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HomeMy WebLinkAbout2025/01/08 - ADMIN - Minutes - Planning Commission - RegularOfficial Minutes Planning commission January 8, 2025 6:00 p.m. 1 Planning commission Members present: Jim Beneke, Mia Divecha, Matt Eckholm, Sylvie Hyman, Jan Youngquist, Tom Weber, John Flanagan, Estella Hughes (youth member) Members absent: none Staff present: Laura Chamberlain, Gary Morrison, Sean Walther Guests: Jeff Miller, consulting planner, HKGI 1. Call to order – roll call. Approval of minutes – Nov. 6, 2024, Dec. 4, 2024, Dec. 18, 2024 It was moved by Commissioner Hyman, seconded by Commissioner Youngquist, to approve the Nov. 6, Dec. 4, and Dec. 18, 2024 minutes as presented. The motion passed unanimously. 2. Hearings. 2a. Title: Comprehensive plan, zoning ordinance and zoning map amendment – residential districts Case No: 24-26-CP, 24-27-Z Ms. Chamberlain and Mr. Morrison presented the report. Commission Hyman asked about the alley requirements and if this is specified as car vs. sidewalk access. Mr. Morrison stated it is vehicle and driveway access that it refers to. Commissioner Youngquist asked about minimum lot sizes in the N1 district and the relationship to the comprehensive plan. She asked if the smallest lot size in N1 is 3,600 square feet. Mr. Morrison stated yes with alley access. She asked about the square footage and density, because that minimum lot size does not equate to 18 units per acre. Mr. Morrison stated this district includes lot sizes at 40-foot lots, which are a reduction from the 60 feet minimum today, and allows duplexes to be built on a 40-foot-wide lot. Mr. Miller added the density is also a reflection of allowing triplexes in low density residential areas. Chair Divecha asked about the net decrease in acres for some land use designations but also noted park acreage increases in the land use table and asked for more explanation of this. Ms. Chamberlain stated the comprehensive rezoning was an opportunity to clean up the designation of properties around the city including some park and open space parcels. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 2 Chair Divecha asked about the net decrease in industrial as well. Ms. Chamberlain stated with the comprehensive rezoning, staff also applied new mapping standards to the zoning map and revealed some inconsistencies with where district boundaries were drawn and these changes also influenced these numbers. Chair Divecha asked about the front yard requirements of 25 feet and adjustments based on existing conditions. Mr. Morrison clarified the requirement is the greater of 25 feet or the closest existing front yard setback on that side of the block. Chair Divecha asked, related to the zoning map with residential districts, is this the appropriate time to talk about zoning to mixed-use. Mr. Walther stated this zoning code update to the city’s residential district standards has been worked on for almost 2 years now and is actually phase 1 of 3 phases, so after residential zoning is addressed, staff and planning commission will begin review of the other districts including commercial, industrial, office. He added the 3rd phase relates to parking, lighting, signs and other performance standards. He stated the mixed-use portion would fall into the 2nd phase of discussion. He added any parcel proposed to change is on the table for discussion today and more detail can be provided if the discussion leads to any of those parcels. Commissioner Beneke asked if something is designated as park open space, can it be changed to something else. Mr. Walther stated, yes, it could. However, there are added requirements to convert properties, for example, any comprehensive plan land use change requires a supermajority of five votes statewide. He added that after the city prepared to and ultimately sold some of its excess land in the mid-2000s, the city also created a new parks and open space zoning district, rezoned several park properties to park and open space, and adopted regulations requiring a supermajority of five votes to rezone park property, which is unique to St. Louis Park. He stated if a parcel is zoned park and open space there must be 5 council members in support to change this, which is meant to be an added layer of protection. Commissioner Hyman asked if all parcels designated park and open space are owned by St. Louis Park. Mr. Walther stated that was initially the case, but since initially establishing the district St. Louis Park has expanded it to include the Minnehaha Creek Reserve owned in part by Minnehaha Creek Watershed District and Meadowbrook Golf Course which is owned by Minneapolis Park and Recreation Board. He added a sliver of land in the northeast part of the city is also proposed to become park and open space with this zoning map change that is owned by City of Minneapolis. He added one notable exception is the Minneapolis Golf Club which is zoned single-family residential today and proposed to change to N1. He stated this is a privately owned parcel and the city has not approached them about changing the zoning. Chair Divecha opened the public hearing. David Rickheim, 4038 Quentin Ave., stated he has owned his home for 3 years and was a renter in St. Louis Park for 4 years. He stated generally he is in favor of the proposals and has fol lowed this process for some time. He stated this is a balancing act of nuances, intentions, and wants Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 3 and he is looking forward to phase 2 and noted the missing middle is a big deal and is not as radical as some fear, but can allow residents to enjoy this more over time. Bob Kusnetz, 2530 Inglewood Ave. S., is the president of the Fern Hill Neighborhood Association. He stated the group has worked on grants