Kelly's Bluff Zoning LRPC info
November 29,2005
The Honorable Mayor and City Council
City of Dubuque
50 w'13th Street
Dubuque, IA 52001
RE: Kelly's Bluff PUD
Dear Mayor and City Council Members:
INTRODUCTION
The Long Range Planning Advisory Commission has discussed the Kelly's Bluff PUD
(Planned Unit Development). The Staff report and draft minutes are enclosed.
BACKGROUND
On November 16, 2005, with 4 members present, Commissioners discussed the
proposed Kelly's Bluff PUD project within the context of the 2002 Dubuque
Comprehensive Plan. This discussion is detailed in the draft minutes of the
Commission's November 16, 2005 meeting.
ACTION
By a vote of 4 to 0, the Long Range Planning Advisory Commission passed a motion
that the Kelly' Bluff PUD is not consistent with the 2002 Dubuque Comprehensive Plan.
Sincerely,
Charles Winterwood, Vice-Chairperson
Long Range Planning Advisory Commission
Enclosures
cc: Michael Van Milligen, City Manager
Barry Lindahl, Corporation Counsel
Laura Carstens, Planning Services Manager
Tim O'Brien, Assistant City Attorney
MINUTES
LONG RANGE PLANNING ADVISORY COMMISSION
Wednesday, November 16,2005
7:00 P.M. [Q)~^ ~lJ
Auditorium, Carnegie Stout Library LJ
360 W. 11th Street, Dubuque, Iowa
PRESENT: Vice-Chairperson Charles Winterwood; Commissioners Jim Prochaska,
Patricia Cline, and Mary Lynn Neumeister; Staff Members Laura Carstens
and David Johnson.
ABSENT: Commissioner Rick Stein.
CALL TO ORDER: The meeting was called to order at 7:04 p.m.
CERTIFICATION OF COMPLIANCE: Staff presented an Affidavit of Compliance verifying
that the meeting was being held in compliance with the Iowa Open Meetings Law.
MINUTES: Motion by Cline, seconded by Prochaska, to approve the minutes of the
September 21, 2005 meeting as submitted, passed unanimously.
ACTION ITEM:
Comprehensive Plan Update: The Commission discussed the process used to create the
1995 Comprehensive Plan and 2002 Comprehensive Plan Update. Staff Member
Carstens explained the process incorporated community indicators for success. She
explained workshops involving community stakeholders were conducted to help identify
needs within the City. She also reviewed the process used to update the Land Use Map.
The Commission agreed to conduct community stakeholder meetings in January 2006 to
begin the Comprehensive Plan Update.
The Commission questioned how the Envision 2010 process relates to the update of the
Comprehensive Plan. Staff Member Carstens explained the Envision process is much
more specific in scope; however, there are concepts and ideas which would lend to the
Comprehensive Plan Update.
Consensus of the Commissioners was for Staff to have the updated list of key
stakeholders, the updated numbers for the community indicators, and the process outlined
with dates, times, and locations for commission review and approval at the December.
LIAISON/SUBCOMMITTEE REPORTS
Enterprise Zone Commission: No report
Long Range Planning Advisory Commission
November 16, 2005
Page 2
ITEMS FROM COMMISSION:
Kellv's Bluff PUD - is it consistent with the Comprehensive Plan: Vice-Chairperson
Winterwood said he has asked to have this item on the agenda. Staff Member Carstens
provided information on the Kelly's Bluff PUD (Planned Unit Development) and noted that
the Long Range Planning Advisory Commission has no review authority for rezonings.
Commissioners discussed the appropriateness of the proposed development within the
context of the surrounding area. Commissioner Neumeister generally felt that the
development would be inconsistent with surrounding historical structures. Commissioner
Cline stated there are a number of structures in proximity of the proposed development
that are not historical. Commissioners Cline and Neumeister specifically discussed the
hospital and 1960s homes located on the bluff.
Commissioner Neumeister and Vice-Chairperson Winterwood expressed concern that the
scale of the proposed development was too much for the size of adjacent housing. Vice-
Chairperson Winterwood was also concerned for the traffic impact the proposed
development would have on neighboring streets.
