HomeMy WebLinkAbout2008-09-08 PC Packet - Part 2 - Lakeview Hospital
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Planning Report
DATE:
September 5, 2008
CASE NO.: 08-43
APPLICANT:
Peter Smith, BWBR Architects
PROPERTY OWNER:
Lakeview Hospital
REQUEST: 1) Special Use Permit for Master Facilities Plan
2) Height Variance
3) Lot Coverage Variance
LOCATION: 927 W. Churchill St.
PUBLIC HEARING: September 8, 2008
REVIEWERS: City Administrator, City Attorney, Deputy Fire Chief,
City Engineer, City Planner, Building Official
PREPARED BY: Bill Turnblad, Community Development Director 1./j .'
BACKGROUND
Lakeview Hospital has retained BWBR to develop a master facilities plan to accommodate the
projected growth needs of the hospital on their current property for the next 20 to 25 years. The
resulting plan shows facilities improvements in four phases. The first phase is estimated to be
implemented in the 2009 to 2010 time frame. The fourth phase is estimated to be implemented
in the 2020 to 2025 time frame.
The hospital is requesting approval of a Special Use Permit that would be valid for the first three
phases of the master plan. In addition, conceptual approval is being requested for the fourth
phase ofthe plan.
Since construction approved with a Special Use Permit must begin within two years of city
approval, an ordinance amendment is being reviewed separately to address the timing matter.
Specifically, the ordinance amendment is proposed to allow a longer validity period for Special
Use Permits that have phased plans approved by the city. The public hearing for the ordinance
amendment was opened by the Planning Commission on August 11, 2008 and continued to the
September 8, 2008 commission meeting.
Lakeview Hospital
Page 2 of 8
SPECIFIC REQUEST
In order to implement the phased master plan as proposed, Lakeview Hospital requests the
following:
1) Approval ofa phased Special Use Permit valid through 2020, or Phase III ofthe hospital's
master facilities plan, whichever comes first.
2) Conceptual approval of Phase IV of the hospital master facilities plan.
3) Approval of a variance from the 35 foot height limit in the RB Zoning District to allow 42
foot tall additions in Phase II and III of the master facilities plan.
4) Approval of a variance from the 25% limit on building coverage and 25% limit on other
impervious coverage in the RB Zoning District to allow more than 25% other impervious
coverage.
The Planning Commission is responsible for reviewing and making a decision on the variances,
and for making a recommendation to the City Council on the Special Use Permit.
EVALUATION OF REQUEST
The hospital site is covered by two different zoning districts. The northern portion of the site is
zoned RB, Two-Family Residential. The southern portion of the site is zoned RA, Single Family
Residential. All additions and exterior facility improvements are planned only in the portion of
the site zoned RB.
Hospitals are allowed by Special Use Permit in both the RB and the RA Zoning Districts. Each
expansion project since 1976 has been by Special Use Permit.
Summary of Phasing
The Lakeview Health System Board has chosen to keep its hospital in Stillwater and expand it on
the current site. In order to accommodate projected needs, the board's consultants have proposed
a four phased master facilities plan. The first three phases of the hospital plan are quite firm and
the board is requesting final approval for them. The fourth phase is not as firm and therefore the
hospital's board is requesting only conceptual approval for that phase.
Phase 1. The first phase is a horizontal expansion that would increase the hospital footprint by
23,400 square feet. Since two levels are planned with 23,400 square feet on each level, this first
phase would create 46,800 square feet of new space. The space would be used largely for
surgery, oncology and endoscopy. Estimated implementation ofthis phase is 2009-2010.
60 parking spaces would be eliminated for this phase. However, given the current number of
parking spaces on the property, a parking surplus will still exist.
Originally, this phase was to have two levels with 33,400 square feet per level. But in response
to comments at the neighborhood meeting, the building setback from Everett Street has been
increased. This has reduced the square footage for each level to 23,400 square feet. The
Lakeview Hospital
Page 3 of8
increased setback has also allowed the existing Everett Street access point to stay where it is
today. This is important to the neighbors who do not want to bring hospital traffic any further
south into their neighborhood than is necessary.
Phase II The second phase is a vertical expansion that would add two stories to the Phase I
addition. 46,800 square feet of total space would be added in this phase, with 23,400 square feet
on each of two new floors. The space would be used largely for patient beds. These beds
already exist in the hospital, but would be relocated onto these two floors. Estimated
implementation ofthis phase is 2012-2013.
No parking spaces will be added or removed during this phase. None the less, the current
surplus of spaces will suffice to service the parking need through construction of this phase.
Originally, this phase was to have three stories which together with Phase I work would have
resulted in a four story addition. But in response to comments at the neighborhood meeting, this
addition was reduced to a total of three stories instead of four.
Phase III The third phase is the replacement of the former two-story clinic with a three story
expansion (total of four floors including the basement level parking). Each of the four floors
would have 25,200 square feet for a total of 100,800 square feet of space. 75,600 square feet
would be program space; 25,200 square feet would be for underground parking. The space would
be used largely for outpatient services. Estimated implementation of this phase is 2015-2020.
The underground parking facility in this phase would have 50 spaces. In addition, the upper
level deck in the parking ramp south of the hospital would be extended westward to add 34 more
parking spaces. Loss of four existing spaces in this phase creates a net increase of 80 spaces and
a parking surplus of 26 spaces.
Phase IV The fourth phase is a three level horizontal expansion with 32,000 square feet on each
of the above ground levels. The space would be used largely for public spaces such as a
cafeteria, entrance and waiting areas. It would also be used for radiology. The lower level will
be underground parking. Estimated implementation of this phase is 2020-2025.
To develop this phase would require the purchase ofthe two single family homes at the corner of
Everett and West Churchill. In place of the homes would be a two level parking ramp with 103
stalls. In addition, 39 basement level stalls would be added under the addition created during this
phase. A parking surplus of20 is projected by the end of Phase IV construction.
