7.1 USD #305 PDD
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 1
ITEM:Ordinance No. 11-10618
Application #PDD 11-3, filed by Jones Gillam Renz on behalf of USD #305, requesting approval of a
preliminary development plan and a change in zoning district classification from C-1 (Restricted
Business), MH-P (Manufactured Home Park) and C-3 (Shopping Cente r) to PDD (Planned
Development District) to create a campus for a USD #305 Operations Center. The subject property is
an un-platted tract bounded by Southview Plaza, Auto Zone, Norris Furniture and a shopping center
on the east, Broadway Boulevard on the south, Hageman Avenue on the west and Cloud Street on
the north. The request area includes the former Hageman School site at 409 West Cloud Street.
BACKGROUND:
The Traco Trailer Court was est ablished at the southeast corner of Hageman Avenue and Cloud
Street in 1951. This trailer court was expanded to the east along the north side of Broadway Blvd. in
1955. The property was purchased by Joe Kroneberger in 1973 and he operated it as the Shady
Grove Mobile Home Park.
In 1981, a developer secured an option on a portion of Mr. Kroneberger’s property along Broadway for
the purpose of developing the Broadway Plaza Shopping Center. An application to rezone the
property from MH-P to C-3 (Shopping Center) district and a plat of the Broadway Plaza Addition were
recommended for approval by the Planning Commission but the plat was never finalized and recorded
and the project was later abandoned. Recently, the mobile home park use was abandoned, the site
was cleared of mobile homes and the property was put up for sale.
The Hageman School property on West Cloud was acquired by US D #305 by eminent domain in
1952. Hageman School was constructed in 1953 to serve the growing southwest portion of the
community. The original school contained 22,400 sq. ft. and major additions were constructed in 1955
and 1960 bringing the tota l building footprint to 39,346 sq. ft. The existing building has a rather
utilitarian design and is not protected from alteration or demolition. The school had a paved parking
area in front of the building t hat contained 24 parking spaces. Hageman Elementary School was
closed in 2003.
In 2004, USD #305 presented a plan for reusing the school building for offices and training purposes.
The Central Kansas Cooperative in Education (CKCIE) serves as a special education support agency
for 12 school districts in the surrounding area incl uding USD #305. USD #305 is the host school
district for the coop and they were located in the Hawthorne School building after it closed. The plan
was to move the education coop's administrators and staff to Hageman as well as the school district's
Management Information Systems (M IS) Department. There was al so proposed to be two staff
development computer lab classrooms in the building as well as a conference/meeting room for large
meetings and training workshops. A change in zoning from R-1 to C-1 was applied for to allow the
proposed change in occupancy from educational facility to administrative offices and meeting space.
No additions or alterations to the exterior of the existing school building were proposed. A number of
interior modifications were made to convert cla ssroom space to offices and meeting space. The
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 2
zoning request area included a 28 ft. x 300 ft. strip of land west of the school site that the school
district acquired through the condemnation process from Joe Kroneberger. The purpose of this strip
of land was to allow vehicles to go around the west side of the building to access a proposed parking
area that would be constr ucted south of the build ing. This new parking area was designed and
intended to accommodate visitors who attend training sessions and meetings at the facility.
The Planning Commission conducted a public hearing on USD #305's request to rezone this property
October 19, 2004
on. Following presentation of the staf f report, comments from USD #305's
representative and the legal representative of the adjacent property owner, the Planning Commission
voted 6-0 to recommend approval of the requested zoning change from R-1 to C-1 to allow the
proposed change in occupancy at the Hageman School building.
The Planning Commission offered the following reasons in support of C-1 zoning for this tract:
1. The existing facility is suitable for conversion to office and meeting space;
2. The subject site is adjacent to commercially zoned properties on the east and C-1 zoning would
serve as a buffer zone between the retail s hopping area and manufactured home park to the
west;
3. Additional parking will be pr ovided to serve the meeting / conference room spaces; and
4. The requested change is consis tent with the city's Comprehensive Plan because the facility will
still have an education related purpose.
The City Commission concurred with the recommendation of the Planning Commission and approved
an ordinance rezoning the property to C-1 on November 1, 2004.