Several Commissioners agreed the development, as proposed, would be more
appropriately located in the Port of Dubuque. Commissioners discussed the
development's scale and whether the architecture is better suited for the type of
development encouraged in the Port. Commissioner Neumeister stated that the size and
scale of the development could be increased from what is proposed if located in the Port of
Dubuque, where it could be bigger and taller.
Vice-Chairperson Winterwood provided his review of the proposed Kelly's Bluff PUD
against the applicable Land Use and Urban Design Element's goals and objectives of
the 2002 Dubuque Comprehensive Plan. He stated that the proposed development
was consistent with objective 1.1 (Promote inclusive and economically integrated
neighborhoods that allow a diverse mix of residents and housing types) because it
would integrate with market rates. He felt the development would be somewhat
consistent with objective 1.2 (Provide a range of housing options throughout the
community). He stated the proposed Kelly's Bluff PUD would be inconsistent with
objective 4.5 (Limit development along bluff lines and protect scenic vistas).
Vice-Chairperson Winterwood felt the proposed development is not a City gateway and
would therefore be inconsistent with objective 5.1 (Define and enhance City gateways
and focal points to create a sense of place). He felt the development would be
inconsistent with objective 5.3 (Protect natural vistas from the clutter of inappropriate
physical development). Vice-Chairperson Winterwood also addressed objective 5.4
Long Range Planning Advisory Commission
November 16, 2005
Page 3
(Promote quality in the design and construction of new public and private development);
however, no opinion was expressed.
Vice-Chairperson Winterwood stated the proposed development is not really consistent
with objective 6.1 (Promote a compatible mix of land uses that create a diversified
urban environment that mixes shopping, employment, recreation and residential
opportunities where appropriate) because the office building is no longer part of the
PUD. He felt the development would be consistent with objective 6.3 (Limit sprawl and
aggregate travel time through use of mixed use developments). He stated the
development would help eliminate sprawl.
Vice-Chairperson Winterwood stated the Kelly's Bluff PUD would be inconsistent with
objective 7.1 (Encourage redevelopment or adaptive reuse of vacant or underutilized
buildings and sites) because St. Dominic's Villa has been demolished. He felt the
development would be consistent with objective 7.2 (Promote infill development, where
appropriate, to encourage more compact urban form and avoid needless and costly
sprawl). He stated the proposed development would be inconsistent with objective 7.3
(Promote redevelopment that maximizes existing infrastructure) because existing
structures were demolished; however, he felt it was also consistent because
infrastructure is readily available.
Vice-Chairperson Winterwood felt the proposed development is not sensitive to the
surrounding historic character and therefore is inconsistent with objective 9.1 (Enhance
the aesthetics of new and existing development -- design, landscaping, parking,
signage -- with special sensitivity to the historic character and building materials found
in the community). He felt that the development would be better on the riverfront than
on the bluff. He stated, and other Commissioners agreed, that no determination could
be made regarding objective 9.2 (Avoid negative impacts on established development
and street system) since a traffic study had not been completed. He felt the proposed
development was inconsistent with objective 9.3 (Encourage environmentally
compatible and sensitive design that fits the development site). Vice-Chairperson
Winterwood felt there may be a market for the proposed development and would
therefore be consistent with objective 10.1 (Consider the community's regional setting
and economy when assessing the opportunities and constraints for land development)
Commissioner Cline felt if zoning and a City Ordinance for bluff development were in
place, it would be easier to guide developers and to enforce. She discussed the
proposed development's distance from historic districts with other Commissioners. She
also felt it was difficult to determine heights of the proposed development, and would
like the developer to provide some way to visualize the height, such as with a crane on
the bluff site.
Long Range Planning Advisory Commission
November 16,2005
Page 4
Motion by Neumeister, seconded by Prochaska, that the Kelly's Bluff PUD is consistent
with the 2002 Dubuque Comprehensive Plan. Motion failed by a vote of 4 to O.
Motion by Neumeister, seconded by Prochaska, that the Kelly's Bluff PUD is not consistent
with the 2002 Dubuque Comprehensive Plan. Motion passed by a vote of 4 to O.