to remove invasive species and create pollinator-friendly gardens. He stated on behalf of the Fern Hill Neighborhood Association he would like to request that the north parcel, which was Lilac Way or Highway 100, be changed to N1 or open park space, remain park space. He stated they believe that land is best as open park space and moving to N1 would contradict the policy of making it more of an open space . He encouraged the commission and city council to keep it open park space. Karen Laukkonen, 3401 Zarthan Ave., stated she is the founder and director of Restore Lilac Way which she founded in 2007. She stated her project documents the preservation and restoration that has happened on Lilac Way over the years. She stated there are only 3 of the 1930’s parks left, and St. Louis Park has 2 of them. She stated the community does support the rezoning of the north parcel and wants to keep it park and open space and not have it residential under N1 zoning. She stated this area is home to native pollinators, deer and turkey as well and the community wants both parcels to keep it at resident ial and park open space. Sasha Shahidi, resident of the Wolfe Park neighborhood and commissioner on the Environmental and Sustainability Commission, noted the ESC formally and unanimously recommended the France Avenue parcel be rezoned to park and open space to prevent the possibility of development there. She added personally she recommends the land east of Minnekahda Vista Park and the land north of Rock Island Park to park and open space and not N1 or N2. She stated this will protect that land in the long run as opposed to rezoning it as N1 or N2 which could then allow the land to be developed in the future . She added building low- density housing that sacrifices wild space will not make an end to the affordable housing crisis, adding she does not see enough bang for the buck by putting affordable housing at Minnekahda Vista Park. She stated it is more impactful to look at other spaces for affordable housing which can have a bigger impact, with higher density housing and mixed-use developments. She stated she is not against development and feels increasing affordable housing in St. Louis Park is very important and stated she is a champion of the overall zoning plan and thanked staff and the commission for their work on this. Ms. Shahidi stated high-density affordable housing is more sustainable but not at the expense of the last remaining wild spaces within the city and added not all park and open space is the same. She added wild spaces provide eco-friendly space that manicured parks and athletic facilities don’t provide. She asked that these open park spaces be protected. Daniel Turnquist, 3924 Excelsior Blvd, noted the city’s strategic priorities. He stated more opportunities for housing, environmental stewardship, increased density, broad range of housing in neighborhood development, variety of options for residents to move around the city safely, different modes of transportation, building community capital through community engagement are all very important parts of the city’s priorities and he stated he is excited to meet his neighbors. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 4 Richard Lang, 2743 Toledo Ave. S., stated the Rock Island area is an important area and needs to remain park land. He stated this area is next to a highway with a wall, and this is the one green space in the area. He stated he talked to all the neighbors about this, and it is a big park of Fern Hill and an important niche. He stated green space should be in every parcel and cannot imaging the city taking away green space. He stated he supports multi-family but disagrees with the housing that was shown, and for Minneapolis it is fine, but not in St. Louis Park and does not make sense. He stated he would like to see design criteria and density planning be a part of this process. Danya Neidich, 2020 Ridge Drive, stated she is supportive of the new zoning that allows for increased density for housing. She stated she encourages the city to provide additional aspects like density bonuses to developers who commit 20% of units restricted to 50% AMI or 40% restricted at or below 60% AMI or housing that is zero energy ready. She urged the city to follow the zoning changes with an expedient city review process and to streamline. She acknowledged that many can probably benefit from these zoning changes but are not able to attend a public hearing such as this, due to working non-traditional work hours, or working a second or third shift, or lack of adequate childcare or other reasons. She stated she works for Park Adam transportation which is the main school bus contractor for St. Louis Park schools. She added children she works with everyday that have had to move out of the city for one reason or another and they live 30 minutes or more from their school community. She stated they lose an hour of time for studies and other activities and the city needs to prioritize the quality of life for those who have been forced out of the community due to rising cost of living. Chair Divecha closed the public hearing. Mr. Walther noted the recent change to park and open space uses of the Rock Island (south parcel) and the limitations MNDOT placed on the use when the city acquired it at no cost. He also noted the city paid fair market value for the north parcel without restrictions on the use. He stated there is still interest and the possibility for development for housing for the north parcel at 2800 Toledo Ave. S. so staff has recommended rezoning the parcel from R-2 single- family to N1 in this process. He stated that the city expects there to be future public engagement process regarding future use of the land. He added that the staff recommendation maintains the