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Concept Review-Super Value Expansion TAIT'S SUPER VALU EXPANSION March 2, 1993 III/ THE PROPOSAL This is a proposal for the remodeling and addition to Tait's Super Valu store at 25 llth Avenue North in Hopkins. The proposal would involve removal of the business buildings on the north side of Main Street between llth and 10th Avenues North and the extension of the present city owned parking lot to the South across the alley to Mainstreet. The present store would be expanded from approximately its present 23,000 square feet to 42,580 square feet. The liquor store would also be expanded from its present 3,300 square feet to approximately 5,000 square feet. Additional retail stores would also be built facing 10th Avenue north of the liquor store. We would anticipate that tax increment financing, TIF, would be used in the financing and that the city would continue to own the parking area. The occupants and owners of the buildings between 10th and llth Avenues on the north side of Mainstreet have all been personally interviewed and the proposal concerning the removal of the buildings has been discussed with them. TAIT'S SUPER VALU EXPANSION March 2, 1993 1110 t RESIDENTS MEETING On Thursday, February 18, 1993, at 7:00 p.m., a meeting was held in the community room of the Mizpah United Church of Christ at 412 5th Avenue North, Hopkins. Previously an invitation letter was sent to a list of 14 neighborhood or community associations which the City of Hopkins furnished to me (list attached). Represented were The Avenues, Minnehaha Oak Association, Meadow Creek Condominiums and other persons who did not indicate any association representation (list of attendees attached). The program consisted of Mr. Don Hagen, the developer, who explained generally what the proposal to the city would be and why; Mr. David Runyon of the architectural firm of Runyon /Vogel and Associates who showed elevation and floor plans of two or three variations of the project; Mr. Lloyd Johnson of the Retail Development Department of Super Valu, Inc. showed a video of a Super Valu store that would be very similar to the store proposed for Tait's; and Mike Tait, owner of Tait's Super Valu, who talked about his store and why they wanted to go ahead with an expansion. There was a question and answer period after the presentation. February 12, 1993 III Donald F. Hagen 1589 Highway 7 Hopkins, MN 55305 Dear Mr. Hagen, I would first like to commend you on your pro- active role in soliciting citizen input on the Tait's project before formally approaching the City. I only regret that I will be unable to attend your meeting of 2/18 as I will be out of town one of only a few conditions which could keep me away! I do have a unique perspective on this issue which I hope you will not disregard in my absence. Over the past several years, I have been actively involved in this debate as a representative from the Avenues neighborhood association arguably the one residential area most impacted by recent proposals. I worked on the business /citizen panel which worked out a_ compromise on the 6th -8th site proposal. During that time I gathered information from all parties, including the results of a survey I personally conducted involving responses from ndarly 100 residents. This involvement led me to testify before the County on the LRT matter arguing in favor of building on that site. 11/0 Unless your proposal is different than the hearsay going around, I already know of three areas of concern the loading docks, the "divider" on Mainstreet, and the cost of leveling buildings/ relocating businesses. I'll approach the loading docks first. They must be sufficiently separated from the neighborhood either by location or enclosure so that homes will not be impacted by the activity level. I'm sure that point will be adequately raised on Thursday evening. The tough sell is the "divider" between Mainstreet and the parking lot. I believe that the only way you will gain acceptance from a majority of the public for the leveling of perfectly good buildings and the relocation of successful businesses is to present a plan that "improves" that area. Please therefore consider my suggestions which I offer from a background of research not only on what people want, but also on what can contribute to the betterment of a city. From the enclosed articles you can see that architects, city planners and private interest groups alike believe that future cities should be designed within a framework that Hopkins already possesses. What we need to improve is the ambiance, the aesthetically pleasing walkways, the friendly gathering places, a public environment that is welcoming to the stroller and the browser. ou are certainly in a powerful osition t trend in Hopkins or squelch it entirely. to either encourage that With your "barrier" you can create a sense of "keep out" or a sense of "welcome, please shop here I don't believe the cost of the latter will be substantially higher given the value added. III The Laventhol Horvath study done in 1988 established had a market for vegetable