HomeMy WebLinkAbout2014-10-15 PACKET 08.C. REQUEST OF CITY COUNCIL ACTION COUNCIL AGENDA
MEETING ITEM # �
DATE 10/15/14 . C
PREPARED BY Community Development Jennifer Levitt
ORIGINATING DEPARTMENT STAFF AUTHOR
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COUNCIL ACTION REQUEST:
Consider denying a variance to allow a second residential dwelling unit as part of an accessory
structure on the residentially zoned property at 10990 Manning Avenue South.
STAFF RECOMMENDATION:
Adopt the resolution denying the variance.
BUDGET IMPLICATION $N/A $N/A N/A
BUDGETED AMOUNT ACTUAL AMOUNT FUNDING SOURCE
ADVISORY COMMISSION ACTION
DATE
� PLANNING 9/22/14
❑ PUBLIC SAFETY
❑ PUBLIC WORKS
❑ PARKS AND RECREATION
❑ HUMAN SERVICES/RIGHTS
❑ ECONOMIC DEV. AUTHORITY
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SUPPORTING DOCUMENTS
REVIEWED
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APPROVED
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❑
❑
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DENIED
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� MEMO/LETTER: Memo from John M. Burbank dated 10/8/14
� RESOLUTION: Draft
❑ ORDINANCE:
❑ ENGINEERING RECOMMENDATION:
❑ LEGAL RECOMMENDATION:
� OTHER: Excerpt from unapproved minutes from 9/22/14 Planning Commission meeting
ADMINISTRATOR'S COMMENTS
ministrator
f0 /u ��
Date
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COUNCIL ACTION TAKEN: ❑ APPROVED ❑ DENIED ❑ OTHER
Cottage
/ Grove
� Pride andPtosperity Meet
TO: Honorable Mayor and City Council
Ryan Schroeder, City Administrator
FROM: John M. Burbank, Senior Planner
DATE: October 8, 2014
RE: Variance for Second Residential Dwelling at 10990 Manning Avenue South
Proposal
John and Sheryl Myers have applied for a variance to allow a second residential unit as part of a
5,760 square foot detached accessory structure on the residentially zoned property at 10990
Manning Avenue South.
Planning Considerations
Planning Commission
The Planning Commission reviewed the application at their regular meeting on September 22,
2014. A public hearing was held and testimony was given in favor of the application request.
After a lengthy discussion the Planning Commission recommended approval of the variance re-
quest on a vote of 6 to 3. The recommendation of approval did not include any findings of fact
for granting the variance.
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 2 of 8
Legal Commentary
Based on the discussions at the Planning Commission, the City Attorney was asked to review
the planning staff report and the record from the Planning Commission Meeting. The recom-
mendation included in the letter points to denial of the request based on ordinance criteria and
state statutes related to variances. The letter is attached to this report.
Building Official Commentary
During the Planning Commission meeting, several questions relating to building code compli-
ance and requirements were raised. The City's Building Official will supply a letter responding to
the questions regarding a habitable residential dwelling within an accessory structure.
Property Characteristics
The site is located west of Manning Avenue and is currently used for single family residential
and agricultural uses. The current home and garage have a footprint of 2,525 square feet. The
topography of the site is varied as detailed on the contour map below.
Contour map of site
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City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 3 of 8
The property is guided for Rural Residential and is zoned R-1, Rural Residential. The density in
this zoning district is one dwelling unit per three acres on a separate lot of record. This site is in
excess of that minimum standard. There currently is one existing 1,728 square foot detached
accessory pole structure on the site. The existing detached accessory structure is located in
front of the principal structure, which is permitted on properties over five acres in size. Based on
the active crop productions on the site, the applicant has verified that the property currently
meets the definition of agricultural use. The reason this fact is identified is that it has a relation-
ship to the number and amount of square footage for accessory buildings that can be con-
structed on the site. Properties meeting the definition of agricultural use can have an unlimited
number of accessory buildings with a total square footage of 300 square feet per 10 acres.
Based on the 41.86-acre site and the agricultural use definition being met, the applicants would
have the ability to construct detached accessory buildings totaling 12,558 square feet on the
site. Photographs of the site are attached as Exhibit A.
Background
Earlier this year, the applicant inquired into the requirements for building a separate residential
dwelling as an integral component of a new detached accessory structure. The proposed new
accessory structure would be 25 feet in height with 5,760 square feet including a 56-foot by 10-
foot covered porch.
Additional examples of similar structures are included as Exhibit B.
�xa�nN�e ui rrvNw�u r��cessvey auuaing �xtenvr
(Note: Not to scale wifh Proposed Structure)
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 4 of 8
The applicants have indicated that the proposed residential dwelling would be for the purpose of
housing Sheryl Myers' parents who are co-owners of the property. The applicants have indi-
cated further that the co-owners are also licensed care assistants who assist the Myers family.
