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PLAN COMMISSION 2013/10/09 MinutesThe City of Lake Forest Plan Commission Proceedings of the October 9, 2013 Meeting A regular meeting of the Lake Forest Plan Commission was held on Wednesday, October 9, 2013, at 6:30 p.m., at City Hall, 220 E. Deerpath, Lake Forest, Illinois. Commission members present: Chairman Michael Ley and Commissioners Augie Ziccarelli, Lloyd Culbertson, Jeff Kuchman, Guy Berg and John Anderson Commissioners absent: Commissioner Jim Carris 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. Information – Northwestern Lake Forest Hospital, 600 Westmoreland Road, -- Introduction of plans for the Central Campus and the replacement hospital and introduction of preliminary evaluation comments from the City Manager’s Hospital Advisory Committee. Property Owner: Northwestern Lake Forest Hospital Representatives: Tom McAfee, President, Northwestern Lake Forest Hospital Mark Shoemaker, Principal, Pelli Clarke Pelli Architects Thomas Oslund, Oslund and Associates Chairman Ley asked the Commission to declare any conflicts of interest or Ex Parte contacts, hearing none; he noted that this matter is before the Commission for information only at this time and that the Commission will not take any action at this meeting. He stated that there will be an opportunity for public comment after the information is presented. He invited introductory comments from staff. Ms. Czerniak described the review process to date for the revitalization of the hospital campus. She stated that the Plan Commission began its review of a new Master Plan for the hospital campus in September, 2011. She stated that the Plan Commission’s review spanned five meetings and concluded with the Commission forwarding a recommendation in support of the Master Plan and the associated Special Use Permit to the City Council in May, 2012. She continued noting that the City Council, based on the recommendation of the Plan Commission, approved the Master Plan and Special Use Permit in October, 2012. She stated that the Special Use Permit and Master Plan approved the revitalization of the hospital campus project and established parameters for the detailed plans. She explained that during its discussions, the Plan Commission expressed concern that given the complexity and magnitude of the hospital campus revitalization project, it would be beneficial to have some way for the City to stay in touch with the hospital project team during the Plan Commission Minutes – October 9, 2013 Page 2 of 9 design development process. She noted that upon the recommendation of the Plan Commission, and at the direction of the City Council, the City Manager appointed the Hospital Advisory Committee to bridge that gap. She noted that the Advisory Committee is an adhoc working group, not a public body, and has met close to monthly with the hospital team to review the site plan, building elevations and other elements of the plan as the design process has moved forward. She stated that similar to the process the Commission is working through with Woodlands Academy, the detailed plans for the hospital are now back before the Commission for confirmation that the plans are consistent with the requirements, conditions and stated intent of the approved Master Plan and Special Use Permit. She stated that the Advisory Committee is close to completing its work on some elements of the plan and stated that this meeting is intended as an introduction of the detailed plans. She stated that at a future meeting, the plans will be brought back, likely in phases, with a recommendation from the Advisory Committee. She explained that ordinarily, detailed landscape plans and signage plans are not presented at this point in the process and noted that the Advisory Committee stated support for moving the site plan and building aspects of the project forward to provide certainty to the hospital and to allow detailed plan development to proceed in those areas. She clarified that the Plan Commission is charged with verifying that the plans presented are in conformance with the prior approvals. She reiterated that at a future meeting, the Commission will receive a recommendation from the Advisory Committee. She noted that Commissioner Ziccarelli is a member of the Advisory Committee and serves at the direct link to the Plan Commission. Tom McAfee, President of Northwestern Lake Forest Hospital noted that considerable work has occurred over the past few years to get the project to this point. He stated that to date there have been over 25 meetings held to discuss the project at various stages. He stated that the Hospital is pleased with the progress to date. He stated that last week, the hospital held a meeting for neighbors to show the progress to date on the plans and the response was good. He noted that the Master Plan identified the replacement hospital as a block set in the middle of campus because at that time, design work had not yet been done. He stated that the hospital hired a strong design team, experienced in designing both hospital interiors and the exterior. He noted that throughout the design process various people and groups have been consulted. He stated that the hospital team has received good support from the City’s Hospital Advisory Committee. He pointed out that to fulfill commitments made during the early phase of the process, the hospital advanced work on the road connection to Route 41. He stated that the