Staff Report PLANNING DIVISION COMMUNITY & ECONOMIC DEVELOPMENT To: Salt Lake City Historic Landmark Commission From: Carl Leith, Senior Planner 801 535 7758 or [email protected] Date: December 3, 2015 Re: PLNHLC2015-00930 New Construction PLNHLC2015-00931 Special Exception NEW CONSTRUCTION – APARTMENT BUILDING PROPERTY ADDRESS: 454-466 SOUTH TEMPLE PARCEL ID: 1606202008, 1606202009 HISTORIC DISTRICT: South Temple Local Historic District ZONING DISTRICT: H Historic Preservation Overlay District. R-MU (Residential/Mixed Use District) MASTER PLAN: Central Community Master Plan DESIGN GUIDELINES: Multi-Family REQUEST: New Apartment Building at approximately 454-466 E. South Temple. Chris Huntsman, CRSA, on behalf of Garbett Homes, is requesting approval from the City to construct a new apartment building on a corner site in the South Temple Historic District. The proposed development would include 5000 SF of commercial space, 176 apartment units and provision for parking 226 vehicles. The site is zoned R-MU (Residential / Mixed Use). A. New Construction – In order to build the proposed apartment building a New Construction application must be approved by the Historic Landmark Commission. Case Number PLNHLC2015- 00930. Special Exception Approval – In order to construct the proposed development as proposed, special exception approval is sought for an encroachment of 20 feet into the required rear yard B. setback on the west side of the development to accommodate part of the building, two stair ways and an ADA ramp that are greater than 4 feet in height. In conjunction to the encroachment, the applicant is seeking a special exception for approximately 6 feet 8 inches in additional building height for a portion of the west elevation and a portion of the south elevation at the southwest corner of the site. A grade change greater than four feet is also requested in order to accommodate the parking access ramp. Case Number PLNHLC2015-00931 RECOMMENDATION: Based on the analysis and findings liste d in this staff report, testimony and the proposal presented, I move that the Commission table this application for further consideration to enable the applicant to review and revise the proposals to address the matters identified as key issues, reserving a final decision until these issues have been addressed. MOTION: Based on the analysis and findings listed in the staff report, testimony and the proposal presented, I move that the Commission table the application for further consideration to review and revise matters identified specifically (The Commission states key issues/further direction for consideration by the applicant). 1 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 BACKGROUND & CONTEXT – SOUTH TEMPLE HISTORIC DISTRICT The site is the south-west corner of the intersection of South Temple and 500 East, currently appears to contain no extant buildings, and has several mature or semi-mature trees. Previous buildings appear to have been an apartment building and a small strip mall on the corner. It appears that the site includes two distinct lots, thus requiring their consolidation as part of these proposals. This is a corner site, with two primary street facades, facing both South Temple and 500 East, and consequently of considerable importance in the context of the character and special interest of the South Temple Historic District. Facing the site to the east, across 500 East, is a three story office building with café (508 S Temple) and flanking it to the south is a historic four story apartment building (Piccadilly Apartments, 24 South 500 East). To the west, on the south side of South Temple, the site is adjacent to parking space, and single and two story buildings primarily in retail uses (434 & 430 South Temple), and then a five story office building on the corner of 400 East (466 S Temple). On the north side of South Temple the site faces three single story buildings in office, restaurant and retail use (505, 481 & 445 South Temple), a three story office/bank building (455 South Temple) and a three and a half story historic apartment building (Rita Apartments, 435 South Temple). The zoning district for this site is Residential /Mixed Use (RMU). While the height maximum of 75 feet does not relate to the scale of the historic context for this site, the zoning does acknowledge the character of the setting in terms of its range of mixed use. Adjacent, facing and nearby buildings provide a range of commercial uses which establish and maintain the vitality of this part of South Temple and the historic district. These include a café immediately adjacent to the east, Mrs. Backer’s Pastry Shop and other small scale retail adjacent to the west, and two restaurant/cafe uses and a bank building facing the site on the north side of South Temple. The range of uses is an established characteristic of this historic context and its street vitality. All the above buildings in this context, with the exception of 508 S Temple to the immediate east on the south side of South Temple, occupy notably smaller sites, establishing a setting within the historic district of relatively small scale buildings. This combination of buildings, their height and scale, individual and comparative massing, design, materials and uses, combine to create the immediate setting for any development proposals on this site within the South Temple Historic District. This section of South Temple itself is the setting for several landmark and contributing buildings to the east and to the west. LOCATION PLAN 2 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 PROJECT DESCRIPTION: The proposal is for a 176 unit, 147,000 SF apartment building, with apartments on five floors, above three floors of parking deck with space for 226 vehicles. The apartment mix comprises 39 studio units, 113 1-bedroom and 24 2- bedroom units. The South Temple frontage is identified as 5000 SF of commercial space, either side of the apartment entrance. On the plans, this is defined as 1830 SF of commercial retail, 1025 SF of commercial space and 1300 SF of leasing office, providing a total of 4155 SF. Part of the SW corner of the site is defined as tenant clubroom, fitness and outdoor pool area. The first floor of the building, with