Key Issues
Public discourse for the hospital facilities plan has included a number of meetings with the
Planning Commission, the City Council and a neighborhood meeting. Throughout those
discussions several key issues have been identified. Each is discussed briefly below.
a) Validity period for Special Use Permit & Variances
Lakeview Hospital
Page 4 of 8
The Lakeview Health System Board would like to have approval of the first three phases
of their master plan. This would bring them to somewhere in the time frame of2015-
2020. However, the current City Code only provides a two year validity period.
Consequently, a City Code amendment is working its way through the public review
process on a more or less parallel track to that of this Special Use Permit (SUP) request.
The Code amendment will address the issue of validity period for the SUP and varainces.
1. The hospital's board position is that they would like to have assurances they can
build Phases II and III if they invest in Phase 1. Therefore, they would like
approval of all three phases. They are also asking for conceptual approval of the
fourth phase of the plan.
2. The opposing position is that the neighbors and city officials should retain the
authority to review every phase of the project.
3. As the pending City Code amendment works its way through the process, the
validity period for this phased plan will be determined.
b) Building Height Variance
Buildings in the RB Zoning District are limited to 35 feet or less. This is typically a three
story building. The height of the first addition (including both Phase I and II
construction) and the second addition (Phase III construction) will both be about 42 feet.
Therefore, the Lakeview Health System Board is requesting a 7 foot height variance for
each of the additions.
The Planning Commission may grant the variances if the following conditions are
found to be satisfied 1 :
1. A hardship peculiar to the property, not created by any act of the owner,
exists. Personal, family or financial difficulties, loss of prospective profits
and neighboring violations are not hardships justifying a variance.
In this case, the hospital property is small relative to its long standing use.
The hospital is one of the oldest in Minnesota and has grown in place since its
founding. If the property were larger, the hospital could consider a two-story
structure that met the 35 foot height limit. But it is not. Moreover, a large
percentage of the southern area of the property is steep slopes and open water.
This further limits options for spreading building out as two stories, rather
than expanding to three stories.
2. A variance is necessary for the preservation and enjoyment of substantial
property rights; and, if granted, would not constitute a special privilege
not enjoyed by neighbors.
In the RB Zoning District, a three story building is permissible. However,
since a hospital needs greater ceiling cavity height to accommodate specialty
equipment, it is not possible to build three stories within 35 feet.
3. The authorizing of the variance will not be of substantial detriment to
adjacent property and will not materially impair the purpose and intent
of this section or the public interest nor adversely affect the
comprehensive plan.
I City Code Section 31-208( d)
Lakeview Hospital
Page 5 of 8
The building height has been reduced from four stories to three stories in
response to neighborhood concerns. This has greatly reduced the potential
impact upon the surrounding residential neighborhood. The setback from
Everett for Phases I-III was also increased in response to neighborhood
concerns, reducing the impact of the massing on the neighborhood by setting
the 42 foot structure further back from the street. Moreover, the current
penthouse on the hospital is already 50' 3" high. None of the proposed
expansion areas will be this high.
c) Parking
Parking is a critical component of the facilities plan. In order to increase confidence in
the parking requirement numbers, three different approaches to determining need were
analyzed: 1) current city code parking standards; 2) comparable facilities parking spaces
in the metropolitan area; and 3) analysis of parking need based upon the actual functions
occurring within the various areas of the facility. The city code standards and the needs
analysis approach are both tracked below through all four phases of the master plan.
Details of the function analysis can be found on Pages 42-46 of the attached applicant's
booklet.
Existing Phase I Phase II Phase III Phase IV
Spaces required by zoning 377 440 464 508 540
Spaces needed by program 338 452 505 566 660
analysis
Net of spaces added and 0 -60 0 +80 +88
removed this phase
Spaces available after phase 572 512 512 592 680
completion
Zoning deficit or surplus +195 +72 +48 +84 +140
Needs analysis deficit or +234 +60 +7 +26 +20
surplus
It appears that there will be a surplus of parking spaces after completion of each phase.
To add another level of confidence to these numbers, staff retained SEH to review them.
In their estimation, the parking to be provided will generously meet the need generated
by the expansion. Their review is attached.
d) Traffic
The City Engineer together with SEH has been working with the hospital's engineering
consultant to revise the traffic analysis provided in the applicant's booklet. As noted in
the attached review from SEH, the applicant's estimate of increased traffic volume
appears to be too low. None the less, SEH concludes that even with SEH's higher
estimate, the increased traffic volume is "relatively small" and the city's existing street
system would likely accommodate the traffic increase generated by the hospital. SEH
notes however that "the ability of streets to accommodate traffic is best determined by
Lakeview Hospital
Page 6 of 8
analyzing street intersection operation with peak hour traffic volumes. At some point
peak hour intersection analysis should be done." Staff concurs. In order to assure a
satisfactory level of service at Churchill and Greeley as well as at Everett and Greeley,
those intersections should be studied. This study should be completed prior to approval
of the Special Use Permit by the City Council.
The applicant's engineer has had additional analysis done and it will be available at the
public hearing on September 8, 2008.
e) Landscaping
Though opportunities for improving landscaping are somewhat limited, landscaping
should be addressed for each of the proposed phases. When the pending permit timing
ordinance amendment is acted upon by the City Council, and the number of phases that
can be given final approval is determined, landscaping plans should be submitted for
those phases that can be given final approval. The landscaping plan for those approved
phases should be submitted and considered by the city council at the same time as the
second reading of the ordinance.
.f) Impervious cover variance
i) Total impervious coverage on the project can be 50%. Currently it is 47.2%. After
Phase III construction is complete the impervious coverage would increase slightly to
47.9%. This would not need a variance. However, in addition to specifying a 50%
cover, City Code also limits types of impervious cover. No more than 25% ofthe
coverage can be building; and no more than 25% coverage can be other impervious
surfaces. Currently the building coverage is 15.1 % and other impervious cover
(parking lots, sidewalks, etc.) is 32.1 %. So, the other surface coverage is non-
conforming. After Phase III construction the campus would still have no more than
19.3 % building coverage. And the other impervious surface coverage will be reduced
to 28.7%. None the less, that is still higher than 25%, so a variance is being
requested.
(1) An argument could be made that the current 32.1 % miscellaneous impervious
surface coverage is legally non-conforming ("grandfathered"). But city records
are not detailed enough to track when the miscellaneous impervious cover went
above 25%. So, rather than try to reconstruct the record, staff recommended
simply making application for the variance.