marts, butcher shops news stands. Why not create a row of attractive wooden structures running the length of Mainstreet between 10th and llth just south of the parking lot? These could be used seasonally for the sale of items from within the store (vegetables, magazines, etc.) or to sublease to tenants to create an "open air market In winter, these could be decoratively shut down and possibly outlined with lights or painted with murals. On a less radical scale, murals could even be used on the brick wall or the "memory wall" concept which is pictured herein. Even a bicyclist "hub" area with bike racks and water fountains, public art, and benches may create some excitement. The "memory wall" was copied from a book, placemakers: Public Art That Tells You Where You Are, written by the Townscape Institute, a non profit public interest city planning organization. These people have consulted internationally and for a relatively small fee will help you construct a project that will enhance the image and attractiveness of Hopkins' Mainstreet. If this initiative must come from a citizen base, I'm sure I can find with individuals eager to be involved. This organization, 1111 who also wrote another fascinating book, Facade Stories Changing Faces of Mainstreet Storefronts, may even be useful for the Child's Play project so collaboration may be possible. I hope you realize your place in the future of Hopkins. You are at a crossroads and depending on the direction you choose, this city can be condemned to mediocrity or begin the ascent to excellence. Please don't take your position lightly. Now that the time is finally upon us to bring this long- conceived project through to fruition, I hope we can all rally together not only to do it right, but moreover to set a new standard in Hopkins. Sincerely, `.cam_ Fran Hesch The Avenues 936 -0205 cc: Steve Mielke Illo TAIT'S SUPER VALU EXPANSION March 2, 1993 III/1 MAINSTREET BUSINESS BETWEEN 10th and 11th AVENUE NORTH Building Owner Instant Replay Sports 4 10th Avenue No. Merriam Park and /or Frame Design 8 10th Avenue No. Robert Miller Merriam Park Co. 10 10th Avenue No. Tropical Minnesota 1001 Mainstreet Triple Play Sports 1001 Mainstreet Two Apartment Units 10072 Mainstreet Bert's Hair Co. 1007 Mainstreet Mainstreet Traders Pawn 1009 Mainstreet Keith Rolf K C Outdoors 1011 Mainstreet Waterside Softwear (Vacated) 1013 Mainstreet Mason /Perkl J.C. and Raspberry Office (Vacated) 1015 Mainstreet ITT Loan Co. (Vacated) 1017 Mainstreet Boston Subway 1019 -1020 Mainstreet Boston Garden Restaurant First Bank Drive -In Galaxie Sales Clifford /Nessa 1110 Partnership 111/1 I l rtt' ifili o� Ey` IQ! j N u ki8 ii Z J tY i y W W S t gt j i Q Z. 4 f-9 3f1N3A 4 r O I 0 [7E14 ij r C 3l1N3A 4101 �e r 1 Yz iB F o 1- 1 Z 1 J p w J a tr N H v 1 1 r J r--------1 1 311N 4 n 1 I 1 1 I ir Mti%T le q 0 i vi i i i i 1 1 l p y L i= O W W I I f S 3 a b U s l J c i l I 311N3 AY LP6 a N..., I f 0 o 1, N -I 4 I j �J 3nN3nv Ya C v AVMNIV 1 V. Q i 1 1 L I i I 1 1 1 a 1 r J i W w z i i 1 r r 1 r 31N3AV ALL '!f tifiV Y B i d tit IS li 0 x iligl ii; t O N [at yq t} a.. i tiit{ a e S t O S i 3 �V C i i i' i H M 1 IN F -1 i i I° 0 1 NI a iii I. 1 41 m i 110 9, is I 1 z P z W MI 1 In MI Mi l I•ll a f r i O Z O W y j p W 5 4F 5 N i 1 ED U V m H Q W =3U a U W v, JZ a U 311N3nd HIM. `co r,- x 1 .a 1 7 d J I Mi �hii1 VJ.. I s ,NI w .1 Z 1111 V 411.r v M S W ec t i p f. ap a W U> '1 1:-Y I 41 I. rel CO o I 1 1 4 ,,,s L.) u., I-- F w ce 1. co F- ce J Z A 1 1 .e 4.. J I •.i, 1 J Q I S j v Y O I y 1 All J i J 0 5 March 22, 1993 Planning Report ZCR93 -1 CONCEPT REVIEW GROCERY STORE 410 roposed Action. his is a concept review which requires no action. However, comments from the Commission will be helpful to the applicant in the following ways: 1) Determine whether to proceed with future applications. 2) Allow the applicant to revise the site plan to incorporate comments and concerns. Overview. The applicant, Don Hagen, is proposing a project which would involve the expansion to Tait's SuperValu grocery store located at 25 llth Avenue North from 23,000 square feet to 42,580 square feet. This expansion would remove the existing buildings along Mainstreet between 10th and llth Avenue and replace them with parking. The drive -thru bank facility to the north of the grocery store would also be removed. The applicant has submitted two concept plan alternatives, both of which will involve removal the Mainstreet buildings. One proposal will add 9,700 square feet of additional retail and close 10th Avenue. The second alternative will add 6,350 square feet of retail and keep 10th Avenue open. In reviewing this project two major issues the City will need to address are as follows: 4111 Land use and site plan issues. This is the specific area that the Zoning and Planning Commission should be reviewing as part of the concept review and any conditional use permit applications. The main issues that will need to be addressed in conjunction with this discussion is the taking of the Mainstreet buildings. 