Nature of Current Request
USD #305 recently purchased all of Mr. Kroneberger’s remaining land holdings and has combined
them with the Hageman Sch ool site and has filed a request for PDD zoning to create a USD #305
Operations Center Campus on a single zoning lo t. The two main differences between standard
zoning and a Planned Development District are (1) the PDD process allows the City Commission to
create a customized zoning distri ct for a proposed development in cluding limitations on and the
addition of uses as well as modified lot size, setback and other bulk and density limitations, as well as
to attach conditions of approval to any zoning change and (2) the PDD process allows the Planning
Commission to address concerns about the number and type of buildings permitted, the surfacing of
driveways and parking areas, adequacy of public utilities, site drainage and landscaping. In this case,
the School District is requesting an exception from the paved parking requirement in Section 42-552
(e) (2) to allow a gravel parking area around the proposed maintenance center / warehouse building.
The submittal by a developer and the appro val by the Planning Commission of a site
development plan represent a firm commitment that actual development will follow the
approved site development plan.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 3
The PDD process is generally a two step process. Step one is the filing of a preliminary development
plan application and submittal of a preliminary development plan. The preliminary PDD sets out the
development parameters and limitations for the site. A public hearing and recommendation by the
Planning Commission is required. Approval by the City Commission is also required. If the applicant’s
preliminary development plan and request for rezoning is approved by the City Commission, step two
would be coming back to the Planning Commission with a detailed final development plan for Phases
II and III if and when that development occurs in the future.
The applicant is requesting approval of a preliminary development plan for Phases I, II and III
of the operations center site and the fina l development plan for Phase I as well as the
appropriate zoning for the full 17.3 acres. A proposed site development plan and building
elevations for the proposed maintenance facility / warehouse building have been submitted by
the School District’s architect.
The preliminary development plan submitted by the applicant s hows a 43,000 sq. ft. warehouse
building and accessory parking and loading facilities along Broadway as Phase I of the campus.
Phases II and III would be an Alternative School and Special Education School in the northeast corner
of the property. There is no specific timetable for Phases II and III. The School District has no specific
development plans for the southeast corner of the property at this time.
In addition to the requested change in zoning district classification, this property has never been
platted. Section 42-8 of the Zoning Ordinance requires that land be subdivided in accordance with the
city’s Subdivision Regulations prior to rezoning any area to any district other than A-1. Therefore, an
official plat of this property must be approved and recorded before it can be rezoned from C-1, MH-P
and C-3 to a PDD. No final plat or plat application has been received yet for this property, but the plan
is to plat it as a single lot and block that w ould become the Hageman Addition to the City of Salina.
Stormwater run off control, access control on Broadway Blvd. and the need for utility extensions will
be addressed in the plat review.
Conformance of USD #305’s Development Concept with the Comprehensive Plan
th
The South 9 Street, Broadway Blvd., Cloud Street triangl e, what Planning staff has historically
referred to as the “Golden Triangle” because it was under utilized, is shown as a future Neighborhood
Center on the Future Land Use Plan map with the former Hageman School site shown as Public Use.
This area is also identified as an Area of Change in the Comprehensive Plan.
In the updated plan a Neighborhood Center is described as a smaller mixed-use node that consists of
locally focused services that can include a resi dential component. Convenience goods such as
smaller specialty grocery stores, personal services (dry cleaning, be auty salon, bank), restaurants,
gas stations and small office uses are primary co mmodities and services t hat are provided within
neighborhood centers. Smaller, appropriately scaled institutional uses such as churches, libraries or
schools are also appropriate for these centers. In their action adopting the updated Comprehensive
Plan, the Planning Commission and City Commission agreed that Neighborhood Centers should be
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 4
considered appropriate locations for educational facilities and other public facilities.
Civic and institutional uses such as schools and ot her educational uses are identified as secondary
uses in Neighborhood Centers which should be located on the edges of mixed use centers and serve
as a transition area between Neighborhood Centers and surrounding residential neighborhoods.
The plan states that the following development criteria should be used to evaluate new development
proposals in Neighborhood Centers:
The scale and style of development should be compatible with t hat of the surrounding
neighborhood.
Include amenities such as public focal points / spaces.
Streetscape and site design should be pedestr ian oriented both among uses and between uses
and neighborhoods.
Quality design and materials should be used for development to encourage long-term commitment
to a location.
Development should have a comprehensive urban design scheme.
Transitions / buffers between centers and less in tense adjacent uses and neighborhoods should
minimize the impacts of noise, light, traffic, oper ations and intensity of the center. Acceptable
buffering can include fencing (stone, wood, masonry), solid plantings, berming or other methods
that complement the development character.
