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VII.2. Conditional Use Permit for Meadowbrook Golf Course; Lindahl (CR2017-093) July 11, 2017 City Council Report 2017-093 Conditional Use Permit for Meadowbrook Golf Course Proposed Actions: Move to adopt Resolution 2017-0138 amending the existing conditional use permit for Meadowbrook Golf Course allowing the placement and operation of a temporary clubhouse, subject to conditions. Move to approve a development agreement with the Minneapolis Park and Recreation Board. The agreement will be provided to the City Council at the meeting. Overview The applicant, the Minneapolis Park and Recreation Board (MPRB), requests an amendment to the existing conditional use permit for Meadowbrook Golf Course to allow placement and operation of a temporary clubhouse. According to the applicant, a temporary clubhouse is necessary to reopen the golf course this year after the original clubhouse suffered damage from a ruptured water pipe. The temporary clubhouse will be positioned just off the southeast edge of the parking area at a location that allows for reasonable operation of the course and significant separation from neighbors. The MPRB desires the temporary clubhouse to convenie ntly serve golfers until a new permanent clubhouse can be constructed. The temporary clubhouse will, in all respects, operate as the former clubhouse did. There are no new features or assets, the hours will not be increased, and the services offered will not be expanded. Should the City approve the proposed CUP amendment, the applicant intends to place and operate the temporary clubhouse until November 1, 2019 or completion of a new permanent clubhouse, whichever comes first. During this time, the applicant intends to plan for and construct a new permanent clubhouse. Staff recommends approval of this request. Primary Issues to Consider  Planning & Zoning Commission Action  Background  Conditional Use Permit Standards  Alternatives Supporting Documents  Resolution 2017-0138  Applicant’s Narrative  Plans Financial Impact: $ N/A Budgeted: Y/N ____ Source: _____________ Related Documents (CIP, ERP, etc.): _________________________________________ Notes: City Council Report 2017-093 Page 2 Planning & Zoning Commission Action. During their regular meeting on June 27, 2017, the Planning & Zoning Commission reviewed Planning Application 2017-06-CUP to allow the placement and operation of a temporary clubhouse, subject to conditions. After hearing a summary presentation from staff and no comments during the public hearing, the Commission voted 4-0 to recommend the City Council approve this request. Background. The subject property is owned by the Minneapolis Park and Recreation Board (MPRB) and has been used for a municipal golf course since 1925. City records indicate the MPRB received a conditional use permit to formalize the golf course use and allow snowmobiling in 1970. The MPRB amended this conditional use permit and received a side yard setback variance to allow construction of a golf cart storage building in 1982. Given the existence of these approvals, staff recommends this application seek to amend the applicant’s existing conditional use permit. According to the applicant, during the winter of 2015-2016 the clubhouse at Meadowbrook Golf Course suffered significant damage when a water pipe ruptured. Because the clubhouse was in winter mode, the break wasn’t discovered for several days. By then, the water damage was significant: main and lower level walls, flooring, insulation, electrical systems, and other building features were damaged beyond repair. Insurance adjusters concurred with the MPRB’s assessment of significant damage. The MPRB is further concerned that the water damage created conditions that could be unhealthy for golfers and MPRB staff. In short, the water damage rendered the building unusable and largely not repairable. The location of the original clubhouse will be filled, leveled, and sodded, and will be maintained as a lawn area until construction of the new clubhouse begins. The temporary clubhouse allows for the operation of the golf course in the same manner as the former clubhouse. There is no increase in use of the course as a result of this structure, and there are no services provided from the temporary clubhouse that were not present on the course when the former clubhouse was being used. The temporary clubhouse will be connected to private electrical and data/communications services, but no permanent connections to city utilities are proposed. A small deck will be constructed to facilitate compliant access to the temporary clubhouse, and a portion of the parking area will be restriped to create reasonable outdoor space related to the temporary clubhouse. Seasonal plantings will be added to provide an attractive appearance. Conditional Use Permit. Conditional use permit applications are considered quasi-judicial actions. In such cases, the City is acting as a judge to determine if the regulations within the Comprehensive Plan, Zoning Ordinance and Subdivision