connector road is expected to be open by the end of November. He introduced the members of the project team and invited a presentation from Mark Shoemaker. Mr. Shoemaker, principal, Pelli Clarke Pelli, stated that his firm is excited to be working on this important project in the wonderful Lake Forest community. He provided an overview of the design work to date. He explained that work began with the detailed site plan before moving into the building design. He stated that the intent of the hospital is to create a health and wellness campus as a civic project. He Plan Commission Minutes – October 9, 2013 Page 3 of 9 reviewed the existing hospital campus and presented the proposed site plan for the Central Campus. He stated that the design takes into account all of the issues discussed during the Master Plan review and adoption process including, but not limited to: stormwater management, wetlands, traffic mitigation and the building height. He noted that the after considerable study, the building massing is a three story design, below the five story structure authorized by the Master Plan. He noted that the building has a podium base and a series of vertical pavilions. He pointed out that the building itself migrated east on the site, toward Route 41, away from the residential areas. He noted that the building is designed consistent with the direction in the Master Plan to direct traffic to the east and west. He noted that stormwater management is an active part of the site design. He asked Tom Oslund, the landscape architect for the project, to comment on the overall site design. Mr. Oslund stated that the overall design began with the goal of creating a connection between the site, the architecture of the new building and its location in Lake Forest. He noted that the positioning of the building was based on consideration of the existing drainage and vegetation on the site. He noted that the building is sited to create a feature element and takes the form of a series of pavilions around a 6-1/2 acre water feature. He reviewed the location of the new connection to Route 41 in relation to the site plan, the access from Waukegan Road and pointed out the commons, a 2 acre open space near the main entrance to the hospital. He noted that cues were taken from Market Square for the design. He pointed out the new access road from Waukegan Road, south of Westmoreland Road, which provides direct access to the service and emergency areas of the hospital. He noted that by respec ting the existing topography and doing some grading on the site, the residences to the south and west are sheltered from the hospital campus. He pointed out the areas where drumlins, a series of small mounds, are proposed to further screen views into the campus. He noted that the existing berm along the backyards of the homes on Lane Lorraine will remain and will be enhanced with drumlins and additional vegetation to make it a stronger edge. He noted that the existing parking lot near the Lane Lorraine properties will be reconfigured to move it further away from those properties. He noted that overall, the parking areas are located west and north of the existing parking on the hospital campus. He pointed out that a sustainable approach is proposed with use of permeable pavers in the drive lanes of the new parking lot. He pointed out that beyond the parking lot, to the west; there will be an area of wet meadow which will serve as part of the stormwater management plan for the site. He stated that other elements of the stormwater management system for the site are located on the eastern side of the replacement hospital. He stated that just over 1,230 parking spaces will be provided on the campus. He reviewed the pedestrian and vehicle circulation routes through the campus noting that the plan provides over 70% of open space on the overall campus and over 65% open space on the Central Campus, the location of the replacement hospital. He stated that the hospital has taken seriously the goal to create a campus on which there is a symbiotic relationship between the landscape and the architecture. He reviewed the proposed landscape themes for each area noting the buffer areas, open field, wet meadow and bioswales. He stated that the Plan Commission Minutes – October 9, 2013 Page 4 of 9 wet meadow will help filter the stormwater as it moves across the site and before it reaches the detention pond. He reviewed a section of the site noting the use of the existing grades on the site to create a unified campus. He reviewed sections of the berm areas near the neighboring residential properties. He reviewed the pedestrian and bicycle circulation plans noting the intent to provide connections to existing trails and sidewalks at the perimeter of the campus consistent with the City of Lake Forest Bicycle Master Plan. He pointed out walking paths and fitness paths. He reviewed initial concepts for signage on the campus and on the building noting that study of the signage is still underway. Mark Shoemaker talked about the building and how it relates to the height discussion during the Master Plan approval process. He reiterated that the building is three stories in height with screened roof top mechanical penthouses in the center of each pavilion reaching a height of 75’. He stated that the building will be perceived as a three story building noting that the complex is comprised as a series of masses forming a village properly scaled for the site. He noted that