[email protected] 616.581.3978
TO: Cannon Township Planning Commission FROM: Paul LeBlanc, AICP
DATE: March 1, 2021
SUBJECT: Town Square PUD Revised Amendment Project Request
This is a revised request to amend the PUD plan and development agreement for phase 3 of the Town Square PUD.
Existing Conditions
The subject site is an approximately six acre undeveloped parcel in the southwest quadrant of the PUD. The property fronts on Belding Road and is immediately west of the main entry drive (Town Square Blvd) into the development.
Originally, this location was master planned and approved for commercial development, along with the southeast quadrant of the PUD which is occupied by Ric’s grocery store and a row of townhomes. The original intent was to maximize the amount of commercial property within the PUD which would have resulted in approximately 111,000 square feet of commercial occupying the two quadrants, about 50,000 sq. ft. of which was approved on the subject site. The recession of the past decade and market realities of location and demographics have caused the owners to reassess the feasibility of such an ambitious plan. This, coupled with the popularity and rapid sale of homes and townhomes within the balance of the development, has led to a request to amend the approved PUD to reduce retail space and increase residential units.
PUD Plan
In lieu of the previously approved commercial development, the applicant is requesting approval of an amended third phase. The amended plan, dated 2/18/21, would allow for an additional 45 dwelling units (19 detached Terrace Homes and 26 attached townhomes), totaling 170 dwellings within the overall PUD (5.79/residential acre). The density on the phase 3 portion would be 7.7/acre.
2 Additionally, the proposed plan provides a 20 foot wide loop street and 14 foot alley to access all
dwellings. A widened section along the northern street would allow for on-street parking (9 spaces) in addition to the existing parking along Town Square Blvd.
All sites would be served by public water and sanitary sewer. The Township’s engineer has noted several items regarding sanitary sewer and stormwater to be addressed in light of the age of the existing infrastructure and the change from commercial to residential land use.
Comments
Several comments and questions have been raised by Planning Commissioners and neighbors regarding earlier plans, as follow:
• Noncompliance. Several comments noted that the plan does not comply with minimum requirements for setbacks, lot size, and street width. However, one of the main purposes of PUD is to allow flexibility in order to promote creative development and respond to site conditions. The PUD regulations specifically grant the Planning Commission and Township Board authority to waive or modify all minimum requirements. For example, existing street widths in phases 1 and 2 are less than the minimums otherwise required by the ordinance for conventional developments.
• Interior circulation. The revised plan proposes a looped street/alley in place of the two dead-end alleys originally proposed. This phase is intentionally designed as an urban neighborhood. There will be no through traffic using these streets and minimal residential traffic.
• Street width. The street/alley loop has been widened to 20 ft. In addition, the northernmost street would be further widened to accommodate nine parallel parking spaces. The north/south alley west of the townhomes fronting on Town Square Blvd. would remain 14 ft. wide. • Future commercial. The commercial component that had been added to the previous submittal
has been removed and replaced with four additional townhomes.
• Lot sizes and dwelling dimensions. Lot lines were removed for the detached single-family homes. Separation between the units would range from 10 to 20 ft. The intent is that each dwelling would be sold as a condominium and the surrounding land would remain in limited common ownership. This is not unlike the way townhomes are sold. Dwelling widths will be the same or wider than townhomes.
• Dwelling height. Some concern was expressed about lining Promenade Street with two-story homes. The homes on the north side of that street are two-story and the row of townhomes originally proposed in the currently approved plan would have been two-stories. Unlike many of the existing homes in Phases 1 and 2, the proposed dwellings would not have a large garage as a dominant feature on the front of the home. The proposed homes would exhibit front porches. Garages would be located out of sight behind the homes.