(2) The Planning Commission may grant the variances if the following
conditions are found to be satisfied2:
1. A hardship peculiar to the property, not created by any act of the owner,
exists. Personal, family or financial difficulties, loss of prospective profits
and neighboring violations are not hardships justifying a variance.
In this case, there is a presumption that the city issued the requisite grading
permits for the existing parking lots and sidewalks. Requiring the hospital
board to remove more miscellaneous lot coverage than they will already be
doing by Phase III would be requiring them to remove parking surfaces that
2 City Code Section 31-208( d)
Lakeview Hospital
Page 7 of 8
have existed for a good number of years. And, presumably they have existed
with full knowledge and approval of the city.
2. A variance is necessary for the preservation and enjoyment of substantial
property rights; and, if granted, would not constitute a special privilege
not enjoyed by neighbors.
Since the parking and other hard surfaces have existed for a good number of
years, if a variance is not granted to allow what is there to remain, it could be
argued that property rights are not being preserved.
3. The authorizing of the variance will not be of substantial detriment to
adjacent property and will not materially impair the purpose and intent
of this section or the public interest nor adversely affect the
comprehensive plan.
As mentioned above, the amount of miscellaneous hard surface will be
reduced. To staff s knowledge the exiting 32.1 % cover has not been a
substantial detriment to adjacent property. Therefore reducing the coverage to
28.7% can only improve the situation, not worsen it.
Miscellaneous Notes
1. Phase IV impervious coverage will need a separate variance. It will have to be approved
when the final SUP approval is given for that phase.
2. Patrick and Jo Ann Poshek, neighbors to the hospital, have submitted a letter sharing their
concerns. It is attached.
AL TERNATIVES
The Planning Commission has the following options available:
1. Approve the variances and recommend approval of the Special Use Permit with the
following conditions:
a. Improvements to the hospital site shall be in substantial compliance with the
phased master facilities plan submitted by the applicant and included within the
booklet entitled "Submittal: Special Use Permit. A Phased Master Plan. Lakeview
Hospital. Stillwater, MN" and dated August 15,2008.
b. Conceptual approval for all four phases is granted if the appropriate ordinance
amendment is approved by the City Council to allow such conceptual approval.
c. Unless an ordinance amendment is approved by the City Council that allows for
an extension of the validity period for the requested Special Use Permit and
variances, they shall conform to the current City Code standard that limits their
validity to two years from the date of approval to the date of construction
commencement.
d. In order to assure that the level of service at the intersections of Churchill and
Greeley as well as Everett and Greeley will continue to be satisfactory, those
intersections shall be studied further. The parameters of the study shall be
established by the City Engineer. This study shall be completed prior to City
Council approval of the Special Use Permit.
Lakeview Hospital
Page 8 of 8
e. Middle St. Croix Water Management Organization (WMO) rules shall be satisfied
in terms of stormwater management and erosion control. Prior to issuance of a
building permit, the grading plan for the project must incorporate the WMO rules
and be approved by the City Engineer.
f. Prior to City Council approval of the Special Use Permit, a landscaping plan shall
be submitted by the applicant. The landscaping plan shall show proposed
landscaping for each phase of the project that will receive final approval.
g. Prior to City Council review of the Special Use Permit, the property owner shall
submit a complete and accurate legal description of the property to the city.
2. Deny the variances but recommend approval of the Special Use Permit with the
conditions found in Alternative 1 above. Findings of fact should accompany a denial.
3. Deny the variances and recommend denial of the Special Use Permit. Findings of fact
should accompany a denial.
4. Table the requests for more information.
RECOMMENDATION
Since more traffic information is expected from the applicant's engineer prior to the public
hearing on this case, staff would like to see that information prior to offering a recommendation.
cc: Peter Smith, BWBR Architects
attachments: Poshek Letter
Traffic Engineer Review Memo
Zoning Map
Certificate of Survey
Application Booklet
Patrick & Jo Ann Poshek
1302 Everett St S
Stillwater Mn 55082
September 4, 2008
City of Stillwater Planning Commission
Stillwater City Council
Re: Special use permit for Master Plan Lakeview Hospital
The Planning Commission will be considering this case at a hearing on Monday,
September 8th 2008. I would like to share our concerns regarding this request.
. We live in an adjoining neighborhood with RA zoning.
. RA should protect consistency of improvements with no variances.
. Will we be encroached upon by inharmonious uses in the future?
. The future need for more parking.
. Future occurrences of noise disturbance and traffic problems.
. Views from Brick Pond with height of building.
. This variance does not ensure stability of our neighborhood.
Examples
Rented Houses, Pride of ownership, Desirable location, Stable Market Value.
. What will be the use of this building when the Hospital finds it no longer
suitable for their needs.
We have one request regarding this variance; it should be stated on each permit
for this Master Plan and or variance the current Hospital Complex land will not be
allowed to expand beyond its existing boundaries of this Master Plan.
Thank You
Patrick & J 0 Ann Poshek
Jt.
SEH
MEMORANDUM
TO:
Shawn Sanders, City of Stillwater
Thomas A. Sohrweide, PE, PTOE ~
September 4, 2008
FROM:
DATE:
RE:
Traffic and Parking Review of Lakeview Hospital Expansion Plan
SEH No. ASTILL080200
At your request we have reviewed the traffic and parking information provided by BWBR Architects in
an August 15, 2008 letter, for the proposed long term expansion plan for Lakeview Hospital.
Traffic
Based on our review the traffic forecasts appear to be understated. Traffic counts were taken of entering
and exiting vehicles for eight hours at four of the five hospital parking areas. A two hour count (AM and
PM peak) was taken at the employee parking lot. These counts showed a total of 1,675 vehicles entering
and exiting the parking areas.
The submittal estimated a daily traffic volume of 1,612 vehicles entering and exiting the hospital site.
This was based on the Institute of TranspOliation Engineers (ITE) Trip Generation Manual average rate of
5.2 trips/employee. In addition to average rates by employee, this manual provides trip generation data
based on hospital square footage and data based on formulas developed based on the variability of the
data samples collected. The information in this manual is helpful, but ultimately the best information
comes ti-om locally collected data. Attached are two tables summarizing and comparing the data
collected to the manual.