An additional stated reason for this request is that the applicants want to maintain the rural agri-
cultural look of the property instead of a subdivision with multiple properties.
The proposed structure would be located behind the principal structure. To clarify, the accessory
structure would be able to be constructed regardless of the outcome of this variance request. If
the variance is denied, the structure would not be able to have the additional residential dwelling
located in it.
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Proposed Accessory Structure Location Detail
The City's Technical Review Committee reviewed the ordinance criteria and responded that a
second residential dwelling on the parcel would not be permitted.
11-9A-2: PERMITTED USES
No structure or land shall be used except for one or more of the following uses:
1. Agriculture.
2. Municipal buildings and structures.
3. One-family detached dwellings.
4. Public parks and playgrounds.
5. Public utilities. (1971 Code § 28-53)
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 5 of 8
Alternative Actions Permitted by the City Code
The City's Technical Review Committee identified that based on Title 11-9A-3: Permitted Ac-
cessory Uses, the applicant would have the ability to have an accessory apartment that would
allow for an additional living quarters as an accessory and subordinate use to the principal struc-
ture. This section of the code requires that the accessory apartment be part of the principal
structure and has certain other perFormance standards. The code also requires that the property
owner resides in the principal structure.
The Committee also identified that the applicant would have the ability to subdivide the property
to provide opportunity for an additional detached dwelling unit on the current property.
In 1996, the previous property owner received approval for a preliminary plat that lapsed due to
not final platting within the required timeframes. The plat approved for that planning case is
included below.
1996 Preliminary Plat
A component of that 1996 review process was the requirement of the creation of a re-platting
sketch plan that is commonly called a"ghost plat." This requirement shows the ability to place
additional roads and lots on a property in the future and aids in the strategic placement of any
new houses on the site prior to any additional platting. The ghost plat is detailed below.
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 6 of 8
Summarizing the zoning interpretation by the City, a second detached dwelling unit on the prop-
erty would not be permitted, but an accessory apartment as an integral component of the princi-
pal structure would be permitted. This same interpretation has been utilized in the past when
similar requests have been made. The current land use and zoning of the property would allow
for subdivision subject to ordinance criteria established in the subdivision ordinance.
The applicant has chosen to apply for a variance from City Code Title 11-9A-2 in order to allow
for two detached dwelling units on the property.
Ordinance Criteria
With any variance request, the Planning Commission and City Council must look to the zoning
ordinance for guidance and direction. Title 11-2-7: Variances states that;
A. Authority And Purpose: The council may grant variances from the strict application of the provisions of
this title and impose conditions and safeguards in the variances so granted in cases where there are
practical difficulties or particular hardships in the way of carrying out the strict letter of the regulations of
this title.
D. Consideration By Planning Commission; Recommendation: Before authorization of any variances, the
request therefor shall be referred to the planning commission, and for its recommendation to the city
council for the granting of such variance from the strict application of the provisions of this title so as to
relieve such practical difficulties to the degree considered reasonable without impairing the intent and
purpose of this title and the comprehensive plan. The planning commission shall recommend such
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 7 of 8
conditions related to the variance, regarding the location, character and other features of the proposed
building, structure or use, as it may deem advisable. The planning commission shall make its
recommendation within sixty (60) days after the request is referred to it, unless the applicant requests,
in writing, that an extension of time for review be granted by the planning commission.
The planning commission may recommend a variance from the strict application of the provision of this
title, if they find that:
1. The variance is in harmony with the purposes and intent of this title.
2. The variance is consistent with the comprehensive plan.
3. The proposal puts the property to a reasonable use.
4. There are unique circumstances to the property not created by the landowner.
5. That the conditions upon which an application for a variance is based are unique to the parcel of
land for which the variance is sought and are not applicable, generally, to other property within the
same zoning classification.
6. That the purpose of the variance is not based exclusively upon a financial hardship.
7. That the granting of the variance will not be detrimental to the public welfare or injurious to other
land or improvements in the neighborhood in which the parcel of land is (ocated.
8. That the proposed variance will not impair an adeguate supply of light and air to adjacent property,
or substantially increase the congestion of the public streets, or increase the danger of fire, or
endanger the public safety.
The applicant's response to the ordinance criteria is attached as Exhibit C. As stated earlier, the
City's Technical Review Committee recommended denial of the variance request.
Public Hearing Notice
The public hearing notice was mailed to 16 properties within 500 feet and published in the South
Washington County Bulletin on September 10, 2014.
Summary
• The ordinance prohibits a second residential dwelling on the property.
• The ordinance allows for accessory apartments in the principal structure.
• The property could be subdivided if an additional residential dwelling is desired.
• Subdivision would require a minimum of three acres and 180 feet of public frontage.
• Subdivision would require the payment of stormwater area charges.
• Subdivision would require the payment of cash in lieu of land park dedication.