• Density. Lot size and density are not necessarily the same. In this phase, the net residential density would be 7.7 units per acre, below the eight units per acre advocated in the Township’s Master Plan for Moderate Density Residential. Overall density within the PUD would be 5.79 units per acre. The Master Plan specifically recommends that residential density in the Village Center (Town Square PUD) be the “highest in the Township to provide a cohesive community
3 and contribute to the viability of the businesses within and adjacent to the development.” [Master Plan 2015, p. 30]
• Setbacks. Drawing C-101 shows that all garages would be set back at least 24 ft. from the edge of the abutting alleys. However, items 4A, B, and D in the General Notes state that the parking stall depth would be “20 ft. minimum edge of pavement to front of garage”. Likewise, item 4B states that the townhome units will be set back 40 ft. from the Belding Road right-of-way, while the drawing indicates a setback of 51 to 55 feet. These notes must be corrected to match the drawing dimensions.
• Stormwater. Concerns about stormwater capacity and drainage onto neighboring property have been noted in the Township engineer’s letter and must be satisfactorily addressed. • Infrastructure adequacy. The age and adequacy of existing water and sanitary sewer
infrastructure have been noted in the Township engineer’s letter and must be satisfactorily addressed.
• Lighting and Landscaping. Consistent with the prior phases, detailed landscaping and lighting plans will be required prior to construction.
• Rural Character. While much of Cannon Township boasts natural features and a decidedly rural atmosphere, that is not the case along Belding Road and never was intended for the “Village Center” development. In fact, this project was designed to be a densely developed community offering residential choices and concentrated commercial services unavailable elsewhere in the Township. This final residential phase is entirely consistent with that intent.
Review Standards
This is a major amendment to a previously approved PUD. Therefore, while the ordinance requires that the application be processed as if it were a new application, many of the review standards will not be applicable.
1. The PUD would result in recognizable and substantial benefits to the ultimate users and occupants of the PUD and to the public, which would not otherwise be achievable under a conventional zoning district.
This standard appears to be met, as the proposed residential amendment would likely result in a more robust development of this highly visible property, expand the range of housing opportunities not currently available in the Township, and contribute to the viability of future commercial development surrounding Ric’s as a result of more residential activity.
2. The PUD would not result in a significant increase in the need for public services and facilities, unless the costs of any such increase are adequately provided for.
This standard appears to be met. As noted, the infrastructure is in place and was initially sized to accommodate significant commercial development. However, due to the age and layout of some elements of that existing system, additional costs may be incurred at the applicant’s expense to make modifications and accommodations to serve the new plan.
3. The PUD would not place a significant burden upon adjacent or nearby lands or the natural environment, unless any resulting adverse effects are mitigated by features of the PUD as approved.
4 This standard appears to be met due to a general reduction in impervious surfaces, more green space, and adequacy of the stormwater management system. Based on comments from the Township engineer, some adjustments may be needed, however, to address stormwater impacts upon adjacent property.
4. The PUD would be consistent with the Township Master Plan and consistent with the intent and purposes of this chapter and the PUD chapter applicable to the type of PUD under consideration. This standard appears to be met. The Township Master Plan acknowledges that for this project “it may be necessary or desirable to make adjustments to accommodate new opportunities or market realities…the amount of commercial floor area, for example, may be reduced.” The expansion of the residential component of the PUD still retains the mixed-use vision for the overall development. The Master Plan also stresses the desirability of “varying forms of housing” and densities, as stated on page 30:
“The intent is to create a concentrated commercial core within the community that would be surrounded by fairly intense residential development and public spaces, resulting in a focal point that establishes an identify in the heart of Cannon Township.”
“Overall density of the combined residential types should be the highest in the Township to provide a cohesive community and contribute to the viability of the businesses within and adjacent to the development.”
5. The PUD would not result in significant adverse effects on adjacent or nearby lands and would not change the essential character of the surrounding area.
This standard appears to be met. The site abuts Belding Road on the south, commercial on the west and east, and residential to the north. Promenade Street would be lined with detached single-family homes with front porches instead of the currently approved plan (attached) which proposed a row of two-story townhomes and back side of a retail building in this location.
The Belding Road frontage would be well landscaped and lined with townhomes, providing an attractive edge to the busy street and creating a transition/buffer to the detached homes on the interior of the site.
6. The PUD would be consistent with the public health, safety and general welfare of the Township.
5 This standard appears to be met. It is consistent with the Master Plan designation, is served by municipal or community services, and would be linked to the PUD’s established internal street network.
