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HomeMy WebLinkAbout1997-01-07 PZC MINUTESJ • • • CITY OF ENGLEWOOD PLANNING AND ZONING COMMISSION JANUARY 7, 1997 I. CALL TO ORDER. The regular meeting of the City Planning and Zoning Commission was called to order in the Community Room of Englewood City Hall , 3400 South Elati Street , at the hour of 7 P .M., Vice-Chair Douglas presiding. Members present: Horner , Redpath, Tobin , Douglas , Dummer , Garrett Simpson , Ex-officio Members late: Weber , Welker Members absent: Mason (with previous notice ) Also present: Mark Graham, Neighborhood Community Coordinator Tricia Langon, Neighborhood/Environmental Technician Jon Reitan , NBD Intern Dan Brotzman , City Attorney Nancy Reid , Assistant City Attorney II. APPROVAL OF MINUTES. December 17 , 1996 Mr . Douglas stated the Minutes of December 17 , 1996 were to be considered for approval. Mr. Weber entered the meeting and took his chair with members of the Commission. Tobin moved: Horner seconded: The Minutes of December 17 , 1996 be approved as written . AYES : NAYS : ABSTAIN: ABSENT: Redpath , Tobin , Weber , Douglas , Dummer , Garrett , Horner None None Welker, Mason The motion carried . 1 * * * * * * * * * * Mr. Douglas announced that the remaining items on the agenda are "study session" items, and • discussion will be to acquaint the Commission with issues that will be coming forward in the immediate future for formal hearing and action. * * * * * * * * * * III. SOUTH BROADWAY ACTION PLAN CASE #CP-97-01 Mr. Douglas asked staff to lead discussion on the South Broadway Action Plan. Director Simpson stated that Neighborhood Community Coordinator Graham will be staff lead on this issue. Mr. Graham stated that scrutiny of the South Broadway Corridor began in May, 1996, when meetings with neighborhood residents and businessmen were begun in an attempt to understand what was happening along the corridor, identify the problems, and to determine possible solu- tions for the problems. Mr . Graham stated the importance of South Broadway to the City as a whole became very clear to everyone early in the process. Mr. Graham stated that segments of South Broadway corridor display different characteristics, and the South Broadway Action Plan divides the corridor into "Gateway", Downtown, "Midway", and "Motorway" segments . The Plan concentrates on Gateway , Midway and Motorway ; the EDDA is conducting a study of the downtown segment on South Broadway, which is to be made available to the staff and Com- mission when it is completed. Mr . Graham noted that the "Gateway" segment is from Yale • Avenue south to Floyd Avenue; the "Midway" extends from Kenyon south to approximately the 4900 block, and the "Motorway" extends from the 4900 block south to the southern City limits. Mr . Graham reviewed the South Broadway Action Plan, discussing the narrative, the fact sheets, suggested action and responsibility for various elements of the Plan, and supplemental information including various maps. Mr. Graham displayed a large graphic of the "Gateway" segment of the corridor , noting that this graphic indicates major employment centers, parks , schools, and churches. Mr. Welker entered the meeting during the above review, assuming his chair with members of the Commission. Mr. Graham emphasized that staff has met with residents, members of the business commu- nity, code enforcement personnel, and have tried to obtain information on real estate values and crime activity along the corridor . Mr. Graham noted that a Public Hearing on the South Broadway Action Plan has been sched- uled for January 21, at which time staff will be asking the Commission to determine whether this Action Plan is compatible with the Comprehensive Plan, and if so, to recommend to City \ Council that it be adopted as an amendment to the Comprehensive Plan. • 2 - • • • Mr. Graham stated that the "Gateway " district is an important entryway into Englewood from Denver ; however, there are some land uses occurring in this district which are not compatible with a "Gateway " district. The "Midway " district encompasses over 35 used car dealerships; and the "Motorway " is heavily developed with new car dealerships . Mr. Graham suggested that there are a number of ways worthy of consideration to determine whether redevelopment and a change in character can be generated ; among these ways to be explored are facade im- provement , elimination of window bars , banners , new lighting , etc. A separate and distinct set of standards may be developed to promote and enhance the character of each "district ". Mr. Graham stated that when the Plan is approved, staff wants to begin working with the auto dealers , some of whom have expressed