Ordinance are being followed. Generally, if the application meets these requirements they are approved. In evaluating this conditional use permit application, the City shall consider and require compliance the specific conditions for outdoor recreation areas outlined in Section 530.09, Subdivision 1.b. and the general conditional use standards detailed in Section 525.13, Subdivision 15. It should also be noted that Section 525.13, Subdivision 13 states the City may require a development agreement as condition of approval. In this case, staff recommends the City Council approve a development agreement detailing the terms of this development. A conditional use permit expires one year after it has been issued unless the use for City Council Report 2017-093 Page 3 which the permit has been granted is in effect. The City Council may grant extensions not to exceed one year. Once established, if a use granted by conditional use permit ceases to operate for six months, the conditional use granted for that property will expire. The Council may impose conditions and require guarantees in the granting of conditional use permits. Any use permitted under the terms of any conditional use permit shall be established and conducted in conformity to the terms of such permit. Section 530.09, Subdivision 1.b. Specific standards for outdoor recreation areas in a residential district. b) Outdoor recreation areas not designed and owned as a part of a single family home or two family structure, or not owned or operated by the city, provided that: 1. All accessory or ancillary structures used in connection therewith are located not less than 50 feet from all lot lines; Findings: The proposed location of temporary clubhouse exceeds the 50’ setback requirement. According to the applicant’s site plan, the temporary clubhouse will be located 190’ from the western property line and 250’ from the southern property line. 2. Golf courses shall not include driving ranges and shall have an average of 130 yards or more per hole; Findings: According to the applicant, there is no driving range and the course’s hole length averages over 130 yards. The course is 6500 yards long, which averages 361 yards per hole from the far tees, 274 from the forward tees. 3. Country clubs shall include a golf course; Findings: The subject property does not include a country club. 4. Outdoor game court and swimming pools abutting upon or in any R district shall be fenced and screened by plantings or other suitable screening material, and shall not be lighted between the hours of 11 P.M. and 6 A.M. of the following day. The term game court and pool shall be construed to include all areas bounded by the fencing in connection therewith; Findings: The subject property does not include game courts or swimming pools. 5. All recreation facilities not a part of a PUD shall require a cost report to show the number of families necessary to support such facility. Findings: The subject property does not include a planned unit development (PUD) approval. Section 525.13, Subdivision 15. General conditional use permit standards. City Council Report 2017-093 Page 4 a) Consistency with the elements and objectives of the City's development plan, including the comprehensive plan and any other relevant plans at the time of the request. Finding: The existing outdoor recreation use (golf course) is consistent with the comprehensive plan. The City’s future land use map guides the subject property as Open Space. The property is zoned R-1-C, which allows outdoor recreation through a conditional use permit. The proposed temporary clubhouse is acceptable as a short-term structure that will be in place no longer than November 1, 2019. b) Consistency with this ordinance. Finding: The size and placement of the temporary clubhouse are consistent with the lot and building standards for R-1-C district and the conditional use standards for outdoor recreation uses. Lot & Building Standards for the R-1-C Single Family Medium Density District Standard Requirement Existing Lot Area 20,000 square feet 2,790,855 square feet (64 acres) Lot Width 80 feet 1,285 feet Front Setback 50 foot* 190 feet Rear Setback 50 feet* 1,000 feet Side Setback 50 feet* 250 feet Principal Building Height 35 feet (maximum) 25 feet *See conditional use permit standards Section 530.09, Subdivision 1.b c) Creation of a harmonious relationship of buildings and open spaces with natural site features and with existing and future buildings having a visual relationship to the development. Finding: Staff finds the proposed temporary clubhouse will not significantly alter the existing relationship of buildings and open space with natural site features or their visual relationship to the development. However, there should only be one clubhouse on the site at a time. The construction of future buildings may require the re-evaluation of this CUP and removal of the proposed temporary clubhouse. d) Creation of a functional and harmonious design for structures and site features, with special attention to the following: 1.) An internal sense of order for the buildings and uses on the site and provision of a desirable environment for occupants, visitors and the general community. Finding: Staff finds the proposed temporary clubhouse will not impact the internal sense of order for the buildings and uses on the site. Use of the temporary clubhouse beyond November 1, 2019, could create an undesirable environment for occupants, visitors and the general community. 