the exception of the frontage to South Temple, is proposed as parking deck, above two further parking levels. A common centrally placed private open court is proposed as a residential amenity at second floor level, with an additional roof terrace space at fourth level immediately adjacent to the Piccadilly Apartments on 500 East. There is no setback proposed for South Temple or 500 East, in contrast to the majority of the buildings along these street frontages. To accord with the majority of required side and rear yard setbacks, the 500 East frontage is identified as the front yard of the building, with South Temple frontage as the side yard. The proposed building would be six stories and 74’ 11” in height above grade at South Temple. The proposal maintains this height across the complete floor plan of the building, with the exception of a two story reduction in height at the SE corner adjacent to the neighboring Piccadilly Apartments. With the reduction in grade across the site to the south the proposal would be seven plus stories, identified in the plans as 81’ 8”, in height. The proposal has an asymmetrically placed ‘central’ apartment entrance facing South Temple, with secondary entrances to commercial space towards the corners. The façade facing 500 East has two vehicular parking access ramps serving the main level and then the lower two levels proceeding south along this façade. The majority of this frontage at street level screens parking use. The ground level of this proposal appears to be articulated in the perspective renderings, although this is not completely reflected in the plan for this level. Above this, the street facades step back slightly, with more pronounced articulation. The South Temple façade would be defined by slightly projecting corner wings and entrance bay, while 500 East is framed to the south by a projecting stairway. Facades between would be alternating planes of articulated bays, accentuated by changing materials and/or tones. Bays vary in height and are capped by a projecting cornice which appears to be scaled to the importance of the bays. Again the perspective views submitted with this application appear to identify a greater degree of articulation of façade planes than are confirmed in the plans. The primary materials are proposed as red brick for the first two floors, rising to four floors for the corners and three for the entrance bay. Elsewhere the street façade materials proposed would be varied tones and textures of hard coat stucco. Color and texture changes are proposed for the top floor to reduce the apparent vertical scale of the street facades. Projecting balconies and access doors vary the fenestration pattern at intervals on both street facades. Fenestration otherwise is ‘hole in the wall’ configuration, with applied window trim and brick soldier course details defining generally square window openings. Window reveals at street level are identified in perspective views and sections, although they are not defined on the application plans. Window reveals above the first floor are less evident. Operable window framing is proposed in vinyl for all facades of the building. ORDINANCE DESIGN STANDARDS & DESIGN GUIDELINES FOR NEW CONSTRUCTION New Construction Design Standards are defined by chapter 21A.34.020.H, addressing three key aspects of contextual design – Scale & Form, Composition of Principal Facades & Relationship to the Street, and the Subdivision of Lots. The Design Guidelines for Historic Apartment and Multifamily Buildings, Chapter 12 on New Construction, provide more detailed advice and guidance on design considerations to accord with the design standards. The proposed development is reviewed in detail in the context of the design guidelines and standards in Attachments G & H of this report, respectively. SPECIAL EXCEPTION APPROVALS To construct the proposed building the applicant is seeking Special Exception approval for encroachment of approximately 20ft into required rear setbacks towards the SW corner of the site. Two stairways and an ADA ramp are in excess of 4 ft in height within the rear setback. With the reduction in established grade proceeding south across the site, the proposed building would be in excess of the 75’ R-MU base zone height ceiling, with height extending to 81’ 8” along the south facades, thus approximately 6’ 8” in excess of the R-MU maximum 3 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 height. Vehicle access ramps will occasion a grade change in excess of 4 ft. The applicant seeks approval in these respects. KEY ISSUES: From an analysis of the proposed development in this report, public comments and department review comments, the following key issues are identified. See in particular Attachments G & H of this report. Issue 1: PROPOSED HEIGHT & SCALE OF THE DEVELOPMENT IN THIS HISTORIC CONTEXT This is a sloping site at a key intersection of South Temple and 500 East within the South Temple Historic District. The existing building scale of this context on South Temple and 500 East ranges from one to five stories in height, and in most cases on smaller lots with narrower facades than this proposal. The base zoning of R-MU recognizes the mixed use character of this setting, but it identifies a height maximum of 75 ft which does not equate with a compatible development scale for the historic character and scale of this context. The proposed development adopts this height ceiling and continues this across the site, creating a proposed height above grade along the south facades which is identified as approximately 82 ft. Allowing for incremental future development in this setting, a compatible building scale and a sensitivity to the reduction in established grade across the site would prompt a lower building with incremental height reduction and more varied massing to reduce the scale and respond to the topography and setting Issue 2: USE OF GROUND LEVEL AS PARKING SPACE WITH PARKING ACCESS POINTS OFF 500 EAST The ground level of the proposed development, with the exception of the South Temple frontage, is designed for parking and parking access. This is a corner site in the historic district, with frontages to both South Temple and 500 East. The primary contribution of the 