interest in developing design standards that would be acceptable to both the City and the businessmen. Mr. Graham surmised that development of acceptable design standards could take anywhere from six months to one year . Mr. Graham further reviewed the Plan, and stated that staff would like to receive feedback from the Com- mission on the Plan in general and on implementation steps as outlined in the Plan. What is- sues does the Commission feel should be addressed that have not been addressed . Mr. Simpson commented on the "accelerated " effort of the South Broadway Action Plan , and further commented that South Broadway is a very interesting collection of a variety of land uses: residential and business. Staff has attempted to maintain a flexible approach and to look at the corridor from a metropolitan aspect. A portion of South Broadway was formerly known as the "miracle mile ", and Mr. Simpson stated that he is of the opinion this designation can again apply to Broadway if the redevelopment and revitalization as proposed occurs . There are adjacent solid residential neighborhoods to support the Broadway busine sses if those businesses do not negatively impact the residential areas . Mr. Simpson addressed the action tables , noting there will be a lot of work by City staff and by residents and the business community to realize the goals set forth in this Plan. Mr. Simpson stated that if a "Plan " is put into place , it should not sit on a shelf, but should "do something ". Mr. Redpath asked if the "undesirable " businesses will be "grandfathered " in , or will struc- tures be demolished and new land uses occur . Mr. Graham responded that it is possible to re- zone to achieve the revitalization, or amortization of some of the businesses ma y be explored . Mr. Simpson suggested that the revitalization efforts will encompass regulatory measures , citi- zen efforts, and business improvement districts. Mr. Simpson discussed the intent of the Plan to provide conceptual direction , and for staff to break the implementation efforts into small "steps " which may take longer to implement. He emphasized that he does not know, at this time , what , if anything , will be "grandfathered " in . Mr. Redpath asked if a businessman owned the building /site or had a long term lease , whether consideration would be given to a "buy out" if the business would not relocate . Brief discussion ensued . Mr. Simpson asked if the Commission wanted to expand the discussion to include the proposed ordinance review cases on temporary labor halls and pawn shops . Mr. Douglas stated that he wanted the Commission to concentrate on the Action Plan at this time. He commented that it appeared to him that the Plan is mapping a "direction " for the redevelopment/revitalization of the commercial corridor. Mr. Simpson responded yes. 3 - Mr. Homer commended staff on the Plan. He stated that he understood the staff is looking to the Commission to approve this visionary Plan, and the details for implementation will follow. • Staff responded affirmatively. Mr. Homer stated that he is curious about the tools for imple- mentation, and on research that has been done. For instance, has staff done a comparison of land and real estate values along the Broadway corridor over the last two to three decades. Mr. Graham stated that staff is exploring both land values and sales tax information along the corridor, and is awaiting additional information from the Arapahoe County Assessor. Mr. Homer asked how the size of properties available for development or redevelopment will be handled; the size available will have a great impact on the kinds of businesses attracted. Mr. Homer then inquired if staff did any "sorting" of attendants at the various meetings - residents versus business people, etc. Mr. Graham responded that staff did distinguish be- tween residents and business people who attended the meetings; staff also mailed 600 surveys to businesses and received a return of 60 or 70, and staff is working with a like number from the residential areas. Mr. Homer discussed redevelopment of the corridor with "strip centers" versus small shops; he suggested that as some of the older homes along the corridor are razed, a strip development may occur rather than individualized small businesses. Is the depth of development being con- sidered. Mr. Graham stated that staff did look at the depth of development along Broadway, but this was primarily in the Midway and Motorway districts. Mr. Graham discussed the parking requirements that are presently in effect, and the need to address these requirements in some other manner; the possibility of creating a "parking district" to finance a parking struc-• ture to be used by a several block area