status quo by converting the R district to N1 until additional information is gathered and more engagement with the community occurs to inform the council’s decision. He stated that in order to develop the property it would a comprehensive plan amendment to change the land use designation form right-of-way to low-density residential and that process requires a public hearing and 5 council members’ support. Commissioner Weber asked if this area goes to N1 there is no way to develop it without first going through another process to change land use designation. Mr. Walther stated yes. Commissioner Weber asked if something is designated park and open space, if the council wanted to change it to N1 later in this process, would it only be a simple majority of 4 votes to approve the amendment to this proposal. Mr. Walther that because this is a comprehensive rezoning 5 votes are required to pass the whole thing. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 5 Commissioner Eckholm asked if there is any risk to rezoning the parcels to parks and open space, and if the council wants to put affordable housing there, is there any greater risk to the process of the greater zoning amendment moving forward. Mr. Walther stated the planning commission responsibility is to make recommendations to the city council. He noted that the risk may be rezone to park and open space adds a barrier to development, but with enough support from this council or a future council they can change that decision. Commissioner Weber asked when the city buys a parcel, does staff have guidance from council that the parcel should be viewed as a default as developable as a way to recoup costs. Mr. Walther stated no, and it varies based on several factors, but staff follows the city’s adopted disposition of public land policy which provides guidance and avoids every inquiry from having to city council for consideration and action. Commissioner Hyman asked if a pedestrian bridge is proposed over Highway 100 for the Connect the Park project, if 2800 Toledo Ave is designated at park and open space does that put a barrier on being able to have a pedestrian bridge there . Mr. Walther stated there is an existing pedestrian bridge north of that site and Minnetonka Blvd. is about one or two blocks south, so MnDOT would not allow an additional pedestrian bridge across Highway 100 as they have certain spacing requirements, so it is highly unlikely that would be allowed, and it is not included in the city’s Connect the Park capital improvement plan. He added when Highway 100 was expanded the project added the noise walls and a trail was built connecting Minnetonka Blvd to the existing pedestrian bridge. Mr. Walther presented information about 3940 France on the border of Edina, St. Louis Park, and Minneapolis. He stated the city acquired the land from Minneapolis and previously leased the west half of the site for $1 from Minneapolis for park use. He stated it is zoned R-1 single family residential and designated park and open space in the comprehensive plan. He stated the city council at the time it was acquired stated they wanted to sell a portion of the site for development to offset costs incurred and paid more for the land to obtain fee title without restrictions on the land use. He stated this continues to be discussed with the present city council and initial opinion of the majority of members is to maintain the status quo on the east side of the site and preserve the option for future development. Staff’s recommendation is to change the zoning from R-1 to N1. The primary interest of those members would be in creating affordable home ownership opportunities. He added the west side which has been used for park and open space for many years is recommended to be rezoned form R-1 to POS. Commissioner Weber asked if this part of the parcel with the park project all to the south or included this parcel. Mr. Walther the parcel is adjacent to the Edina’s land and their flood mitigation project. Commissioner Weber asked if this affected the dog park there. Mr. Walther stated there was never a formal dog park there but added when the property was offered for sale to the city the overwhelming community feedback was to buy it and to control it, and there was interest from Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 6 residents potentially work with Edina and Minneapolis to create a formal dog park, but there were no commitments from any of the cities to do so. Commissioner Weber asked if the east part, then is undeveloped and used by folks walking through. Mr. Walther stated yes a small part of the east side has informal foot paths. Commissioner Eckholm asked about splitting this parcel in half, and would it be possible to instead do an 80-20% split to preserve the woods in this parcel. Mr. Walther stated yes that is an option. He added the west half is mostly in the flood plain, so it is not developable. He noted the east half was proposed because the new zoning district offers more creative options for development than just a single row of narrow lots along France Avenue, including the courtyard cottage housing type that has been added and defined in the code. Chair Divecha noted an email received and in the staff report referring to four park and open space parcels owned by the city. Mr. Walther stated he did respond to the resident’s questions and concerns that were noted in the email and clarified the proposal for the resident who had misstated the proposal in the message. He showed on the map the two additional parcels covered in the letter and that had not already been discussed. Commissioner Beneke noted the parcel at 9258 Club Rd there was a problem in this area in close relation to the school and asked if it is appropriate for development vs. park and