great pains have been taken to look at the building from different vantage points off the site and he reviewed views of the new building. He presented views of the building approaching along the main entrance to the hospital noting the intent to make the approach friendly and engaging. He commented on the lake side of the building pointing out the two basins of water with a water fall feature between the two for aeration. He noted that the water features provide a combination of sound and movement. He noted the circulation spine on the east side of the building which links all of the pavilions. He described the architecture of the building as embracing the Prairie style, with horizontal elements and a closeness to the land. He noted the sunscreens on the windows explaining that they will function to screen light from the building as well as provide screening from sunlight. He noted that no decorative lighting is proposed on the building or site but instead, only lighting needed for functional reasons is planned. Mr. McAfee offered closing remarks noting that the plan was developed with consideration of three very different vantage points. He commented that first, taking into account the view of the community and addressing the major concerns that were raised during the Master Planning process. He commented that the City Advisory Committee was very helpful in assuring those issues were addressed as the plan developed. He commented that second, the building height and size of the building were carefully considered noting that the height and overall size are both less than approved in the Master Plan. He commented that third, there was a focus on leveraging the 160 acre campus to create a destination for health and wellness. He explained that the goal was to stitch together the existing campus with the existing amenities on the campus to provide engaging walking trails, biking trails and a commons area that can be used in much the same way as the lawn in front of the high school. He stated that in his opinion, it is brilliant the way the architects have leveraged the need to provide for detention by incorporating the water features as a nice aspect of the project. He thanked the Commission and invited comments. Plan Commission Minutes – October 9, 2013 Page 5 of 9 Chairman Ley invited comments from Commissioner Ziccarelli as a member of the Hospital Advisory Committee. Commissioner Ziccarelli stated that he is fortunate to be one member of the nine- member Hospital Advisory Committee. He explained that the Committee’s purpose is to provide constructive feedback to the hospital project team throughout the design development process. He stated that the Committee serves as a check and balance against the Master Plan. He pointed out that the Committee has raised questions and challenges as well as presented criticism to the hospital project team as the design process has moved forward. He noted that the Advisory Committee is a diverse group including an architect, developer, builders, engineers, a landscape architect and a former Senator. He stated that the challenges presented have been met with a great deal of responsiveness from the hospital project team. He reviewed that to date; the Advisory Committee has had eight meetings with the hospital team, each about 3 hours in length. He stated that at each meeting, after meeting with the hospital team, the Committee spent time discussing the project amongst itself, putting thoughts together and summarizing comments to be presented to the hospital team. He noted that the Committee has been sensitive to various topics and noted that the Committee’s discussions were in depth discussions on the various topics often considering specific aspects of the plan over a series of two or three meetings. He noted that the Committee has spent time reviewing exterior lighting, drainage, wetlands and mitigation, environmental impacts of the development, traffic flow, walking distances from the parking lot, impacts on neighboring properties, drop off and pick up functions, the existing and proposed grades on the site, the elevation of the finished floor in relation to the site, HVAC equipment, sightlines to the building from various points, future expansion opportunities and the system of walking trails and bike paths. He reiterated that each topic was a significant point of discussion and that questions received a response. He stated that the meetings were productive and that the hospital team was respectful of the Committee members. He noted that he is intrigued by the hospital’s goal to have people not only visit the hospital when they are sick, but for the campus to serve as a health and wellness facility, a place to keep people healthy. He noted that the as mentioned, work on the road connection to Route 41, which was a condition of the prior approvals, has already started. He stated that the plans for the replacement hospital are developing consistent with the Master Plan. He stated that speaking for himself, he is proud of what the group has accomplished and proud of the plans presented to the Plan Commission. Chairman Ley invited public comment and swore in all those intending to speak. Michael Beachman, 630 Meadow Wood Drive, stated his hope that there would not be a traffic light at the intersection of the new south access road and the entrance/exit on to Waukegan Road. Rob Rourke, 1130 Emmons Court, Middlefork Farm, commented that the plan is very thoughtful. He noted