2.) The amount and location of open space and landscaping. Finding: The proposed temporary clubhouse will not impact the amount and location of City Council Report 2017-093 Page 5 open space. Seasonal plantings will be added to provide an attractive appearance. 3.) Materials, textures, colors and details of construction as an expression of the design concept and the compatibility of the same with the adjacent and neighboring structures and uses. Finding: The exterior materials and details of construction are acceptable for the short- term nature of the applicant’s request (placement and operation until November 1, 2019). However, in the long term the exterior material and details of construction for the temporary clubhouse are incompatible with the adjacent structures on site and neighboring residential uses. 4.) Vehicular and pedestrian circulation, including walkways, interior drives and parking in terms of location and number of access points to the public streets, width of interior drives and access points, general interior circulation, separation of pedestrian and vehicular traffic and arrangements and amount of parking. Finding: The site will have adequate vehicle and pedestrian circulation. The temporary clubhouse will be positioned just off the southeast edge of the parking area and will operate as the former clubhouse did. The existing parking area and pedestrian trails provide adequate access to this location. e.) Promotion of energy conservation through design, location, orientation and elevation of structures, the use and location of glass in structures and the use of landscape materials and site grading. Finding: Given the applicant is proposing a temporary clubhouse, staff finds that it is unnecessary to promote energy conservation. Use of this temporary clubhouse beyond November 1, 2019, should prompt a re-evaluation of how the temporary clubhouse promotes energy efficiency. f.) Protection of adjacent and neighboring properties through reasonable provision for surface water drainage, sound and sight buffers, preservation of views, light and air and those aspects of design not adequately covered by other regulations which may have substantial effects on neighboring land uses. Finding: Given the interim nature and proposed location of the temporary clubhouse, it is unnecessary to require additional protection for adjacent and neighboring properties with these provisions. Should the temporary clubhouse be in place longer than November 1, 2019, the site should be re-evaluated. g.) The use will not be injurious to the use and enjoyment of other property in the immediate vicinity for the purposes already permitted, nor tend to or actually diminish and impair property values within the neighborhood. Finding: The proposed temporary clubhouse should not be injurious to the use and enjoyment of other property in the immediate vicinity or diminish and impair property values within the neighborhood provided it is removed as scheduled by November 1, 2019. Should the proposed temporary clubhouse remain in place longer than this date, the site City Council Report 2017-093 Page 6 should be re-evaluated. h.) In Institutional zoning districts, the Conditional Use Permit application shall comply with the standards, conditions and requirements stated in Section 542.03 of this Ordinance. Finding: Section 542.03 provides for standards related to a conditional use that includes demolition or removal of dwelling units and does not apply to this application. i.) Traffic impacts such as increases in vehicular traffic, changes in traffic movements, traffic congestion, interference with other transportation systems or pedestrian traffic, and traffic hazards shall be considered by the Planning & Zoning Commission and City Council in evaluating an application for a Conditional Use Permit. Finding: The temporary clubhouse will be positioned just off the southeast edge of the parking area and will operate as the former clubhouse did. The existing parking area and pedestrian trails are adequate to vehicle and pedestrian access to and from the site. Building Inspection Comments. After reviewing plans for the proposed temporary clubhouse at Meadowbrook Golf Course, the Building Inspections Department offers the following comments: 1. Building and site shall be accessible per 2015 MN Accessibility Code 2. Structure will have to be connected to City Water and Sewer 3. Building Permit is required 4. Two full-size copies of building plans shall be submitted for review 5. SAC Determination letter from Met Council Environmental Services is required Alternatives 1. Approve the conditional use permit amendment. By approving this amendment, the applicant will be allowed to place and operate a temporary clubhouse, subject to conditions listed in Resolution 2017-0138. 