Vice Chairperson Winterwood asked Staff to forward the Commission's position to the City
Council and the Zoning Advisory Commission.
ITEMS FROM STAFF:
Envision 2010: Staff Member Carstens reminded the Commission of the Envision Town
Meeting on November 1yth at the Dubuque Greyhound Park and Casino. She explained
numerous sessions will be held to gain additional citizen input for City projects.
Elections: Staff Member Carstens informed the Commission that there are two applicants
for the two vacancies. Vice-Chairperson Winterwood asked that the elections be held in
January.
ADJOURNMENT: The meeting was adjourned at 8:32 p.m.
Respectfully submitted,
Laura Carstens, Planning Services Manager
Adopted
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MEMORANDUM
November 14, 2005
TO:
Long Range Planning Advisory Commission
FROM:
Laura Carstens, Planning Services Manager
SUBJECT: Kelly's Bluff PUD - is it consistent with the Comprehensive Plan
INTRODUCTION
Commission Vice-Chairperson Dr. Charles Winterwood has asked that the Kelly's Bluff
PUD be placed on the agenda for the Long Range Planning Commission's November
16, 2005 meeting for discussion of whether it is consistent with the Dubuque
Comprehensive Plan.
This memo transmits the revised River Pointe conceptual development plan submitted
by A. J. Spiegel, Royal Oaks Development. The subject property is locally known as
Kelly's Bluff. This plan is a revision of the proposal Mr. Spiegel submitted in September
2005. The number and size of the condominium units has been reduced, and the office
building has been eliminated. The proposed River Pointe project encompasses 4 high
rise condominium buildings, a senior assisted living facility, a community center and
swimming pool. Renderings of the project are enclosed.
An updated Planning Services staff report has not been prepared for the new PUD. The
staff report prepared for the previous PUD is enclosed for your information.
BACKGROUND
By City Code, the Comprehensive Plan is a guide, not an ordinance. The adopted Plan
includes 120 goals and about 250 objectives, some of which may compete with others
depending on the project. The Zoning Advisory Commission and the City Council must
consider various factors surrounding a rezoning case, in addition to the Comprehensive
Plan and its Proposed Land Use Map.
The Long Range Planning Commission does not have any powers, duties or
responsibilities in the rezoning process.
Kelly's Bluff PUD
Page 2
DISCUSSION
The requested rezoning to PUD Planned Unit Development with a PR Planned
Residential designation is to facilitate the construction of River Pointe, a residential
condominium development. The PUD District is intended to encourage flexible and
innovative design in the development of appropriate sites as integrated project units.
The proposed River Pointe Development is located at the intersection of Mazzuchelli
Place and Cardiff Street. The subject property was the former site of St. Dominic's Villa.
This building was recently demolished and the site graded and seeded by Royal Oaks
Development.
The current zoning for the project area is R-2 Two-Family Residential, which allow one-
and two-family homes, schools, churches, parks, and convents. The City's residential
districts accommodate large, multi-unit convents like the former St. Dominic Villa.
The land use designation shown on the Proposed Land Use Map of the Dubuque
Comprehensive Plan for the project area shows multi-family residential. The Proposed
Land Use Map is one component of the Comprehensive Plan, and serves as a guide for
rezoning, subdivision and annexation requests considered by the City Council.
Planning Services staff noted that this project involves the Comprehensive Plan Land
Use Element: Goals 1.1,1.2,4.5,5.1,5.4,6.1,6.3,7.1,7.2,7.3,9.1,9.2,9.3, and 10.1.
These Land Use and Urban Design Element goals (in bold) and objectives (in italics) of
the 2002 Dubuque Comprehensive Plan are listed below:
1. To protect and enhance the viability, livability and affordability of the city's
residential neighborhoods while integrating multifamily development
throughout the community.
1. 1 Promote inclusive and economically integrated neighborhoods that allow a
diverse mix of residents and housing types.
1.2 Provide a range of housing options throughout the community.
4. To balance open space and environmental preservation with the community's
development needs.
4.5 Limit development along bluff lines and protect scenic vistas.
5. Encourage that the physical character and form of the city reflects its historic
setting and that the built environment is compatible with the city's natural
environment.
