Consider Multiple Actions Related to a Proposed Commercial Horse Farm at 17902 Saint Francis Blvd NW (Project No. 19-101); Case of Dale and Tammy Wills

1. Request for a Home Occupation Permit to Operate a Commercial Horse Farm
2. Request for a Conditional Use Permit to Exceed Square Footage for Detached Accessory Buildings

Dale and Tammy Wills (the "Applicant") have approached the City about the prospect of operating a commercial horse farm on the property located at 17902 Saint Francis Blvd (the "Subject Property"). Their vision is to provide a setting for youth to learn how to properly care for and build relationships with horses and then continue on with riding lessons, both Western and English style. They have submitted applications for a Home Occupation Permit, Conditional Use Permit, and Variance that would be needed for their endeavor. The Applicant is under contract to purchase the Subject Property; the current property owner has signed the Land Use Application and is aware of and supports the current proposal. 

On February 7, 2019, the Planning Commission approved a Variance to accessory building height and to lot frontage requirements for the Subject Property, contingent upon approval of a Home Occupation Permit and a Conditional Use Permit.

Staff attempted to notify all property owners within 700 feet of the Subject Property of the requested Home Occupation Permit, Conditional Use Permit, and Variance requests via standard U.S. mail and published the Notice of Public Hearing in the Anoka County UnionHerald. Staff previously sent an invitation via standard U.S. mail to all property owners within 700 feet of the Subject Property for a Public Workshop to review the concept plan on January 3, 2019. Received comments are attached to this case.

General Background Information
The Subject Property is located at the northern limits of Ramsey, with access off of Saint Francis Boulevard. The Subject Property is 137 acres in size, with about eighty (80) acres in Ramsey and the remainder in the City of Nowthen. The Subject Property is zoned R-1 Residential (Rural Developing) and has been and currently is being used for agricultural purposes, including horse shows as recently as 2009. The surrounding parcels (in Ramsey) are all zoned R-1 Residential (Rural Developing) and range in size from about 0.84 acres to 2.62 acres.

There is currently a home and multiple accessory buildings on the Subject Property. The Applicant intends to reside in the existing home initially and then construct a new residence on the Subject Property within a couple years. They would then move into the new residence and one of their children would likely move into the existing home. This will require a lot split to avoid two dwellings on a single parcel, which will be addressed in the future.

As previously noted, the Subject Property is currently accessed from Saint Francis Boulevard, but there are three (3) other public stubs; Potassium Street, Sodium Street, and 179th Lane. There is a public road stub to the City of Nowthen parcel as well. Ford Brook traverses the northwestern and western portions of the Subject Property.

Home Occupation Permit
The Applicant's vision for the Subject Property is to create a program to work with youth struggling with social anxiety and depression by introducing them to world of horses. They are proposing to operate a commercial horse farm where youth can gain experience in proper care and maintenance of horses as well as learn the skills of both Western and English style riding. There would also be opportunities for trail riding and commercial boarding of horses on the Subject Property.

The Applicant is proposing to construct multiple buildings to accommodate their vision, including two (2) indoor riding arenas, indoor stalls, stables, a composting structure, and a hay/equipment storage barn. The Applicant has provided a Conceptual Site Plan showing a potential configuration of the buildings.  However, until the surveying work is complete, the final layout cannot be finalized.  Thus, the Site Plan has been modified to show the general location of the proposed improvements. 

The plans have been designed to accommodate up to thirty (30) horses on the Subject Property. The Subject Property is eligible for 76 horses based on the current lot size. Please note that the Buyer is also purchasing the adjacent parcel in Nowthen which creates additional space, although that cannot officially be counted for horse calculations.

The Applicant has stated that the hours of operation would be Monday - Saturday 8:00am to 8:00pm.  This has been adjusted since the Planning Commission meeting as the Applicant hadn't taken into account student availability during daytime hours over summer break.  It should be noted that lessons would be sporadic throughout this timeframe, especially during the school year where lessons would likely not begin until 3:00pm (after school) or later.  There would be the potential for eight to ten (8-10) instructors/trainers employed by the Applicant. However, these would be part-time positions and there would likely be no more than two (2) trainers/instructors on the Subject Property at any given time. The Site Plan does indicate that twenty-six parking stalls will be installed along the west side of the riding arenas, providing ample parking for customers and employees. The parking area would consist of Class V (gravel), which conforms to the minimum required surfacing in this zoning district.

The Applicant is proposing four (4) larger shows/events each year for the students to showcase their newly learned skills. It is assumed that family and friends will attend these events, but they will also be open to the public and free of charge. Planning Staff is working with our Public Safety Staff on how best to address these events.  The current proposal is to approve these events as part of the CUP, but require meeting in advance with Public Safety prior to any event.