was mentioned. Mr. Homer asked what "triggers where we start". Mr. Graham referenced the specific activi- ties listed in the report, noting that the "priorities" were a result of the meetings with residents and business people. Mr. Welker commented on the "ambition" on a number of the items listed for one or two year completion, noting that a lot of the problems -such as parking -have been in existing for many years. Mr . Welker suggested that a great portion of the redevelopment/revitalization will be market driven. He opined that redevelopment of the Cinderella City Mall will certainly have an effect on the commercial corridors. Mr. Welker suggested the use of a numbering system for priorities -1, 2, 3, 4, --rather than suggesting a one or two year time. Mr. Welker noted that several groups, among them Englewood Focusing on Tomorrow, and the Economic Development Coalition, have addressed many of these same issues over the last few years. Mr. Welker discussed the need to establish an "identity" for the City. Mr. Graham emphasized that the document before the Commission is a conceptual plan, and will require more citizen and Commission input to implement the priorities. The Commission will be holding a Public Hearing on January 21. Ms. Tobin inquired about the financial impact of this Plan on the businesses once it is ap-• proved. Mr. Graham stated that this information is unknown at this time. Mr. Simpson sug- 4 ' • • • gested that overall , this cannot be known ; this Plan is to promote revitalization of the corridor and urges a cooperative approach from City , residents, and business people to accomplish the objectives . Each implementation step will be brought forward. Analysis of positive and nega- tive impacts will be reviewed at that time. The graphics contained within the Plan were discussed . Ms . Tobin questioned the "wrought iron gateway " depicted ; Mr. Graham mentioned the historical character of General Iron site , and the Cherrelyn Horse Car and this might be a "fla vor " to promote . Mr. Simpson reiterated that this is a "concept " only -does the Commission want a gateway to provide identity . Mr . Weber asked if staff foresaw a group , such as the EDDA , who might lobby and promote the Plan and address issues such as cost to the businesses. Mr. Graham suggested that there are several ways to address financial issues , among them are special districts whereby the businesses/residents of that district agree to impose an assessment on themselves to finance a specific project -such as a parking garage. Mr. Graham stated that the Plan is not predisposed to any particular financing mechanism. Ms . Tobin emphasized the need to get the Mall redeveloped , and the need to "tie everything together ". Mr. Redpath questioned whether someone applying for a building permit today could be re- quired , or persuaded , to comply with the goals of the Plan. Mr. Simpson discussed the differ- ence between the Comprehensive Plan and the Comprehensive Zoning Ordinance , which is a regulatory tool. The regulatory tools have to be de veloped to implement the goals of the Com- prehensive Plan , as is the case for the South Broadway Action Plan . Mr. Douglas inquired how much the City would be involved in financing the implementation of the Plan. Mr. Simpson stressed that the City cannot and should not be involved in all as- pects of implementation, and the Plan anticipates participation by the residential and business community. Brief discussion ensued . Mr. Horner asked who will be providing the leadership needed to achieve implementation. He agreed with Mr. Welker 's suggestion that the redevelop- ment/revitalization will be economically driven , but the effort must have leadership. Mr. Simpson stated that the leadership is beginning with the City . Mr . Graham again referenced the group of auto dealers in the "Midway " sector who are forging ahead to develop design standards and assuming leadership for their particular type of land-use in this sector . He stated that staff favors a citizen approach to a "heavy-handed imposition " of city regulations . Mr. Welker discussed the traffic issue at length , expressing concern that South Broadway can- not accommodate both the "slower" browser motorist and pedestrian , as well as the higher- speed motorist traveling through Englewood . Mr. Graham commented that some business people have stated they liked the traffic "congestion " in the belief that it does slow motorists and lets them see what businesses are located along Broadway . Mr. Welker stated that even if the vehicles are slowed , it is difficult to find easily accessible parking lots. Mr. Welker dis- 5 cussed the problem that poor ingress/egress can cause, opining that this was