingress and egress or to the turn lanes at the intersection may be necessary. He noted that consideration could be given to shortening the left turn lane on northbound Waukegan Road to provide the opportunity for left turn movements out of the site. He stated that IDOT would need to be consulted. In response to questions from Commissioner Freeman, Ms. Czerniak stated that the City could install signs at the entrance to Mar Lane stating that the road is for local traffic only but noted that enforcement of that type of restriction is difficult. In response to questions from Chairman Ley, Mr. Goldman stated that the store will not sell alcohol but will sell regular convenience store items. He noted that greeting cards and high end candy are popular items at Waterway stores. He stated that the hope is to break ground for the project in spring, 2016. He stated that buildout normally takes five to six months. Chairman Ley stated that the threshold question of whether the proposed use is appropriate for the site should be considered by the Commission. He noted answering that question will allow the Commission to appropriately direct the petitioner and staff as to whether further study of the various concerns raised is worthwhile. Commissioner Berg stated that the concept of a gas station at this location makes sense. He stated however that various aspects of the plan need to be improved Plan Commission Meeting – October 22, 2015 Page 10 of 12 including internal circulation and the location of the fuel pumps in relation to the cashier. He stated that significant reconfiguration of the site plan should be considered. He suggested that the car wash be sited to direct noise to Waukegan Road. He added that a buffer area is needed around the perimeter of the site to protect the adjacent residential development. He stated that he is not opposed to the proposed uses , but would like to see further study and modifications to address the concerns raised. Commissioner Kehr stated that the Commission needs to understand what IDOT may approve. She stated appreciation for the public comments and agreed that there appear to be some flaws in the traffic studies completed to date. She stated that Everett Road is a problem because the Church and school are across the street and because of the potential for cut through traffic on Mar Lane and Franz Court. She stated that those roads are narrow. She stated that the existing driveway from the townhomes to Waukegan Road is also problematic. She stated concern about the hours of operation. She stated that she would like to see a business at this location that residents would patronize but noted concern about the impacts on the adjacent residential areas. She suggested reducing the hours of operations. She acknowledged that some of the concerns raised will apply to the site no matter what use is proposed. Hearing no further comments, Chairman Ley suggested that based on the comments from the members of the Commission, it would be appropriate to continue the matter to allow the petitioner to study the issues raised, prepare alternate plans, and provide additional information. Commissioner Freeman stated that at this point, he is not in favor of sending the petition to the Building Review Board because of the open items. He acknowledged that the property is zoned for a commercial use but stated that the Commission needs to understand what the State will allow with respect to Waukegan Road. He added that further study is needed with respect to the entrance for south bound traffic on Waukegan Road and the proposed exit to Everett Road. Chairman Ley summarized the comments of the Commission noting that a motion to continue the petition could include direction to staff and the petitioner that until the open items are addressed, the petition not be forwarded to the Building Review Board. He added that the Commission would like feedback from IDOT on ingress and egress along Waukegan Road and would like to see the petitioner be flexible with respect to the site plan in order to address the concerns raised. He noted that traffic will find its way to avoid congestion with possible unintended impacts. In response to questions from Commissioner Berg, Ms. Czerniak stated that her understanding is that for a new development that will take access from Waukegan Road, IDOT approval is required. She stated that it is unlikely that IDOT would prohibit all access to or from Waukegan Road. Plan Commission Meeting – October 22, 2015 Page 11 of 12 Chairman Ley reviewed the staff recommendation in the context of the Commission’s discussions and invited a motion. Commissioner Freeman made a motion indicating the Commission’s general support for the proposed uses and the Special Use Permit subject to satisfactory resolution of the areas of concern identified by the Commission and by the public. He stated that the petitioner is directed to further develop the proposal, provide additional detail and return to the Commission for a final recommendation upon completion of the following: 1. Consideration of alternative site plans taking into account the concerns about internal circulation, relationship of the fuel islands to the retail store, queuing on the site, ingress and egress from Everett and Waukegan Roads, overall traffic patterns in the area, the potential for cut through traffic on Mar Lane, light and noise impacts on the adjacent residential property and the overall character of the streetscape. 2. The petitioner is directed to respond to questions, comments and requests for additional information pertaining to the Traffic Study. 3. The petitioner is directed to continue to work with IDOT to confirm whether the number, configuration and location of curb cuts on Waukegan Road as proposed are acceptable, whether the turning movements as proposed are acceptable and whether any modifications will be required to Waukegan Road. Commissioner Culbertson seconded the motion. Chairman Ley invited discussion on the motion. Commissioner Culbertson stated general agreement with the comments from the other Commissioners and with the public comments. He reiterated some key concerns that need to be addressed including the potential for increased cut through traffic on Mar Lane, the proposed hours of operation, internal circulation and providing for safe pedestrian access along Waukegan Road for those who may be walking to the train station. He stated that alternate site plans should be considered. He added that the petitioner should present specific details on how noise from the site will be mitigated. Chairman Ley stated that the public hearing will remain open if the motion to continue the petition is approved by the Commission. He called for a vote on the motion. The motion was approved by a vote of 5 to 0. Plan Commission Meeting – October 22, 2015 Page 12 of 12 Chairman Ley thanked those in attendance for participating in the review process. He stated his hope that a plan can be developed that both the petitioner and the neighbors can support. 3. Public testimony on non-agenda items. There was no public testimony on non-agenda items. 4. Additional information from staff. There was no additional information from City staff. The meeting was adjourned at 8:32 p.m. Respectfully submitted, Catherine Czerniak Director of Community Development