5.1 Define and enhance city gateways and focal points to create a sense of place.
Kelly's Bluff PUD
Page 3
5.4 Promote quality in the design and construction of new public and private
development.
6. Encourage the concept of mixed use development to create diverse and self-
sufficient neighborhoods.
6. 1 Promote a compatible mix of land uses that create a diversified urban
environment that mixes shopping, employment, recreation and residential
opportunities where appropriate.
6.3 Limit sprawl and aggregate travel time through use of mixed use developments.
7. To encourage redevelopment opportunities within the city in an effort to
revitalize unused or underused property while promoting the preservation of
viable and affordable housing stock.
7. 1 Encourage redevelopment or adaptive reuse of vacant or underutilized buildings
and sites.
7.2 Promote in fill development, where appropriate, to encourage more compact
urban form and avoid needless and costly sprawl.
7.3 Promote redevelopment that maximizes existing infrastructure.
9. To promote principles of good urban design as part of all development.
9.1 Enhance the aesthetics of new and existing development -- design, landscaping,
parking, signage -- with special sensitivity to the historic character and building
materials found in the community.
9.2 Avoid negative impacts on established development and street system.
9.3 Encourage environmentally compatible and sensitive design that fits the
development site.
10. To plan for the city's future and orderly development within a regional context.
10.1 Consider the community's regional setting and economy when assessing the
opportunities and constraints for land development.
Enclosures
cc A.J. Speigel, Royal Oaks Development
Michael Van Milligen, City Manager
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PLANNED DISTRICT STAFF REPORT
Zoning Agenda: October 5, 2005
Project Name: River Pointe
Property Address: 600 Mazzuchelli Place
Property Owner: River Pointe Development, LLC
Applicant: Stott & Associates/A.J. Spiegel
Proposed Land Use: Residential/office
Proposed Zoning: PUD
Existing Land Use:
Vacant
Existing Zoning: R-2
Adjacent Land Use:
North - Residential
East - Residential
South - U.S. Highway 20
West - Medical services/residential
Adjacent Zoning: North - PR
East - R-3
South - OS
West - ID/R-2
Flood Plain: N/A
Total Area: 14.88 acres
Water: Yes
Existing Street Access: Yes
Storm Sewer: No
Sanitary Sewer: Yes
Previous Planned District: None.
Purpose: The requested rezoning to PUD Planned Unit Development with a Planned
Residential/Planned Office designation is to facilitate the construction of the River
Pointe development, comprised of 250 residential condominiums and a 36-unit assisted
living residence.
Property History: The property was the site of St. Dominic Villa until approximately
2003. The existing structures on this site have been removed by the current property
owner and the site has been graded and seeded.
Physical Characteristics: Access to the site can be obtained by either Mazzuchelli Place
or Cardiff Street. The site encompasses approximately 14.5 acres on what is locally
known as Kelly's Bluff. Approximately half the site is relatively flat while the remainder
is steep wooded slopes that abut property fronting on St. Mary's Street, U.S. Highway
20 and Kelly's Bluff Lane.
Conformance with Comprehensive Plan: The 2002 Comprehensive Plan Land Use
Map designates the property as multi-family residential. This project involves the
Comprehensive Plan Land Use Element: Goals 1.1, 1.2,4.5, 5.1, 5.4, 6.1, 6.3, 7.1, 7.2,
7.3,9.1,9.2,9.3, and 10.1.
Planned District Staff Report - River Pointe Development
Page 2
Information from the Long Range Planning Advisory Commission is also attached to
this staff report for the Commission's review.
Staff Analysis:
Streets: No new public streets are proposed as part of this development. The
proposed PUD will be served by a looped private drive that will be privately
maintained. Access to this site is from a single point, accessed by either
Mazzuchelli Place or Cardiff Street.
Sidewalks: The proposed development includes walking paths that provide
pedestrian circulation throughout the development.
Parking: Off-street parking is being provided for the proposed condominium
buildings and assisted living building. 2.5 parking spaces are provided per
condominium unit and .5 spaces per assisted living unit. The proposed parking
ratios meet or exceed the City Zoning Ordinance requirements.
