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7.b3 CUP for Vets Camp Staff Report MEMORANDUM To: Scandia City Council Reference: Vets Camp CUP Ken Cammilleri, Administrator Copies To: Brenda Eklund, Clerk Sharon Price, Applicant From: Evan Monson, City Planner Proj. No.: 17722.000 Date: September 10, 2020 Routing: SUBJECT: Request for a Conditional Use Permit (CUP) to allow for the Disabled Veterans Rest Camp to be permitted as a Planned Unit Development (PUD) MEETING DATE: September 15, 2020 LOCATION: Parcel ID 31.032.20.44.001 APPLICANT: Sharon Price, on behalf of the Veterans Rest Camp OWNERS: Washington County ZONING: General Rural (GR), Shoreland Overlay 60-DAY PERIOD: September 22, 2020 (120-day November 21, 2020) ITEMS REVIEWED: Application and plans received July 24, 2020 DESCRIPTION OF THE REQUEST: The Disabled Veterans Rest Camp is looking to expand their camp site on some land owned by Washington County here in the city limits. The camp currently is located in May Township, with a small parcel of unused land currently located in Scandia. The area the camp is looking to expand into is former county parkland. This expansion would allow for the creation of over 20 new RV sites for the campsite. This expansion would still be connected to the rest of the camp, and would only be accessible from the camp. The camp access is served by a private road located in May Township. Vets Camp CUP Scandia City Council Page 2 September 15, 2020 BACKGROUND: Under zoning controls, the Veterans Rest Camp use is a legal conforming use, per a Minnesota State Statute (SF 467) from 2005. Per that statute, improvements to the camp shall be allowed through a Planned Unit Development permit. The Development Code for Scandia has Planned Unit Developments (PUDs) permitted through a Conditional Use Permit (CUP). Included in the application are plans encompassing the entire campgrounds. The portion within Scandia is quite small, under 3 acres. In order to have the expanded campground area integrate and maintain continuity with the existing site in May Township, it is ideal for this to be reviewed as a PUD. A PUD is unique in that a PUD can ‘allow for more flexibility in development design’ than what is normally required. The City can grant variations from the normally required standards, such as minimum setbacks, minimum frontage, maximum lot coverage, etc. The unique nature of a use straddling municipal boundaries, while also maintaining a consistent design throughout the site make this project an ideal Planned Unit Development. CRITERIA FOR GRANTING A CONDITIONAL USE PERMIT (CUP) FOR A PLANNED UNIT DEVELOPMENT (PUD) The City’s Development Code identifies the general and specific criteria that should be considered for evaluating a CUP request and granting a CUP. The Code indicates that the criteria that the Planning Commission shall consider: • Compliance with the Comprehensive Plan. • Compliance with the Development Code. • Compliance with the required criteria for issuance of a CUP. Chapter Two, Section 7 of the Development Code goes over Planned Unit Developments. This section also outlines the required findings for approval of a PUD. These findings are: • The PUD is not in conflict with the Comprehensive Plan. • The PUD meets the Purpose of a Planned Unit Development as stated in this Chapter. • The PUD or phase of development thereof is of sufficient size, composition, and arrangement that its construction, marketing, and/or operation is feasible as a complete unit without dependence upon any other subsequent phase of development. • The PUD will not create an excessive burden on parks, schools, streets and other public facilities and utilities which serve or are proposed to serve the planned development. • The PUD will not have an adverse impact on the reasonable enjoyment of the neighboring property. • The quality of the building and site design shall substantially enhance the aesthetics of the site. • The PUD will create a public benefit that is greater than what would be achieved through the strict application of the zoning and subdivision regulations. EVALUATION OF CUP AND PUD CRITERIA Comprehensive Plan Compliance This parcel is located within the ‘Recreation Protected Area’ in the Future Land Use Map. This area is meant for recreational or open space, and is protected from intensive development. Campgrounds are a recreational use, Vets Camp CUP Scandia City Council Page 3 September 15, 2020 and the expansion of the Veterans Rest Camp into Scandia would keep this area as recreational or open space. The proposed use is consistent with the 2040 Comprehensive Plan. Development Code Compliance The minimum lot size in the GR District is 2.0 acres, and the minimum frontage is 160 feet. The Shoreland Overlay requires a minimum lot size of 2.5 acres. The subject parcel is 2.81 acres, though the parcel does not front a public road. The parcel does have access to Manning Trail via the existing campground and a private road in May Township. The parcel is roughly in the shape of a triangle, with a width of over 400 feet on its south side along the municipal boundary, and the west side of the parcel having a length of over 300 feet. A PUD is ideal for this parcel, as requiring this use to front a public street when it already has access provided is unnecessary. A PUD is also ideal in order to permit placement of RV sites that are integrated with the existing RV sites