Additional standards relevant to the site plan, per Section 22.08, must also be addressed, though again they are less relevant to this amendment than they would be for a new PUD:
A. The site plan shall comply with all standards of this section and all applicable requirements of this Ordinance and all other applicable laws and regulations. Approval may be conditioned on the applicant receiving necessary county, state or federal permits before receiving final site plan approval. This standard appears to be met. As a PUD, flexibility is important to encourage creativity and opportunities not otherwise possible through conventional zoning.
B. The site shall be designed in a manner that is harmonious, to the greatest extent possible, with the character of the surrounding area.
This standard appears to be met. The type, style, and density of the proposed uses provide an excellent transition from an abutting arterial highway, neighboring commercial, and existing residential development. Single family homes with garages in the rear would be oriented toward the interior of the site with a compatible buffer of townhomes providing an excellent transition from the adjoining highway and business development.
C. All elements of the site plan shall be designed to take into account the site’s topography, the size and type of lot, the character of adjoining property and the type and size of buildings. The site shall be developed so as not to impede the normal and orderly development or improvement of surrounding property for uses permitted in this Ordinance.
This standard appears to be met.
D. The landscape shall be preserved in its natural state, insofar as practical, by removing only those areas of vegetation or by making those alterations to the topography which are reasonably necessary to develop the site in accordance with the requirements of this Ordinance.
This standard appears to be met.
E. The development shall conform to the goals and policies of the Township Master Plan.
This standard appears to be met. As noted above, the planned mixed-use concept would be retained and the variety and intensity of residential options is entirely consistent with the Master Plan’s vision for this overall PUD. The addition of more dwellings not only enhances the potential for new commercial development surrounding Ric’s but also offers “missing middle”1 residential opportunities not readily available in Cannon Township.
1A concept that refers to a range of multi-family or clustered housing types compatible in scale with single-family or
transitional neighborhoods. Missing middle housing is intended to meet the demand for walkable neighborhoods, respond to changing demographics, and provide housing at different price points. The term "missing middle" relates to housing options that were common in the pre-WWII United States (duplexes, townhomes, and courtyard apartments) but are now less common and, therefore, "missing".
6 F. The site must be designed so as to minimize hazards to adjacent property, and to reduce the negative
effects of traffic, noise, smoke, fumes and glare to the maximum extent possible.
This standard appears to be met. Traffic generation from the proposed residences would be significantly less than expected from commercial development, as originally approved. Previous concerns regarding circulation and emergency access have also been addressed.
G. Unless a more specific design standard is provided for in this Ordinance or other applicable regulations, all uses and structures subject to site plan review shall comply with the following design standards:
1. Traffic Circulation. The number, location, size of access and entry points, and internal vehicular and pedestrian circulation routes shall be designed to promote safe and efficient access to and from the site, and circulation within the site. In reviewing traffic features, the number, spacing, and alignment of existing and proposed access points shall be considered relative to their impact on traffic movement on abutting streets and adjacent properties. Provision shall be made, to the maximum extent possible, for the extension of streets and walkways to connect with and serve adjacent development, both existing and future.
This standard appears to be met. No new access points would be added to Belding Road. Accommodations would be made to provide direct pedestrian access to other areas of the PUD and to the existing pathway along Belding Road. An interior street loop would eliminate the previously proposed dead-end streets.
2. Storm Water Drainage. Storm water detention and drainage systems shall be designed so that the removal of surface waters will not adversely affect the subject property, neighboring properties or public storm water drainage systems. Unless impractical, storm water shall be removed from all roofs, canopies and paved areas by underground surface drainage system. The use of detention/retention ponds may be required. Catch basins may be required to contain oil filters or traps to prevent contaminants from being discharged to the natural drainage system. All storm water drainage measures shall comply with the Township Storm Water Ordinance.
See Township Engineer comments.
3. Natural Drainage. Areas of natural drainage such as swales, wetlands, ponds, or swamps shall be protected and preserved insofar as practical in their natural state to provide areas for natural habitat, preserve drainage patterns and maintain the natural characteristics of the land.
