2 - Panera - PC Staff Memo 11-18-14

DEVELOPMENT AND PLANNING SERVICES DEPARTMENT

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MEMORANDUMVILLAGE OF NORTHBROOK

TO: PLAN COMMISSION

FROM: DAVID SCHOON, ASSISTANT DIRECTOR

DATE: OCTOBER 21, 2014

SUBJECT: PCD-14-1 – 772 SKOKIE BOULEVARD – PANERA DRIVE-THROUGH

INTRODUCTIONOn November 18, 2014, the Plan Commission is scheduled to hold a public hearing and consider aresolution recommending approval of an application submitted Panera LLC, (the “Applicant”), lessee ofproperty at 772 Skokie Boulevard (the “Subject Property”), which is owned by Morningside CrossroadsRetail, LLC, for approvals of the following requested items:

A. Special permit approval for drive-through facility accessory to an eating establishment;B. A special permit to allow on the proposed building three wall signs the tops of which are no higher

than 23.25 feet from grade; andC. An exception to allow the required loading space to be located closer to the public right-of-way

than the façade of the building facing such right of way;D. Final plan approval for the building elevations and the accessory drive-through site plan elements;

andE. Approval of any other such variations, waivers, subdivision, and zoning relief as may be necessary

to accomplish development and use of the Subject Property as requested by the Applicant

The Applicant proposes to construct and operate a restaurant with an accessory drive-through facility.

In compliance with Zoning Code public notice requirements, a sign has been posted on the Subject Propertyindicating the time and date of the Plan Commission public hearing. The Applicant has submitted evidencethat the mailed notice requirements of the Zoning Code have been satisfied. The Plan Commission hearingwas properly noticed in the October 30, 2014 edition of the Northbrook Star. The Village has yet to receiveany written comments from the public regarding the proposal.

On November 13, the Architectural Control Commission (ACC) reviewed the design of the building,landscaping, and signage. By a vote of 5-0 (with two members absent), the ACC recommended approval ofthese design elements subject to a change in the materials for the trash enclosure. This issue will bediscussed later in the report.

PROPERTY DESCRIPTIONThe Subject Property is 0.69 acres and is part of the overall 15.8 acre site that makes up the NorthShore 770development. The NorthShore 770 site is zoned O-4 Office Boulevard and is surrounded by O-4 BoulevardOffice to the north, O-4, O-3 General Office, and C-5 Commercial Boulevard to the east, O-2 Limited Officeand C-2 Neighborhood Commercial to the south, and ComEd right-of-way and unused railroad tracks to thewest with O-2 and O-3 districts to the west of the railroad tracks.

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The Northbrook Comprehensive Plan Future Land Use Map designates this area as appropriate for majorcorridor multi-use development. No portion of the Subject Property lies within the 100-year floodplain.The Village’s Master Stormwater Plan has identified a stormwater management project at the intersectionof Dundee Road & Skokie Boulevard to reduce flooding of the intersection.

NORTHSHORE 770 DEVELOPMENTThe proposal is part of the recently approved final planned development plans for the NorthShore 770project (Ordinance 14-23). The following summarizes the overall NorthShore 770 project:

101,895 square feet of one-story commercial space, which would include:o a 71,320 square foot Mariano’s grocery store,o a 6,975 square foot retail space (Identified tenants to date: Kriser’s, Fuddruckers), ando 23,600 square feet in four outbuildings that could include a bank, restaurants, or retail space;

three of the outbuildings include drive-through facilities. (Identified tenants to date: PNCBank, Panera Bread, Chipotle, Sleepy’s, Noodles & Company, and Zengeler Cleaners)

8 & 9-story luxury apartment complex consisting of:o 347 luxury rental units on floors 2-9, consisting of 148 1-bedroom units and 199 2-bedroom

units;o Structured parking in the basement, first and second floors.o The complex includes a number of amenities such as an outdoor swimming pool, fitness

center, E-business center, and many other features including on-site management and leasing.