2. Deny the conditional use permit amendment. By denying this amendment, the applicant will not be allowed to place and operate a temporary clubhouse. 3. Continue for further information. If the City Council indicates that further information is needed, the item should be continued. CITY OF HOPKINS Hennepin County, Minnesota RESOLUTION NO. 2017-0138 A RESOLUTION APPROVING AN AMENDMENT TO THE EXISTING CONDITIONAL USE PERMIT FOR MEADOWBROOK GOLF COURSE ALLOWING THE PLACEMENT AND OPERATION OF A TEMPORARY CLUBHOUSE WHEREAS, the applicant, the Minneapolis Parks and Recreation Board, initiated an application to amend their existing conditional use permit (CUP) for Meadowbrook Golf Course to allow the placement and operation of a temporary clubhouse at 201 Meadowbrook Road; WHEREAS, the property is legally described as follows: THAT PART OF MEADOWBROOK GOLF COURSE EMBRACED WITHIN THAT PART OF E 1/2 OF SW1/4 OF SEC 20 T 117 R 21 LYING SLY OF CENTER LINE OF EXCELSIOR ROAD SUBJECT TO ROAD WHEREAS, the procedural history of the application is as follows: 1. That the property has an existing conditional use permit issued in 1970 and amended in 1982; 2. That an application to amendment the existing conditional use permit was initiated by the applicant on May 26, 2017; 3. That the Hopkins Planning and Zoning Commission, pursuant to published and mailed notice, held a public hearing and reviewed such application on June 27, 2017: all persons present were given an opportunity to be heard; 4. That the written comments and analysis of City staff were considered; and, WHEREAS, the Planning & Zoning Commission of the City of Hopkins recommended approval of the conditional use permit amendment based on the findings outlined in the staff report dated June 27, 2017. WHEREAS, the City Council of the City of Hopkins reviewed this application during their meeting on July 11, 2017, and agreed with the findings and recommendations of the Planning & Zoning Commission. NOW, THEREFORE, BE IT RESOLVED that the City Council of the City of Hopkins hereby approves an amendment to the existing conditional use permit for Meadowbrook Golf Course allowing a temporary clubhouse at 201 Meadowbrook Road, subject to the conditions listed below. 1. The applicant shall enter into a development agreement with the City. 2. Issuance of a building permit for the temporary clubhouse and conformance with all conditions. 3. Conformance with the building and fire codes. 4. Conformance with all conditional use permit standards in Section 525.13, Subdivision 15, and the specific conditions for outdoor recreation areas outlined in Section 530.09, Subdivision 1.b. 5. The applicant intends to place and operate the temporary clubhouse until November 1, 2019 , or completion of a new permanent clubhouse, whichever comes first. 6. The proposed temporary clubhouse shall be removed by November 1, 2019, or after construction of a new clubhouse, whichever comes first. 7. This conditional use permit expires one year after it has been issued unless the use for which the permit has been granted is in effect. 8. Once established, if a use granted by conditional use permit ceases to operate for six months, the conditional use granted for that property will expire. 9. The applicant shall submit a landscape security equal to 1.5 times the cost of the seasonal landscaping. 10. The proposed temporary clubhouse shall be connected to City sewer and water utilities. Adopted by the City Council of the City of Hopkins this 11th day of July 2017. _______________________ ATTEST: Molly Cummings, Mayor ______________________ Amy Domeier, City Clerk REQUEST FOR CONDITIONAL USE PERMIT Meadowbrook Golf Course 201 Meadowbrook Road Submitted by the Minneapolis Park and Recreation Board 9 June 2017 Macintosh HD:Users:michaelschroeder:Desktop:MPRB:Golf courses:Meadowbrook:Clubhouse:Request for Conditional Use Permit, 20170609.docx Background During the winter of 2015-2016, the clubhouse at Meadowbrook Golf Course suffered significant damage when a water pipe ruptured. Because the clubhouse was in winter mode, the break wasn’t discovered for several days. By then, the water damage was significant: main and lower level walls, flooring, insulation, electrical systems, and other building features were damaged beyond repair. Insurance adjusters concurred with the MPRB’s assessment of significant damage. The MPRB is further concerned that the water damage created conditions that could be unhealthy for golfers and MPRB staff. In short, the water damage rendered the building unusable and largely not repairable. The building dates to 1925, with several additions occurring since it was first constructed. While the building has been generally serviceable, it does not meet contemporary needs for the golfers and fails to meet requirements for accessibility. The water damage served to further highlight these deficiencies. The