a problem to the Mall even though it was visually in a good location. Mr . Welker also discussed revision of the • Zoning Ordinance to allow businesses to be located on the rear of a lot with parking in front. Ms. Tobin commented that years ago, businesses along Broadway provided parking in the rear, and also a rear entrance to the store that was readily accessible by customers. Businesses no longer provide rear store entrances except for store personnel, and loading docks. Safety factors were noted as a reason to change access to stores. Mr. Dummer suggested the need to expand the "footprint" for Broadway business develop- ment; the land areas are too small and restrict the size of building, parking, and other amenities to revitalize the area. Mr. Graham discussed the need for improved signage directing motorists to available parking areas. Mr. Welker discussed the parking habits of shoppers, noting that people will move their vehicles from store to store , even in the same block, rather than walk any distance. Mr. Welker also discussed one-way streets, and the fact that this is not satisfactory in many cases . Mr. Simpson acknowledged that we are trying to accommodate both the pedestrian and ve- hicular use of South Broadway . He reiterated that the character of the street does change throughout its length, and emphasized the need to capitalize on that change of character. Mr. Simpson again reiterated that this is a "concept Plan" --a visionary direction to guide revital- izing of an important business corridor. • Mr. Welker suggested that the Plan is too specific ; if this is proposed as an amendment to the Comprehensive Plan, it is his opinion that this section is too specific . He urged that a stronger statement be made on the direction we want the revitalization to go -and he feels the state- ments that have been made are good. It's good that "districts" have been defined along Broadway, but each area will require different treatment and steps to achieve the revitalization. Mr . Welker urged additional time for the Commission to study and discuss the proposed Ac- tion Plan. Mr. Douglas noted that the Public Hearing has been scheduled for January 21. Is this too soon for the Public Hearing? Mr. Welker stated it is not too soon for the Public Hearing in that the Commission needs to get public input, also. However, if the Commission is expected to ren- der a decision the evening of January 21 , he does feel this is too soon. Mr. Dummer asked if the Plan could be accomplished by "section" rather than as a whole. He suggested the need to complete one section, evaluate the success or problems as a result of the revitalization efforts, and proceed to subsequent sections of the program. Mr. Simpson asked if the Commission members would like , to please submit written comments to staff, or to call with comments . Mr. Simpson stressed the importance of a "comfort level" for commissioners with the Action Plan before going forward. • 6 • • • Ms. Tobin referenced a traffic "bottleneck " indicated in one of the graphics on Page 17. Mr. Simpson stated that the concept is to provide "calming" of traffic -or slowing of traffic at in- tersections. Discussion ensued . It was determined that the diagram is confusing , and should be eliminated. Mr. Garrett stated that the Planning Commission is being asked to approve the "concept" plan at this time . Mr. Welker stated that if this is correct, the Plan as presented is too detailed . Mr. Simpson stated that a Comprehensive Plan , or an amendment thereto , is a concept or a vision -are we going in the right direction. If the Commission members want, the work ses- sion scheduled on the Comprehensive Zoning Ordinance for January 14 m can be devoted to the Action Plan. Mr. Welker noted that the title of the study is "Action Plan" rather than "Comprehensive Plan ", and that he feels it is overwhelming in scope. Discussion ensued . Mr. Welker stated that his preference would be to proceed to the Public Hearing on January 2 l5\ but that the Commission not be expected to render a decision at that meeting. Brief discus s ion ensued . Mr. Douglas stated that this matter is scheduled for Public Hearing on January 2 F, and the Commission will hear public input at this time . IV. COMPRHENSIVE ZONING ORDINANCE AMENDMENTS Temporary Employment Services Pawnbrokers and Automobile Pawnbrokers Case #OR-97-01 Case #OR-97-02 Mr. Douglas stated that the next issue to be discussed in stud y session is that of amendments to the Comprehensive Zoning Ordinance. Proposed amendments pertaining to Temporary Em- ployment Services , and Pawnbrokers and Automobile Pawnbrokers are also scheduled for Public Hearing on January 21 , 1997 . Mr. Douglas asked that staff lead