continuing concern however about impacts on neighboring Plan Commission Minutes – October 9, 2013 Page 6 of 9 property owners. He questioned how neighboring property owners will be compensated if there is an impact and how that could be quantified. He pointed out that berms would not be part of the plan if no impact was anticipated. He questioned who would bear the risk if people do not want to move into the area. He asked that some consideration be given to some sort of an escrow account that could be used to compensate nearby residents if the appraised value of homes in the area do not increase the same as homes in other areas of the community. He stated that since the hospital is benefitting from the project, it should bear some responsibility for addressing any financial the impacts. Helen Hall, 908 Barclay Circle, Lake Forest Place, pointed out her cottage on the map. She stated that she is uncomfortable with the proximity of the development to her backyard. She asked for clarification on the setback distance from her property. She stated that she attended the recent meeting held by the hospital and felt better about the plan after understanding that a three story building is proposed. She stated that her major concern is the cars trying to enter Westmoreland Road from the new hospital access road. At the request of Chairman Ley, Mr. Oslund confirmed that a 75’ buffer is planned along the south side of Westmoreland Road. He clarified that the 75’ distance will be measured from the south edge of the road. Bill Rahe, 917 Barclay Circle, stated that his cottage backs up to Westmoreland Road. He noted that the plan is very sensitive to neighbors to the west and south, but not as sensitive to the neighbors to the north. He compared the 75 foot setback in this area to the large setbacks to the south and west. He stated that 370 residents live in Lake Forest Place, more than in the other areas. He noted that in an earlier diagram, the 75’ foot distance was measured from the north edge of the road. He stated that another major concern is the proposed access road from Westmoreland Road to the hospital entrance. He stated that if the road is a two way road as planned, in the evening, particularly in the winter, the headlights from the cars will shine on the rear of the cottages located in that area. He stated that although they have a berm on their side of the road, it is not high enough to shield the headlights. He stated that the buffer for Lake Forest Place should be at least as great a distance as the buffers in the other areas. He stated that if the access road is added along Westmoreland Road between the entrance to Lake Forest Place and Waukegan Road, it will result in traffic congestion in that area. He pointed out that many drivers traveling in this area are elderly. He suggested that if it is needed, the access road should allow one- way traffic only, into the hospital, to eliminate turning movements on to Westmoreland Road. He asked that all of the lighting along the road be eliminated. As an alternative, he suggested that the access road could be aligned with the road into the Fitness Center. He stated that it would be easy to make these changes to the plan. Mellissa Knorr, 910 Lane Lorraine, asked for further information about the traffic that will travel on the south access road from Waukegan Road. She questioned whether Plan Commission Minutes – October 9, 2013 Page 7 of 9 emergency vehicles as well as regular vehicles would use this road. She asked for clarification on the location of the emergency room and the type of lighting associated with the entrance to that area. She stated that at Condell Hospital, the lighting at the emergency entrance is harsh. She stated that if this area faces the homes, the lighting could be a negative impact. She stated that overall; she appreciates the attention to light spillover from the building into the neighborhood. She asked for further clarification on what will be visible from her home in the winter noting that her house sits at a higher elevation than the site. She stated that with the existing berm, views of the site are visible from her home today. She asked that adequate, year round landscaping be provided. She talked about the height of the parking lot lights in relation to the height of the berm and asked that the hospital continue to be mindful of the potential for offsite lighting impacts. She stated her preference that the existing berm remain intact and be augmented with additional berms and plantings. Chairman Ley invited a response to public testimony. In response to public testimony, Mr. Shoemaker indicated the location of the emergency room, away from the residential neighborhood. He added that the ambulances will pull into a garage. He stated that there is no expectation that lights from that area will impact the neighboring properties. He confirmed that the light will be contained. He added that the ambulance entrance will have a large overhang. In response to questions from Commissioner Berg, Mr. Shoemaker commented on the north pavilion explaining that it is proposed as a two story element and will serve as the clinic with its position at the north end of the building. He stated that beyond Phase 1 of the hospital campus revitalization, this pavilion can be increased in height to accommodate growth. He reviewed the footprint of the north pavilion in relation to Westmorland Road explaining that the corner of the building will be articulated