Table 1 shows a comparison between the ITE average rate per employee, used by the study, and the ITE
formulas based on employees and square footage. The range of estimated existing daily traffic, while
significant in size, 1,612 to 4,180, is being accommodated today and therefore does not appear to be of
critical concern. More critical is what the future increase will be. Table 1 also shows a range in growth
from 710 to 1,990 trips per day.
To determine which may be more accurate, we developed Table 2. This table used the existing number of
employees (310), the existing hospital square footage (l96.7 sq. ft.), the AM peak hour traffic volume
(611), and the PM peak hour traffic volume (598) to calculate trip generation rates. As shown in the
table, the rates from the study compare favorably to the rates from the ITE manual based on hospital
square footage. Conversely, the rates based on number of employees are significantly different. Based
on this analysis we recommend that hospital square footage and not number of employees be used to
develop traffic projections.
Therefore as shown in Table I, the estimated traffic growth based on the proposed expansion plan would
be l,990 vehicles per day. This is a relatively small increase in traffic volume and would likely be able to
be accommodated on the existing streets. However, the ability of streets to accommodate traffic is best
determined by analyzing street intersection operation with peak hour traffic volumes. At some point peak
hour intersection analysis should be done. This analysis should include the ultimate planned expansion
and forecast traffic growth on the access streets for the future expansion completion year.
Short ElJioll Hendrickson Inc., 3535 Vadnais Center Drive. St. Paul, MN 55110-5196
SEH is an equal opportunity employer I www.sehinc.com I 651.490.2000 I 800.325.2055 I 651.490.2150 fax
Traffic and Parking Review of Lakeview Hospital Expansion Plan
September 4, 2008
Page 2
Parking
In reviewing the parking supply, we consulted the ITE Parking Generation Manual. This manual presents
parking supply and demand information gathered from various uses. For hospitals information is based
on number of beds and number of employees. Based on the number of beds, the existing parking supply
shou ld be 369, with an increase of 198 to accommodate the planned growth, for a total of 567. Based on
the number of employees, the existing parking supply should be 279, with an increase of 145 to
accommodate the planned growth, for a total of 424.
The proposed expansion has an ultimate total of 680 parking spaces. When comparing to the above ITE
data, this appears to be an adequate number of spaces. This is further confirmed because the number
proposed appears to have been calculated base on specific planned use of the expansion phases and not
just general numbers as from ITE.
ts
Attachment
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La.keview Hospital
Trip Generation Comparison
Table 1
Estimated Daily Traffic Volumes
Study (per employee ITE (per employee ITE (per Sq. Ft.
avg.) formula) formula)
ExistinQ Expansion Existinq Expansion Existina Exoansion
Daily
Traffic 1612 717 2075 710 4180 1990
Volume
Table 2
Trip Generation Rates Based on Counted Peak Hour
Traffic Volumes
Per Employee PerSq.Ft.
Study ITE Study ITE
Manual Manual
AM Peak 1.97 5.18 3.11 2.60
Rate
PM Peak 1.93 6.02 3.04 2.61
Rate
SEH - 9/04/08
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lakeview Hospital
Current Zoning
SURVEY PREPARED FOR:
Lakcvicw Memorial Hospital
927 Churchill Street West
Stillwater, MN 55082
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CERTIFICATE OF SURVEY
LEGEND
NOTES
o
DENOTES ~ INOi IRON PIPE MONUMENT MARKED 'MTH A PLASTIC
CAP INSCRIBED "FREEMAN LS 16989", UNLESS SHOWN OIHERWlSE
DENOTES FOUND l6: INCH IRON PIPE WITH PLASTIC CAP INSCRIBED
RLS 9232, UNLESS SHOWN QTHER'MSE
1) ORIENTATION OF THIS BEARING SYSTEt.l IS BASED ON THE NORTH
LINE OF BlOO< 22, HOLCOMBE'S 2ND ADDITION TO STIllWATER, WHICH
IS ASSUMED TO BEAR N69'29'31"E,
2) FEATURES SHOWN ON THIS CERTIFICATE Of SURVEY HAVE BEEN lOCATED BY A COMBINATION
or RECENT FIElD MEASUREMENTS; 2005 WASHINGTON COUNTY AERIAL PHOTOGRAPHY;
CONSTRUCTION PLANS; AND INfORMATION SHOWN ON PRIOR SURVEYS. THE BOUNDARY AS
SHOWN IS BASED ON A COMPLETE RETRACEMENT AND BOUNDARY SURVEY OF THE PROPERTY
'MTHIN HOLCOMBE'S ADQIT10N AND HOLCOMBE'S 2ND ADDITION. BY BRUCE A. FOll, LS 92J2, IN
1982.
.
J) THERE ARE A NUMBER 01=" GAPS OF RECORD, CREATEO BY DESCRIPTION, 'MTHIN THE
BOUNDARIES OF THE PROPERTY SHOVlN ON THIS CERTIFICATE OF SURVEY. THE MAJORITY Of THE
INTERNAL GAPS \'i[RE CREATED BY DESCRIPTION/DEED SCRIVENORS \\tiO MADE THE ASSUt.4PTION
THAT LOTS 'MTH1N THE UNDERl'rlNG PLATS MEASURE EXACTlY AS PLAITED. THERE IS ALSO A
SUBSTANTIAL GAP THAT EXISTS BETVI[EN THE RECORD PLATS OF RITZER'S SUBOI'v1S10N AND
HOLCOMBE'S AOOITION. THESE ISSUES ARE INDlCATEO ON A CERTIFICATE Of SURVEY PREPARED
BY BRUCE A. FOLZ, LS 92J2, IN 1982. IT IS MY RECOMMENDATION THAT THE OWNER MAKE
APPLICATION TO THE DISTRICT COURT TO RECISTER THE TITLE TO THE PROPERTY 'MTHIN THE
EXTERIOR BOUNDARY AS SHOW ON THIS CERTlF'ICA TE.
4) OWNER DID NOT PROVIDE TITLE INfORMATION. THIS BOUNDARY SURVEY WAS PERfORMED
FROM INFORMATION CONTAINED IN THE FILES Of fOLZ. FREEMAN, ERICKSON, INC.
