HomeMy WebLinkAboutDepartment Report 11-20-18 CARMEL PLAN COMMISSION
DEPARTMENT REPORT
NOVEMBER 20, 2018
I. Old Business
1. Docket No. 18030016 Z: Franciscan Health Rezone,S-2 to MC(Meridian Corridor)
The applicant seeks approval to rezone approximately 6.16 acres to the MC/Meridian Corridor zoning district
classification.The site is currently zoned S-2/Single Family Residential.It is located at the southeast corner of
1110 Street and Illinois Street.Filed by Robert Hicks of Hall,Render,Killian,Heath, &Lyman,P.C.on behalf of
Franciscan Health.
*Updates to the Department Report are noted in blue text.
Project Overview:
This site,the"north parcel,"is currently vacant land that was originally part of the Meridian Suburban subdivision(zoned
S-2),where 31 homes are currently located to the north and east of this site.Platted in 1960,22 additional lots were
proposed for this land,prior to Illinois Street being extended through the western edge of this site.To the south of this site
is 10.8 acres of vacant land,which is also under contract by Franciscan Health and is zoned MC/Meridian Corridor.It is
referred to as the"south parcel"and is where most of the development for this overall project will occur.Across Illinois
Street to the west is the Spring Mill Place subdivision(zoned S-2).North of this site is 111th Street,and at the NE corner
of 1110 and Illinois Street is the new KAR headquarters project(zoned MC).The Bridges PUD is located at the NW
corner of 1110 and Illinois Street,with future office and multi-family residential planned for that vacant land.Please view
the Petitioner's informational packet for more detail.
Comprehensive Plan Analysis:
The area of this proposed rezone is excluded from the Land Classification Map.This was done at the time because
southwest Clay Township was not part of the City of Cannel.It was agreed that a plan for that area would only be
completed after it was annexed into the City.The purpose of the Land Classification Map is to help manage growth and
development by identifying the intended intensity of commercial development and potential density of residential
development throughout the City.
The Petitioner proposes to build a hospital,medical office building, and parking structure on the south parcel,with
stormwater, surface parking, and a phase II medical/retail building on the north parcel.The hospital and medical office
uses would fall into the Employment Node classification,if this site were identified on the Land Classification Map.The
purpose of the Employment Node,found on page 39 of the C3 Plan,is to establish regional employment opportunities,
which is appropriate near highways and major arterials.Key provisions for this classification provide that:
• Commercial intensity will be limited by lot coverage requirements,as well as parking and maximum building
envelope restrictions per the underlying zoning classification.
• Building orientation should be setback significantly from highways and residential areas,with maximum buildings
heights of four stories when adjacent to residential, and ten stories adjacent to I-465.
• Parking should be located with the least impact on area aesthetics.
• Protection of pre-development environmental features is important.
• Employment Node also places significance on internal and external bicycle and pedestrian connectivity.
• Secured and sheltered bicycle parking and shower/changing facilities for bicycle commuters are also important for
development within the Employment Node.
The Appropriate Adjacent Land Classifications Table(C3 Plan,page 44)is used to guide development and show what
uses would be considered a Best Fit vs. what would be a Conditional Fit or should not be allowed.Conditional Fit means
that the proposed development should be planned with sensitivity and appropriate transitions to the adjacent land
classification. Suburban,Urban and Attached Residential are considered Conditional Fits for an Employment Node,as
well as Core Support and Secondary Core classifications.Best Fit uses would be Parks and Recreation,Neighborhood
Service Node,Institutional Node,Community Vitality Node,Regional Vitality Node and other Employment Node uses.
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The north and south of this site are considered Employment Node,which is considered a Best Fits,because they are also
classified as Employment Node.While no specific classification is given by the Comprehensive Plan(as noted
previously),the area located west of Illinois Street is zoned residentially. Spring Mill Place subdivision is 41 lots on 42.89
acres,which equals 0.96 units/acre,and would be classified as Estate Residential,if it were included in the
Comprehensive Plan. Meridian Suburban subdivision is currently 31 lots on 14.9 acres, which equals 2.08 units/acre,
which would be classified as Suburban Residential. (At its original filing,it was 57 lots on 26.228 acres,which is 2.17
units/acre and would still meet the Suburban Residential classification.)Employment Node is classified as a `Conditional
Fit,' when adjacent to Suburban Residential,but is discouraged when adjacent to Estate Residential.
Transportation Plan analysis:
The Thoroughfare Plan identifies Illinois Street as a Parkway Arterial street,which requires 120' total right-of-way. 111th
Street is considered a Primary Arterial Street,which also requires 120' total right-of-way.The current Illinois Street right-
of-way ranges from 160' to 180'.The City completed this extension of Illinois Street in 2013.The right-of-way east of the
center line of the road,for this site,ranges from 26-80' wide.Additional work is needed on the actual property lines,as
the GIS map shows a remainder that extends into the middle of the round-a-bout at 111th and Illinois Street.There is about
160' of right-of-way from the center line of 111th Street to the main part of this parcel(not including the remainder
mentioned previously).A 10' wide asphalt path would be required along Illinois Street,to match up with the existing path
at the round-a-bout.