the discussion. Mr. Simpson stated that staff has been asked by City Council to look at several land use issues along South Broadway that are of concern to adjoining residential neighbors , and indeed , to adjoining businesses also. During the course of preparing the South Broadway Action Plan, staff tried to take into account community input regarding various uses which are perceived as a hindrance to revitalization of the retail corridor , and which exert negative impacts on resi- dential neighborhoods. Mr. Simpson stated that the two proposed ordinance amendments would not be imposed until approval of the South Broadway Action Plan is received; the ordi- nances will be a tool to begin implementation of the "Plan ". Two land uses which have been high-lighted because of a lack of compatibility to other businesses and residential neighbor- hoods are temporary labor halls , and pawnbrokers /automobile pawnbrokers . The businesses do provide a valuable service , but are not appropriate at the present locations . Mr. Simpson stated staff is aware that regulations proposed for the previously cited land uses are on the "cutting edge ", but noted that if the negative impacts are not dealt with , problems will be per- petuated , and the business districts and adjoining residential neighborhoods will continue to deteriorate. Mr. Simpson stated that staff has researched, and will continue to do so, regula- tory guidelines from other sources on these specific land uses. Mr. Simpson stated that Intern 7 Jon Reitan has written the proposed ordinance revisions, and has done a lot of the research on the background, industries, and topic. • Mr. Simpson noted that temporary employment services are not a "named" use in the Compre- hensive Zoning Ordinance. Research and discussions with adjoining neighbors -both residen- tial and business, has led staff to the recommendation that the employment services where workers congregate and are dispatched from the site would be better sited in the industrial dis- tricts and distanced from residential neighborhoods. Distance factors are being proposed: a minimum of 1,000 feet from any residential district. Existing temporary employment halls with "congregation and dispatch" operating procedures will be granted a two-year amortization period to relocate to industrial zone districts in compliance with the proposal. Pawnbrokers and automobile pawnbrokers will also have distance restrictions imposed, and an amortization period for relocation . A distance of 2,000 feet between pawnbrokers/automobile pawnbrokers is proposed, and a 500 foot distance from any residential zone district is pro- posed . Pawnbrokers/auto pawnbrokers will be granted a five year amortization period to relo- cate from South Broadway to the industrial districts. Mr. Simpson stated that staff is trying to write the proposed ordinance amendments so there is consistency between nomenclature in the Comprehensive Zoning Ordinance and the Licensing provisions administered by the Finance Department. The issue of "grandfathering" or legal non-conforming status for these uses was briefly ad-• dressed, Mr. Simpson noting that the grandfathering of existing uses will not resolve existing negative impacts experienced by adjoining residential districts and businesses. Mr. Douglas noted the listing of all temporary employment agencies contained in the staff re- port; it appears that some would be affected and some would not be. Mr. Reitan stated that those temporary employment halls that have "congregation and dispatch" operating procedures will be affected. Several other temporary employment agencies maintain an office and contact with prospective employees/employers is via telephone . City Attorney Brotzman discussed the on-going revision of licensing provisions for a number of businesses. Discussion ensued on the distance proposals. Mr. Welker expressed concern that the distance restrictions may be such that auto pawns, for instance, may not be able to exist. He questioned the rationale for restricting the pawnbrokers/auto pawn establishments . Mr. Simpson noted that pawn shops, while providing a needed service , do signify a perceived "decline" of a community particularly when there is a concentration of pawn shops. Mr. Welker asked if the staff wants to impact a larger area by impos~ng distance restrictions, or see this type of land use in a smaller , concentrated area. Mr. Welker suggested that he would prefer to see land uses of like character and impact grouped together . Mr. Simpson agreed that Mr. Welker pre- sents a relevant argument, noting that this same debate has occurred regarding adult-oriented • 8 • • • uses: dispersion versus the "combat zone" used in Boston. However, there