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Folz, Freeman, Erickson,
LAND PLANNING . SURVEYING . ENGIN
IDHJ' 12445 55TH STREEl
"y' LAKE ELMO, MINM:SC
5 Phone (65]) 439-8833 Fax (6
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J hereby certify that this surV/ry, plan or report was prepared,
under my direct supervL~ion and that J am 0 duly License.d La.
under the Laws 0/ the State ofAlinlle.wta.
Augm
OW-OR
ARCHITECTS
Architecture. Interior Design
Lawson Commons
380 St. Peter Street, Suite 600
Saint Paul, MN 55102-1996
651.222.3701
fax 651.222.8961
www.bwbr.com
15 August 2008
Mr. Bill Tumblad
Community Development Director
City of Stillwater
216 N. 4th Street
Stillwater, :MN 55082
RE: Lakeview Hospital
City of Stillwater Special Use Permit Process
BWBR Commission No. 2008.122.00
Dear Bill:
We are pleased to submit this request for a Special Use Permit on behalf of Lakeview Hospital.
We have been working with hospital administration over the past 6 months to define a longterm
strategy for Lakeview on their existing campus. This effort began with an analysis of the current
and long range departmental needs and the opportunities to meet those needs at the existing site
at Greeley and West Churchill. The results were presented to the Lakeview Health System
Board at a May 3,2008 workshop/retreat where approval was received to begin the detailed
discussions with the city towards a longterm solution to their physical needs on this campus.
The questions before the city are:
1. Lakeview Health System is requesting a Phased Special-Use Permit based on a 20-25 year
conceptual master plan for their Lakeview Hospital Campus in Stillwater.
a. Phase I: 2-story expansion (lower level, first floor) of 46,800 sq ft.
Estimated Implementation 2009-2010
b. Phase II: 2-story vertical expansion (second floor, third floor) of 46,800 sq. ft.
Estimated Implementation 2012-2013
c. Phase III: 4--story replacement of the Greeley clinic building (lower level, first
floor, second floor, third floor) of 75,600 sq. ft.
Estimated Implementation 2015-2020
d. Phase IV: 2-story expansion (lower leve~ first floor) of 64,000 sq. ft.
Estimated Implementation 2020-2025
2. Lakeview Health System is requesting a variance from the existing zoning as it relates to
building height and lot coverage. We are asking that we be allowed to build within
previous height limits and coverage framework established by existing structures on site
(50'-3" from Main Floor to Penthouse roof). Current Zo~g requirements are as
follows for RA and RB districts:
...
Mr. Bill Turnblad
City of Stillwater
Lakeview Hospital
City of Stillwater Special Use Permit Process
BWBR Commission No. 2008.122.00
Page 2 of2
Building Height:
RA = 2-1/2 story not to exceed 35'-0'~ RB = not to exceed 35'.0"
Existing Building Height = 50'-3" to penthouse roof
Phase 2 and 3 height to be less than 50'-3" (aprox. 42'-0")
Lot Coverage:
RA = 30 percent; RB = 50% total (25% building, 25% surface)
Existing site = 46.9% (15% building, 31.9% surface)
Phase 4 total = 49.4% (16% building, 33% surface)
We look forward to discussing this submittal further with both the Planning Commision and
City Council. If you have any question on this information please feel free to contact Shannon
Bambery, Project Architect 651.290.1979.
Respectfully submitted,
C:\Documents and Settings \2240\Local Settings \ Temporary Internet files \ Content_Outlook \3MN299BS\REVISED city submittal letter 200S-0S-14.doc
15 August 2008
BWBR Architects, Inc.
.
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,.
LAKEVIEW
HEALTH
Submittal:
Special Use Permit
A Phased Master Plan
Lakeview Hospital
Stillwater, MN
BWBR Architects / 2008.122.00/ August 15. 2008
~-~........
- -. ,~-
LAKEVIEW
HEALTH
Intra: What are we
Lakeview Health System is requesting a Phased Speclal-
Use Permit based on a 20-25 year conceptual master plan
for their Lakeview Hospital Campus in Stillwater.
ower first f
.
1
or
oor)
eve
(I
a. Phase I: 2-story expansion
46,800 square feet.
Estimated
third
oor,
f
mplementation 2009-2010
(second
: 2-story vertical expansion
46,800 square feet.
mated
b. Phase
floor) or
Est
mplementation 2012-2013
c. Phase 4-story replacement of the Greeley clinic
building (lower level, first floor, second floor, third floor)
or 75,600 square feet
Estimated Implementation 2015-2020
or
first floor)
eve
(lower
Phase IV: 2-story expansion
64,000 square feet.
Estimated
d.
mplementation 2020-2025
Lakeview Health System is requesting a variance from the
existing zoning as it relates to building height and ot
coverage.
2.
2
5.2008
BWBR Architects / 2008.122.00/ August
ill ~-~........
~-
LAKEVIEW
HEALTH
· Building Framework and Massing Development 4-16
· Parking Needs Assessment 17-24
· Traffic Growth Analysis 25-30
· Greenspace and Stormwater Managment 31-32
· Building Design 33-40
· Support Documentation 40-48
i. Detailed Parking Analysis
i. Traffic Projections
i. Green space and Stormwater calculations.
BWBR Architects / 2008.122.00/ August 15, 2008 3
E?IiEJ
Site
~.:e"'"
LAKEVIEW
HEALTH
Existing Building
· Total Area = 196,700 sf
.
Building Footprint =
97,898 sf
Building Height = 50'-3"
from main level to roof of
penthouse (64'-6" from
lower level)
Existing Set Backs
.
Greeley = 84'
Churchill = 160
Everett = 24'
.
o
/
r~l
I
Existi ng
Parking
Deck
;
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;
I
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22.00/ August 15. 2008
BWBR Architects / 2008.1
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LAKEVIEW
HEALTH
Site
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LAKEVIEW
HEALTH
BUILD OUT TO Phase I: Original
EXISTING SET-BACK
· Horizontal Expansion
RELOCATED ACCESS · Lower Level and First Floor
· 2 Levels @ 33,000 sf ea. =
66,000 sf total
0
BWBR Architects / 2008.122.00 / August 15. 2008 7
Phase I:
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
.
