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  Public Hearings   5.B.       
City Council Regular Meeting
Meeting Date: 05/13/2019  

Agenda Item:
Resolutions amending the Mankato Lutheran Home (Pathstone) Institutional Overlay District campus plan to allow for the construction of an independent senior living and memory care wing and to approve a variance to reduce the rear yard setback to zero feet for the purpose of constructing off-street parking and a canopy. The subject property is described as Lot 1, Block 1, Mankato Lutheran Home Addition, Lot 1, Block 1, Mankato Lutheran Home Addition No. 2, Lot 2A, Block 1, Mankato Lutheran Home Addition No. 2 (708 Mound Avenue).  
Recommendation/Action(s):
At their meeting on April 24, 2019, the Planning Commission recommended adoption of the attached resolutions.
Summary:
The applicant is requesting an amendment to the Institutional Overlay District to allow the construction of a three-story building having a gross floor area of approximately 124,600 square foot to accommodate 56 new, independent living units, and 24 memory care units (three new units), a variance to reduce the front yard setback from 30 feet to 0 feet for the construction of a canopy, and a variance to reduce the parking setback from 10 feet to 0 feet for the construction of parking spaces on the north side of the new building in the Institutional Overlay District.
 
Amendment to Institutional Overlay District
 
The original Master Plan approved in 2000, portrayed the existing nursing home and assisted living facilities as well as two possible expansions on the 8.9-acre site. The first phase of development in the July 10, 2000 Master Plan was a two-story addition for 25 units of assisted living which has been constructed. The second phase of the 2000 Master Plan was a proposed three-story apartment building, having a gross floor area of 59,000 square foot with fifty (50) units.  At the time of review in 2000, the applicant anticipated construction of the second phase would be within three to five years.
 
The July 10, 2000 Master Plan was approved with several conditions including, but not limited to, that the use of the property conform and be restricted to those uses depicted on the approved master plan, and the height of all new buildings shall not exceed 35 feet which is the height limitation in the abutting residential neighborhood.
 
The Master Plan was amended with a January 24, 2006 Master Plan for the purpose of removing the original Mankato Lutheran Home Building located on the southwesterly portion of the campus. A new two-story, 21,000 square foot building was proposed in its place, along with related modifications such as a new lobby/entrance. A variance was also approved allowing for a decrease in the front yard setbacks from 30’ to 2’ for the construction of the canopy that is located adjacent to Mound Avenue. The January 24, 2006 Revised Master Plan did not include any proposed changes for Mankato Lutheran Addition No. 2, Lot 2A, and referenced the area as, “1.7 Acres Future Development.” The staff report from the 2006 amendment stated, “The applicant is anticipating the construction of the 50-unit apartment at a later date.”
 
The applicant is now proposing an amendment to the previously approved Master Plans to allow for the construction of a three-story structure with a gross floor area of approximately 124,600 square feet. The applicant is proposing an update to the campus to allow for a full continuum of living options within the campus. The proposed changes from the previously approved Master Plans to include the following:
  • Increase in the number of independent living units on this lot from 50 to 56, a relocation of 21 existing memory units from other locations within the complex to this new building, and the addition of three new memory care units to this building for a total of 24 memory care units and a total of 59 new units; and
  • Modified building footprint from 21,775 square feet to 34,924 square feet and site layout to accommodate said proposal; and
  • Increase in the building gross floor areas from 59,000 square feet to approximately 124,600 square feet.
The Institutional Overlay amendment proposal depicts a new three-story, 56-unit independent living facility and an attached one-story, 24-unit memory care facility, of which three are new memory care units and 21 are relocated from other locations within the existing campus. Connections to the other buildings within the campus are shown. The proposal seeks to increase the number of independent living units on this lot from 50 to 56 units, and to relocate 21 memory care units from other locations within the complex to this new building, and add three new memory care units to this building for a total of 24 memory care units at this site.
 
The current proposal seeks to modify the building footprint and site layout to accommodate the request. The existing building footprint on Lot 2A is 14,841 square feet and an additional 34,924 square foot building footprint is proposed. There will be approximately 63,394 square feet of impervious parking and driving surfaces on the lot at completion. The Institutional Overlay District requires that 20 percent of the site be green space. The building footprints and asphalt on Lot 2A occupy 56 percent of the lot.
 
The building footprints for the overall 8.9 acre campus, including the proposed new building are 131,762 square feet. The paving at the overall campus is proposed to encompass 81,126 square feet. Together the building footprints and the impervious parking occupy 55 percent of the overall campus which meets the required 20 percent green space. 
  
The building meets the required 30-foot setback from the property lines with the exception of the northern side of the lot where the applicant has requested a variance for the construction of a canopy. The parking and driving areas on the southern and eastern sides of the property achieve the required 10-foot parking and driving area setback from the property line. The applicant has requested a variance for the parking area on the northern side of the property allowing a decrease in the setback from ten feet to zero feet.    
 
The main access to the development will remain on Mound Avenue. A secondary access is proposed from Rogers Street to serve the new building. This will be the main entrance of the new facility. Access from Rogers is via a lot owned by the Applicant on an existing roadway surface located upon property owned by the City of Mankato. A legal document addressing these shared spaces will be required in conjunction with this review. Plans depict signage on Rogers Street identifying the access location.
 
One the components of the Institutional Overlay District is a traffic study. Since the use of the property generates a low level of traffic, a narrative showing estimated traffic levels and design of the parking and driving spaces on the “loop road” has been provided. The report depicts adequate geometry and design of the loop road to accommodate the proposed traffic generation for the development.
 
