CR2003-111 Parking variance - wendys
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CITY OF
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HOPKINS
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July 30, 2003
Council Report 03-111
VARIANCE-PARKING
Proposed Action.
Staff recommends the following motion: Move to adopt Resolution 03-62, approving a
parking variance to construct a Wendy's Restaurant at 502 Blake Road.
At the Zoning and Planning meeting, Ms. Hatcher moved and Mr. Hatlestad seconded a
motion to adopt Resolution RZ03-14, recommending approval of a parking variance to
construct a Wendy's Restaurant at 502 Blake Road. The motion was approved
unanimously.
Overview.
Wendy's is proposing to construct a new restaurant at 502 Blake Road. The applicant
has applied for a conditional use permit to construct the new Wendy's and obtain a
parking variance. As part of the conditional use permit process a traffic analysis was
conducted for the proposed Wendy's restaurant. With the traffic analysis, a parking
analysis was completed.
.
Because there is an existing Wendy's to the north of the proposed site, it offers a realistic
view of the parking situation that exists today. It was observed that the peak parking
demand was 25 spaces. In accounting for a 10 percent increase in the expected
maximum parking demand, the parking spaces required would be 29. The site plan
indicates 37 parking spaces, eight more than the peak demand. The parking requirement
as per the ordinance is 48 spaces.
Primary Issues to Consider.
. What is the zoning of the property?
. What does the ordinance require for the number of parking spaces?
. What are the specifics of the applicant's request?
. What special circumstances or hardship does the property have?
. What was the discussion at the Zoning and Planning meeting?
Supportine: Documents.
. Analysis of Issues
. Site Plan
. Traffic and Parking Analysis
. Resolution 03-62
Financial Impact: $ N/ A Budgeted:
Related Documents (CIP, ERP, etc.):
Notes:
Y/N
Source:
CR03-lll
Page 2
.
Primary Issues to Consider.
. What is the zoning of the property?
The subject property is zoned B-3, General Business. A fast food restaurant is pennitted
with a conditional use pennit.
. What does the ordinance require for parking?
, The ordinance has a the following parking requirement:
At least one parking space for each 2.5 approved seats and one parking space for every
15 square feet of public service and counter area.
The ordinance requires 48 parking spaces for the proposed Wendy's.
. What are the specifics of the applicant's request?
The applicant is requesting a parking variance for 11 spaces.
. What special circumstances or hardship does the property have?
.
The Zoning Ordinance states the following: a variance is a modification or variation
from the provisions of this code granted by the board and applied to a specific parcel of
property because of undue hardship due to circumstances peculiar and unique to such
parcel. The Zoning Ordinance also states the following: that the Commission must find
that the literal enforcement of the provision of the Zoning Ordinance would cause an
undue hardship because of circumstances unique to the individual property under
consideration and that the granting of a variance to the extent necessary to compensate
for said hardship is in keeping with the intent of this code.
The parking requirements are a general parking ratio for all fast food restaurants. In a
perfect world a parking analysis should be completed for every type of use. In this case
the applicant did complete a parking analysis and also has a unique situation because
there is an existing Wendy's immediately north of the proposed site to confinn the data.
In this case the applicant has an undue hardship that is unique to the property because
the proposed use does not need the parking spaces required as required.
. What was the discussion at the Zoning and Planning meeting?
Ms. Anderson reviewed the results of the parking study with the Commission. Rich
Janssen, Christine Moss, Eric Kellogg, and Jim Yarosh, representing Wendy's, appeared
before the Commission. Mr. Janssen stated that the Wendy's on Blake Road was the
firs~ Wendy's in Minnesota and was constructed 30 years ago. Wendy's does not own
the existing site, and the site to the south offers the opportunity for Wendy's to own the
.
CR03-111
Page 3
property.
Frank Murray the abutting property owner to the south, appeared before the
Commission. Mr. Murray was concerned with the property line and where the fence
would be located. Ms. Moss stated that the fence would be located in the middle of the
buffer area between the two lots. Wendy's has done a survey and Mr. Murray stated that
they would also be doing a survey to confirm the location of the south property line.
Alternatives.
1. Approve the variance. By approving the variance, the applicant will be able to
construct the parking as proposed. .
2. Deny the variance. By denying the variance, the applicant will not be able to
construct the parking lot as proposed. If the City Council considers this alternative,
findings of fact will have to be stated that support this recommendation.
3. Continue for further information. If the City Council indicates that further
information is needed, the item should be continued.