The updated plan states that new Public Uses should be integrated with residential neighborhoods or
as part of a Neighborhood Center at a scale appropriate to surrounding development. The plan also
states that Public Uses should have convenient access to arterial streets, public transportation and
major utility lines.
The plan states that the following development criteria should be used to evaluate new development
proposals in Public Use areas:
The scale of development should respond to surrounding neighborhood development or provide
transitional buffering to reduce visual impact on surrounding properties.
Transitions between civic and institutional uses and surrounding neighborhoods should minimize
the impacts of noise, light, traffic, operations and scale of the use.
The design of civic and institutional uses shoul d strive to complement and enhance the existing
character of surrounding uses and neighborhoods.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 5
Planning staff has reviewed USD #305’s development concept and believes the proposed land use in
the proposed location and the School District’s applic ation for PDD zoning are consistent with the
Comprehensive Plan. It is up to the City Commission to decide whet her the details of the School
District’s preliminary development plan conform with the development criteria identified above and the
City’s development standards.
Suitability of the Property for Development Under the Existing Zoning
This factor deals with the suitability of the property for development under the current C-1, MH-P and
C-3 zoning, the length of time it has been vacant and whether the current zoning has inhibited the
development or redevelopment of this property.
The property west and south of Hageman School has been used as a mobile home park for 50 years
but is certainly one of the most underutilized properties in the city and could and should support a
more intense land use than indivi dual manufactured home sites. The existing MH-P zoning clearly
inhibits redevelopment of the property.
Character of the Neighborhood
This factor deals with whether the requested PDD zoning and the School District’s development plan
would be compatible with the zoning and uses of nearby property.
th
The west side of S. 9 Street south of Cloud Street is zoned C-3 and C-5 and is developed with retail
uses. The former Alco Plaza immediately east of Hageman School is largely vacant except for the
new Genesis Health Club but still has a large phys ical presence. The existing shopping center
building is 540 ft. long and contains 97,200 sq. ft. of space. The nor th side of Cloud Street is
th
residential in nature ex cept for the northwest corner of Cloud and 9 Street. The south side of
Broadway is lined with single-family homes that back up to Broadway. The west side of Hageman
Avenue contains a mix of small businesses.
The Comprehensive Plan envisions institutional and public uses as tr ansition or buffer uses on the
edges of Neighborhood Cent ers. The question for the City Commi ssion is whether the uses and
campus development plan proposed by USD #305 and their architect would be compatible with the
zoning, uses and development pattern on neighboring properties.
Public Utilities and Services
This factor deals with whether the proposed rezoning will create traffic congestion, overtax public
utilities, cause drainage problems, overload public schools, jeopardize fire or police protection or
otherwise detrimentally affect public services and whether the property owner or developer will provide
the public improvements necessary to adequately serve the development.
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 6
Adequate water, sanitary sewer, and gas and electrical lines are in place around the perimeter of this
site to serve the proposed school district facilities. Although this request would change the use from
residential to instit utional, the change in zoning classification and use proposed by the applicant
should not result in any additional burden on public facilities and services compared to a mobile home
park. Utility demands and fire protection needs may increase with the new occupancies being
proposed. The need for sizing of internal utility extensions will be addressed as part of the plat review.
Fire Department response would be provided by Station #2 which is located on South Santa Fe.
CONFORMANCE WITH STRATEGIC PLAN:
GOAL #1:
The City will create a community of quality, mixed-use development and
redevelopment.
Staff believes USD #305’s proposed redevelopment project conforms with this goal as it would result
in a quality development utilizing quality building materials on a site within an Area of Change that
has historically been underdeveloped.
Planning Commission Recommendation:
August 16, 2011
The Planning Commission conducted a public hearing on this PDD application on .
Following presentation of the staff report, comments from the School District’s representative and
comments and questions from Co mmissioners, the Planning Commission voted 7-1 to recommend
approval of a PDD zoning designation for this property, including a partial modification to the paved
parking requirement for the area in front of t he proposed maintenance shop, as requested by the
applicant and depicted on the development plan for Phase I, subject to the following conditions:
(1) Development limitations shall be as follows:
Permitted uses, within the Planned Development District, shall include:
a. Maintenance Shop
b. Warehouse
c. Vehicle service bays, including a car wash bay
d. Fueling station, with above ground tanks
e. Administrative offices
f. Copy center
g. Laundry
h. Library / Instructional Media Center
i. Master server room
j. Schools: primary, intermediate, secondary
k. Accessory off-street parking
l. Accessory outdoor storage
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 7
(2) Development shall be subject to the bulk r egulations specified in the R-3 (Multi-Family
Residential) district regulations.