2) The use of public dollars. Tax increment financing will be needed to facilitate the project. This aspect of the project will be reviewed by the City Council, and the City Council acting as the HRA, at such a time an application is submitted. Primary Issues to Consider. o What is the background of the development? o What are the specifics of the site plan? o What is the site zoned and Comprehensive Plan designation of this site? o Does the Comprehensive Plan address redevelopment in the downtown area? o What are the issues that the Zoning and Planning Commission will need to review as part of the proposed development? o What are the issues relating to the taking of the Mainstreet businesses? o What are the issues the City Council /HRA will need to review as part of this project? o What future actions are required? Illir porting Documents. o Analysis of Issues o Letter from Fran Hesch o Site Plan Ihe IL- .siaii cLix r\ k y r Nancy/ S. Anderson, AICP v ZCR93 -1 Page 2 4 11 1 Primary Issues to Consider. o What is the background of the this development? Over the last several years Mike Tait and Super Valu have discussed building a larger grocery store in Hopkins. In conjunction with this effort a number of sites have been discussed. The City Council in reviewing various projects sites have indicated that maintaining a grocery store in the downtown is essential to the overall vitality of this area. For the last couple of years city staff and Ryan Development worked together in an effort to facilitate construction for a new store between 6th and 8th Avenues. However, the County was unwilling to allow the railroad property in this area to be incorporated into the project site. As a result, Mr. Tait is now working with the owner of the existing building to expand this structure to twice its existing size. In order to facilitate this size of project all the abutting Mainstreet buildings between 10th and 11th Avenue would need to be demolished. The developer has stated this action is essential for the following reasons: o provide visibility to the project o provide additional parking 4111 o remove conflicts associated with the shared parking arrangement in the parking lot, as an example Boston Sub utilizes a substantial number of parking spaces o What are the specifics of the site plan? Trash storage The trash disposal area has not been designated on the concept plans. In conjunction with the conditional use permit stage the trash area will have to be detailed and how it functions. Staff is recommending that the trash area at a minimum is enclosed in a structure constructed with the same materials as the main building. Also, plans for recycling will need to be detailed. Traffic and access Access to the site is shown on the proposed plans from 10th and llth Avenues. The preliminary site plan shows access points near Mainstreet on both 10th and 11th Avenues. The traffic movements with either proposal will need to be studied. Staff is recommending that a traffic study be done in conjunction with either proposal prior to approval of any conditional use permit. i ZCR93 -1 Page 3 1111 Issues to be reviewed include but are not limited to the following: 1) design improvements on 10th and 11th Avenues necessary to facilitate the increased traffic 2) safety and design issues as related to access to the parking lots the two access points to the parking are on 10th and llth nearest Mainstreet definitely do not meet adequate design standards 3) Internal parking lot circulation Exterior materials The proposed exterior of the building is stucco. Staff would recommend that either the entire exterior is brick or at a minimum the facade facing Mainstreet frontage. Also, it will be necessary to insure that the exterior design and facade treatments incorporate and are consistent with Mainstreet design elements. Setbacks The following are the required and proposed setbacks: B Proposed front yard 1 foot appr. 288 feet east side yard 0 0 west side yard 15 feet 0 rear yard 25 feet appr. 40 feet The site plan does not meet the west setback requirement of 15 feet. These setbacks are assuming that Mainstreet is considered the front yard. If an agreement can not be worked out for the applicant to own the proposed parking area adjacent to Mainstreet, the front yard would be either 1st Street North or llth Avenue. Parking The majority of the parking for the project would be located on the south side of the site. The south parking area has 199 parking spaces. The project is not required to provide parking because it is located in the B -2 zoning district. If the site was not located in the B -2 district it would be required to have one space per 200 square feet of floor area. Using this ratio for the gross floor area, the site is required to have 212 parking spaces. This number will be reduced by removing such areas for dead storage, building maintenance, building utilities etc. The parking area on the north side of the building appears to have a functional problem. The applicant will need to detail how these spaces will operate in conjunction with the loading operation in this area. The parking area to the north is required to be fenced along the north 0 e, because