located in the campground. Requiring camp sites to be setback from the south property line would leave this addition disjointed from the rest of the campground. The plans are to have RV sites at a minimum of 10 feet away from other property lines, as well as a minimum of 10 feet from the small bluff that runs along the shoreline of the lake. A survey would be needed to verify the distance of the bluff from the Ordinary High Water Level (OHWL) for this parcel, though current RV sites in the existing campground are located 60 feet or more from the shoreline. In keeping consistent with the rest of the campground, a similar setback from the OHWL can be approved as part of the PUD. The proposed expansion will also potentially exceed the impervious surface limit of 25% of the lot, depending on the surfacing used for the RV sites. With 8,000 square feet of road looping through the parcel, plus 2,000 square feet for each RV space, the impervious surface would be over 40% of the 2.81 acre lot. If the RV sites are pervious, the impervious surface amount would be under 10% of the lot. The Development Code doesn’t have any specific requirements for campground land uses, but such uses still have to follow the general requirements standard to all uses. Any lighting on the parcel will have to follow the requirements for lighting listed in Chapter 2, Section 3.9 of the Development Code. Given the parcel is also located in the Shoreland Overlay, the parcel with have to follow the requirements of the Shoreland Ordinance, specifically the Vegetation Management, Grading and Filling, and Stormwater Management sections. Required CUP Criteria The general criteria for evaluating Conditional Use Permits are listed in italics and the Planner’s evaluation of the proposed use based on the conditions follows in standard text. • The conditional use will be in compliance with and shall not have a negative effect upon the Comprehensive Plan, including public facilities and capital improvement plans. The proposed use is consistent with the Future Land Use Map of the Comprehensive Plan. It will not negatively impact public facilities, or impact the City’s capital improvement plan. Vets Camp CUP Scandia City Council Page 4 September 15, 2020 • The establishment, maintenance or operation of the conditional use will promote and enhance the general public welfare and will not be detrimental to or endanger the public health, safety, morals or comfort. The proposed use would not endanger the public welfare. If the applicant meets the conditions included with this CUP and obtains all required permits, the use will not create adverse impacts on the public health safety, morals, comfort or general welfare of the public. • The conditional use will not be injurious to the use and enjoyment of other property in the immediate vicinity for the purposes already permitted, nor substantially diminish and impair property values or scenic views. The proposed use will not impact lots in the immediate vicinity. The parcel is still partially wooded, and will be tucked away from view by the other parcels around it. The expansion of the campgrounds onto this parcel will not negatively impact adjacent property values or scenic views. • The establishment of the conditional use will not impede the normal and orderly development and improvement of surrounding property for uses permitted in the district. The proposed use is an expansion of an existing use on the adjacent property to the south. Due to the proposed expansion not creating new roads or streets for access, it will not negatively affect the development or improvement of surrounding parcels in. • Adequate public facilities and services are available or can be reasonably provided to accommodate the use which is proposed. Adequate public facilities and services can be made available, if needed. The existing campground already has water and electric, and can have any new expansion hook into that. The City would not have to provide new services. • The conditional use shall conform to the applicable regulations of the district in which it is located and all other applicable standards of this Chapter. The proposed use is unique in that State law has stated that the Veterans Rest Camp shall be a legal conforming use that is permitted through a PUD. By following any conditions approved with this CUP, and getting all applicable permits, the use will conform to the Development Code. • The conditional use complies with the general and specific performance standards as specified by this Section and this Chapter. By following any conditions approved with this CUP, and getting all applicable permits, the use will meet the general and specific performance standards for campgrounds in the Development Code. Evaluation of PUD findings • The PUD is not in conflict with the Comprehensive Plan. The proposed use is consistent with the Future Land Use Map of the Comprehensive Plan. Permitting this use through a PUD would not be in conflict with the 2040 Comprehensive Plan. Vets Camp CUP Scandia City Council Page 5 September 15, 2020 • The PUD meets the Purpose of a Planned Unit Development as stated in this Chapter. This use is unique in that State law has determined the Veterans Rest Camp is permitted through a PUD. The purpose of a PUD is stated in Chapter 2, Section 7 of the Development Code as being used to allow for: a mix of land uses, a mix of housing types, creative site