.
BENSHOOF & ASSOCIATES, INC.
TRANSPORTATION ENGINEERS AND PLANNERS
10417 EXCELSIOR BOULEVARD, SUITE TWO / HOPKINS, MN 55343/ (952) 238-1667/ FAX (952) 238-1671
July 9,2003
Refer to File: 03-43
MEMORANDUM
TO:
Nancy AndersonA~ty of Hopkins -AG,
James A. Ben~ofand Aravind Gottemukkula
FROM:
RE:
Traffic Study for Proposed Relocation of Wendy's Restaurant on Blake Road
PURPOSE AND BACKGROUND
The purpose of this memorandum is to present the results of our traffic study f9r the proposed
relocation of Wendy's restaurant in Hopkins. The proposed site is located on Blake Road,
just west of the Blake Road intersection with Oxford Street. Figure 1 shows the site location.
. The following three questions were addressed in our traffic study:
a) Would the current site plan adequately accommodate the expected queue of vehicles
using the drive-through service, without any significant chance of such vehicles
backing up onto Blake Road?
b) Would the proposed Wendy's restaurant cause any negative impacts to existing
operations along Blake Road?
c ) Would the current site plan adequately meet the expected parking demand for the
proposed Wendy's restaurant?
PROPOSED DEVELOP:MENT CHARACTERISTICS
The proposed development consists ofa 2,903 SF (square feet) Wendy's restaurant on Blake
Road, which would replace the existing Wendy's restaurant on the adjacent property to the
north. The proposed restaurant will provide drive-through service. The overall proposed site
plan, including the location of the drive-through pick-up window, is shown in Figure 2. The
proposed development is expected to be complete by the end of this year.
As per the current site plan, one divided driveway opposite Oxford Street will provide access
to the proposed Wendy's restaurant. The proposed development will function with one-way
internal circulation.
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-4-
July 9, 2003
.
EXISTING CONDITIONS
The proposed site formerly was occupied by an M.T. Bears restaurant, which has not been in
operation for several years. In the vicinity of the site, Blake Road provides two through lanes
in each direction and a continuous two-way left turn lane. Oxford Street is located opposite
the proposed site, on the east side of Blake Road. Oxford Street is a two-way residential
street with stop sign control at Blake Road. The centerline of Oxford Street is offset about 45
feet and 35 feet from the centerlines of the existing site entry and exit driveways,
respectively.
To effectively address impacts of the proposed development on the Blake Road/Oxford Street
intersection, traffic volumes were collected during mid-day and afternoon peak periods on a
typical weekday. Traffic volume data are presented later in this memorandum.
ANALYSIS OF QUEUE FOR DRIVE-THROUGH
To address question a) presented earlier, we collected drive-through queuing data at two
Wendy's restaurants during the lunch hour (12:00 noon to 1 :00 p.m.) on a typical weekday.
Restaurants surveyed were identified by Wendy's staff as comparable facilities. One
restaurant, which will be removed in conjunction with the proposed development, is located
on Blake Road next to the proposed site. The other restaurant is located on W. Lake Street
west ofI-35W in Minneapolis.
Vehicles queued behind the order station, and those queued between the pick-up window and
the order station were counted by one-minute intervals during the noon hour. Based on our
queuing data and other observations at the site, we found that the Wendy's restaurant on W.
Lake Street is much less busy than the existing Wendy's restaurant on Blake Road. Based on
this finding and by virtue of its location, we decided to use the data only for the existing
Wendy's on Blake Road for our analyses.
For the existing 2,800 SF Wendy's restaurant on Blake Road, the queue of vehicles extended
onto Blake Road during five ofthe 60 survey intervals. In these instances, the number of
vehicles on the street waiting to enter the site was included in the total queue length.
In our queuing analyses, we have used the 90th percentile queue lengths during a typical busy
period (lunch hour), which is consistent with normal practice. The 90th percentile queue was
exceeded only 10 percent of the time during the peak period surveyed. The 90th percentile
queue for the existing Wendy's restaurant was 11 vehicles during the lunch hour. The
proposed Wendy's restaurant will be 2,903 SF in size i.e., about four percent bigger than the
existing 2,800 SF restaurant on Blake Road. To account for a possible increase in drive-
through queuing due to the proposed restaurant's increased size, we have increased the 90th
percentile queue for the proposed restaurant to 12. .