Meridian Corridor(MC)District analysis:
The purpose of the Meridian Corridor(MC)district is to further develop and build out the US 31 Corridor.Quality
development of mixed use sites is encouraged.The goal is to transition the corridor to a more pedestrian friendly area,
with public transit options and mixed use development opportunities that can share parking and provide day and evening
activities and vitality.The MC is not intended to be in conflict with suburban residential areas.However,it can be
adjacent to these areas,with proper transitions.Appropriate transitional elements are considered the tapering of building
heights,staggered building facades,and the use of landscaping buffers.The proposed schematic site plan,which shows
both this parcel and the south parcel,has a large parking structure located fairly close to the existing residential to the
northeast.A parking structure would not meet the intention of tapering of building heights down to the residential level.A
30' landscaping buffer is required and proposed,however,there is concern that 30' of new landscaping would not give a
satisfactory buffer or transition to the existing residential.There are additional issues with the proposed parking structure
in this location,as there is a maximum of 18' allowed for accessory structures and any building within 100' of a shared
residential property line is limited to 2 stories.
Because this site is located next to residential,the minimum height of any proposed building is 2 stories.The maximum
height of a building,if it is located within 100' of the shared residential property line,would be 2 stories.However,
outside of that 100' distance,the building could be up to 8 stories tall and there is an option for 3 additional stories(if any
of 3 other criteria are met: 1.Located within 800' of a major intersection,2.Located within 800' of a transit hub,or 3.A
green roof is installed over 60%of the building footprint).The S-2 zone,which borders this property on the east,would
allow a maximum building height of 35'.
Rezoning Process:
According to Section 9.06.A.3.of the UDO,in considering this rezone proposal,both the Plan Commission and the
Common Council shall pay reasonable regard to:
a. The Carmel Clay Comprehensive Plan;
b. Current conditions and the character of current structures and uses in each district;
c. The most desirable use for which the land in each district is adapted;
d. The conservation of property values throughout the City of Carmel and Clay Township; and
e. Responsible development and growth.
Schematic Site Plan analysis:
Staff typically asks to see some sort of concept plan to get an idea of what the Petitioner has in mind, and to start the
conversation of how the site should be developed.For example,if there is a stand of trees on the site that should be saved,
vehicular and pedestrian connections to adjacent parcels that need to be made,additional right-of-way that needs to be
dedicated,building placement on site,etc.We try to let the Petitioner know up front what the Department will expect to
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see.As part of the rezone application,the Petitioner has submitted a Schematic Site Plan,to show the intended site design
and master plan,if this site is rezoned to the MC zoning classification.The Petitioner stated that this parcel may be used
in part for drainage and surface parking to support the buildings on the south parcel. A building may be proposed as a
second phase of the project.This schematic site plan is not necessarily the final plan of what will be developed on the site.
The Petitioner would have to return to the Plan Commission for DP and ADLS approval,and they stated that within 3
years' time they expect to finish the project. So we should expect to see plans soon after the rezone,if it is approved.
Additional Analysis:
Site Plan and Parking:
In this instance,US 31 is the"front door"with Illinois Street providing the primary vehicular access to the site. All sides
of any building should be designed well and complement the surrounding areas.The buildings should be oriented so that
there are no"back sides"facing the major thoroughfares.The proposed parking garage within 30' of residential homes is
concerning to the Department.We would like the Petitioner to explore other site layout options.
Engineering:
The way traffic flows to and through these sites will be essential for a successful development. Stormwater management
and drainage will also be very important for this site.New development must make drainage situations better for the site,
not any worse.There are two proposed ponds on the schematic site plan—we would like to see these designed to look
natural and provide a focal element for the development.The central pond seems out of place to accomplish this goal.
Active Transportation:
Pedestrian connectivity to and through the site will be required.Bicycle parking spaces,both short term and long term will
be necessary for a successful development.A Zagster Bike Share station should be provided to help continue the City's
goals for improving our bike share network. Shower facilities and changing rooms will be important within the buildings
for the encouraging bicycle commuting throughout the City.
Architectural Design,Lighting, Landscaping and Signage(ADLS):
The City will expect the highest quality design of the buildings proposed within this complex,as is expected for all
developments throughout the City.The US 31 Corridor overlay zone set a high standard for building materials and quality
of design over the years. Solid,permanent materials such as brick, stone, and glass should be the primary building
materials.Buildings should be designed to complement one another.Franchise architecture should not be utilized.Unique,
one of a kind buildings is what the city would encourage developers to propose.The proposed imagery for the medical
office building and hospital do complement one another and are designed in a modern fashion.Additional information
will be needed to fully evaluate the proposed designs,if these are the intended versions for future approval.
Lighting standards must be adhered to in order to protect the residents to the west and north/east.Building accent lighting
should be deliberate and accentuate the building,not unnecessarily light the entire structure.Landscaping improvements
should be planned to buffer the site from the neighboring residents to the west and north/east. Signage should identify the
buildings and tenants,however,should not be directed to shine into the homes of residents.