The Applicant has provided a detailed Manure Management Plan. The Applicant has noted from the beginning that manure, if not properly managed, can be a nuisance. A composting structure would be installed that includes a concrete surface and metal roof.  The structure will shield the manure from moisture, which is critical to reduce potential nuisance issues so that runoff can be contained and/or directed accordingly.  After the manure has been properly composted, it will be removed from the Subject Property and made available to local farmers and/or gardeners.

While the Applicant desires to maintain the existing access from Saint Francis Boulevard for personal use, they are proposing access for the Home Occupation (e.g. students and instructors) be from Potassium Street along the southern boundary of the Subject Property. This is primarily due to the high volume of traffic on Saint Francis Blvd and the potential safety issues that could arise. The Applicant is proposing to install a new, asphalt driveway off the end of the Potassium Street cul-de-sac leading to the future, new residence. The drive lanes connecting the new buildings, as well as the parking stalls, would consist of Class V (gravel).

Conditional Use Permit
As noted, six (6) new accessory buildings are proposed, including two (2) indoor riding arenas, indoor stalls, stables, a composting structure, and a hay/equipment storage barn. Four (4) of the buildings will all be connected with direct access, while the hay/equipment storage barn will be connected only via roofline to the stables.  The composting structure would be entirely separate from these structures. The cumulative area of the new buildings is 70,700 square feet, which exceeds the allowable square footage for parcels greater than forty (40) acres in size (12,000 square feet).
 
Based on the overall size of the Subject Property, the proposed square footage doesn't seem unreasonable. Based on the location of the home on the Subject Property, which was constructed sometime in the 1930s, most of the areas suitable for buildings are located nearer the front property line than the home. Based on the size of the Subject Property, the location is acceptable.  
 
The Applicant had originally proposed to construct both Riding Arenas entirely with Clear Span fabric materials. The basis for this style of construction was to allow in natural light and to help moderate temperatures somewhat, resulting in less need for artificial light and heating/cooling. Ultimately, this would be a healthier environment for both the riders and the horses.  However, the fabric finish is very similar to membrane type hoop buildings that have consistently been denied in residential areas due to a lack of conformity with City Code. Staff and the Applicant discussed this and feel that a workable compromise would be to consider a ‘hybrid’ type of building that would include walls made of two-tone steel, similar to the exterior finish of the other proposed buildings, with a Clear Span fabric roof. This would result in a sturdier (safer) building, while still incorporating some of the desired benefits (natural light and temperature moderation). Staff feels this is an adequate compromise for this specific situation.

Feedback/Public Input
A Public Workshop was held on January 3, 2019 and there were about 20-30 people that attended. The majority of attendees stated that they preferred this type of use on the Subject Property compared to any type of housing development. However, there were concerns raised about traffic through the neighborhood and the impacts to roads that the existing neighbors would be assessed for when the road(s) needed to be reconstructed. Other concerns noted included manure management, potential contamination of Ford Brook, more screening along southern lot line, and overall traffic congestion on Saint Francis Boulevard(existing conditions).  The Applicant has revised the Conceptual Site Plan largely in response to some of the concerns noted by the public.

Both the Planning Commission and the City Council had an opportunity to review this project in concept in January.  At that time, neither the Planning Commission nor the City Council noted any major concerns or objections, although the Planning Commission did note a potential concern with increased traffic through the existing residential neighborhood and the potential loss of trees.  The Concept Plan was reviewed by the Planning Commission on January 3, 2019 and by the City Council on January 22, 2019.

The Planning Commission held a Public Hearing on February 7, 2019.  Input from the public again focused on increased traffic in the neighborhood and the eventual financial impact of having to reconstruct the road(s), as well as questions on manure management and urine impacts to nearby private wells, and a request for a stop sign installed for southbound traffic on Potassium Street at 177th Lane.  A written comment was also received lending support to the proposed commercial horse farm.  The draft Planning Commission meeting minutes from February 7, 2019, as well as all other comments received throughout this process, are attached to the case.

The proposed project includes multiple discretionary actions that the City is not obligated to approve. However, considering the input received from the Public Workshop, the desire to maintain a more rural character within the community, and the overall size of the Subject Property, the project in totality seems to be desirable. The compromise of building style on the Riding Arenas, structures that will be used exclusively for recreational purposes seems reasonable.

Alternatives

Alternative 1: Motion to adopt Resolutions #19-042 and #19-043 approving a Home Occupation Permit and Conditional Use Permit.

Alternative 2: Motion to adopt modified versions of Resolutions #19-042 and #19-043 approving a Home Occupation Permit and Conditional Use Permit.

Alternative 3: Motion to deny either the HOP or the CUP (or both).

All costs related to this request are the Applicant's responsibility.

The Planning Commission recommends approval of both the Home Occupation Permit and the Conditional Use Permit.

Motion to adopt Resolutions #19-042 and #19-043 approving a Home Occupation Permit and Conditional Use Permit.