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HomeMy WebLinkAbout1999 12-02 PCM MINUTES OF THE PROCEEDINGS OF THE PLANNING COMMISSION OF THE CITY OF BROOKLYN CENTER IN THE COUNTY OF HENNEPIN AND THE STATE OF MINNESOTA REGULAR SESSION DECEMBER 2, 1999 CALL TO ORDER The Planning Commission meeting was called to order by Chair Willson at 7:30 p.m. ROLL CALL Chair Tim Willson, Commissioners Graydon Boeck, Stephen Erdmann, Rex Newman, Sean Rahn, Dianne Reem, and John Whitehead were present. Also present were Secretary to the Planning Commission/Planning and Zoning Specialist Ronald Warren, and Planning Commission Recording Secretary Carla Wirth. APPROVAL OF MINUTES - NOVEMBER 10. 1999 There was a motion by Commissioner Newman, seconded by Commissioner Whitehead, to approve the minutes of the November 10, 1999 meeting as submitted. The motion passed with Commissioner Rahn abstaining due to his absence at that meeting. CHAIR'S EXPLANATION Chair Willson explained the Planning Commission's role as an advisory body. One of the Commission's functions is to hold public hearings. In the matters concerned in these hearings, the Commission makes recommendations to the City Council. The City Council makes all final decisions in these matters. DISCUSSION A BROOKLYN CENTER SCHOOL DISTRICT - TEMPORARY CLASSROOMS Mr. Warren presented the school district's request by advising of discussions held between City and school district staff. He explained they are experiencing a situation where enrollments at the Earle Brown Elementary School have increased to the point that they have space needs. Thus, the request for a 30'x 60' temporary metal portable classroom addition. Mr. Warren advised that the issue of temporary classrooms was raised 15 to 16 years ago with the Anoka School District, though, perhaps, not as desperate a situation. He explained that the City's reluctant position with respect to temporary buildings is due to the possible need to waive Building Code requirements and based on past experience that the temporary building may become a long- term use. Mr. Warren stated that due to the past negative experience with a commercial use temporary building, staff is extremely cautious. He explained that the school is over full, has a desperate need for a building addition, and would like to construct a temporary building after the first of the year to accommodate their current enrollment. They have indicated this would not be a permanent solution to the capacity problem but they are, as yet, unable to indicate how long the 12 -02 -99 1 facility would be in use. Mr. Warren explained that the capacity increased due to turnover of home ownership in the southern portion of the City and also open enrollment students. Mr. Warren used an overhead diagram to identify the subject property and surrounding roadways. He then presented the proposed site plan, noting the location of the existing school building, parking lot, bus loading area, playground, and proposed location for the portable metal building. The portable building would be placed on some type of foundation and have a corridor (about 20 feet long) connecting it to the school. Steve Anderson, Director of Facilities for the Brooklyn Center School District, stated that the connecting corridor is 20 feet long which meets the State separation requirement between structures. He advised that the site plan being reviewed was prepared by their architect. Mr. Anderson noted the location of a grade difference that will need to be addressed in the proposed site. Also, it is located in the middle of the playground area which would allow access by children using the playground. Mr. Anderson pointed out another location where the portable classroom could be placed which is farther off the playground and out of the high - traffic area. He advised that this optional location also meets the 20 foot separation setback. Mr. Anderson presented a scaled drawing depicting the hitch end and rear end elevations. He reviewed the materials list and typical floor plan being considered. He advised of the various exterior treatments that could be considered including aluminum and wood siding. In response to Chair Willson, Mr. Anderson explained the need to meet handicapped accessibility requirements and provide a direct access connection between the portable classroom and school. Mr. Warren stated the City's position with respect to this type of facility has not been favorable but they do realize the School District's concern and need. He asked the Planning Commission to consider moving this proposal forward by making a recommendation to the City Council that they and the School District reach an agreement on how this portable building could be added to the school on a temporary basis. He noted this would provide the School District with the ability to then address options for a more permanent solution. Mr. Warren cautioned that in other areas of the Metropolitan area, "temporary" structures have been in place for more than 20 years. He stated this is the City's main concern and there needs to be a clear understanding this is a temporary use and an end date would need to be established at which time a permanent structure expansion would take place. Mr. Warren stated that in well over 25 years, the City has never authorized a metal temporary building. He agreed that this is a unique situation and the City wants to be cooperative. He stated that he does not anticipate there would be additional requests of this type but the City would not want a precedent established that allowed major retailers, for instance, to request temporary buildings for storage, etc. Chair Willson asked if the Planning Commission is being asked to consider an agreement between the City and School District with the conditions and terms clearly identified. Mr. Warren stated he is asking the Planning Commission consider a special exception to recommend the school district not be required to follow the formal process for a site and building plan, and special use permit, possibly with conditions to assure the protection of both parties. 