The current site plan shows about 260 feet of overall drive-through stacking space, measured
from the edge of the driveway to the pick-up window. With 20 feet per vehicle, the 90th
percentile drive-through queue length for the proposed restaurant is 240 feet (12 vehicles x
20 feet): Therefore, the current site plan will adequately accommodate the expected drive-
through queuing without any significant chance of such vehicles backing-up onto Blake
Road.
.
.
.
Ms. Nancy Anderson
-5-
July 9, 2003
ANALYSIS OF TRAFFIC EFFECTS AT BLAKE ROAD/OXFORD STREET/SITE
ACCESS INTERSECTION
Traffic Forecasts
As presented earlier, the proposed development is expected to be complete by the end of this
year. Consistent with normal practice, we examined traffic conditions at the Blake
Road/Oxford Street intersection one year after full completion of the proposed development
(i.e. 2004). The forecasting process and results are as follows:
· Trip Generation. Trips that will be generated by the proposed development were
estimated for mid-day and afternoon peak hours based on data presented in the ITE Trip
Generation, Sixth Edition, 1997 and data collected at an existing fast-food restaurant in
the Twin Cities metropolitan area. We estimate that about 84 entering and 84 exiting
trips would occur during the mid-day peak hour, and about 51 entering and 46 exiting
trips would occur during the afternoon peak hour. Trips generated by the proposed
development can be classified into the following two types:
New Trips - Trips solely to and from the subject development
Pass-By Trips - Existing "through" trips on Blake Road that will include a stop at
the subject development in future
Based on data published by the ITE, we estimate that about 50 percent of the total
development trips will be new trips, and the remaining 50 percent will be passby trips.
.
Trip Distribution. Trip distribution percentages for the proposed Wendy's restaurant
were developed based on several factors, including observations regarding entering and
exiting traffic at the existing Wendy's restaurant. The following trip distribution
percentages were used for both new and passby trips:
55 percent to and from the south on Blake Road
45 percent to and from the north on Blake Road
· Traffic Volumes. Trips estimated for the proposed development were then assigned to
the surrounding road network based on the above trip distribution percentages. Historic
traffic growth trends for Blake Road indicate that no significant growth in traffic has
occurred in the past few years. Therefore, for forecasting purposes, the 2004 no-build
volumes are same as existing volumes. The portion of existing through volumes on
Blake Road at the subject intersection that presently represent volumes due to the existing
Wendy's restaurant were subtracted, and the proposed development volumes were added
to arrive at 2004 build volumes. Existing, 2004 no-build and 2004 build volumes are
presented in Figure 3.
.
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FIGURE 3
WEEKDAY PEAK HOUR
TRAFFIC VOLUMES
aD BENSHOOF & ASSOCIATES, INC.
V TRANSPORTATION ENGINEERS AND PLANNERS
TRAFFIC STUDY FOR
PROPOSED RELOCATION
OF WENDY'S RESTAURANT
ON BLAKE ROAD
Ms. Nancy Anderson
-7-
July 9, 2003
.
Capacity Analvses
Capacity analyses were performed for the Blake Road/Oxford Street intersection for existing
and 2004 build traffic scenarios. Existing geometries for Blake Road and Oxford Street were
used in our analyses, consisting of one exclusive left turn lane, one through lane and one
shared right and through lane on the north and the south approaches, and one lane for all
movements on the east approach. For the exit from the Wendy's site, we used the geometry
shown in the site plan, which consists of one exclusive right turn lane and one shared left and
through lane.
Capacity analysis results are presented in terms of Level of Service (LOS), which ranges
from A to F. LOS A represents the best intersection operation, with very little delay for ea.::h
vehicle using the intersection. LOS F represents the worst intersection operation with
excessive delay. Most agencies in Minnesota consider that LOS D represents the minimal
acceptable LOS for nonnal peak traffic conditions. As shown in Figure 4, left turns and
through movements out of the Wendy's site will experience LOS E during the mid-day peak
hour and LOS F during the afternoon peak hour. This condition is not uncommon for exiting
movements at private driveways on major roadways. All other movements at this
intersection operate at an acceptable LOS for all traffic scenarios.
.