See Township Engineer comments.
4. Landscaping. The landscape shall be preserved in its natural state, insofar as practicable, by minimizing unnecessary tree and soil removal. Any grade changes shall be in keeping with the general appearance of neighboring developed areas. Provision or preservation of landscaping, buffers, or greenbelts may be required to ensure that the proposed uses will be adequately buffered from one another and from surrounding property.
This standard appears to be met. Generous landscaping is proposed, in concept, along the Belding Road edge as a foreground to the townhomes facing the street. A detailed landscape plan will be required prior to commencement of construction.
7 5. Screening. Where commercial uses abut residential uses, appropriate screening consisting of attractively designed, opaque fencing or equivalent landscaping shall be provided so as to shield residential properties from noise, headlights and glare.
Not applicable.
6. Snow Storage. Reasonable accommodation shall be made on the site for the stockpiling of snow from parking lots, roads, and other surfaces that must be kept clear during winter months. Not applicable.
7. Outdoor Lighting. Outdoor lighting of buildings or structures shall be minimized to reduce light pollution and preserve the rural character of the Township. Exterior lighting shall be arranged so that illumination is deflected away from adjacent properties and so that it does not interfere with the vision of the motorist along adjacent streets. Flashing or intermittent lights shall not be permitted. Reduction of outdoor lighting during non-business hours may be required. All exterior lighting shall comply with the Township Outdoor Lighting Ordinance.
This standard appears to be met. Street lights will be installed consistent with the established pattern throughout the balance of the PUD. A detailed lighting plan will be required prior to commencement of construction.
8. Utility Services. All utility services shall be underground, unless impractical. This standard appears to be met.
9. Exterior Uses. Exposed storage areas, machinery, heating and cooling units, service areas, loading areas, utility buildings and structures, and similar accessory areas shall be located so as to have a minimum negative effect on adjacent properties, and shall be screened, if reasonably necessary, to minimize their visibility and ensure compatibility with surrounding properties.
This standard appears to be met for the residential component.
10. Water Supply and Sanitary Sewer Service. Water supply and sanitary sewer systems and installations shall comply with all applicable Township requirements.
See Township Engineer comments.
11. Pedestrian Circulation. In the approval of a site plan, the Planning Commission and/or zoning administrator, as appropriate, may require the providing of sidewalks or similar measures for pedestrian circulation.
This standard appears to be met. Sidewalks and paths will be provided throughout this phase to provide pedestrian access from all dwellings to existing walkways within the PUD and along Belding Road.
12. Signs. All signs shall comply with applicable provisions of Chapter 25, and other applicable sign provisions in this Ordinance.
8 13. Parking and Loading. All off-street motor vehicle parking areas and all loading and unloading
areas shall comply with all applicable provisions of Chapter 27 of this Ordinance.
This standard appears to be met, though no driveway should be less than 24 feet long, measured from the garage to the edge of the street.
14. Emergency Vehicle Access. All lands, buildings and structures shall be readily and safely accessible for emergency vehicles and emergency personnel.
This standard appears to be met. Recommendation
Based on the above, the amended plan appears to satisfy the review standards, including conformance with the intent of the Township Master Plan. In addition, it represents a significant improvement over the currently approved plan which would allow a mostly commercial development with townhomes and additional street access along the south side of Promenade Street.
Therefore, I recommend that the Planning Commission recommend approval of the Phase 3 amended plan, dated 2/18/21, to the Township Board with the following conditions:
• Compliance with Township engineer requirements, dated 2/26/21, • Minimum length of driveways 24 ft. between garage and edge of street,
• Correction of all General Notes on sheet C-101 to coincide with the drawing dimensions, and • Approval of a detailed landscape and lighting plan by the Planning Commission prior to
commencing construction.
The recommendation is based on the following:
• Phase 3, as proposed, is much more desirable, compatible, and less intense than the currently approved plan;
• The proposed uses are entirely consistent with the recommendations of the adopted Township Master Plan;
• The revised plan addresses the substantive concerns expressed at the prior Planning Commission meetings; and