The approval documents identified an approximately 4,100-square foot building to be constructed on theBuilding F site with a restaurant containing an accessory drive-through facility with stacking for 8 vehicles.

Exceprt of Approved Site Plan for the Overall Northshore 770 Development Final Plan

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The final plan approval documents included the following conditions:

Section 7J. Retail Buildings E and F. The Commercial Developer, or other designatedrepresentatives, shall be required to submit applications for the following zoning relief for RetailBuildings E (bank building) and F (restaurant building) at such time as the Commercial Developerdesires to proceed with their development as depicted in the preliminary concept plans submittedto the Village:

1. a special permit for an accessory drive-through to a banking facility;2. a special permit for an accessory drive-through to a restaurant facility;3. a special permit to allow a wall sign higher than 20 feet from grade

(Building F) (SIC No. 9966.00);4. exceptions for the location and number of loading spaces (Buildings E & F);

and5. final plan approval of the building elevations and the accessory drive-

through site plan elements for Retail Buildings E and F.

The Plan Commission’s review of this final plan submittal is to determine if the refinements of the plan arestill consistent with the concept plan as approved by the Village Board by Resolution No. 14-R-05. Thefollowing are the concept plan approval conditions and site plan for the bank:

Section 6A.1. Restaurant. A special permit to allow a restaurant facility for Panera Bread, or user ofcomparable size and intensity, consisting of one drive-through lane with anautomobile queue length no shorter than to accommodate eight automobiles andconsisting of at least two designated parking spaces for drive-through customerswaiting for orders; and

Section 6B.2. Wall Sign. A special permit to allow a wall sign on the east façade of Retail Building Fthe top of which is no higher than 23 feet from grade (SIC No. 9969.00); and

Section 9D. Loading Spaces. An exception to allow the required loading space for Retail BuildingF to be located closer to the public right-of-way than the façade of the buildingfacing such right of way and to reduce the required number of loading spaces forRetail Building E from 1 to 0.

Approved Concept Site Plan for the Bank and Restaurant Site

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As is standard with final plan applications without significant issues, staff has prepared a draft resolution forthe Plan Commission’s consideration.

PROJECT DESCRIPTIONAs previously stated, the Applicant is currently before the Village for final plan approval of the proposedrestaurant building and signage design, its accessory drive-through facility, and a variation so as to locatethe required loading space closer to the public right-of-way than the façade of the building facing such rightof way.

Site DesignThe site design is generally consistent with the site plan approved for the overall NorthShore 770development final plan.

Current Proposed Site Plan

Building DesignThe proposed building is a one-story with its highest point of 28 feet (see elevations on the next page). Thebuilding is now 4,323 square feet versus the 4,100 square feet that was approved as part of final planneddevelopment. Given the decrease in the size of the PNC Bank building on the site, the Panera building isallowed to be larger as the overall commercial square footage of the development is still less than what wasapproved for the overall development.

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The following two elevations show the design of the building as approved as part of the concept planapproval for the overall development.

Elevations Approved as Part of Concept Plan Approval for the Development

The following elevations are what the Applicant is currently proposing:

Current Proposed Elevations

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The major materials for the building consist of Sioux City Desert Blend brick, Glen Gery Autumn Haze brick,and White Oak Culture Ledgestone. The proposed materials are similar to the materials on the othercommercial buildings in the development (see next two pages).

Also included in the Applicant’s submittal are details for the proposed trash enclosure. The Applicant hadproposed using split-face CMU block walls with integral color to match the building, Trex Boards on thedoors (color Saddle), and Aluminum coping to match building.

Panera Trash Enclosure Area

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For the Commission’s information, PNC Bank, which is right next to the Panera site, submitted a design forits trash enclsoure area that includes Sioux City Desert blend brick walls, recycled plastic “lumber” doors,and a cast stone cap.

PNC Bank Trash Enclosure Area

Also the trash enclosure areas for the Buildings A & B on the southeast corner of the site are alsoconstructed of the Sioux City Desert blend brick walls brick with doors consisting of a steel frame withsynthetic composite wood slats.