Review of Lavout of Blake Road/Oxford Street/Site Drivewav Intersection upon Completion
of Proposed Wendy's Restaurant
To determine whether the current site plan will provide safe and efficient traffic operations at
the Blake Road/Oxford Street/site driveway intersection, we examined the intersection layout
characteristics in relation to the following:
· AASHTO's (American Association of State Highway and Transportation
Officials) intersection design principles
· ITE guidelines for driveway design and location
As described earlier, the former restaurant use on the site had two driveways (one for
entering and one for exiting) that are offset from Oxford Street. Ifthis offset condition
continued with the new Wendy's restaurant, conflicts would occur between northbound left
turns into the site and southbound left turns onto Oxford Street. Past research on two-way
left turn lanes and guidelines published by the ITE indicate that offset intersections create
serious conflict potential and should be avoided whenever possible. The current site plan
resolves this issue by combining the two driveways to create one divided driveway and
aligning it with Oxford Street.
We also found that the subject intersection layout with the current site plan is consistent with
other intersection and driveway design guidelines published by AASHTO and ITE. One
, suggestion to streamline exiting movements is to designate the site driveway approach as one
shared through/left turn lane and one right turn lane. This can be achieved by striping the
driveway approach as shown in Figure 5. We also suggest installation ofa stop sign on the
driveway approach.
.
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TRAFFIC STUDY FOR
PROPOSED RELOCATION
OF WENDY'S RESTAURANT
ON BLAKE ROAD
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-10-
July 9,2003
.
PARKING REVIEW
To answer question c) presented in the beginning of this memorandum regarding parking
adequacy, we collected parking occupancy data at the existing Wendy's restaurant on Blake
Road during the lunch hour on two typical weekdays. Based on our data, the peak parking
demand was 25 spaces. Again, to account for possible increase in business due to the larger
size of the new restaurant, we increased this parking demand to 26 spaces for the proposed
restaurant.
It is described in the publication "Parking", Eno Foundation for Transportation, 1990 by
Weant et. al. that the parking supply (number of spaces to be provided) should be 10 percent
more than the expected maximum parking demand (number of spaces used during the busiest
hour). This ten percent represents the recommended design safety factor that provides
reserve capacity to allow for vehicles in search of a space and other factors that reduce
parking efficiency. Therefore, the number of spaces that are needed to meet the maximum
parking demand is 29 (26 x 1.10).
The current site plan provides 37 parking spaces, eight greater than the number of spaces
needed to accommodate the peak demand.
CONCLUSIONS
Based on information presented in this memorandum, three principal conclusions we have
established are:
a) The current site plan will provide adequate stacking space for drive-through
queues during the peak noon period for the proposed Wendy's restaurant.
b) The current site plan will not cause any serious negative impacts at the Blake
Road/Oxford Street/site access intersection, provided that the suggested signing
and striping shown in Figure 5 are implemented.
c) Based on a basic parking review at the existing Wendy's restaurant on Blake
Road during the peak noon period, we have determined that the current site plan
will adequately accommodate the expected peak parking demand for the
proposed restaurant.
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CITY OF HOPKINS
Hennepin County, Minnesota
RESOLUTION NO: 03-62
RESOLUTION MAKING FINDINGS OF FACT AND
APPROVING A P ARKING VARIANCE TO CONSTRUCT A WENDY'S
WHEREAS, an application for Variance VN03-3 has been made by Wendy's
International; and
WHEREAS, the procedural history of the application is as follows:
1. That an application for Variance VN03-3 was made by Wendy's
International on June 27,2003;
2. That the Hopkins Zoning and Planning Commission, pursuant to mailed
notice, held a meeting on the application and reviewed such application on
July 29,2003: all persons present were given an opportunity to be heard;
3. That the written comments and analysis of the City staff were considered;
and
4. Legal description of the parcel is as follows:
Tract B Registered Land Survey No. 1367, Hennepin County
NOW, THEREFORE, BE IT RESOLVED that application for Variance VN03-3 IS
hereby approved based on the following Findings of Fact:
1. That the shape and width of the lot creates a hardship.
2. Based on the traffic study, the site does not need the required parking spaces
as per the ordinance requirements.
3. That the proposed fence on the south side of the property minimizes the
adverse affects a commercial property abutting a residential property.
BE IT FURTHER RESOLVED that application for Variance VN03-3 is hereby
approved based on the following conditions:
1. That the conditional use permit is granted to construct a Wendy's at 502 Blake
Road.
2. That the parking study was determining only the parking requirement for a
Wendy's restaurant; any use other than a Wendy's restaurant will have to
comply with the existing parking requirement for that use.
Adopted this 6th day of August 2003.
Eugene J. Maxwell, Mayor
ATTEST:
Terry Obermaier, City Clerk