open space. Mr. Walther stated originally an environmental assessment associated with a development project was rejected at this site, and the city acquired the parcel as an expansion of Cedar Manor Park and at the time it was discussed as possible uses as an outdoor classroom space for the school and maybe a joint acquisition of the parcel by both the city and school district. Mr. Walther stated the school district did not participate in the acquisition. He added recently there was interested in developing the property for a mixed use development with affordable housing and affordable daycare. Staff followed the disposition of public land policy and indicated the proposal conflicted with the policy. He added access to this property is difficult to Cedar Lake Road and would require cooperation and easements form the school or access would have to go through the city park to connect to 23rd Street to the north, and given it was acquired for park purposes, it is recommended to remain that and to be rezoned form single family residential to parks and open space. Commissioner Flanagan noted the proposed rules to require a 5-foot setback from the front of a house for attached garages and stated that would be his preference to allow garages to be in line with the front to the house. Mr. Morrison explained that attached garage standards to limit them to 50% of front façade standard and the 5-foot setback were discussed and recommended by the planning commission during study sessions before Commissioner Flanagan joined the commission. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 7 Commissioner Flanagan stated that the allowing them to be flush would seem to still be aesthetically appropriate for an attached garage and still satisfy the goal of not having attached garages jut out and dominate the facade. Commissioner Eckholm stated the style of house where that works is not what is being proposed. He stated if someone owned that rambler, that would stand. He stated the other housing types that are being proposed to be allowed will have problems with fitting an attached garage and would push them to the front without this rule . Commissioner Flanagan stated if a duplex were built, would the garage need to be in the backyard. Mr. Morrison stated if in the backyard, then the garage for the duplex would most likely be a detached garage. Commissioner Youngquist stated these will apply to new construction, and ramblers will not necessarily be built in the future, and what exists today will be grandfathered in . She stated she agrees with Chair Divecha and Commissioner Eckholm that preventing this issue is not a large concern. Commissioner Youngquist asked about a definition about undue hardship that is included in the code, and if there is any reason to keep this and if not, should it be struck and replaced with a definition for practical difficulty. Mr. Walther stated that it could be deleted entirely or replaced as suggested. Commissioner Youngquist stated she preferred to have terms like this to be defined in the code rather than rely on outside resources. Commissioner Hyman stated she is concerned about spaces people have identified and they have advocated for those spaces, and then there are other spaces that people have not advocated for and as they are moved to N1 and are there concerns that these should go to R1 spaces. Mr. Walther stated staff has looked at sites that were adjacent to parks and addressed parcels that they were aware of but have not gone through every single parcel and there may still be parcels that are included in the rezoning to change from an R1 to and N1 district. Commissioner Weber stated staff did the right thing here to be lateral and go from the current zoning and move it to the equivalent in the new zoning. He stated whatever the commission recommends, the council can change again, but he is interested in a park designation for both parcels. Commissioner Eckholm stated the Rock Island park has been discussed for many years, and on the two properties being discussed, such as 2800 Toledo, the residents that have spoke do not want those areas developed. He stated if we want more affordable housing, it should be in the areas that are designated for high density development so they can utilize transit and biking, to get to places. He stated what has been heard from residents is that these open park parcels should be park and open space designated and not N1. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 8 Commissioner Weber added for the 2 parcels purchased at market value, he understands the need to absorb costs, but in some ways that has already been accomplished. He noted this is a bonus but will not make or break the city being able to function within their budget. Commissioner Beneke stated he is 80% sure he would ultimately support these 2 properties as park and open space but would prefer more discussion and process involved in that decision. Commissioner Youngquist stated she appreciates the move staff did with R1 to N1 . She added regarding France Avenue parcel, she is concerned because it is guided as park land and the comprehensive plan is the 20-year vision of what we see the community being. She is concerned it is zoned R1 right now, but it should go to park space in conjunction with the comprehensive plan even if the N1 district would allow that use . Chair Divecha stated at 2800 Toledo Ave., she is in favor of designating it as park and open space. She stated the France Avenue space is in the comprehensive plan and that is what it is guided. She stated our goal is not just density but multiple paths to affordable home ownership. Commissioner Beneke stated he supports the Rock Island parcel as park space. He stated he is more doubtful about the other parcel at 3940 France Ave. It