08.b2b Staff Report Bethany Center
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Memorandum
To: Scandia City Council Reference: Bethany Center Application
Copies To: Brenda Eklund, Clerk
Ken Cammilleri, City
Administrator
Sheryl Moran & Roger Tomten,
Applicant
Project No.: 18407.000
From: Evan Monson, Planner Routing:
Date: March 10, 2022
SUBJECT: Conditional Use Permit for a Place of Worship land use
MEETING DATE: March 15, 2022
LOCATION: 23393 Nolan Avenue North & 13519 240th Street North, PIDs
04.032.20.13.0001; 04.032.20.41.0001; 04.032.20.14.0001;
03.032.20.23.0001; 03.032.20.22.0002; 03.032.20.21.0004
APPLICANT/OWNERS: Sheryl Moran (owner) & Roger Tomten (designer)
ZONING: General Rural (GR), Agriculture Core (AG C), Shoreland Overlay
REVIEW PERIOD: 120 day period ends April 21st
ITEMS REVIEWED: Application and plans received December 22, 2021, revised site plans
received February 28th
DESCRIPTION OF THE REQUEST
The applicant is looking to redevelop the subject property into a ‘place of worship’ land use – the Bethany
Center for Prayer and Renewal. The applicant is proposing to remodel the existing house, barn, and
granary on the site as part of their proposed project. The project would turn the property into a quiet site
for prayer and religious study of the Christian faith. Individual hermitages/cabins would be built on the site
as well, providing a space for solitude for visitors. A parcel on the north end of the subject property would
house a director/groundskeeper and a priest, ensuring that there is an in-person presence on the site at
all times.
The property spans multiple parcels. Three of them are zoned AG C, while the others are zoned GR. The
Shoreland Overlay covers all of the parcels as well. A place of worship land use is a conditional use in
each of these zoning districts.
The proposed project is planned to be developed in phases. The initial phase, under review now, would
allow for the applicant to begin remodeling the house, barn, and granary building. The proposed
hermitages on the site would be built out in a future phase. If the CUP is approved by the city, the
applicant would then amend the CUP when they are ready to begin the building of the hermitages. The
Bethany Center Staff Report March 15, 2022
Scandia City Council Page 2
Planning Commission reviewed the request at their meeting on March 1st, and found the request met the
criteria for approval. The commissioners recommended a number of conditions of approval, which are
listed at the end of this report.
PROPERTY INFORMATION
Parcel description: 23393 Nolan Avenue North is located on the north side of the city. The property
bounds the south/east sides of Sea Lake. The property is made up of multiple parcels, totaling
approximately 110 acres. Four of the parcels are zoned AG C and total 94.9 acres, while the others are
zoned GR and total approximately 15.1 acres in size. The two parcels zoned GR have access off of 240th
Street; one of the parcels has an existing house addressed as 13519 240th Street North. The remaining
parcels, which are addressed as 23393 Nolan Avenue, have access off of Nolan Ave. A house, barn, and
granary occupy these parcels. Portions of the site were also previously used as a tree farm.
Zoning: General Rural (GR), Agriculture Core (AG C), Shoreland Overlay
Land use: Single-Family Residential, Agriculture
EVALUATION OF REQUEST
Applicant’s Explanation of the Plan and Variance Request
See attached narrative from applicant.
Staff Comments on the Variance Request
Engineer
The City Engineer reviewed the project plans to determine surfacing options for on-site parking. The
Development Code notes that “non-residential uses shall utilize asphalt, concrete, or a reasonable
substitute as approved by the City Engineer”. The engineer noted that the first 50 feet of driveway off
Nolan Avenue should be paved. Paving of on-site parking areas, turn lanes at the Nolan Avenue access,
and a Development Agreement could be required as part of future phases of the project.
Watershed
The Comfort Lake Forest Lake W atershed District noted watershed permits would be required for this
project.
DNR
The East Metro Area Hydrologist did not provide comments at the time of this staff report.
Washington County
Jay Riggs with the conservation district noted a delineation for wetlands would be needed for the site. The
delineation would determine wetland locations and necessary setbacks for construction on the site to
meet.
Project Details
The ‘place of worship’ land use is defined in Chapter One of the Development Code. The definition reads:
Bethany Center Staff Report March 15, 2022
Scandia City Council Page 3
“A building, together with its accessory buildings and uses, where persons regularly assemble for
religious worship and which building, together with its accessory buildings and uses is maint ained and
controlled by a religious body organized to sustain public worship.”
This use is listed as a conditional use in both the AG C and GR zoning districts, as well as within the
Shoreland Overlay; hence the need for a conditional use permit (CUP). The use, as defined in the
Development code, permits multiple structures on the site can be used as a part of this use. The
proposed plans would result in three existing structures being repurposed; an existing house would be
repurposed into a ‘Hospitality Center’, an existing barn would be repurposed into a storage facility as well
as on-site parking. On-site parking for the site would be located around the barn and center. The existing
granary on the site, located just south of the barn, will be remodeled into a small chapel.