Phase I:
Preliminary Height =
11 '-3" from main floor
to roof
PHASE I: Revised
· Horizontal Expansion
· Lower Level and First
Floor
~Ee~~
ea.:=6o"',800"'st.:totaI
....--. ~
· 2 Levels @ 23,400 sf
ea. = 46,800 sf total
.
~
+
EXISTING ACCESS
o
Churchi
West
8
22.00/ August 15. 2008
BWBR Architects / 2008.1
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LAKEVIEW
HEALTH
Phase I
9
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~~......"".
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LAKEVIEW
HEALTH
Phase II:
Phase II: Original
· Vertical Expansion
· 2nd, 3rd, and 4th
Floors
· 3 Levels @ 33,000 sf
ea. = 99,000 sf total
0
BWBR Architects / 2008.122.00 / August 15. 2008 10
3 STORY
VERTICAL
EXPANSION
- - - - - - -West-~FefIi~ -&r-eet-
.2~/
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~~......"".
- - - ~~..
LAKEVIEW
HEALTH
.
Phase II:
PHASE II: Revised
· Vertical Expansion
~2~ an~~~ors~
· 3 Le~3;'tOO_Sf ea. =
~~
;::99;000 sf total
[J
NCREASED SET BACK
2 STORY VERTICAL
EXPANSION
Church
West
· 2nd and 3rd floors
· 2 Levels @ 23,400 sf ea. =
46,800 sf total
· Preliminary Height =
41 '-8" from main floor
to 3rd floor roof
o
11
22.00/ August 15. 2008
BWBR Architects / 2008.1
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LAKEVIEW
HEALTH
Phase II
12
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BWBR Architects I
Phase III
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LAKEVIEW
HEALTH
PHASE III
· Horizontal Expansion
· Lower Level Parking
· 1 st, 2nd and 3rd Floor
· 3 Levels @ 25,200 sf
ea. = 75,600 sf total
I
- .
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ill
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13
· Preliminary Height =
41 '-8" from main floor
to 3rd floor roof
22.00/ August 15. 2008
BWBR Architects / 2008.1
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LAKEVIEW
HEALTH
Phase III
14
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LAKEVIEW
HEALTH
[J
-
PHASE IV
· Horizontal Expansion
· Lower Level and
1 st Floor
· 2 Levels @ 32,000 sf
ea. = 64,000 sf total
· Preliminary Height =
18'-0" from main floor
to roof (32'-3" from
0 lower level to roof)
BWBR Architects / 2008.122.00 / August 15, 2008 15
Church
ill
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West
Phase IV
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LAKEVIEW
HEALTH
Phase IV
16
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LAKEVIEW
HEALTH
Existing Facility
· 572 existing stalls on site
· 377 stalls required by
current zoning
· 338 stalls required by
functional program
analysis
Parking Requirement Comparison
I -'
72J - -
I 175 350 525 700
0
BWBR Architects / 2008.122.00 / August 15. 2008 18
,
f-------------West-Glwrel9tH-----------------t ------
,
I
i
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
700
I
2 Level expansion for
surgery, endoscopy and
oncology
site.
Parking Requirement Comparison
o
· 114 additional stalls
needed (60 staff, 54
patient/visitors)
surplus on
· 60 stall
Phase
.
---,
.
o
19
22.00/ August 15. 2008
BWBR Architects / 2008
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
II
2 level vertical expansion
for inpatient bed replace-
ment
· 18 bed total net increase
- 53 additional stalls needed
(20 staff, 33 patient/visitor)
7 stall surplus on site
700
Parking Requirement Comparison
o
Phase
.
-
o
20
22.00/ August 15. 2008
BWBR Architects / 2008
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
Phase III
· 4 level expansion for under-
ground parking, ambulatory
selVices and inpatient bed
replacement
· 18 bed net increase
· 61 additional stalls needed
· 8 stall deficit on site
Parking Requirement Comparison
,...LLU..L~ I I I I LLU..UJ....!
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o
BWBR Architects / 2008.122.00 / August 15. 2008 21
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
Phase III: Modified
· 4 level expansion for under-
ground parking, ambulatory
services and inpatient bed
replacement
· 18 bed net increase
· 61 additional stalls needed
.....8-S1all-defiCfrt-tJn~it~
· Add 34 stalls (extension of
existing parking deck)
· 26 stall surplus on site
700
Parking Requirement Comparison
o
()
22
122.00/ August 15. 2008
BWBR Architects / 2008
~~......"".
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LAKEVIEW
HEALTH
Phase IV
Phase IV
· 2 level expansion for
underground parking, ED
relocation, cafeteria and
main entry relocation
94 additional stalls (35 staff,
59 patient/visitor)
83 stall
.
700
deficit on site
Parking Requirement Comparison
.
LLLU.Li 1..l.l.l.l..L~
?-Availabl -i I 1 . 57i~
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122.00/ August 15. 2008
BWBR Architects / 2008
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
Modified
2 level expansion for
underground parking, ED
relocation, cafeteria and main
entry relocation
94 additional stalls (35 staff, 59
patientlvisitor)
20 stall
-'
700
o
o
EP.:'83:Stall:Beficit .
level deck @
· Add 1 03 stalls (2
NE corner)
surplus
Parking Requirement Comparison
IV:
Phase
.
.
.
24
5.2008
22.00/ August
BWBR Architects / 2008
~
~~......"".
'='-
LAKEVIEW
HEALTH
Existing 2008
0 · Greeley St. Average Daily
Traffic (ADT) = 10,885
· Churchill St. ADT = 5,442
· Everett St. ADT = 1,450
· lakeview Hospital = 1,612
(9.1 % of total ADT)
- o Churchill St. Access
· ADT = 480
e Greeley St. Access - North
· ADT = 377
o Everett St. Access
· ADT = 418
o Greeley St. Access - So. (Staff only)
· ADT = 224
e Everett St. - Staff Lot
· ADT = 113
0
BWBR Architects / 2008.122.00 / August 15. 2008 26
Data
Traffic
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
Phase I
Traffic
,529
1,924 ADT
So. (Staff only)
27
5.2008
Phase I 2010
Greeley St. Average Daily
Traffic (ADT) = 11,478
Churchill St. ADT = 5,739
Everett St. ADT = 1
North
22.00/ August
lakeview Hospital =
(10.30/0 of total ADT)
e Everett St. - Staff Lot
· ADT = 135
o Churchill St. Access
· ADT = 573
6 Greeley St. Access
· ADT = 450
o Greeley St. Access
· ADT = 267
e Everett St. Access
· ADT = 499
BWBR Architects / 2008
.