Lighting: New outdoor lighting will need to be carefully designed to not adversely
impact adjacent property. The draft PUD Ordinance requires all outdoor lighting to
utilize 72-degree cut-off light fixtures for both freestanding and wall-mounted
applications.
Signage: Signage will be provided based on the OR Office Residential signage
requirements.
Bulk Regulations: The proposed structures in this PUD will be located in
substantial compliance with the submitted conceptual plan. The height of buildings
#1 and #3 will be stair-stepped with a maximum of seven (7) stories or 104 feet.
Buildings #2 and #4 are also stair-stepped with a maximum of 12 stories or 165
feet in height.
Permeable Area (%) & Location (Open Space): The proposed project will cover
approximately four (4) acres of the 14.5 acres available with impervious surface
including buildings, parking and drive areas. Open space is provided throughout
the project between buildings and the proposed private drives. A majority of the
green space is located on the west and south sides of the property.
Landscaping/Screening: The submitted conceptual plan indicates the existing tree
line is to remain as well as noting possible locations of new trees to be planted. A
detailed landscape plan is required as part of a future major site plan.
Phasing of development: None submitted.
Impact of Request on:
Planned District Staff Report - River Pointe Development
Page 3
Utilities: Existing City water and sewer mains already serve the subject site. The
Engineering and Water Departments have reviewed the conceptual plan and do
not anticipate any major issues regarding serving the proposed development.
Traffic Patterns/Counts: Access to the site is by way of either Mazzuchelli Place
or Cardiff Street. There are no traffic counts for either street. Mazzuchelli Place
heads to the west and intersects with James Street and Langworthy Street north
of the main entrance to Mercy Medical Center. Cardiff Street runs north and
south and intersects with West 3'd Street.
Public Services: Existing public services are adequate to serve the site.
Environment: Staff anticipates that the proposed development will have impacts
related to storm water management and erosion control during each phase of
development. The developer has indicated that storm water drainage will be
directed to the south away from existing residential homes located along St.
Mary's, West 3rd, and Cardiff Streets.
Adjacent Properties: The most likely impacts to adjacent property will be an
increase in the volume of vehicle trips utilizing Mazzuchelli Place and Cardiff
Street as well as a significant visual change to the area. Potential impacts to
adjacent properties during construction will include increased noise and
construction-related traffic. Storm water, rocks and dust will need to be carefully
controlled during construction to minimize impacts to surrounding properties.
CIP Investments: None proposed.
Staff Analysis: The proposed River Pointe Development is located at the intersection
of Mazzuchelli Place and Cardiff Street. The subject property is locally known as
Kelly's Bluff and was the former site of St. Dominic's Villa. The four (4) story concrete
building was recently demolished and the site graded and seeded by Royal Oaks
Development. The proposed River Pointe project encompasses four (4) high rise
condominium buildings and a senior assisted living residence. Access to the site is
located at the intersection of Mazzuchelli Place and Cardiff Street with a single access
point to the development. The internal roadways are private drives that will be owned
and maintained by the development. Parking facilities are provided both in surface
parking lots as well as underground parking garages that would serve the individual
condominium buildings. The developer has submitted renderings of the project
showing the proposed condominium buildings.
The proposed high rise condominium buildings will be either twelve (12) stories or
seven (7) stories in height. The buildings have a stair-stepped design where each
segment drops two stories from the adjacent portion of the building. The developer is
also proposing a community center and swimming pool in the center of the
development and is reserving an area in the northwest corner of the site for a possible
senior assisted living building. The developer has indicated that a maximum of 250
condominium and 36 assisted living units will be built.
Planned District Staff Report - River Pointe Development
Page 4
The proposed development includes both surface and underground parking. The
proposed off-street parking will meet or exceed the City of Dubuque's Zoning Ordinance
requirements. Based on the number of dwelling units, approximately 625 off-street
parking spaces for the condominiums will be provided when River Pointe is fully built
out. Parking for the 36-unit assisted living residence is proposed as .5 spaces per unit.
Planning staff may require additional parking spaces for the assisted living residence
during site plan review once more details are known regarding the number of
employees, anticipated average age of the residents and services offered residents.