the parking area abuts a residential area. ZCR93 -1 Page 4 If this project proceeds, issues related to ownership and maintenance of the newly created parking areas will need to be established. Presently the parking on the south side of Tait's is a public parking lot owned and maintained by the City of Hopkins. It maybe appropriate under the proposed plan to have the applicant assume the cost of maintenance and upkeep of this lot. Loading docks The loading docks will be located on the north side of the site abutting the residential district. If this project proceeds to the conditional use permit stage, the specifics of the loading area will have to be detailed and how the abutting neighborhood will protected from the loading area. Staff would recommend that a wall be placed between the loading docks and the residential area in addition to a landscaped area. The applicant will need to meet with the abutting properties to discuss an appropriate design for the buffer area. Surrounding uses The site has the following surrounding uses: north residential and public parking west library /library parking east commercial Illk south commercial e amount of residential area which abuts the project is minimal and should not be negatively impacted with proper site design. o What is the zoning and Comprehensive Plan designation for this site? The site is zoned B -2, Central Business. A grocery store is permitted in the B -2 district. The site is designated as commercial on the land use map within the Comprehensive Plan. o How does the Comprehensive Plan address redevelopment in the downtown area? The Comprehensive Plan identifies the following regarding the downtown area: 1) In conjunction with a discussion on design guidelines, the plan states that in reviewing new development and redevelopment proposals the City should maintain the appearance and character of the historic buildings throughout the commercial area, both in the historic core and in the supportive nearby areas. 410 ZCR93 -1 Page 5 2) Buildings should be maintained or developed in such a manner to address the following: o Buildings should be kept to a relatively small scale consistent with the historic Downtown. o Maintain as much a building line along Mainstreet as practical. Where buildings must be set back, a strongly landscaped edge should be established to maintain some visual line along the street. o A window line should be maintained in the building facades along Mainstreet. o New buildings along Mainstreet should attempt to imitate the window proportions and placement established in the Historic Core. 3) Parking lots should be kept small and close to the businesses served. Larger parking lots should have visual breaks or four season landscaping treatment. It appears the proposed project is in conflict with the provisions ntained in the Comprehensive Plan. o What are the issues that the Zoning and Planning Commission will need to review as part of this project: OA 15`0 0' o Appropriateness of removing the Mainstreet buildings and how to mitigate any negative impacts. o Safety and design issues for the following: access to the subject site internal circulation both within the parking area to be utilized by the applicant and adjacent parking areas external circulation and access more specifically should there be improvements to 10th, llth Avenues and Mainstreet o Parking design and use issues o Building design elements for the proposed site plan including the following: building design elements including exterior material and signage (at a minimum staff would recommend that the building front be brick) landscaping and lighting incorporation of Mainstreet design elements o Construction of a physical design element on Mainstreet to retain a presence on this roadway. o Loading docks and trash issues. o Incorporation of physical element i.e. berming, fencing, etc. III 0 to protect surrounding uses from any negative impacts. Scale of project, e.g., need to assess whether project is to large for the area. ZCR93 -1 Page 6 o What are the issues as relates to taking Mainstreet buildings? Hopkins is one of a handful of communities in the metropolitan area that has an identifiable downtown. For the most part the core of this area consists of the three block area from Eighth to Eleventh Avenue. The buildings in this area are smaller one and two story structures fronting on Mainstreet which in many cases contain multiple tenants. Over the years there has been a strong emphasis to preserve the character of the downtown area which has been established by these Mainstreet buildings. In 1984 the City of Hopkins became one of the first Mainstreet Minnesota cities. Through this program, participating downtowns are encouraged to undertake a number of steps to maintain or increase their overall economic vitality. As part of this program historic preservation is emphasized. It was felt that Hopkins had a real attribute to take advantage of with the uniqueness of the Mainstreet buildings and the character of Mainstreet itself. In conjunction with the Mainstreet program the City implemented a commercial rehabilitation