recognizing its prominence near the intersection of the new entry road at what will essentially be a gateway to the hospital. He stated that he has no concerns about the potential for a third floor on this pavilion. He stated that it will continue to feel well scaled, appropriate for the site, and not crowded. He confirmed that the Advisory Committee will have the opportunity to further consider the treatment of this pavilion. He added that he anticipates that a vegetative buffer will be incorporated into the plan along Westmoreland Road in this area to frame the building and the water feature in the area. He agreed to provide a model that represents the other building on the campus and in the nearby area for reference. In response to questions from Commissioner Anderson, Mr. Shoemaker described the uses that will take place in the various building areas. He commented on the circulation spine that will connect all of the building elements. He confirmed that the three pavilions to the south are patient bed pavilions and that the podium base will contain various diagnostic and operational areas. He reiterated that the emergency entrance is located at the south end of the building. Plan Commission Minutes – October 9, 2013 Page 8 of 9 In response to a question from Commissioner Anderson, Ms. Czerniak confirmed that the 75’ buffer on the north side of the campus is measured from the south edge of Westmoreland Road. She acknowledged that the buffer area was inaccurately located on an earlier plan. In response to questions from Commissioner Culbertson, Mr. McAfee confirmed that no traffic signal is planned at the intersection of the new south access road and Waukegan Road. He noted that road is part of the overall plan to address the direction from the City that traffic from the replacement hospital be directed to the east and west, away from Deerpath. He stated that the southern access from Waukegan Road will be used by staff and others and will reduce the amount of traffic on Westmoreland Road, near Lake Forest Place. He discussed the new access road off of Westmoreland Road commenting that the addition of a one way road on the campus could cause safety issues. In response to questions from Commissioner Culbertson, Mr. Shoemaker provided more information on the lighting within the building. He noted the sun screen which will serve a dual purpose shading sun coming into the building and lighting leaving the building. He pointed out that the brighter side of the building faces Route 41, not the adjacent neighborhoods. He stated that in the parking areas, the lights will be kept as low as possible while still providing effective lighting. He stated that fixtures will be selected that properly shield the source of the lights from view. Commissioner Kuchman commended the hospital project team for a great presentation. He stated that the plan presented is a dramatic improvement over the plan that could have been submitted based on the Master Plan. He thanked the hospital team for its efforts. Commissioner Ziccarelli suggested that as a follow up to questions from Commissioner Culbertson, a photometric plan should be presented to the Advisory Committee as part of further discussions on the lighting. In response to questions from Chairman Ley, Mr. McAfee stated that a traffic consultant has been engaged throughout the process. He noted that the introduction of the access road from Westmoreland Road to the hospital entrance is viewed as necessary in order to not overload Westmoreland Road. He added that this road gets people right to the front door of the hospital for efficiency and clarity. He noted that the Advisory Committee strongly supported the access road consistent with the Master Plan. He confirmed that the new south access road from Waukegan Road is intended for employees and ambulances, but will be open to others. In response to questions from Commissioner Culbertson, Mr. McAfee reviewed traffic patterns for staff entering the site traffic from the north, from Route 41. He stated that there will be controlled access to the employee parking areas and noted that the hospital is able to designate where employees on different shifts park. He confirmed Plan Commission Minutes – October 9, 2013 Page 9 of 9 that as use of the site occurs, the hospital will work with City staff to make any modifications to traffic circulation routes or parking deemed necessary. Commissioner Ziccarelli agreed to take the Commissioners’ and the public’s comments and questions back to the Advisory Committee. He offered an observation that in the long term, any future addition of pavilions will occur at the south end of the building noting that further encroachment toward Lake Forest Place would not occur. Hearing no further comments or direction from the Commission, Chairman Ley stated that the hospital will come back to the Plan Commission with a more detailed plan for Commission action at a future meeting. He commented that with respect to the suggestion regarding an escrow, that concept will be challenging but asked that the matter be given some thought. 4. Testimony on Non-Agenda Items There were no comments on non-agenda items. 5. Additional Information from Staff At the request of Chairman Ley, consideration of the 2014 Plan Commission meeting schedule was postponed to allow time for further review by the Commission. The meeting was adjourned at 7:54 p.m. Respectfully submitted, Catherine Czerniak Director of Community Development