12 -02 -99 2 Commissioner Newman asked if the Earle Brown Elementary School site is such that it could accommodate a permanent building addition and setback requirements, should funding be allocated. Mr. Warren stated his understanding that there are State standards as well that relate to open space and setbacks. Currently, this site does not meet that standard. Mr. Warren stated there has been preliminary discussion about the possibility of, perhaps, vacating Humboldt Avenue between 59th and 60th Avenues to create more of a campus setting. He stated that while this has not been researched in depth, staff has indicated a willingness to look at it further if it allows the school district to construct a permanent building addition that would meet their needs. Commissioner Boeck asked if the School District, in the past, sent students to schools in adjacent school districts. Mr. Anderson stated the only time that was done was in 1967 and 1968 after a structure fire at the elementary school. Commissioner Boeck asked if they have investigated every alternative to this situation. Mr. Anderson stated that he believes they have but have not looked, in depth, at sending students to an adjacent school district. Cheryl Jechorek, School Board Chairperson, stated there is only one elementary school and one high school within the District. She explained they are unable to bus students to a different school within their district because there are no other schools. She stated they do look at enrollment data closely but due to immigration in the southeast corner of the City their students that use English as a second language have increased to 180 immigrant students in the last four years, so more space is needed. She stated they would like to use the portable classroom flexibly so it can be used all day. In response to Commissioner Boeck, Mr. Anderson stated the portable classroom can accommodate two classrooms, or 60 students. Ms. Jechorek stated they have closed open enrollment except if a sibling is already attending. She advised that there are currently 90 open enrolled students and they have decided to not make them leave if they are already students. Commissioner Whitehead asked if the portable classroom would be used as a multi - purpose structure. Mr. Anderson stated it could accommodate special needs or other types of class use. He explained that in the current structure, some classrooms are not of adequate square footage. Commissioner Whitehead asked if Brooklyn Center utilizes the Osseo schools as well. Ms. Jechorek explained that there are four school districts within Brooklyn Center and they currently do not utilize other School District facilities. Commissioner Whitehead asked if projections may necessitate another portable classroom. Ms. Jill Schwint, Brooklyn Center School District, stated they did not anticipate a need for additional portable classrooms. She explained that the kindergarten classrooms are used all day long and if they didn't have that, they would not need six to seven kindergarten rooms. She stated the school received State funding to reduce classroom size but, currently, the test scores are not as high as they 12 -02 -99 3 desire so they added classroom teachers rather than classrooms. Ms. Schwint reported on the multi- use of classrooms while teaching is going on. She advised they are already using the next door church and hope to purchase the liquor store building on 69th and Humboldt Avenues and convert it for use with early childhood education. Commissioner Rahn asked if the proposed structure would address the excess number of students that need to be accommodated. Mr. Anderson stated that even with the temporary building, more space will be needed and they will seek to meet these needs on a permanent basis. Commissioner Rahn asked why they are not requesting additional portable buildings. Ms. Schwint explained that the proposed portable classroom has funding this year but next year the funding will be used to purchase the building mentioned earlier. Commissioner Rahn expressed concern that there will be future requests for additional portable classrooms, especially since it is already known that this portable classroom may not meet the current need. Commissioner Newman asked about the space needs at the high school. Ms. Jechorek stated that space is tight and could not accommodate additional grades. Commissioner Newman asked if they have researched segregating the kindergarten classes to another rented space. Ms. Jechorek stated they are already using the neighboring church. Ms. Schwint stated they have looked into that option and contacted other churches and rental properties. Mr. Anderson explained that they had hoped to have the building operational January 1 st but realize that is not realistic. Commissioner Erdmann asked if the State had developed concrete criteria to regulate this type of structure. Mr. Anderson stated they have and the School District understands this is a situation that is unique to Brooklyn Center. Commissioner Reem asked