design, coordinated plans for landscaping, buildings, sidewalks or trails, and parking, preservation and enhancement of the natural environment, enhancement of community character through design consistent with historical development patterns, and efficient use of land. While an expansion of the Veterans Rest Camp campground doesn’t create a mix of housing types, it does allow for a use that is an efficient use of land. The expanded campground area is integrated with the existing campgrounds, and is designed so as to not need any new city streets or roads. Given the compact design integrating the expanded site with the existing campgrounds, this PUD would meet the purpose of a Planned Unit Development. • The PUD or phase of development thereof is of sufficient size, composition, and arrangement that its construction, marketing, and/or operation is feasible as a complete unit without dependence upon any other subsequent phase of development. The Veterans Rest Camp is planning for a number of new changes to the campgrounds, though the portion of development within Scandia is quite minimal. The proposed plans show over 20 new RV sites, which would be connected to the rest of the campgrounds within May Township. These new sites are planned as part of their 10 year vision; the immediate items identified within their 5 year vision are within the existing campgrounds outside city limits. The new expansion in Scandia can be completed on its own, without any other projects or phases, so it is feasible as a complete unit without dependence upon any other phase of development. • The PUD will not create an excessive burden on parks, schools, streets and other public facilities and utilities which serve or are proposed to serve the planned development. A PUD allowing the proposed expansion of a campground will not create an excessive burden on parks, schools, streets, or other city facilities. • The PUD will not have an adverse impact on the reasonable enjoyment of the neighboring property. The nearby properties in Scandia are either farmland, parks, or wooded areas. Granting the PUD will not have an adverse impact on nearby properties or their uses. • The quality of the building and site design shall substantially enhance the aesthetics of the site. The area is currently undeveloped. The site is designed so as to be integrated with the existing campground in May Township; without entering the Veterans Rest Camp one would be hard pressed to notice it. If it were its own standalone campground, new city streets and accesses would be needed, which could negatively impact the aesthetics of the site. • The PUD will create a public benefit that is greater than what would be achieved through the strict application of the zoning and subdivision regulations. A strict application of the zoning regulations would not allow for this proposed expansion. The unique situation of having a use straddle two different jurisdictions makes the normal zoning requirements cumbersome when trying to keep the entire campground development as one. As designed, users of Vets Camp CUP Scandia City Council Page 6 September 15, 2020 the facility will likely have no idea they are crossing back and forth between Scandia and May Township. The use of the parcel within Scandia for only new RV sites will not result in negative impacts to the land that other potential development could create. ACTION REQUESTED: The City Council can recommend the following: 1. Approve the request. 2. Approve the request with conditions. 3. Deny the request with findings. 4. Table the request. PLANNING STAFF RECOMMENDATIONS: The criteria for granting a Conditional Use Permit amendment and the Development Standards are met, if all information identified in the conditions is provided in the manner described. The Planning Commission recommended approval of the request The Planner recommends approval of the Conditional Use Permit (CUP) to allow for the Disabled Veterans Rest Camp to be permitted as a Planned Unit Development (PUD) at Parcel ID 31.032.20.44.001 with the following conditions: 1. The proposed expansion shall be completed within ten years of issuance of this CUP. 2. The proposed expansion shall be permitted to maintain the same minimum setback from the Ordinary High Water Level as the existing RV sites on the adjacent campground parcels in May Township. 3. The proposed expansion shall have a minimum side setback of 10 feet from the west property line, and shall have no minimum setback along the municipal boundary with May Township. 4. The proposed expansion shall not create an impervious surface coverage of over 50% of the parcel. 5. The applicant shall submit plans verifying the location of the Ordinary High Water Level, impervious surface coverage of the parcel, and setback of existing and proposed RV sites prior to expansion of the campground. 6. The applicant shall obtain a drainage permit and grading permit from the city prior to constructing the proposed expansion. 7. The applicant shall meet all other applicable requirements of the Development Code. 8. The applicant shall obtain all applicable local, watershed, state, and federal permits required for this expansion. 9. Any changes deviating from the plans reviewed with this request, or conditions approved with this request, shall require amending the Conditional Use Permit. 10. The applicant shall pay all fees and escrow costs related to the application.