September 18 Plan Commission meeting recap:
The Petitioner discussed the project and why this site was chosen. He stated that they believe this use will fit in well with
the surrounding properties and goes along with the goals and objectives of the Comprehensive Plan.The overall project
will have a campus design and they intend to respect transitions and require appropriate buffering to the abutting
residential uses.Neighbors spoke out against the project,questioning the need for the hospital and asking about the future
of Meridian Suburban neighborhood.Other concerns included a desire for larger than 30' buffer,preference for surface
parking over parking garages, if there is a parking garage to make it look more like a building,increased traffic,flooding
of neighborhood from 111th Street improvements,light pollution, and tree preservation.The Petitioner reminded the
public that these plans are preliminary,but they do want to be sensitive to the neighborhood.They are trying to propose a
plan that is compatible with the neighborhood.
The Plan Commission members had concerns about the conceptual nature of these plans. More details are needed on the
design plan,buffering and tree preservation,PILOT agreement, and the specific proposed uses of this property. Plan
Commission members questioned if the project could move forward with only the south parcel,asked for site line
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drawings, and suggested that maybe a PUD is a better plan for this site.The motion was for this item to go to the
Commercial Committee meeting on October 2 and then come back to full PC for final recommendation to City Council.
October 2 Commercial Committee meeting recap:
The Petitioner is showing a 4 story building on the south parcel, which will be south of the pipeline in order to be as far
away from the pipeline and the residential area as possible.A parking garage is also shown,which they would like to have
it be 3-4 stories,but that would require a variance.They have met with Staff and are working on addressing comments of
the neighbors.The first thing they would commit to is no emergency type attributes since this is a specialty orthopedic
hospital.To address the concerns about light pollution,they would densely landscape the 30' buffer,and work on parking
lot design to minimize headlamp glare.The employee shift for the evening is closer to 30-40 employees,and cars entering
the site would be parked and would not leave until 7 am.They are looking at the location of the parking garage and trying
to address staff's request for it to be 40-50' away from the neighbors.But they need make sure they can still fit it on the
site and preserve trees at the same time.Committee members asked what was different about the project and if the next
committee meeting would be enough time to get commitments worked out.The Petitioner was asked to work on ways to
improve the situation for the neighbors, address staff concerns and work on finalizing intentions for preserving trees.This
was continued to the November 8 Committee meeting.
Update Since Oct.2 Committee meeting:
Staff has met with the Petitioner to go over their proposed commitments,Woodland Evaluation,and overall concept
master plan for the entire site,which includes the land occupied by the Meridian Suburban neighborhood,if it were no
longer located there at some point in the future. Staff is very pleased with the outcome of the master planning study,
which has resulted in the relocation of the proposed parking garage on the south parcel to at least 100' away from the
Meridian Suburban neighborhood.This new location should allow for more trees to preserved,which will provide better
screening of the garage,as well as keep any noise and light further away from the neighborhood.The location of the
medical office building on the north parcel has also shifted to the south,in order to balance the site in terms of the greater
master plan.This move will provide for better site circulation and access in the future.The relocation of the parking
garage also lends to better access to the north,if at some point in the future the Meridian Suburban neighborhood is
redeveloped.Please see the Petitioner's Information Packet for their 9 proposed Commitments,which deal with building
height,woodland evaluation,taxable property,lighting,architectural standards,loading areas,trash,bicycle parking,and
prohibited uses.
November 8 Commercial Committee meeting recap:
The Petitioner discussed the final commitments,as well as the master planning study for a potential future layout for the
larger area bordered by Meridian and 111`s Streets. Committee members asked questions to confirm their understanding of
the project and to remind everyone that this is only a rezoning approval.All plans shown are conceptual and have not yet
been approved.The Petitioner will have to return for DP/ADLS approval of any buildings proposed.The Committee
voted 3-0 in favor of returning this to the full Plan Commission with a Favorable Recommendation to Council.
DOCS Comments/Concerns:
This site is adjacent to the Meridian Suburban subdivision,which has 31 homes.The subdivision has an entrance off of
111th Street and is bordered by Meridian Street on the east.When the City rezoned most of the Meridian corridor to the
MC zone,we specifically did not rezone this parcel of land and the Meridian Suburban residential subdivision adjacent to
it.The City would like to see this area grow and develop, similar to other sites between Illinois and Meridian Streets.
However,it is not appropriate to do so unless there is a coordinated plan for the entire area bordered by 111th to the north,
Meridian to the east,Illinois to the west,and the existing businesses to the south located at 106th street.The Petitioner has
now provided a master plan for the area, along with Commitments to address concerns of Staff,Plan Commission
members and the neighbors.Staff concerns have been addressed and we are now supportive of the rezone proposal.We
look forward to working with the petitioner on the details of their future DP/ADLS submittals.
Recommendation:
The Department of Community Services recommends the Plan Commission sends this item to the City Council with a
Favorable Recommendation.
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