loan program. Under this program, low interest loans are provided to businesses in the downtown and along Mainstreet to upgrade the buildings. One purpose of this program is to ensure that these older downtown buildings are maintained and kept as viable places of business. A number of the property owners and tenants on the block that is presently under consideration did take advantage of this program. As stated earlier, the Comprehensive Plan provided guidance on the development and redevelopment activities in the downtown area and design guidelines. It does appear the proposed project, and in particular the taking of Mainstreet buildings, is in conflict with the Comprehensive Plan. It would have to be assumed that the project which involves taking Mainstreet buildings and then constructing a building which is significantly set back from Mainstreet is contrary to the overall direction which the City has taken to date. This doesn't necessarily mean that undertaking the project as proposed is clearly good or bad for the City, but it does represent a definite change in direction and philosophy on the part of the City. It is clear that undertaking the project as proposed would help to retain the grocery store in the downtown area and also allow the operator to better tap consumer needs within the market area. However, by taking the Mainstreet buildings and creating more of the suburban mall approach, Hopkins could potentially be losing some of its small town uniqueness, and sense of place and identity which is an asset that it has tried to take advantage of in the past. ZCR93 -1 Page 7 Another concern that the staff has as relates to this project relates to the overall market niche of the downtown area. Older established downtown areas such as Hopkins have in recent times found its niche relating more with attracting retail and service businesses which are looking for smaller spaces and more reasonable rents than they can find in the malls. Because many of these businesses are destination oriented, they do not require the high visibility or roadway traffic counts in order to be successful. The grocery store building as proposed would by far be the largest single retail building within the downtown area. Should it ever become vacant for whatever reason, the City may need to directly compete for the same tenants that are looking for these more visible locations. o What are the issues the City Council /HRA will need to review as part of this project? Along with the issues just outlined, the City Council /HRA will also need to address the following items: o Providing public financial assistance to the project. The developer has stated that tax increment assistance will be required to facilitate this project. The City would be asked to assist in land write -down, relocation and demolition. Staff estimates this assistance, based on a preliminary analysis, to be approximately $2 million. The Council in it's review will need to determine whether the benefits from this project outweigh the expenditure of this amount of public funds as well as removing buildings from Mainstreet. o What is the impact of not expanding the existing store. The basic question is whether the store can function within the market area at it's present size. o Market issues as related to expanding the store. As part of this issue the Council will need to look at whether the proposed project will adequately satisfy market demand to adequately prevent or locating competition from building within the market area. o Alternatives available to the project as proposed. These could include the following: undertaking a smaller expansion which does not require acquisition of Mainstreet buildings no expansion of the existing store under this scenario the existing store could presently be upgraded to better address present day market demands explore alternative locations ZCR93 -1 Page 8 o Loss of existing business as and potential relocation to other sites. o What future actions need to occur if the applicant wishes to proceed with this project? 1) Submission of preliminary tax increment application to the HRA. 2) Execution of preliminary development agreement. 3) Submission of final tax increment application. 4) Approval of conditional use permit. At sometime during the above process the staff would probably ask that the applicant complete the following studies: 1) Traffic study to address parking issues, internal and external circulation, truck loading /movement issues etc. 2) Market study to analyze how the grocery store would meet market need and reduce future competition within- the market area. 3) Design study to address design elements of the project and how to mitigate negative elements, most specifically relating to the taking of Mainstreet buildings. The study should also 410 include some type of computer modeling to detail the overall visual impact of the project on surrounding properties and the downtown. The results of these studies would be provided to the Zoning and Planning Commission to assist in the overall review of this project. 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