(3) Signage shall be subject to Sect ion 42-517 of the Sign Regulations.
(4) Final site development plans for the Al ternative School and Special Education School
(Phases II and III) shall be reviewed and approv ed by the Planning Commission prior to
issuance of a building permit for either site.
(5) No development shall occur in the area identified as “undeveloped” until a final development
plan for this area has been reviewed and approved by the Planning Commission.
(6) The City Engineer shall a pprove plans and specifications for the proposed storm water
collection system and any detention / retention pond required prior to issuance of a building
permit for Phase I.
(7) The Director of Utilities shall approve plan s and specifications for any public water and
sewer line extensions prior to issuance of a building permit.
(8) A detailed planting plan and irrigation pl an shall be submitted and approved prior to
issuance of a building permit for Phase I. Tree and plant varieties shall be from the City’s
Recommended Tree List and Xeriscaping Plant List.
(9) The applicant shall submit a site lighting pl an conforming that no light shall spill onto
adjacent property and shall submit cut sheets for exterior lighting fixtures for review prior to
issuance of a building permit.
(10) Development of Phase I shall be complete d in substantial conformance with the approved
site development plan, landscape plan and bu ilding elevation drawings which are hereby
incorporated by reference.
(11) A building permit for this P hase I project shall be obtained wi thin 18 months of site plan
approval.
(12) A final plat shall be approv ed prior to final approval of the planned development district.
COMMISSION ACTION:
Staff has identified two primary issues for the City Commission to focus on.
Issue #1
Does the Commission believe the School District’s plan for a public education support facility on this
17 acre tract is consistent with the Comprehensive Pl an’s vision for this area as part of a future
Neighborhood Center?
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 8
Alternatives
1. Find that the School District’s development plan for this site is consistent with the
Comprehensive Plan.
2. Find that the School Distric t’s planned use of this property is not consistent with the
Comprehensive Plan.
Issue #2
If the Commission finds that the School District’s development concept is consistent with the
Comprehensive Plan, the second issue is whether the School District’s request for a waiver or partial
waiver of the paved parking requirem ent is justified by the circum stances in this case. Staff
emphasized to the Planning Commission the importance of making specific findings in support of a
waiver in order to distinguish this case from any requests for waivers that may come in the future.
Staff has identified the following alternatives for the Commission’s consideration:
1. Concur with the recommendat ion of the Planning Commissi on and approved the requested
zoning change from C-1, MH-P and C-3 to PDD, including the waiver of the paved parking
requirement in the area identified on the applicant’s development plan, with any conditions the
Commission deems appropriate.
2. Approve the requested zoning change from C-1, MH-P and C-3 to PDD but require all on site
parking, driving and maneuvering areas to be paved with asphalt or concrete.
3. Return this application to the Planning Commission to allow major revisions to be made to the
applicant’s proposed site development plan.
4. Postpone considerati on of the School District’s request if there is a ne ed for additional
information to make a decision on the requested zoning change.
5. Postpone consideration of t he requested zoning change until a final plat can be reviewed
concurrently with the development plan.
6. Deny the requested zoning change citing the reasons therefor.
If the City Commission is supportive of this r equested zoning change, a motion should be made to
approve Ordinance No. 11-10618 on first reading. The motion should indicate whether it includes or
denies the requested waiver of the paving requirement and reasons in support of granting or denying
the waiver. The protest period for this application expired on August 30, 2011 and no protest petition
was filed. Second reading of this ordinance would be held in abeyance unt il a final plat of the
property is considered.
Enclosures: Application
Vicinity Map
Site Development Plan
Floor Plan / Building Elevations
Excerpt of PC Minutes of 8/16/2011
Ordinance No. 11-10618
CITY OF SALINA
REQUEST FOR CITY COMMISSION ACTION DATE TIME
09/12/2011 4:00 P.M.
AGENDA SECTION ORIGINATING DEPARTMENT: FISCAL APPROVAL:
7
NO:
BY:
Development Services
Planning
FINAL APPROVAL:
ITEM
NO:1
BY: Dean Andrew BY:
Page 9
cc: Ken Kennedy, USD #305
Charles Renz, Jones Gillam Renz