Utility plans for the site depict the new facility connecting to existing water and sewer lines, and modifications to the storm sewer system to accommodate the development which include an underground storage system under a new parking lot on the southern side of the lot. Contours also depict a storm pond to the east of the new parking lot on the southern side of the lot. Under a major rain event storm water will flow off site in the same direction and rate that it would currently.
 
An emergency vehicle access plan depicts fire truck turning movements on the southern portion of the site, and the hydrant coverage plan shows the addition of a new hydrant on the northeastern side of the site to provide hydrant coverage for the new structure.
 
Landscaping plans depict plantings along the southern and eastern property line. A 6’ fence, located on the inside of the landscaping along the entire southerly property line and along the easterly side of the parking lot, will also be provided in order to minimize any vehicle lighting from the adjacent parking and driving areas on the neighboring properties. The existing dumpster enclosure is proposed for modification to achieve Mankato City Code. All of the landscaping on the north side of the site must be outside of the flood control easement.
 
Site lighting plans show lighting levels at or below one-half foot-candle at the southerly and easterly property lines. The lighting levels at the northerly property line are shown to exceed one-half foot-candle to accommodate the parking. All site light fixtures, include parking lot and building, will be required to be full-cut, fully shielded style and achieve Mankato City Code.  
 
The previous proposal requested to increase the approved building stories of the approved 2000 Master Plan from three-stories to four-stories and to increase the height from 35-feet to 45-feet. Plans depicted a proposed building having a height of 45-feet to the roof surface, a flat roof. The conditions as set forth for this development in the 2000 Master Plan restricted the height of any structure within this development to 35-feet. The condition from the previous approval limits the building heights to 35-feet, which is a reduction of 40-feet under normal Institutional Standards and equals the height limitation of the abutting R-2 zoning district. Based on concerns addressed during the Planning Commission and City Council meeting in 2000, the applicant agreed to the height of any new buildings to not exceed 35-feet as defined in Mankato City Code definition 10.02 subdivision 21. In 2000, as part of the implementation of the Institutional Overlay, the property was rezoned from R-2 to O-R to accommodate said Institutional Overlay District. The height condition limits the building height to 35-feet, which is a reduction of 40-feet from the Institutional Overlay standards, because this was the height limitation in the abutting R-1 and R-2 residential districts. The applicant has submitted a revision to the initial proposal, reviewed by the Planning Commission in February, whereby the height was decreased to meet the 35 foot requirement.
 
The proposed exterior finish of the new structure is a combination of lap, fiber cement siding and brick cladding. The brick encompasses 29% of the exterior and the lap siding encompasses 71% of the exterior finish, the same ratio of brick-to-siding on the adjacent assisted living building. Exterior elevations also depict balconies on the upper levels of the new structure.  
 
The site plan depicts 224 off-street parking stalls. There are 69 nursing home beds which require 17 off-street parking spaces. A public café is located within the development which requires five parking stalls. There are 85 assisted living facility units which require 43 off-street parking stalls. One off-street parking stall is required for every three employees on a major shift. There will be up to 120 employees on a major shift which requires 40 stalls. Two new guest suites are proposed which require four parking stalls. There are 56 independent living units which require 112 parking stalls. Based on these calculations, the Ecumen Pathstone campus is required to provide 221 off-street parking stalls. The site exceeds the requirements by providing 224 parking stalls   
 
The proposal increases the approved gross building area of the approved 2000 Master Plan from 59,000 square feet to approximately 124,600 square feet. The lower level floor plans for the proposed structure depict a parking garage containing 56 parking stalls and a trash room. First floor plans contain the 24-unit memory care facility, and related uses, a spa, dining room, lobby, community room, and seven independent living units. The second floor of the proposed facility contains 25 independent living units, a library and other accessory uses. Third floor plans depict 24 independent living units, and an aerobics and exercise room as well as a roof-top patio, club lounge, art studio and storage area. The independent living units are a mix of one and two bedroom units and all include full kitchens, walk-in closets, and several of the units include balconies.
 
The proposal also includes the addition of two guest suites within the existing campus buildings, and the addition of an Adult Day program which is being relocated to this campus within an existing building from a current off-site location. The Adult Day program serves adults age 18 and older and has a maximum capacity of 24 participants. The Program provides programming for individuals living with Alzheimer’s, chronic illness, developmental disability, or those seeking socialization and programming.  
 
Variances
 
Reduce front yard structure setback from 30’ to 0’ for canopy
The applicant is seeking to construct a weather-protected canopy extending to the front property line on the northern side of the new structure. The construction of the weather-protected canopy will require a variance to reduce the front yard setback from 30 feet to 0 feet in the Institutional Overlay District. Four pillars and an overhang will encroach into the rear yard setback. An easement is also located at the area, however the pillars will not be located within the easement area. The purpose for this request is to make the property more conducive for larger vehicles to maneuver and also allow for multiple vehicles to drop off residents and guests under a weather-protected conditions.
 
Reduce front yard parking setback from 10’ to 0’ for parking spaces
The applicant is also seeking to construct 23 off-street parking stalls and a drop-off drive at the main entry of the new facility. As proposed the parking areas would be located within the required ten-foot front yard parking setback area. The construction of the parking area will decrease the required setback for parking areas from ten feet to zero feet. The purpose for the request is to reduce hard surface impact on the property by taking advantage of existing drives, and to provide parking spaces near the front entry/lobby area of the new structure.
Attachments
Resolution amending Campus Plan
Resolution granting variance
General Location Map
Master Plan 2019
Master Plan 2000
Lanscaping Plan
Grading Plan
Floor Plans
Building Elevations
Snow Removal Plan
Lot Coverage
Traffic Circulation Memo
Applicants Summary

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