Building A Building B

As prevoiusly noted, the ACC reviewed and approved the project subject to the Applicant facing the trashenclosure walls with Sioux City Desert blend bricks. The Applicant has agreed to this change.

The follow perspective drawings are provided the Commission to assist members with their review of thecompatibility of the building design with the other proposed buildings in the development.

Building C – Mariano’s

Major Materials – Sioux City desert blend brick, Renaissance Stone Wheat Stone.

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Residential Building

Materials – See Exhibit A to this memo

Buildings A & B

Major Materials – Sioux City Desert Blend Brick, White Oak CultureLedgestone, Whitall Brown simulated wood cedar plank.

Building E – PNC Bank

Major Materials – Sioux City Desert Blend Brick, White Oak Culture Ledgestone

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SignageAs illustrated on the earlier building elevations, the Applicant is proposing three wall signs, one on each ofthe east, north and south elevations. Since the top of the signs are higher than 20 feet from grade (23’-1¾”), the signs require special permit approval. The signs are internally illuminated channel letters that read“Panera Bread” and a “Mother Bread” logo. The letters have white acrylic faces with matte black vinylborders

As illustrated below, the Applicant would also have a sign panel on the two ground signs for the overalldevelopment.

The Applicant has also submitted a sign package regarding the signage for the drive-through facility.Details of the signs are included with the Applicant’s submittal. As required as part of concept planapproval, the Applicant is providing two parking spaces for drive-through customers waiting for theirorders. These “drive-through customer waiting” spaces, while logically located near the exit of the drive-through aisle, may take several maneuvers for a drive to park a car and wait. Perhaps they should be (1)relocated to where the “rapid pick-up” spaces are or (2) relocated directly to parking spaces across fromthe drive-through exit along Skokie Boulevard.

The Commission will want to comment on whether the designs for the proposed signs are compatible withthe design of the proposed building and other signs within the development.

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ZONING RELIEFAs previously stated, the application requires special permit approval for a bank drive-through facility,special permit approval for three walls, an exception to allow the required loading space be located closerto the public right-of-way than the façade of the building facing such right of way, and final plan approvalfor the building elevations and accessory drive-through site plan elements.

Drive-Through Special Permit.The Applicant is proposing a restaurant facility consisting of one drive-through lane with an automobilequeue length to accommodate eight automobiles and consisting of two designated parking spaces fordrive-through customers waiting for orders. The Applicant states that it anticipates that the hours ofoperation will be Monday to Sunday 6:30 a.m. to 10:00 p.m.

To approve the special permit requests, the Village Plan Commission and Board of Trustees must considerthe general standards for such special permits established in Paragraph 11-602 E1 of the Zoning Code.These standards include the following:

1) Is the proposal in compliance with the Zoning Code and Official Comprehensive Plan?2) Will there be any adverse impact upon adjacent properties?3) Will the proposed use interfere with the orderly development of adjacent properties?4) Are there adequate public facilities to serve the development?5) Will the use cause undue traffic congestion?6) Will the development cause loss of significant environmental or historical features?7) Will the use comply with other applicable Village standards?

Several of the above criteria are of particular importance in considering whether or not a special permitshould be granted for the proposed use; specifically standards 2, 3, & 5. The Applicant’s response to thesestandards is included in your packet.

In addition to the previously mentioned general permit standards, the Commission and Board mustconsider the following specific special permit standards for drive through facilities:

1) Traffic Management and Queuing. Every accessory drive-through facility shall be designed andconstructed so as to have adequate queuing area on the zoning lot for motor vehicles. No specialpermit for an accessory drive-through facility shall be granted except on evidence satisfactory tothe Board of Trustees that the queue will not obstruct parking areas or major travel aisles. Stackingareas may not back-up onto public streets or impede emergency access to buildings.