was moved by Commissioner Weber, seconded by Commissioner Eckholm, to recommend approval of the comprehensive plan amendment as presented. The motion passed unanimously. It was moved by Commissioner Youngquist, seconded by Commissioner Flanagan, to recommend approval to amend the zoning text amendment as presented by staff with the change of deleting the definition of undue hardship in Article 1 and directing staff to add a definition of practical difficulty. The motion passed unanimously. It was moved by Commissioner Weber, seconded by Commissioner Youngquist, to amend the zoning map amendment as recommended by staff to change 2800 Toledo Ave. S. which is adjacent to Rock Island Park, to park and open space as zoned. The motion passed unanimously. Commissioner Beneke stated there may be a possibility of having housing in that space with cottage courtyard, resulting in 8-10 buildings, at 3940 France Ave so he will be opposed to zoning it park. Commissioner Flanagan agreed, and could envision duplexes or row houses along France, but this sends a signal to council also, but between those he agrees with park and open space. Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 9 Commissioner Eckholm stated a part that has not been developed does represent a parcel that could be developed for affordable housing. He added there is a city-initiated development proposal to replace 4 single family homes on Minnetonka Boulevard with 8 properties, so the larger changes to the zoning map will afford more opportunities as housing stock continues to age. He stated the woods in this space is something he would like to preserve so he will support this amendment. Commissioner Beneke stated he is not necessarily in disagreement but does feel this needs more study. Commissioner Hyman added she agrees it is important to understand the whole picture about this space and what it means to designate this as park and open space. Commissioner Youngquist added the comprehensive plan designates this as park and open space and state regulation require zoning to follow this and it is this in R1, but it is also signaling to develop this, so that is not consistent when the city does have park and open space zoning . She stated she has concerns about this and the long-range vision is for park and open space. Commissioner Hyman asked if there will be other opportunities in the process to watch this type of space. Mr. Walther stated yes there will be other opportunities when looking at other districts. It was moved by Commissioner Weber, seconded by Commissioner Youngquist, to amend the zoning map amendment to change the designation of 3940 France Ave. S. to park and open space. The motion passed 6-1 (Commissioner Beneke opposed). Commissioner Weber stated he is appreciative of this process and the work of staff and what we are talking about is fairness and equality and giving more people the opportunity to live in St. Louis Park. He stated the zoning code has not changed since 1992 and we live differently than we did in 1992. He stated we are in a time when there is a huge demand for housing and this has not happened since the end of WWII, but back then St. Louis Park was not as developed and there was room to grow. He added back then also St. Louis Park did not let everyone in. While Jewish people were able to move to St. Louis Park from North Minneapolis, Black people were not able to come here since there were 1,800 racial covenants in place. He stated this time we need to meet the demand to give everyone a fair shot and address the missing middle. He added Rep. Larry Kraft is working at the capital to address the issue with the missing middle at the state-wide level and does enjoy support from both parties. He stated we must fairly address concerns that come up and the city works hard on this, and the city has good intentions, which counts for something. He stated we should always strive to do better. Commissioner Ekholm added his thanks to the city staff on the work to develop this and he thanked everyone that participated in the process and for coming out to discuss this tonight. He Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059 Official minutes Planning commission Jan. 8, 2025 10 also thanked those who advocated for changes to the land next to Highway 100 and have championed Rock Island Park. Commissioner Beneke also thanked staff for their work on this and working to meet affordable housing needs as well and balancing the community’s input. Commissioner Hyman noted she joined the commission in the middle of this process but thanked staff for their help in understanding this process. She stated this is a good step in the right direction and this is not the end. She stated she would like to see higher density in areas that are not all in corridors with lots of noise and pollution and in different areas. Chair Divecha stated the importance of the comprehensive plan, and she encouraged all to participate in the visioning process. Commissioner Flanagan stated as a new member of the commission he thanks staff and supports the direction we are moving in. Commissioner Hughes stated the discussion has been nice this evening, and if she could have voted tonight, she would have voted for what was passed. It was moved by Commissioner Flanagan, seconded by Commissioner Weber, to accept the zoning map changes as recommended by staff with the amendments as passed by the planning commission. The motion passed unanimously (7-0). 3. Other Business-none. 4. Communications. Mr. Walther noted the next planning commission meeting is January 15. 5. Adjournment – 8:30 p.m. ______________________________________ ______________________________________ Sean Walther, liaison Matt Eckholm, acting chair member Docusign Envelope ID: 15848AC3-8A9D-4FA7-9170-B7D5C3DF4059