An existing house, located on the parcel with access off 240th Street, would be used to house an on-site
director/groundskeeper. An ADU could be added in the future to house an on-site priest. Twelve
hermitages are proposed on the site, these would be located on the east side of the site. A potential
driveway connecting the site to the house near 240th Street could be built in the future. Upon full build-out,
the site would have up to 12 users of the hermitages at a time, 3-5 staff people onsite, and 3 staff or
users in the Hospitality Center. The chapel would be designed for 20 users, so as to accommodate users
and staff on the site.
Development Code Items
Zoning District and On-site Parking Requirements
As noted previously, a place of worship is a conditional use. This use, per its definition, permits multiple
buildings as part of the use. The use itself does not have any use-specific standards or requirements to
follow; though the general standards of the code are still applicable. The existing buildings already meet
required setbacks, there is some existing screening and landscaping on the site, and the initial phase o of
the project can adhere to the lot requirements of the GR and AG C zoning districts, as well as the
Shoreland Overlay. The comprehensive plan identifies this area as ‘Agricultural Core’ and ‘General
Rural’, which are consistent with the current zoning designations of the parcels on the site. New
landscaping on the site would be included in plans for review for future phases, or as part of building
permit review. The proposed remodels, and future improvements on the site would have to adhere to the
City’s Design guidelines and the requirements outlined in Chapter Two, Section 3.14 of the Development
Code. Any special or private events on the site would have to follow the city’s requirements for events
and nuisances, which are located in the city’s municipal code and outside of the Development Code.
Chapter Two, Section 3.10 notes the parking requirements for different land uses in the city. The place of
worship land use is noted as requiring “1 space for each 3 seats or for each 5 feet of pew length”. With
the chapel designed to accommodate 20 people, this would result in having 20 seats. 1 space per 20
seats would come out to 7 parking spaces being required. The applicant is proposing to provide 20
spaces on the site, which would provide at least one space for guests and staff. As part of the remodel of
the barn, the interior would be able to accommodate some parking. The center would remodel the
existing garage on the house for parking as well, in order to minimize parking outside. The Planning
Commission, in their review of the request, felt 20 spot s on the site would be ideal, and recommended 20
parking spots be provided on-site as a condition of approval. Section 3.10(2) notes that outdoor parking
for non-residential uses shall utilize asphalt, concrete, or a reasonable substitute as approved by the City
Engineer. Parking plans would be reviewed as part of the building permits for the project.
Bethany Center Staff Report March 15, 2022
Scandia City Council Page 4
Lot Combination
In order to alleviate potential zoning issues from arising in the future, City staff would request as a
condition of approval that parcels under the same zoning designation be combined together. This would
clear up some existing instances with property lines running close to and through existing and proposed
improvements on the site, as well as clear up some zoning requirement issues applicable to accessory
structures on each parcel. The four parcels zoned AG C, which consist of a majority of the site, could be
combined into one parcel, while the two parcels on th e north end of the site that have access off of 240th
Street could be combined into one parcel; this would turn the site from six parcels to two. A lot
combination could be approved administratively by city staff.
Figure 1: Site Plan, showing future combination of the parcels zoned AG C (in red) & parcels zoned GR (in yellow)
On-site Septic
The initial phase would utilize the existing septic systems on the site. The County will review and
determine compliance of the current system, as the County administers septic standards for the city. The
future hermitages on the site would require on-site septic, which would have to be installed and receive
permits from the county.
Future Items
Phases & timelines
The site is planned to be built out and developed over time. The current phase would be the remodel of
the existing house, barn, and granary on the site, and utilizing existing parking around the center and
barn. The proposed hermitages would be a future phase; this would require an amendment to the CUP,
Bethany Center Staff Report March 15, 2022
Scandia City Council Page 5
which would require review by the Planning Commission and approval or denial by the City Council. The
city could add additional conditions for future phases during review of amendments to the CUP.
Wetlands
The applicant will be completing a wetland delineation of the site upon the end of winter. The delineation
would identify wetlands on the site and allow the applicant to site the hermitages and other future
improvements to the site outside of applicable wetland setbacks. If, in the situation that a setback from a
wetland were unable to be met, the applicants will need to acquire a variance as well as amending the
CUP.
Variances
The applicant would be required to meet the standards and requirements of the Development Code. If
unable to meet requirements, then a variance would need to be requested from the city.
CUP Criteria and Findings
Chapter One, Section 8.4 of the Development Code lists the criteria to meet to grant a CUP. They are
listed below in italics, with the findings of the Planning Commission following.