about the funding situation. Ms. Schwint explained that funding for all - day kindergarten is permanent and they believe in the need to have the kindergarten students involved in an all -day program. Ms. Jechorek added that they have found that the all -day kindergarten program has resulted in achievement. Ms. Schwint stated they have about 22 kindergarten students per classroom. Commissioner Boeck asked if the State sets building standards and controls. Mr. Anderson explained that the State has guidelines but they also need to work with local authorities. Mr. Warren explained the State Building Code Division must approve all plans for government buildings but often transfers that review and inspection authority to the local Building Official. He advised of the Brooklyn Center Building Official's concerns relative to the foundation and the temporary nature of the structure. Mr. Warren stated that temporary buildings do not always meet 12 -02 -99 4 the requirements for a State or municipal building but, due to the unique circumstances, some issues can be accommodated as long as they do not involve safety issues. Commissioner Whitehead asked if the portable classroom will have skirting that can be locked securely to prohibit access. Mr. Anderson stated the skirting will be secured with an access panel but those types of details are not fully worked out. He stated the safety of children is also a major concern for them. Mr. Anderson commented on the importance of providing clear visibility into areas to assure security. Chair Willson asked if the acquisition of the liquor store would provide enough capacity relief to remove the portable structure. Ms. Schwint explained it would not since that building is intended to be used to expand the early childhood program since that need is not currently being met. Ms. Jechorek reported on the School Board's activity to discuss and research the option of a bond issue to provide funding for a permanent solution. Chair Willson noted that passing a bond issue may involve a two to three year process. He stated if this request for a temporary classroom is approved, he would suggest that the use expire when the bond issue could be held at a general election. Mr. Warren stated it is probably realistic to assume there is a need for a temporary structure for three to five years. He noted that you cannot predict whether a bond issue would be successful but from the City's perspective of agreeing to a temporary structure, use of three to five years is reasonable. Ms. Jechorek stated the School District fully understands the City's concerns and has every intention of researching permanent options. She noted that the placement of a portable classroom may also help convince voters on the need for a bond issue. Mr. Anderson stated they are involved with an architect to do a use needs analysis which involves reviewing curriculum to see if the building is being used in the most efficient manner. He commented on the difficulty of predicting enrollment needs long -term, but stated that they are attempting to do just that. Mr. Anderson noted this site is landlocked and advised they currently do not have the State required amount of green space. Commissioner Reem asked if the bond issue would incorporate the vacation of that portion of Humboldt Avenue. Ms. Jechorek stated this is a possibility and can be addressed. Mr. Anderson stated they have also researched the option of a second story, fire code requirements, etc. However, typically, elementary schools are not two -story structures. Commissioner Rahn stated if this is approved, he would support the inclusion of a requirement for removal of the structure if a bond passes or within a certain number of years, such as seven years, with the option of requesting an extension of time. He stated another criteria could be to require removal if enrollment drops. Commissioner Rahn stated his support to assure this is a temporary use and to assure it does not become a long -term use. Ms. Jechorek stated they understand and would concur with that type of restriction. 12 -02 -99 5 RECOMMENDATION There was a motion by Commissioner Rahn, seconded by Commissioner Boeck, to recommend to the City Council to consider a special exception from the site and building plan and special use permit requirements for the Brooklyn Center School District and to enter into an agreement to allow construction of a 30' by 60' temporary classroom at the Earle Brown Elementary School, 5900 Humboldt Avenue North. The special exception is based on the unique relationship between the School District and the City as local units of government and the urgent need of the School District to provide temporary space for an expended enrollment at that facility without meeting all of the development requirements of the City. Said agreement should acknowledge these factors and clearly provide for and state the following: 1. The temporary nature of the facility which can be allowed to be located on the property as shown on the site plan for up to seven years from the date of the approval of the agreement. 2. The School District shall make every effort to fund and construct a permanent addition to this facility that will meet projected needs and the development requirements of the City. 3. The temporary classroom shall be removed from the site prior to seven years if enrollments drop below current levels and /or construction of permanent facilities commence. 4. Construction of the temporary classroom shall be subject to the review and approval of the Building Official and shall include secure skirting around the perimeter of the structure. 