combination of significant damage, building age, and lack of conformance with contemporary needs suggests the need for a new clubhouse building. The MPRB anticipates a process of at least three years to plan and implement a replacement clubhouse. The process includes removal of the existing and un- occupiable clubhouse, which is already underway, the creation of a temporary clubhouse to support golfers, and the design and construction of a new clubhouse. As plans for the permanent clubhouse evolve, the MPRB is committed to engaging Meadowbrook’s neighbors and golfers, as well as staff at the city. Proposal The MPRB intends to reopen Meadowbrook Golf Course during Summer 2017. To effectively operate the course, a temporary clubhouse is proposed to be located just off the southeast edge of the existing parking area. The temporary clubhouse will be a portable building measuring 12 feet by 60 feet, or 720 square feet (approximately one-fifth the square footage of the former clubhouse). Services provided from the temporary clubhouse will be limited to point-of-sale operations for the golf course, limited vending, seating areas for golfers, and office space for golf course staff. Kitchen and locker rooms will not be provided as part of the temporary clubhouse. Attachment ‘A’ indicates the proposed location of the temporary clubhouse, as well as the location of the former clubhouse. Attachment ‘B’ demonstrates the character of the temporary clubhouse. The temporary clubhouse will be connected to private electrical and data/communications services, but no permanent connections to city utilities are proposed. A small deck will be constructed to facilitate compliant access to the temporary clubhouse and a portion of the parking area will be restriped to create reasonable outdoor space related to the temporary clubhouse. Seasonal plantings will be added to provide an attractive appearance. The location of the former clubhouse will be filled, leveled, and sodded, and will be maintained as a lawn area until construction of the new clubhouse begins. The temporary clubhouse will be used seasonally, generally operating during periods of golf course play. Seasonal start-up and shut down activities will require staffing beyond the golf season. The temporary clubhouse is intended to remain in place for at least three years while the MPRB plans and constructs a new clubhouse. Request The property is zoned R-1-C (Single Family Medium Density District) and is guided as Open Space in the City of Hopkins Comprehensive Plan. In discussions with city staff, the MPRB understands a temporary structure in an R-1-C District requires a Conditional Use Permit under the City of Hopkins’ zoning ordinance. As a result, the MPRB is requesting a Conditional Use Permit to allow the placement and operation of a temporary clubhouse, as described above, for a period of at least three years. The ownership of the property and its alignment with requirements of the zoning ordinance requires some interpretation. The MPRB is a semi-autonomous governmental entity created by an act of the Minnesota Legislature in 1883. In nearly every respect, the MPRB functions as a municipal government entity; that the MPRB owns and operates a facility beyond the corporate limits of the Minneapolis may present difficulty in interpretation of the code. However, the MPRB is committed to pursuing the city’s Conditional Use Permit process as it likely establishes the most clear and supportable path for review of our proposal given the unique nature of the MPRB and its presence in the City of Hopkins. Conditions supporting the request This request does not change the current or future use of the property. The MPRB intends to perpetuate the property’s current use as a golf course and has spent portions of 2016 and 2017 restoring the course to its 2014 pre-flood conditions. The introduction of the temporary clubhouse does not change the use of the property, nor will it result in another permanent structure on the property. Its presence on the property will overlap with the eventual construction of a replacement clubhouse, a period which the MPRB estimates to be less than six months given the seasonal use of the temporary clubhouse. The temporary clubhouse will be positioned just off the southeast edge of the parking area at a location that allows for reasonable operation of the course and significant separation from neighbors. The MPRB desires the temporary clubhouse to conveniently serve golfers until a new permanent clubhouse can be constructed. The temporary clubhouse will, in all respects, operate as the former clubhouse did. There are no new features or assets, the hours will not be increased, and the services offered will not be expanded. The temporary clubhouse allows for the operation of the golf course in the same manner as the former clubhouse. There is no increase in use of the course as a result of this structure, and there are no services provided from the temporary clubhouse that were not present on the course when the former clubhouse was being used.