500 East frontage to the street scene would be parking deck and two vehicular access ramps. The proposed residential building has no entrance off 500 East. This cannot readily be identified as compatible with existing and future street vitality and character, despite the design consideration given to minimizing window openings to the ground level parking. The mixed use character of this setting, and the existence of potential alternative parking access off South Temple, suggest further and alternative consideration of the use of this floor, its vehicle access points and building entrances. Issue 3: SETTING OF THE PICCADILLY APARTMENTS ON 500 EAST The adjacent Piccadilly Apartments on 500 East are four stories in height. This height and scale are echoed by the other historic apartment building, the Rita Apartments, facing the site on the north side of South Temple. The proposed building would be situated at the property line immediately adjacent to the narrow side access drive for the historic apartment building. As currently proposed, the new development would place a parking access ramp adjacent to the site boundary. The height of the proposed development would be two floors lower in the proximity of the Piccadilly Apartments, although the proposal would be five stories above established grade at this point and markedly higher than the adjacent building. The lower roof deck adjacent to the Piccadilly is also proposed as an outdoor residential terrace amenity, although with its proximity, relative height and use, it may be less of an amenity for the residents of the existing adjacent building. This combination would adversely affect the setting of the Piccadilly Apartments, and prompt consideration of height reduction, frontage setbacks, greater modulation and more varied massing of the proposal. Issue 4: THE MIXED USE CHARACTER OF THIS HISTORIC SETTING This corner site is located within a context retaining a variety of uses, from residential to office, banking, café/restaurant and retail. The site in fact previously had a variety of uses. The ‘status quo’ is recognized in the base zoning classification of R-MU (Residential/Mixed Use). The historic character of this part of the South Temple Historic District relies in part upon this vitality and this variety of uses. In this proposal, an area of 5,000 SF (supporting statement) or 4133 SF (plans) either side of the apartment entrance facing South Temple is identified as retail commercial, commercial and leasing office space. Subject to how this is defined, it could contribute to this vitality. The use of the ground level of the building as parking space, and the devotion of most of 4 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 the ground level 500 East frontage to this use and to vehicular ramp access points, would however detract from the potential of this frontage to contribute to the vitality and character of the historic district. Issue 5: THE PALETTE OF MATERIALS PROPOSED FOR STREET FACADES The proposal is designed with two primary materials, red brick and a hard-coat stucco system. This would be varied on the 500 East façade with sections of (currently undefined) masonry in the vicinity of the parking access ramps. Secondary materials include full height glass framed in anodized aluminum to South Temple ground level, metalwork to canopies and balconies, and vinyl window framing used universally for the fenestration of the apartment levels. Of the two street facades, the ratio would be approximately 30% brick to 70% stucco, with brickwork used more extensively on the South Temple façade. The South Temple historic district is characterized by a range of materials, and this setting echoes this characterization. Brickwork is the predominant facing material and is employed in six of the nearby buildings, including the three closest to this site. Concrete and stucco are also found, although they articulate buildings which tend to be smaller in scale. Vinyl window framing is not a current feature of the context and would introduce limitations in detailing window frame profiles and in terms of durability. South Temple is Salt Lake City’s grandest boulevard and first historic district. The choice of materials and their detailing should recognize this importance, and accompanying sense of permanence, to the character of the historic district and of South Temple in particular. Brickwork also has the potential of more varied and creative detailing, and an inherent sense of human scale. The setting would suggest a greater use of brickwork and a higher quality of window framing. Issue 6: BUILDING MASSING & CONFIGURATION OF OPEN SPACE The development proposals include ‘open space’ amenities for residents including pool, second level and fourth level courtyard or terrace open space. There is scope, and the associated potential to reduce the scale of the proposal, in configuration of some of this open space component in the form of front setbacks, thus introducing more varied massing on one or both street facades. Traditionally, larger scale apartment buildings were configured with greater modulation in their plan form, providing one or more landscaped street-facing courts and more varied access to the building and to natural light. Greater modulation of the proposals would effectively reduce the scale of the building. ATTACHMENTS: A. Vicinity Map B. Historic District Map C. Photographs D. Application Statements E. Application Photographs & Plans F. R-MU Zoning Ordinance Standards G. Design Guidelines for New Construction H. Standards for New Construction in a Historic District I. Public Process and Comments J. Motions 5 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 ATTACHMENT A: VICINITY MAP 6 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 ATTACHMENT B: HISTORIC DISTRICT MAP Approximate project location 7 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 ATTACHMENT C: PHOTOGRAPHS OF THE CONTEXT 76 SOUTH 500 EAST 42 SOUTH 500 EAST 8 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 34 SOUTH 500 EAST PICCADILLY APARTMENTS, 24 SOUTH 500 EAST 9 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015 508 SOUTH TEMPLE 10 PLNHLC2015-00930 & 931 New Apartment Building Meeting Date: December 3, 2015