1. 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 reuse and redevelopment of the site is meant to help preserve the existing
buildings and allow the site to blend in with the current rural character of this area of Scandia. The
area is guided in the future land use map to remained zoned as AG C and GR, which p ermit this
use by a CUP. By meeting the requirements of the Development Code, along with the Design
Standards of the city, this conditional use would be in compliance with and would not have a
negative effect on the Comprehensive Plan.
2. 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 CUP would be to permit a place of worship land use. The proposed use is a conditional use
in the AG C, GR, and Shoreland overlay. The proposed use at this time would be contained
within existing structures on the site; apart from some outside parking there would be no changes
as part of this initial phase. The city can add conditions of approval to ensure the use is not to be
detrimental to or endanger the public health, safety, morals or comfort of the city.
3. 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.
Utilizing the site for this proposed use should not result in any potential negative impacts to the
use or enjoyment of properties in the immediate vicinity. The initial phase would result in
remodeling existing structures on the site, which would have up to 8 users and staff people at one
time. The proposed use is intended to be of a low intensity, similar with other institutional-like
uses located throughout the city. The structures are not changing in location, so existing views
will not be impacted.
The city assessor noted that an unrestricted maximum capacity, certain hours of operation, days
being open per week, visibility of buildings, increased road use, and exempt status causing a loss
of tax base could impact property values in the city. The city can require conditions of approval to
Bethany Center Staff Report March 15, 2022
Scandia City Council Page 6
mitigate these issues, such as limiting hours of operation, setting a maximum capacity of the
chapel, and requiring screening.
4. 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 uses on this site should not impede development of adjacent property for uses that
are permitted in zoning districts around this property.
5. Adequate public facilities and services are available or can be reasonably provided to
accommodate the use which is proposed.
The site already has access to required public facilities and services.
6. 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.
A ‘place of worship’ land use does not have use-specific standards or requirements to adhere to;
though it must follow general standards and requirements that apply to all uses in the city. The
setback and lot requirements for the applicable zones are already adhered to. The proposed site
would have ample space to provide required and proposed parking. Any parking spaces would
have to follow the applicable requirements of the Development Code.
7. The conditional use complies with the general and specific performance standards as specified
by this Section and this Chapter.
A ‘place of worship’ land use does not have use-specific standards or requirements to adhere to.
The setback and lot requirements for the applicable zones would be adhered to, along with other
general requirements of the Development Code. The initial phase under this request does not
include any new buildings. Future improvements to the site would require an amendment to the
CUP, and potential variances for approval if said improvements are unable to meet the
requirements of the Development Code.
ACTION REQUESTED
The Scandia City Council can do one of the following:
1. Approve
2. Approve with conditions
3. Deny with findings
4. Table the request
RECOMMENDATION
The Planning Commission recommended approval of a Conditional Use Permit for a Place of Worship
land use, at 23393 Nolan Avenue North & 13519 240th Street North. The following conditions for the CUP
are recommended:
1. The applicant is permitted to convert the existing house, barn, and granary on the site for a
place of worship land use on the property, as proposed in the submitted plans.
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Scandia City Council Page 7
2. Future proposed hermitages, and other site improvements, shall require an amendment to
this Conditional Use Permit.
3. The applicant shall submit a final site plan to the City for review and approval prior to
issuance of building permits, including the following information:
a. Setbacks of existing and proposed structures and improvement on the site.
b. Plans for new on-site septic, or confirmation from Washington County that the
existing system is able to accommodate the proposed use.
c. Location of new on-site wells, or confirmation from the Department of Health that the
existing wells on-site can accommodate the proposed use.
d. Plans for any signage, landscaping, and outdoor lighting on the site. Landscaping
plans shall show screening of parking at 90% as viewed from neighboring dwellings.
e. A grading plan and erosion control plan, showing any areas of soil disruption and
locations of any trees to be removed or added.
f. The first 50 feet of driveway from Nolan Avenue shall be paved.
g. Detailed plans for the on-site parking on the site, with 20 stalls on-site. Said parking
shall adhere to applicable requirements of the Development Code. Turn lanes, paved
on-site parking areas, and a development agreement may be required as a part of
future phases.
h. Designs for the structures on-site, confirming that city design guidelines and
requirements are met.
4. The applicant shall complete a delineation of the site for wetlands, and apply for and obtain
any variances required because of the wetland delineation.
5. The proposed chapel shall host no more than 20 people at one time.
6. The applicant shall combine parcels that are under the same zoning designation.
7. The applicant shall secure any applicable permits from the Watershed District, and comply
with their requirements.
8. The applicant shall secure any other applicable Federal, State, County, and local permits
required for the project.
9. The applicant shall pay all fees and escrows associated with this application.