.
.
.
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o
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~~......"".
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LAKEVIEW
HEALTH
Phase II
Traffic
C:::=-::::J__~ Phase II 2013
[J · Greeley St. Average Daily
Traffic (ADT) = 12,429
· Churchill St. ADT = 6,215
· Everett St. ADT = 1,656
· lakeview Hospital = 2007 ADT
(9.90/0 of total ADT)
o Churchill St. Access
· ADT = 597
e Greeley St. Access - North
· ADT = 470
E) Everett St. Access
· ADT = 520
o Greeley St. Access - So. (Staff only)
· ADT = 279
e Everett St. - Staff Lot
· ADT = 141
0
BWBR Architects / 2008.122.00 / August 15. 2008 28
~~......"".
'='-
LAKEVIEW
HEALTH
-
-
~ Phase III 2018
.
0 · Greeley St. Average Daily
Traffic (ADT) = 14,192
· Churchill St. ADT = 7,096
· Everett St. ADT = 1,891
· lakeview Hospital = 2179 ADT
(9.40/0 of total ADT)
o Churchill St. Access
· ADT = 649
e Greeley St. Access - North
· ADT = 51 0
E) Everett St. Access
· ADT = 565
o Greeley St. Access - So. (Staff only)
· ADT = 302
e Everett St. - Staff Lot
· ADT = 153
0
BWBR Architects / 2008.122.00 / August 15, 2008 29
Phase III
Traffic
~~......"".
'='-
LAKEVIEW
HEALTH
-
~ Phase IV 2023
+
0 · Greeley St. Average Daily
Traffic (ADT) = 16,205
· Churchill St. ADT = 8,103
· Everett St. ADT = 2,159
· lakeview Hospital = 2330 ADT
(12.1 % of total ADT)
o Churchill St. Access
· ADT = 693
e Greeley St. Access - North
· ADT = 545
E) Everett St. Access
· ADT = 604
o Greeley St. Access - So. (Staff only)
· ADT = 323
e Everett St. - Staff Lot
· ADT = 164
0
BWBR Architects / 2008.122.00 / August 15, 2008 30
Phase IV
Traffic
E?IiI!J
~~......"".
- - - ~~..
LAKEVIEW
HEALTH
MIXED VEGETATION
TO SCREEN PARKING
Master Plan
. Underground Storagel
Filtration Chamber
· Phase I = 2,820 cf
· Phase III = 1 ,505 cf
· Phase IV = 6,660 cf
OVERSTORY OR
ORNAMENTAL TREES
o
32
5.2008
22.00/ August
BWBR Architects / 2008
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L.AKEVIEW
HEALTH
34
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HEALTH
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LAKEVIEW
HEALTH
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37
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HEALTH
Phase I and II
38
ME
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ME. 122.00 I August
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~-~........
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LAKEVIEW
H EA L TFI
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.
BWBR Architects / 2008.122.00/ August 15. 2008 39
Phase I and II
-
-
40
~-~........
- -. ,~-
LAKEVIEW
HEALTH
5,2008
BWBR Architects / 2008.122.00/ August
--
...
....<"
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fb~~~
nb ~~[iR[m
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~-~........
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LAKEVIEW
H EA L TFI
Long-Term Caml?us Parking
EXPANSION
TYPE
SURPLUS/DEFICIT
PARKING
REQUIRED
Functlona
Program
PARKING:
Comparable
Facilities
LDING AREA
BU
PROGRAM USE
PHASE
Compa rable
Facility
Average
(800sf/sta
Current Zonl ng
(Beds/Staff/
Clinic
Net SF
ncrease
program'd
Zoning
program'd
SF
Overa
234
326
195
338
246
377
na
46,800
196,700
243,500
Existing
60
268
72
114
59
63
Surgery/Endo/Shel
Exp
Horizonta
Phase 1
7
209
48
53
59
24
46,800
75,600
290,300
365,900
replacement
Bed
Exp
Vertica
Phase 2
42
26
20
5.2008
171
130
BWBR Architects / 2008.122.00/ August
87
139
61
94
95
80
44
32
64,000
429,900
Outpatient/Ambulatory
c
ED/Radiology/Pub
Exp
Exp
Horizonta
Horizonta
Phase 3
Phase 4
~-~........
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LAKEVIEW
HEALTH
Phase I
ed Parking: Phase 1
BEDjCASE STAFF PATIENTj PARKING NET PARKING
PROGRAMMED USE GSF INCREASE INCREASE VISITORS SUBTOTAL INCREASE COMPOSITE PARKING STATUS:
Endoscopy Expansion 7,200 12 4 7.20 11.20 11 Available Parking On-Site 572
Oncology Expansion 7,200 6 1 3.60 4.60 5 Existing Functional Program -338
Surgery Expansion 17,000 27 42 16.20 58.20 58 Adjusted Parking Surplus/Deficit 234
Emergency Dept. Expansion 3,500 4.75 1 1.19 6.94 7 Building Footprint -60
MedjSurg Beds - 2 North 0 9 4.5 2.25 15.75 16 Functional Program -114
Shelll (Endo type use) 4,000 11.2 5 6.72 11.72 12 Total = 60
Shell 2 (One type use) 4,000 5.6 2 3.36 5.36 5 (Phase 1 complete = 60 stall surplus)
59.5
Total = 113.77 114
43
5.2008
BWBR Architects / 2008.122.00/ August
Deta
~-~........