2) Pedestrian Movement. No special permit for an accessory drive-through facility shall be grantedexcept on evidence satisfactory to the Board of Trustees that the accessory drive-through facilitywill not be hazardous to pedestrians and cyclists. A safe and convenient pedestrian circulationsystem shall be maintained both on the zoning lot and on adjoining public right-of-ways.

3) Enhanced Architectural and Landscape Features. No special permit for an accessory drive-throughfacility shall be granted except on evidence satisfactory to the Board of Trustees that the proposedfacility incorporates appropriate architectural and landscape features. All accessory drive-throughfacilities shall provide screening from any nearby residential activities.

4) Hours of Operation & Noise Restrictions. As a condition of approving a special permit for anyaccessory drive-through facility, the Board of Trustees may restrict the hours of operation of thefacility or establish other use limitations to ensure compatibility with surrounding land uses

The Applicant has once again included information regarding the function of its drive-through lanes. The

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Commission will need to determine if the proposed restaurant drive-through facility continues to complywith the general special permit standards and as well as the specific standards for a drive-through facility.

Wall Sign Special Permits. As previously stated at concept plan approval and final plan approval, theproposed building was approved to allow one wall sign on the east façade of building the top of whichwould be no higher than 23 feet from grade. The Applicant now requests approval of wall signs on the east,south, and north facades of the building the tops of which would be no higher than 23.25 feet from grade.The Commission will need to determine it if is appropriate to approve a special permit for the originallyapproved sign as well as the two additional signs.

Loading Space Exception. As previously stated, the Applicant is requesting an exception to allow therequired loading space be located closer to the public right-of-way than the façade of the building facingsuch right of way. The Commission will need to determine if the exception request continues to complywith the exception standards.

STAFF REVIEWThe attached staff comments are based upon the Applicant’s materials included in this passout. Includedin the Applicant’s materials, is its response to this latest set of comments. Should the Commission decideto consider the draft resolution included in the passout, staff will continue to work with the Applicant tofinalize the documents prior to the Village Board consideration of the approval documents.

ISSUES TO CONSIDERAs previously mentioned, the Plan Commission’s review of the final plan submittal is to determine if theApplicant’s further refinement of the development plan is consistent with the concept plan approved bythe Village Board. Given that this is final plan approval, staff has provided a draft resolutionrecommending approval of the application with conditions for the Plan Commission’s consideration. Ifadopted, this item would be Plan Commission Resolution No. 14-PC-14.

As the Commission reviews the Applicant’s final design plans, staff suggests that the Plan Commissionconsider the following primary issues:

1. Is it still appropriate to recommend approval of a special permit for a restaurant consisting ofone drive-through lane with an automobile queue length to accommodate eight automobilesand consisting of two designated parking spaces for drive-through customers waiting fororders? If so, are there any operational limitations that should be placed on the drive-throughfacility?

2. Is it appropriate to grant a special permit to allow three walls signs the tops of which are nohigher than 23.25 feet from grade?

3. Is it still appropriate to recommend approval of an exception to allow the required loadingspace be located closer to the public right-of-way than the façade of the building facing suchright of way? If so, are there any operational limitations that should be placed with thegranting of the loading space variation?

4. Is it appropriate to grant special permit approval to allow signs wall signs on the east, south,and north facades of the building the tops of which would be no higher than 23.25 feet fromgrade?

5. Are the final plans generally consistent with the concept plan approvals, more specifically:

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a. Are the architectural details for the restaurant building generally consistent with what wasapproved with concept plan approval and compatible with the other buildings in thedevelopment?

b. Should the materials of the walls for the trash enclosure areas be changed to brickconsistent with materials uses for the trash enclosure areas for the other outbuildings ofthe development? (Note: The ACC requested this change, and the Applicant has agreed tothis condition.)

c. Is the proposed landscaping appropriate for the Subject Property?d. Are the materials and design of the proposed signs compatible with the proposed building

design and the other buildings within the planned development?

6. Does the attached draft resolution contain the recommendations and conditions so desired bythe Commission?

The Applicant and staff will be present at the November 18 meeting.

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Materials For Residential Building