5. Any extensions or modifications to the agreement shall be subject to the review and recommendation of the Planning Commission. A discussion ensued relative to the motion. Commissioner Newman stated his child is a student at Earle Brown Elementary School via open enrollment. He stated his concern that this use may become a long -tem use through requests for extensions of time. He asked if a larger -sized portable structure should be considered. Mr. Anderson stated they do not have funding for a larger sized structure or additional portable structures. Ms. Schwint noted this site does not have enough green space area to add more portable structures. In response to Commissioner Reem, Mr. Anderson stated in preliminary discussions, they have considered a three to five year use for the portable classroom. He stated that he would like to complete their study of how the building is being utilized, enrollment projections, etc. prior to making a determination on the timing and need for a permanent structure addition. He stated they 12 -02 -99 6 have also discussed conducting a demographic study. He added that the recommended time frame should be enough. Mr. Warren noted that for comparative purposes the Osseo School District is much larger and able to bus students between schools to accommodate enrollment and capacity. However, the Earle Brown Elementary School site is landlocked. He noted that the number of houses will probably not increase in Brooklyn Center but the number within the household may vary. Ms. Jechorek concurred and noted that in some cases, a retired couple may sell their home and a young family with children from several families may move in. Mr. Anderson stated they would also prefer a permanent structure but don't want to make a "snap judgement and the time frame does not allow a permanent structure at this time. Following the discussion a vote was taken on the motion. The motion passed unanimously. Chair Willson asked that staff provide a report back to the Planning Commission on the outcome of the Council's decision. Chair Willson called a recess at 8:55 p.m. The meeting was reconvened at 9:00 p.m. B. COMMERCIAL ZONING REORGANIZATION Mr. Warren reviewed past discussion regarding the reorganization of commercial zoning districts within the City. He introduced Michael Cronin of Michael Cronin & Associates and reviewed his past work in the City of Brooklyn Center and as the City Planner in Minneapolis. Mr. Cronin presented particulars that need to be addressed when determining zoning classifications ranging from single - family homes to multi - family high -rise housing and from small commercial enterprises to large regional shopping complexes. He then narrated a slide presentation and explained the differences between building form and format, centers, corridors, and exotic districts. He stated that once it is decided what is desired, it can be decided the best way to design it. He suggested that the solution for Brooklyn Center will not be found in neighborhood centers but, rather, in the corridor sections. Mr. Cronin suggested the Planning Commission analyze what is happening in Brooklyn Center via interview to provide illumination and innovation. He stated another issue is to assure the liveability of the City's neighborhoods. Rather than borrowing ideas from other communities, he urged the Planning Commission to study what is happening along Brooklyn Boulevard. In response to Commissioner Newman, Mr. Cronin commented on the importance of continuity and providing order. Commissioner Boeck stated support to enhance, rather than change, existing uses. Mr. Cronin stated that zoning can also be a negative "tool" since it can stop things from happening. 12 -02 -99 7 Mr. Warren stated this presentation is important in how the City is looking at changes in the commercial zoning areas. He stated the City's zoning ordinance has been used to stop certain things from happening but now, perhaps, the City does not want to stop it from happening but, rather, to address how it can be part of the neighborhood through screening, buffering, etc. Also, the difference between a neighborhood commercial building has been discussed based on a certain square footage. However, it doesn't always work that way with redevelopment of certain areas. Mr. Warren suggested looking at how the use fits with the existing neighborhood rather than identifying a maximum square footage. Mr. Cronin presented philosophies of zoning based on using the zoning ordinance to "protect from" versus "build to" and/or to assume the best intentions versus regulating to assure compliance. Mr. Warren urged the Commissioners to consider Mr. Cronin's comments and suggestions and be prepared to discuss these issues in more detail at an upcoming meeting. C. YEAR 2000 MEETING SCHEDULE Mr. Warren advised that the next meeting dates will be January 13 and 27, 2000. He stated he will provide members with the rest of the Year 2000 calendar shortly. D EXPIRATION OF TERMS /REAPPOINTMENT Mr. Warren stated that he informed the City Clerk of the Commissioner's interest in reappointment and would advise of the Council's appointments once made. OTHER BUSINESS There was no other business. ADJOURNMENT There was a motion by Commissioner Boeck, seconded by Commissioner Whitehead, to adjourn the Planning Commission meeting. The motion passed unanimously. The meeting adjourned at 9:56 p.m. Chair Recorded and transcribed by: Carla Wirth TimeSaver Off Site Secretarial, Inc. 12 -02 -99 8