• The proposed accessory structure would be in compliance with current ordinance criteria.
• If a variance is granted, building permits would be required.
• If a variance is granted, an appropriate sized septic system would be required.
• If a variance is granted, Park Dedication fee would be required for the new dwelling.
Recommendation
The Planning Commission recommended, on a 6-to-3 vote, that the City Council should approve
the variance to allow a second residential unit as part of an accessory structure on the residen-
City Council Memorandum
Variance for Second Residential Dwelling at 10990 Manning Avenue
October 15, 2014
Page 8 of 8
tially zoned property at 10990 Manning Avenue South. The recommendation of approval did not
include any findings of fact for granting the variance.
Based on the advice of the City Attorney, and the lack of the establishment of findings for
approval, it is recommended that the City Council should deny the variance to allow a second
residential dwelling unit as part of an accessory structure on the residentially zoned property at
10990 Manning Avenue South.
Prepared by
John M. Burbank, AICP
Senior Planner
Exhibit A = Site photographs
Exhibit B= Similar structure example photographs
Exhibit C= Applicants' response to ordinance criteria
Exhibit D= Letter to the City Council Dated 10-15-14 from the City Attorney
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� Cottage Community Development Department Planning Division
Grove � 12800 Ravine Parkway South Telephone: 651-458-2827
����<,� Cottage Grove, MN 55016 Fax: 651-458-2897
�`� www.cottaqe-qrove.orq E-Mail: planninq(a)cottaqe-qrove.orq
VARIANCE APPLICATION — RESPONSE TO ORDINANCE CRITERIA
The Planning Commission and City Council may recommend a variance from the strict application of the zoning ordinance, if
they find that your application meets the findings below. Please provide a DETAILED response to all of the following
findings:
1. The variance is in harmony with the purposes and intent of this title. Please circle: Yes 0✓ No
2, The variance is consistent with the comprehensive plan. Please circle: Yes ✓ No
The variance would allow us to maintain the agricultural feel of the property.
3. The proposal puts the property to a reasonable use, Please explain.
The proposal would allow our family to continue using the property for agricultural use and get assistance with raising our mentally
handicapped children.
4. There are unique circumstances to the property not created by the landowner. Please identify these circumstances.
We have 2 daughters who are mentally handicapped and will need assistance �vith daily living for the remainder of their lives.
5. The conditions upon which an application for a variance is based are unique to the parcel of land for which the
variance is sought and are not applicable, generally to other property within the same zoning classifications, Please
list the conditions that are unique.
The variance to allow a separate shl�ch�re for in-laws to live in would be unique because they are licensed care assistants for our special
needs daughters. Additionally, the in-laws are joint property owners, which is a unique circumstance.
6, The purpose of the variance is not based exclusively upon a financial hardship. Please circle: Yes ✓ No
The variance would allow us to continue caring for our daughters.
7. The granting of the variance will not be detrimental to the public welfare or injurious to other land or improvements in
the neighborhood in which the parcel of land is located. Please circle: Yes 0✓ No ❑
It would still look and feel like any other agricultural property.
8. The proposed variance will not impair an adequate supply of light and air to adjacent property, or substantially
increase the congestion of the public streets, or increase the danger of fire, or endanger the public safety. Please
identify any potential impact the requested variance may have.
No additional i�upact. Sttucture �vould Ue located roughly in the middle of 42 acres, providing space around property lines.
Economic hardship is not regarded by the Courts as a reason for approval. Neighborhood support or opposition,
without any basis of facts, is not regarded by the Courts as reason for either approval or denial.
Applicant Name: John Myers p Case #: V2014-029
�_
LEVANDER,
GILLEN &
MILLER, F.A.
[-- .
ATTORNEYS AT LAW
MEMO
TIMOTHY J. KUNTZ
DANIEL J. BEESON
*KENNETH J. ROHI,F
oSTEPHEN H.FOCHLER
4JAY P. KARI_OVICH
ANGELA M. LUTZ AMANN
*KORINE L_ LAND
o'DONALD L. HOEFT
DARCY M. ERICKSON
DAVID S. KENDALL
BRIDGET McCAULEY NASON
DAVID B. GATES
HAROLD LEVANDER
1910
ARTIIiJR GILLEN
1919
• ROGER C. MII,LER
1924-2009
�ALSO AD6ll'ITED IN \VISCONSIN
4 ALS0 AD�IITTED IN NORTH DAF:OTA
oALSO ADhIITTED IN MASSACHUSETIS
oALSO ADSllTiED M OI:L.AHOMA
TO: The Honorable Mayor Bailey and Members of the Cottage Grove City
Council
FROM: Kori Land, City Attorney
DATE: October 15, 2014
RE: Myers Variance Case V14-029
I have been asked to provide a legal analysis i•egarding the application for a variance that would
allow the Myers to construct a second residential dwelling on their property located at 10990
Manning Avenue South. There is one typical existing single-family dwelling on the pi•operty
today. The variance would allow an accessory building to contain a second atypical single-
family dwelling on the property as well.
What the Council must lceep in mind when considering a variance application are the standards
set forth in Minn. Stat. §462.357 Subd. 6. These standards provide the frameworlc to help you
malce your decision.
Subd. 6 states in relevant part:
Variances shall only be permitted when they are in harmony with the general
purposes and intent of the ordinance and when the variances are consistent with
the comprehensive plan. Variances may be granted when the applicant for the
variance establishes that there are practical difficulties in complying with the
zoning ordinance. "Practical difficulties," as used in connection with the gt•anting
of a variance, means that the property owner proposes to use the property in a
reasonable manner not permitted by the zoning ordinance; the plight of the
landowner is due to circumstances unique to the property not created by the
landowner; and the variance, if granted, will not alter the essential character of the
locality. Economic considerations alone do not constitute practical difficulties.
1
The relevant questions fiom this statute for you to consider are as follows:
1. Is the variance in harmony with the general purpose and intent of the ordinance?
2. Is the variance consistent with the Comprehensive Plan?
3. Are the circumstances causing the request for the variance unique to the property and not
created by the landowner?
If the Council can answer "Yes" to ALL of these questions, then the variance application may be
approved. If even just one answer is "No" then the variance, by law, must be denied. Any "No"
r•esponse will provide a sufficient basis for your findings for denial. Any findings for denial
must be adopted at your next available meeting.
Keep in mind that once a variance is granted, it attaches to the land, not to the property owner, so
it will be allowed to be used in this manner by any future owner of that propei regardless of
whether or not there is a need that is as compelling as the existing circumstances.
I offer the following analysis of the relevant questions:
1. Is the variance in harmony with the general purpose and intent of the ordinance?
The intent of the requirement of one single-family dwelling per property is to control orderly
development. A single-family use is intended for one family. On its face, allowing two single
family dwellings on the property is not in harmony with the general purpose and intent of the
ordinance.
If the property owner is insistent on having a second single-family use in close proximity to the
existing single-family dwelling, then there are two options to pursue:
a. Subdivide the pNOpe�°.ry. If a property owner has sufficient land to add residential
dwellings on the same property, then orderly development would require the
propei�ty owner to subdivide the property into separate lots. By subdividing the
property into separate lots, any newly created lot could be sold, which is
inevitable. The planner's report for the Planning Commission, outlined the process
for subdividing the propei�ty and the requirements that would be included in that
option. A subdivision of the property negates the need for a variance.
b. Const�°uct an accessory apartment. The ordinance allows for an accessory
apartment to be constructed within an existing single-family dwelling. The lot
and location of the residence appear to have the capacity to add onto the existing
dwelling for an accessory apaz or the existing dwelling could be remodeled
to provide for such accessory apartment. Adding an accessory apartment into the
existing dwelling would be in complete compliance with the ordinance. The
owner would occupy one of the units, thereby making it conform to the
requirements of the ordinance. An accessory apartment within the existing single-
family dwelling also negates the need for a variance.
2
2. Is the variance consistent with the Comprehensive Plan?
The Comprehensive Plan requires one single-family residence for every three acres. The
addition of a second residential dwelling on one lot appears to be in conflict with this
requirement. The Comprehensive Plan also encourages life-cycle housing options. The
accessory apartment inside the existing dwelling is the latest trend in life-cycle housing, allowing
for the care of elderly parents or in this case, for special needs family members. This trend is
evidenced by the new development by Lennar for the NextGen style home. As stated in the first
analysis above, an accessory apartment within the existing single-family dwelling negates the
need for a variance. Otherwise, the variance does not appear to be consistent with the
Comprehensive Plan.
3. Are the circumstances causing the request for the variance unique to the property
and not created by the landowner?
The requirement that the circumstances be unique to the propet•ty is an important point. The
circumstances cannot be unique to the property o1��nei°, but must be caused by a distinction or
exceptional situation that relates specifically to the propei�ty. In the variance application, the
circumstances sui the request are solely due to the property owner's family situation.
The property owner wants to add a single family dwelling to the property to assist with the care
of his children. Although the emotional heartstrings lean toward allowing the property owners to
fulfill their personal needs, it is simply not allowed by the statute to allow a variance when it is
solely created by the property owner and not created by the property. The family need has
nothing to do with the topography, layout, or natural landscape of the property. The
circumstances are unique to the propert, o� wner, but not to the rp opertX.
The Council must apply the strict requirements of the statute when considering a variance. Since
at least one of the answers to the statutory requirements is in the negative, the Council should
deny the variance request.
On the bright side, there are a couple of options for the proper owners to accomplish their
needs without a variance. City Staff can help them tluough any of those options.
3
RESOLUTION NO. 2014-XXX
A RESOLUTION DENYING A VARIANCE TO ALLOW A SECOND RESIDENTIAL UNIT AS
PART OF A 5,760 SQUARE FOOT ACCESSORY STRUCTURE ON RESIDENTIALLY
ZONED PROPERTY AT 10990 MANNING AVENUE SOUTH
WHEREAS, John and Sheryl Myers applied for a variance to allow a second residential
unit as part of a 5,760 square foot detached accessory structure on residentially zoned property
legally described as:
ALL THAT PT OF S1/2-SE1/4 LYING S OF N 351.05FT & W OF E 1913.OFT
THEREOF AND THAT PART LYING SOUTH OF THE NORTH 693.77 FEET OF
THE EAST 1913.0 FEET THEREOF EXCEPT THE NORTH 247.5 FEET OF THE
SOUTH 264 FEET OF THE EAST 412.5 FEET THEREOF SUBJ TO & TOG WITH
EASE SECTION 25 TOWNSHIP 027 RANGE 021
Commonly known as 10990 Manning Avenue South, Cottage Grove, Washington
County, State of Minnesota.
WHEREAS, public hearing notices were mailed to property owners within 500 feet of the
property and a public hearing notice was published in the South Washington County Bulletin; and
WHEREAS, a planning staff report, which detailed specific information on the property and
the variance application request, was prepared and presented to the Planning Commission; and
WHEREAS, Planning staff recommended denial of the variance application to the
Planning Commission.
WHEREAS, the Planning Commission held a public hearing on September 22, 2014; and
WHEREAS, the public hearing was open for public testimony and testimony from the
applicant and the public was received and entered into the public record; and
WHEREAS, the Planning Commission reviewed the planning staff report, the ordinance
criteria found in Title 11-2-7 and considered the public hearing testimony; and
WHEREAS, after a lengthy discussion and several failed motions, the Planning
Commission, by a vote of 6-to-3, recommended that the City Council approve the variance to
allow a second residential unit as part of a 5,760 square foot detached accessory structure on
residentially zoned property; and
WHEREAS, the Planning Commission's recommendation of approval for the requested
variance did not include findings of fact as required by City ordinance and State Statute.
NOW, THEREFORE BE IT RESOLVED, the City Council of the City of Cottage Grove,
Washington County, Minnesota, hereby denies the variance to allow a second detached single
family residential unit as part of 5,760 square foot detached accessory structure on the
Resolution No. 2014-XXX
Page 2 of 2
residentially zoning property, legally described above. Denial of the variance is based upon the
following findings of fact:
A. The requested variance is not caused by a distinction or exceptional situation that
relates specifically to the property.
B. The circumstances surrounding the variance request are solely due to the property
owner's family situation and are not unique to the property.
C. The property owner has other options to allow for additional residential housing
opportunities on the property including the establishment of an accessory
apartment in the principal dwelling and minor subdivision.
D. The inability to obtain affirmative responses to all of the Ordinance criteria
established in Title 11-2-7 when considering the variance request necessitates that
the Council must deny the variance request. Specifically:
1) The variance is not in harmony with the purpose and intent of the ordinance;
2) The variance is not consistent with the Comprehensive Plan;
3) The circumstances are not unique to the property;
4) The circumstances are created by the property owner.
Passed this 15th day of October, 2014.
Myron Bailey, Mayor
Attest:
Caron M. Stransky, City Clerk
EXCERPT FROM UNAPPROVED NIINUTES OF THE
SEPTEMBER 22, 2014, PLANNING COMMISSION MEETING
6.3 Myers Second Residence — Case V2014-029
John and Sheryl Myers have applied for a variance to allow a second residential unit as
part of a 5,760 square foot accessory structure on residentially zoned property at 10990
Manning Avenue South.
Burbank summarized the staff report and recommended denial based on the findings of fact
stipulated in the staff report.
Graff asked how much of the 5,760 square feet would be the residence. John Myers, 10990
Manning Avenue South, responded that the residential portion would be approximately 1,500
square feet. He provided background information on why they are requesting this variance,
explaining that two daughters require constant care, and his wife's mother is a personal care
assistant who helps with their daily activities. He stated that he initially approached staff in the
spring about what they believe is a permitted use. He referenced City Code Title 11-9A-3(9)
that a separate living quarters for domestic servants employed on the premises is a permitted
use. Staff interpreted that it was not meant to be a separate structure but attached to the
principal structure, which is why they applied for the variance. They do not want to subdivide
the parcel and build a house on it or add onto their existing house due to market value issues.
The proposed option provides on-site living space in an accessory structure, and as needs
change, they can repurpose the living space into shop space and the property would still have
market value.
Rostad asked if the property was subdivided, would both parcels require 180 feet of public
frontage. Burbank responded yes. Rostad asked if there is enough frontage. Burbank re-
sponded on a previous application, a public right-of-way was stubbed in. Also, recently the
City approved a variance on 70th Street that had reduced public frontage.
Johnson asked why this proposal is against the ordinance. Burbank responded that the Tech-
nical Review Committee identified that they had the opportunity to construct an addition for an
accessory apartment or to subdivide the property.
Graff asked i� language could be added to require the living space be converted to shop space
when it was no longer needed. Burbank responded that conditions of approval are added for
variances.
Reese asked about the materials for the structure and if there would be footings or would it be
a slab on grade. Myers responded that the main building structure will be a post frame con-
struction with a cement floor and a floating slab. Burbank responded that footings would be
required if they were to attach it to the principal structure. Reese asked if the building official
was consulted to see if that was appropriate for a residence. Burbank responded that the
applicant is proposing a habitable residential portion meeting city building codes for occu-
pancy. Myers stated that they would build it to meet the applicable building codes.
Rostad opened the public hearing.
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 2 of 7
Kevin McGrath, 11000 Manning Avenue South, stated that they are the closest neighbors to
the Myers and support the application. This is a rural area and they appreciate this multi-
generation approach, which fits with our farming heritage. Farms usually have accessory living
structures for farm hands and multi-generational families, but none of them look as nice as
what is proposed. While the review group's approach may be technically correct, based on the
specific facts and circumstances with this family and parcel of land, the proposed structure
would have a low impact on neighboring properties.
Bill Royce, 10823 Lehigh Road South, believes the applicants' intentions are very admirable.
He stated the structure could be considered a bunk house for farm workers. He supports this
application wholeheartedly.
Gene Smallidge, 10992 Point Douglas Drive, stated that he has no problem with this request
for residential space in an accessory structure. This is both a practical and economical solution
to their needs for work space as well as a way for them to take care of their family's health and
welfare needs. He stated that in the past there was a proposal for a residential subdivision on
this property, which all the neighbors opposed. He is not aware of any adjoining owners op-
posed to this proposal. It will not adversely affect the neighbors' property values. In most cases
the adjoining property owners cannot see the building site because of topography and vege-
tation. He believes that owners of a 40-plus acre site should be able to do what they want with
their property as long as it does not infringe on the neighbors and meets the proper zoning.
This idea of accessory apartments is not a new concept and we have them in Cottage Grove.
He does not believe having a living quarters in a separate building on a large rural property is
big issue. He noted that there are other properties with additional residential dwelling including
a remodeled chicken coop and a corn crib. He would encourage the Commission and Council
to approve this request.
Louise Smallidge, 10992 Point Douglas Drive, stated that in this economy we should encour-
age residents to care for their own families in the most economical way possible. She noted
that she and her husband have spent many years as volunteer agriculture advisors to a 10,000
acre farm in Russia. Their Russian visitors were impressed that everything in America is
designed to make life easier for citizens. She would like to keep it that way. Let's make this
project easier for the Myers' family.
No one else spoke. Rostad closed the public hearing.
Brittain stated that while he commends the applicant for what they are trying to do, the Plan-
ning Commission's responsibilities are to adhere to the zoning policies of the community as
they are written. There are times that we can deviate from the ordinances with variances if
there are findings of fact; however, we also need to be cognizant of how the property may
potentially be used in the future. While he empathizes and commends what the applicants are
trying to do, there are other alternatives within current ordinances, including an accessory
apartment attached to the principal structure or a lot split.
Imdieke asked about the ordinance language regarding a structure for hired help, as the pro-
posed occupants of the structure were hired through a care provider. She asked for more
information on the interpretation on that code. Burbank responded that one of the points of
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 3 of 7
discussion was if it fell under a caretaker residence. The Technical Review Committee deter-
mined that a caretaker's residence was not a separate building, but would be in an accessory
apartment attached to the principal structure. The only options are to construct an accessory
apartment or apply for the variance. Imdieke asked if there are other parcels in Cottage Grove
that have that separate buildings for hired help. Burbank responded that the only caretaker
residence he knows of is on the Acorn Mini-Storage property but that is guided and zoned
differently. Shepards Woods, which is owned by the Dodge Nature Center, has a caretaker's
residence on the property but that was there prior to the zoning ordinance. The converted
chicken house at Hope Glen Farm is part of a Historic Places Conditional Use Permit, and the
converted corn crib is used for short-term stays, not long-term habitation. Those are the ones
that staff is aware of. Those structures were created under different circumstances. He noted
that there are accessory apartments and rental units throughout the city.
Johnson asked if all the provisions listed in the ordinance criteria need to fit in order for a
variance to be granted. Burbank responded that there needs to be reasonable findings to grant
a variance. The Technical Review Committee did not feel they could establish adequate find-
ings. Johnson asked if the septic system would need to be upgraded for the new building with
living quarters. Burbank stated that in the summary section of the staff report it was identified
that if a variance were to be granted, they would need to ensure that the current septic system
would support any additional residential use. Johnson asked what the negatives would be to
allow a second residential dwelling; the Commission just approved a variance for a pool, which
is an amenity, but are being advised to deny this variance that he believes is for a good pur-
pose. Burbank explained that each variance request is looked at on its own merit. The Tech-
nical Review Committee noted that there is the ability to have an accessory apartment
attached to the principal structure, which would not require a variance, or to subdivide the
property. There are standard zoning procedures for creating additional residential units within
the community available to the property. From a zoning perspective, there needs to be con-
sistency in how these requests are addressed. There are also concerns about how future
owners would use the habitable space.
Reese stated that his only concern was the type of structure and removing the grove of trees
for it. He understands why they do not want to add onto the house. He would rather see the
applicant and staff try to work on options and come back next month with more data and
details.
Graf asked if in the R-1 zoning district we allow only one residential dwelling per zoned parcel.
Burbank responded yes. Graf stated that the way to add a residential dwelling is through sub-
dividing. That option would provide a similar outcome; the only difference is that they would
own an additional lot.
Graf made a motion based on the recommendation in the staff report that the variance
be denied. Brittain seconded.
Johnson asked if Cottage Grove allows slab on grade construction and if a pole barn requires
frost footings. Burbank responded slab on grade construction is allowed and pole structures
don't require frost footing foundations.
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 4 of 7
Myers stated that subdividing the lot brings the same issues that adding onto their existing
house would be, which is that the size of the house could be unmarketable.
Graff stated that she sympathizes with the applicants and explained that she faced a similar
situation trying to find a home that fit their needs. They remodeled their home, which may
make it hard to market in the future. While she understands the applicants' concerns, the
Commission needs to protect the greater good. This would set a precedent. She also ex-
pressed concern about future use of the property if it is sold. She would also like more time for
research on this application. Myers stated that they would agree to adding conditions listing
what the structure can be used for.
Rostad stated that he would vote to approve the variance because he believes the applicant
is trying to put up a structure in harmony with the area. The accessory structure would not be
detrimental to the public, neighbors, or property values. If they are willing to meet the septic
requirements and building code requirements, he would be in favor of granting the variance.
Johnson asked about the size of the living area. Myers responded 1,500 square feet would be
the maximum size. Johnson asked how many square feet they have currently in the house.
Myers responded about 3,200 square feet. Johnson asked if they are absolutely sure that a
4,500 to 4,700 square foot house would make the property unmarketable. Myers responded
that they have no intention of selling any time soon and plan to retire there but as their children
move out, the house would be too large. They would reconfigure the living space in the acces-
sory into shop space when it is no longer needed.
Rediske stated she is concerned about safety implications of a pole barn on a flat slab. Myers
stated that this type of structure is getting more prevalent and can be engineered to comply
with all building codes.
Graff stated that she would prefer to table the application to get more information on these
types of structures and to do research on if there are other properties with a second residential
structure.
Levitt stated that even if the application were tabled or continued, the underlying question
remains that there would be two separate residences on one property. As indicated, the only
ones in Cottage Grove (Dodge Nature Center and Hope Glen Farm) are of a historic nature
and have conditional use permits. There have also been indications from the applicant regard-
ing storage rental. Commercial uses are not permitted on this property. The City needs to be
very cautious about these types of situations. The underlying issue before the Commission is
if two separate residential living quarters are going to be allowed on one parcel.
Imdieke asked if they were to subdivide, could this accessory structure be a stand-alone struc-
ture on that parcel. Burbank responded that accessory structures are not permitted to be built
prior to a principal structure, unless it had a residential component to it. There are some ex-
ceptions for agricultural buildings on a lot of record with agricultural use prior to a principal
structure. Imdieke asked if the applicant could build the same structure on a subdivided portion
of his parcel. Burbank responded if it had a residential component to it and the storage garage
would be limited to 1,000 square feet. Imdieke stated that could be a compromise. This appli-
cation could be denied and they could come back with a subdivision application. Burbank
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 5 of 7
stated that a minor subdivision would require minimum public frontage, public right-of-way
access, percolation for a septic system, minimum building code requirements related to hab-
itable structures, and limits on attached garage size. Myers stated that if they subdivided, the
structure would need to be along the public frontage instead of close to the house or a public
road coming in to their property would need to be created. Imdieke asked if it would be possible
for the city to work with the applicant on variances to some of those requirements for a subdi-
vision. Burbank responded yes.
Reese stated that a couple months ago, the Planning Commission approved an accessory
structure apartment. Levitt responded that was part of Hope Glen Farm's Historic Places Con-
ditional Use Permit. They have an accessory apartment detached from the principal structure
and there will be a tree house suite and a corn crib, which is an ADA-accessible lodging option.
None are permanent residences, other than the principal structure. Reese asked if those would
have been approved with the HPCUP. Levitt responded that it would not have met zoning
requirements.
Wehrle stated that he thinks the proposal makes sense for their situation and would support
approving the variance.
Graf also agrees that what the applicant proposes probably does no harm to anyone; unfortu-
nately the code requires one residential dwelling per residential lot. There are other options,
including subdivision, purchasing another home in the community, or adding onto the principal
structure. He does not want to approve two residential units on one residential lot, because it
would set a precedence.
Brittain stated that as a zoning body, we are bound to follow the rules, and if we don't like the
rules than we change the rules. We do grant variances from time to time. As a zoning body
we need to look at the rules, but if we cannot find applicable findings of fact, we cannot rec-
ommend approval no matter how much we would like to do something else.
Myers asked if the variance could be requested based on 11-9A-3(9) that allows for separate
living quarters for domestic servants. Staff's interpretation was that was not meant to be a
separate structure. Brittain responded that the intention is not to be a separate physical struc-
ture. Rostad believes that the Technical Review Committee got that wrong and he thinks his-
torically living quarters for workers on a property have been detached from the principal
structure. There would be legitimate findings to allow a separate living structure.
Johnson asked how other cities compare as far as two residences on one lot; he has seen
guest houses on properties in other cities within the Twin Cities. Burbank responded that staff
did not explore that as part of this review.
Imdieke stated that the zoning board has to follow the City Code. She believes that the inter-
pretation from the Technical Review was wrong and that in agricultural areas there are sepa-
rate living quarters for farm workers.
Graf stated that the property is not zoned agricultural, it is zoned rural residential. Burbank
responded that they meet the definition of an agricultural use per our zoning code.
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 6 of 7
Motion to deny failed on a 2-to-7 vote (Ayes: Graf, �rittain) (Nays: Grafif, Imdieke,
Johnson, Rediske, Reese, Rostad, Wehrle).
Reese made a motion to table the application so the staff and applicant can look at other
options and to get more details on the proposed structure including the materials and
placement of the structure. Brittain seconded.
Brittain expressed concerns about how close the structure would be to the current residence
and private drives versus public drives.
Johnson asked if there is an opportunity for Commissioners to provide an opinion as to whether
this property can be used for hired hands or domestic help. Burbank responded that request
for was not advertised so he would have to check into the procedure related to action taken
on something that was not advertised. If an additional public hearing was required to deal with
a different section of the code, it could be advertised prior to the City Council meeting.
Levitt clarified that the motion should be a continuance instead of tabling and so the verbiage
in the motion would need to be changed.
McCool responded that Johnson's interpretation if a second residence could be on the prop-
erty if the applicant was to challenge or disagree with that interpretation, there is an application
process that includes a public hearing. If this was continued, background information could be
provided to the Planning Commission next month, including more detail on how that was in-
terpreted, what the ordinance states, and the City Attorney's opinion. Johnson asked if this
application needs to be denied first and then the applicant would reapply for another variance
regarding housing for domestic help. McCool responded that if this application was denied,
the applicant would have the option to appeal the City's interpretation of whether or not a
second residence can be on the same parcel of land. The Planning Commission would hold
the public hearing and make a decision on that application.
Graf asked if the City has ever interpreted accessory apartments to be a separate building in
the past. Burbank responded that there was a request for a detached accessory structure with
a mother-in-law's apartment on property on Lamar Avenue. The City's interpretation was the
same as this, and the property owner did not proceed any further. Graf noted that is a prece-
dent to guide the Commission in this matter.
Rediske asked how the mother is paid. Myers responded through the state. Rediske asked if
she is paid by the state, does that allow her to be considered a hired hand. Burbank responded
that she meets the definition of being hired but it is not a separate caretaker's residence.
Reese amended his motion to continue the application instead of tabling the applica-
tion. Brittain seconded.
Rostad stated that he does not feel that it needs to be continued. We are looking for a variance
for a second residential structure, and he does not need to see the materials list and the layout.
He would assume staff would take care of that part of it and get the building up to code.
Excerpt from Unapproved Planning Commission Minutes
Myers Second Residence — Case V2014-029
September 22, 2014
Page 7 of 7
Motion failed on a 5-to-4 vote (Nay: Graf, lmdieke, Wehrle, Rostad, Graf� (Aye: Johnson,
Rediske, Brittain, Reese).
Wehrle made a motion to approve the variance to allow a second residential unit.
Imdieke seconded.
Graff commented that if this motion is approved, she wants to emphasize to the homeowners
that they have set a precedent where the City staff's recommendation and this Planning Com-
mission's recommendation are different, and urges them to have answers to the concerns
expressed at this meeting when the application goes to the City Council for final determination.
She also asked them to work with the City to resolve some of those issues.
Motion passed on a 6-to-3 vote (Ayes: Graff, lmdieke, Rediske, Reese, Rostad, Wehrle)
(Nays: Graf, Johnson, Brittain),