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LAKEVIEW
HEALTH
Phase II
ed Parking: Phase 2
BED/CASE STAFF PATIENT/ PARKING NET PARKING
PROGRAMMED USE GSF INCREASE INCREASE VISITORS SUBTOTAL INCREASE COMPOSITE PARKING STATUS:
Med/Surg Beds - 2 North 0 9 6.75 2.25 18.00 18 Available Parking On-Site 512
Med/Surg Beds - 3 North 0 9 6.75 2.25 18.00 18 Existing Functional Program 452
Shell 1 (Endo type use) 4,000 11.2 5 6.72 11.72 12 Adjusted Parking Surplus/Deficit 60
Shell 2 (One type use) 4,000 5.6 2 3.36 5.36 5 Building Footprint 0
20.5 Functional Program -53
Total = 53.08 53 Total = 7
(Phase 2 complete = 7 stall surplus)
44
5.2008
BWBR Architects / 2008.122.00/ August
Deta
~-~........
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LAKEVIEW
HEALTH
Phase III
ed Parking: Phase 3
BED/CASE STAFF PATIENT/ PARKING NET PARKING
PROGRAMMED USE GSF INCREASE INCREASE VISITORS SUBTOTAL INCREASE COMPOSITE PARKING STATUS:
Med/Surg Beds - 2 North 0 9 6.75 2.25 18.00 18 Available Parking On-Site 512
Med/Surg Beds - 2 North 0 9 6.75 2.25 18.00 18 Existing Functional Program -505
Endoscopy Type Use 11,900 41 13.7 24.6 38.30 38 Adjusted Parking Surplus/Deficit 7
Oncology Type Use 11,900 21 6.8 12.6 19.40 19 Building Footprint -4
Backfill Space (Endoscopy) 4,000 13.8 8 8.28 16.28 16 Functional Program -61
Backfill Space (Oncology) 4,000 6.9 .1 4.14 8.14 8 Underground Parking 50
Women's Clinic (Deleted) -57.00 -57 Sub-Total = -8
46
Sub-Total = 61.12 61 Parking Deck Extension 34
Underground Parking -50 -50 Total = 26
Parking Deck Extension -34 -34 (Phase 3 complete = 26 stall surplus)
Adjusted Total = -23 -23
45
5.2008
BWBR Architects / 2008.122.00/ August
Deta
~-~........
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LAKEVIEW
H EA L TFI
Phase IV
ed Parking: Phase 4
BED/CASE STAFF PATIENT/ PARKING NET PARKING
PROGRAMMED USE GSF INCREASE INCREASE VISITORS SUBTOTAL INCREASE COMPOSITE PARKING STATUS:
Endoscopy Type Use 16,500 57 19 34.2 53.20 53 Available Parking On-Site 592
Oncology Type Use 16,500 28 9 16.8 25.80 26 Existing Functional Program -566
Cafeteria Expansion 10,000 0 2 0 2.00 2 Adjusted Parking Surplus/Deficit 26
Waiting/Entry 4,000 0 1 0 1.00 1 Building Footprint -54
Backfill Space (Endoscopy) 2,500 8.6 3 5.16 8.16 8 Functional Program -94
Backfill Space (Oncology) 2,500 4.3 .1 2.58 3.58 1. Underground Parking 39
35 Sub-Total = -83
Sub-Total = 93.74 94
Underground Parking -39 -39 Surface Parking (NE) 43
Surface Parking (NE) -43.2 -43 Parking Deck (NE) 60
Parking Deck (NE) -60 -60 Total = 20
Adjusted Total = -48 -48 (Phase 4 complete = 20 stall surplus)
46
5.2008
BWBR Architects / 2008.122.00/ August
Deta
~-~........
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LAKEVIEW
HEALTH
Traffic
Method of Analysis
· ADT of Greeley correlated from data from Washington County
and MNDOT.
· AM and PM peak hourly rates defined by site survey at each of
the entrances, utilizing methods defined by the ITE Trip
Generation Manual, 7th Edition.
it
· ADT of hospital phasing defined by 5.2 cars per day per
employee, based on ITE Trip Generation Manual, 7th Ed
on.
· Distribution of ADT for Hospital at entrances based on PM
Peak distribution of traffic levels at each entrance.
· ADT of Everett is average of three day survey. ADT on Church
provided by Washington County.
47
122.00/ August 15. 2008
· Future ADT of Greeley and Church based on MNDOT
traffic projection factor of 1.7 for Washington County for a
twenty year projection, which equates to approximately a
30/0 ncrease in traffic levels per year.
BWBR Architects / 2008
~-~........
- -. ,~-
LAKEVIEW
H EA L TFI
IiiI
Hospital Daily Traffic Projections - Per Entrance
48
5.2008
ENTRANCE EXISTING ADT PROJECTED AVERAGE DAILY TRAFFIC
PHASE I PHASE II PHASE III PHASE IV
CHURCHILL 480 573 597 649 693
EVERETT EMPLOYEE LOT 113 135 141 153 164
EVERETT 418 499 520 565 604
GREELEY PARI<ING STRUCTURE 224 267 279 302 323
GREELEY EMERGENCY 377 450 470 510 545
HOSPITAL TOTAL ADT = 1612 1924 2007 2179 2329
*NOTE: Hospital Generated Traffic calculated at 5.2 ADT per employee
BWBR Architects / 2008.122.00/ August
~-~........
- -. ,~-
LAKEVIEW
HEALTH
.
Long-Term Campus Green Space/Storm Water Analysis
TOTAL LOT GREEN
PHASE CAMPUS BUILDING FOOTPRINT PARKING! CIRCULATION TOTAL IMPERVIOUS COVERAGE SPACE STORM WATER
AREA Entire Entire Volume Control
Area Increase Total Area Area Increase Total Area Surface Area Net Increase Property Property Required
Existing 648,430 na 97,898 na 208,142 306,040 na 47.2% 52.8% na
Phase 1 648,430 24,900 122,798 -22,311 185,831 308,629 2,589 47.6% 52.4% 2,820 d.
Phase 2 648,430 0 122,798 0 185,831 308,629 0 47.6% 52.4% 0
Phase 3 648,430 2,100 124,898 0 185,831 310,729 2,100 47.9% 52.1% 1505 d.
Phase 4 680,045 32,000 156,898 -14,512 171,319 328,217 17 ,488 48.3% 51.7% 6,650 d.
BWB R
"- AlIeU! Hl;U
BWBR Architects / 2008.122.00/ August 15. 2008 49