is no "right" so- lution. Mr. Garrett noted that in relation to the amendment regarding pawnbroker establishments, the distance factors preclude any location in the B-2 District; therefore, why reference the B-2 Zone District. Mr. Welker agreed , and suggested that pawnbroker and automobile pawn uses be allowed only in the industrial districts and all reference in the B-2 district be eliminated . Mr. Simpson agreed that this would provide greater clarity of intent. Mr. Douglas asked if there were further comments from the Commission on either issue. Mr. Simpson reiterated that these issues have been scheduled for Public Hearing on January 21 st. Mr. Horner stated he will be unable to attend the meeting on January 21. V. PUBLIC FORUM. Mr. Douglas noted there were a number of people in the audience. He emphasized that while audience members are welcome to address the Commission, this is not a public hearing, and if they wish their comments to have weight in the record they must attend the Public Hearing on January 21. A gentleman residing in the 2900 block of South Acoma Street stated that the residents do not want labor halls and pawn shops in their neighborhood . He noted that Littleton has viewed the problems Englewood has experienced with temporary labor halls , and has designated a specific area in their city where temporary employment services may be . An unidentified woman thanked staff and Commission for looking at the issue of temporary employment services and pawnbrokers , commenting that it 's "wonderful to hear that someone is paying attention to this part of town". She emphasized that she does not want to see the temporary employment services and pawnbrokers put out of business, but that these businesses do not belong on Broadway . They should be relocated to the industrial district. Another unidentified woman asked for a copy of the total South Broadway Action Plan. She stated that she viewed this as a springboard to better things to come. Another woman, unidentified, thanked staff and the Commission for effectively incorporating the community input from the South Broadway and neighborhood meetings into the report. Ann Nabholz thanked members of the staff and Commission for their efforts, and asked that the City please not loose sight of the "vision", and do not be overwhelmed at the task ahead. Please look at the South Broadway corridor and adjoining neighborhoods with open eyes . This study and effort at revitalization is long over-due. Ms. Nabholz stated that she supported re- taining the words "Action Plan " in conjunction with this study . Ms. N abholz asked that the Commission , staff and City please provide leadership on the revitalization efforts , and go for- ward with approval. 9 - Mr. Robert Kelley stated that he owns some property in Englewood , and is representing the Mayflower Congregational Church this evening . Mr . Kelley stated that as a former resident of • the City , he has seen a lot of improvement , but has also seen a lot of deterioration. Mr . Kelley stated that he wanted to lend support to the Commission and City , and encouraged going for- ward with the revitalization efforts . [NOTE: Mr. Kelle y was identified by Recording Secretary Welty as a former member of the Planning Commission in the 1960 's. Mr. Kelley acknowledged he was , indeed, a former member , and served as Chairman of the Commission.] VI. DIRECTOR'S CHOICE. Mr. Simpson reminded members of the work session on the Comprehensive Zoning Ordinance amendments scheduled for January 14 , 6:00 p.m. at the Englewood Recreation Center , in the Youth Activity Room. Dinner will be ordered in for the Commission. Mr. Simpson updated the Commission on activities regarding the Cinderella City Mall . He noted that Mr . Miller has stated he is working with Kitchell Development from Arizona on the proposed submittal. VII. COMMISSIONER'S CHOICE. Ms . Tobin complimented the staff for the presentations on the study session subjects this eve -• rung. Mr . Garrett commented that it is nice to hear someone from the audience say that what they said in a community meeting was included in a report/study. Mr. Simpson stated that the South Broadway Action Plan study has been done quite rapidly , and was initiated as a result of public concern . He , too , is pleased to hear that the citizen input was accurately reflected in the report. Mr . Welker stated that he had attended one of the public forums , and noted that staff has done a lot of work; however , he isn 't ready to "buy off" on the report at this time. There being nothing further to come before the Commission , the meeting was declared ad- journed . Gertrude G. Welty , Recording Se h:\group\boards\plancomm\mi nu tes 97\pcm 0 1-97a.doc 10 •