The City of Dubuque Engineering and Water Distribution staff members have met with
the developer and reviewed the proposed development. Currently, the site is served by
City water and sewer. However, some upgrades to those utilities will be necessary to
accommodate the proposed development. The Water Distribution Division staff has
recommended that an additional a-inch water main be installed as part of the project to
create a service loop within the development. This will help ensure adequate pressure
and quantity of water should there be a water main break.
The developer and City Engineering staff have identified storm water control as an
important issue on this project. The developer and Engineering staff have agreed that
storm water be directed to the south away from existing developed residential areas to
the east and north. The area to the south is currently vacant land along U.S. Highway
20. The proposed development includes areas reserved for storm water detention. The
storm water will be detained on-site as required by City standards. The proposed
project increases the impervious area from 1.5 acres to approximately four (4) acres
when compared to the former use of the site as St. Dominic's Villa. Detailed storm
water calculations and detention basin design will be reviewed as part of the site plan
review process.
The City's Fire Chief and Fire Marshal met with the project developer and have
reviewed, on a preliminary basis, the needs of emergency services. The proposed
height of condominium buildings #2 and #4 will require that they be built to high rise
building standards. Any building over eight stories is designed to playa more active
role in protecting the occupants during a fire to allow additional time for emergency
personnel to reach the occupants. Fire and Building Department staff will review
detailed building and sprinkler system plans for all structures as part of the normal
review process for new buildings. The developer indicated that there may be a gated
entrance to the development. The Fire Chief and Fire Marshal recommend having a
preemption device similar to that used by emergency vehicles in the City to preempt the
traffic signs at City intersections to facilitate access to the development by emergency
vehicles.
The applicant has submitted a traffic study completed by WHKS & Company that
reviews potential impacts to the surrounding street system from the proposed
development. A copy of the introduction and executive summary are attached to this
staff report. In addition, a copy of a letter providing updated information requested by
City staff is attached.
Planned District Staff Report - River Pointe Development
Page 5
Access to the site is provided by Mazzuchelli Place and Cardiff Street. Mazzuchelli
Place intersects with James Street and Langworthy Street near the main entrance to
Mercy Medical Center and Cardiff Street intersects with West 3rd Street immediately to
the north. Cardiff Street is built to the City's residential street standard of 31-foot of
paving and 50-foot of right-of-way. Cardiff's intersection with West 3rd Street is
substandard in terms of its transition grade exceeding 3%. Mazzuchelli Place is
substandard in terms of its paving width. Currently, Mazzuchelli Place is paved to a
width of 20 feet with parking prohibited on both sides. There are no current traffic
counts for either street. The accident history was reviewed for Cardiff Street and
Mazzuchelli Place and their intersections with surrounding streets. The data base
provided by the Iowa Department of Transportation indicated that there have not been a
significant number of accidents in the last four years and none of the accidents involved
personal injuries. The information is included on Page 11 (Figure 5.8) of the traffic
study.
The proposed River Pointe Development could generate approximately 1,400 average
daily trips when fully developed. Vehicle trips were estimated based on information
obtained from the Institute of Transportation Engineers Trip Generation Manual utilizing
the average rate for high-rise condominiums and assisted living facilities. The number
of vehicle trips initially will be much lower in the initial phases of the project and
increase as each new building is constructed. As an example, when condominium
building #2 with 95 units is built, it will generate approximately 390 average daily trips.
Attached to this staff report is a copy of the Engineering Department's memorandum
that reviews the submitted traffic study findings.
Typically, residential developments with this number of dwelling units have more than
one access point to help ensure adequate emergency response in the event a storm
blocks the access because of fallen trees or power lines. Staff has reviewed this issue
with the developer who indicated there is no other feasible access to the property
without buying adjacent property. In addition, the topography of the site limits the
feasibility of alternative access points. The City's Fire Department did not object to the
single point of access for the project provided that entrance is designed to minimize the
potential for it to be blocked.
Planning staff recommends that the Zoning Advisory Commission review Section 3-5.5
of the Zoning Ordinance that establishes criteria for reviewing planned unit
development projects and Section 6-1.1 that establishes criteria for reviewing rezoning
requests.
Prepared by:
Reviewed:
Date: