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STAFF REPORT June 6, 2006 (21)PRIVATE
RE: Case No. 13564-URD
APPLICANT: H. D. Lee Building L. L. C.
1221 Locust, Suite 770
St. Louis , Missouri 64321
AGENT: Patricia R. Jensen, Esq., c/o Rachelle Biondo
White Goss Bowers March Schulte & Weisenfels
4510 Belleview Avenue, Suite 300
Kansas City, Missouri 64111
LOCATION: generally located at the northeast and southeast corners of 20th Street and Wyandotte Street
AREA: about 1.7 acres
REQUEST: to consider rezoning from District M-1 (light industrial) to District URD (urban redevelopment district), and approval of a preliminary development plan for commercial and residential uses in an existing building and surface and new structured parking. (H. D. Lee Building)
SURROUNDING
LAND USE: Mixed light industrial, commercial and residential uses and surface parking lots, zoned M-1
MAJOR STREET PLAN: No perimeter streets are classified by the Citys Major Street Plan.
LAND USE PLAN: The Downtown Industrial Area Plan recommends Mixed Use (residential/commercial/light industrial) for this site.
ARTERIAL STREET
IMPACT FEE: This site is located within an exempt area and will not be assessed.
PREVIOUS CASES: Case No. 612-S - Approved the Stuart Hall/HD Lee PIEA General Development Plan on about 3 acres generally located on the north side of the Chicago Milwaukee & St Paul -- Kansas City R.R. and 22nd Street, between Central Street on the west and St. Paul Street on the east. (Ordinance No. 040469, passed June 3, 2004)
Case No. 612-S-1 - Approved the First Amendment to the Stuart Hall/HD Lee PIEA General Development Plan, to add .55 acres generally located north of 22nd Street between Fort Scott Street and Wyandotte Street (Ordinance 050718, passed June 30, 2005)
This site is also located within the 22nd & Main Tax Increment Financing (TIF) plan, first approved by Ordinance 980230 in 1998 and last amended in 2004. The 22nd & Main TIF is generally bounded by Southwest Boulevard and 19th Street on the north, Walnut Street on the east, the Kansas City Terminal Railroad tracks on the south, and Broadway/West Pennway on the west.
RELATED CASE: Case No. 1540-V A request to vacate a portion of the west 20 feet of St. Paul Avenue south of 20th Street (also scheduled for consideration on todays docket)
EXISTING CONDITIONS:
The rezoning site consists of the H. D Lee Building site, on the south side of 20th Street between Wyandotte Street on the west and St. Paul Avenue on the east, an existing surface parking lot adjacent to the south of the H. D. Lee Building, and two small existing commercial surface parking lots on the north side of 20th Street between Wyandotte Street on the west and Baltimore Avenue on the east.
The two existing parking lots on the north side of 20th Street are separated by a public alley, and are bounded on the north by a commercial building and a vacant auto repair business. The westerly lot now incorporates a paved surface within public right of way. They currently provide parking for Mannys Restaurant, located at the southwest corner of 20th Street and Wyandotte Street.
The H. D. Lee Building is a nine-story predominantly brick structure constructed in 1917 and built directly to the rights of way of Wyandotte Street, 20th Street and St. Paul Avenue in a footprint of about 22,000 square feet. A one-story brick and block addition of about 4,200 square feet extends from the east half of the south side of the main building. The balance of the property to be rezoned is a surface parking lot used by building occupants.
In the remainder of the block south to 22nd Street is another surface parking lot used by Mannys, a four story brick residential building (Lofts at the Freight House) and a one-story brick office containing Ingrams Magazine. On the west side of Wyandotte Street are Mannys, the office of Bricklayers Local 15, an undeveloped gravel lot, and 2120 Wyandotte residential lofts with a one-story parking building. On the east side of St. Paul Avenue are a series of contiguous brick multistory buildings with light industrial and commercial uses, including the Marietta Chair Building.
20th Street is a four-lane street with on-street parking on the south side and constructed sidewalks in a right of way of about 105 feet. Its intersection with Southwest Boulevard one block to the west of Wyandotte Street is signalized. Wyandotte Street is a two-lane street in 60 feet of right of way with on-street parking. The frontage of the H. D. Lee Building has a sidewalk and ramp. St. Paul Avenue is a two-way street in 20 feet of right of way along the east side of the main H. D. Lee Building and south addition, expanding westward to 40 feet in width adjacent the associated parking lot. The 40 foot width continues south to 22nd Street. The surface of St. Paul Avenue is a combination of brick, concrete and asphalt in varying condition, with partially exposed railroad tracks. The right of way has a considerable number of utility poles, loading docks, stairways, utility boxes and dumpsters.
PLAN REVIEW:
The applicant proposes the renovation of the H. D. Lee Building for four commercial condominium units and 119 residential condominium units, and construction of a four level parking structure to the south. The parking lots north of 20th Street would be restriped and landscaped. The First Amendment to the Stuart Hall/HD Lee PIEA General Development Plan requires rezoning to District URD as a condition of receiving Chapter 353 abatement.
The basement of the building will be utilized for tenant parking, accessible via a below grade entrance from the proposed garage. The first floor is to be divided into two large commercial units with a center north-south common hallway/lobby with abutting elevator, utility rooms, mail room and stairways. Those spaces will have access to the hallway and directly to the exterior of the building. A third small commercial unit is proposed on the south edge of the first floor with access from the west side of the hallway. The second floor footprint will be occupied almost entirely by a single commercial unit, with the balance in common area.
The third floor will have 16 residential condominium units, ranging from just over 700 square feet to just over 1,800 square feet. Floors 4 through 8 will have seventeen residential units each, ranging from just over 700 square feet to about 1,560 square feet. Floor 9 will be developed with 17 residential units in much the same configuration as the lower floors, except that four of the units will have a second level extending into a newly constructed 10th Floor. That floor will also have a single separate residential unit, community room, media room and bathrooms. The 10th Floor exterior is set back substantially from the existing outer walls of the building, and a patio area is provided in the northwest portion of the setback roof area.
The proposed parking structure is free-standing, set back about ten feet from the south line of the H. D. Lee Building, and constructed to the right of way line of Wyandotte Street, about one foot from the south property line and 21 feet west of the centerline of St. Paul Avenue. The single entrance is from St. Paul Avenue at the south-center portion of the east elevation. Entering traffic can immediately turn right through a secured overhead door to access the lower garage level and the basement of the H. D. Lee Building. All those spaces are reserved for building residents. Entering traffic may also go straight, to the second, third and rooftop levels. A security gate on the second level will restrict nighttime parking beyond that point to residents only. A pedestrian bridge from the third level extends to a common hallway on Floor 3 of the main building. Most of the street level Wyandotte Street frontage is occupied by a retail space of about 1,300 square feet, with direct customer entrances to the street.
Little change other than repair is to be made to the exterior of the H. D. Lee Building, although balconies will be added to east and south sides of the residential floors. The garage is proposed of tinted cast concrete panels with textured concrete centers, separated by vertical concrete columns. The section nearest the building extends above the roof level. The commercial space along Wyandotte Street has an exterior of cast concrete broken up by window sections, with horizontal reveals simulating stone block. A cornice element tops the commercial space. Only wall signage per Section 80-220 is requested.
The two parking areas on the north side of 20th Street will be restriped in conformance with Chapter 52 standards and kept off the public right of way, resulting in 9 and 23 spaces respectively. These spaces will be signed to be limited to patrons of the commercial uses in the H. D. Lee Building.
ANALYSIS:
Platting will be required to establish the individual condominium units and common areas. The
plan shows the vacation of the west 20 feet of St. Paul Avenue adjacent the south 75 feet of the east garage elevation, as requested by companion Case No. 1540-V, for the purpose of locating permanent utility equipment in the vacated right of way. Per staff recommendations for the vacation request, staff recommends that only the north 25 feet of the 75 foot request be vacated. The total right of way width of St. Paul Avenue at this location is 40 feet. Staff does not recommend the dedication of any additional right of way, as the primary constraint on public use of the street is the 20 foot right of way width between the H. D. Lee Building and the buildings to the east just south of 20th Street, a condition unlikely to change.
The sum of the proposed uses as described on the plan, including a possible restaurant use somewhere in the commercial space, requires 258 parking spaces per Section 80-444 of the zoning ordinance. The City Council may approve reduced parking in URD districts based on consideration of mixed use development and the use of public transit and ridesharing. The developer has submitted a parking analysis showing that the time of day demand will be greatest in the evening when residents are home and the restaurant is the only operating commercial use. During the day, most resident vehicles will be gone and the retail and office uses will need parking. The study cites a daytime demand of 157 spaces and a nighttime demand of 210 spaces, the exact number provided in the garage, the H. D. Lee Building basement and the surface lots. Staff supports the findings of the analysis and the reduced number of spaces as shown on the plan.
Repair and/or construction of streetscape features, including sidewalks and lighting, are recommended. Per the PIEA plan, the streetscape should be in conformance with the TIF plan requirements. Capital Improvements Management Office staff state that improvements along Wyandotte Street are planned as a City project as part of the Freighthouse Flood Control project, but the project is at least two years in the future. Staff would support a 24-month deferral agreement for improvements to Wyandotte Street, with the developer responsible for the improvements if the City project has not been implemented in that time. Improvements to the alley north of 20th Street are included in the overall recommendation.
The parking areas north of 20th Street should provide landscaping and fencing along their street frontages, similar to other commercial lots recently approved in planned districts. The westernmost spaces in the east lot appear to require maneuvering in the public alley right of way. That may require Board of Zoning Adjustment approval.
Discussions between the developer and staff have focused on the exterior materials of the new parking structure. Since the H. D. Lee Building is in part being developed with the use of federal historic tax credits, the design and materials of the garage are also reviewed by the National Park Service. The concept is that building additions or companion new structures complement the main building, neither duplicating nor departing too far from the historic character. The predominant building material in the surrounding blocks is brick. The design guidelines of the original and amended PIEA plan state Encourage highly defined architectural detail in new development that is appreciable from street level, such as building entrances, window, column, spandrel, cornice, base, arch and lintel definition. and It is recommended that brick, stone, stucco be the majority building material for external facades. To that end, staff recommends the use of brick in some elements of the new parking garage. City staff conversations with National Park Service staff indicate that the use of brick in some form is acceptable. The initial thought is to use brick (brick, brick veneer, cast concrete brick pattern) in the vertical columns of the garage, and to add vertical wall sections in the rectangular wall openings to more closely approach square windows as found in older parking structures. Since the National Park Service must ultimately approve the design, staff recommends that the condition of approval allow further discussion between staff, the developer and the National Park Service to arrive at an acceptable design prior to City Council consideration of the plan.
RECOMMENDATIONS:
This plan was reviewed by the Plats Review Committee on May 24, 2006. Staff recommends approval of Case No. 13564-URD subject to the following conditions:
1. That six collated, stapled and folded copies and an 8 X 11 transparencies of, revised drawings be submitted to Development Management staff prior to the ordinance request showing:
a. dimensioned parking spaces, aisles and loading areas in conformance with Chapter 52 and Section 80-444
b. landscaped areas and proposed fencing along the street frontages of the surface parking lots per staff approval
c. reduction of the proposed vacation area of St. Paul Avenue per the companion vacation request
d. brick/brick veneer/cast concrete brick patterns on the garage exterior and revisions to the wall openings per staff approval and per the approval of the National Park Service
e. existing conditions (including width of all rights of way, easement, and roadways).
f. sidewalks as they exist adjacent to project frontage, and correctly within right of way. Also, label proposed sidewalks or sidewalks, which need to be constructed/reconstructed.
g. any private open space medians areas, islands, or monumentation tracts labeled A, B, C, etc.
2. That the developer cause the area to be platted and processed in accordance with Chapter 66, Code of Ordinances of Kansas City, Missouri, as amended, commonly known as the Subdivision Regulations.
3. That the developer submit a detailed Micro storm drainage study, consisting at a minimum of a letter from a Missouri Licensed Civil Engineer stating that the proposed improvements will not alter or increase historical runoff conditions for the site, to Development Services prior to approval and issuance of any building permits, and that the developer construct any improvements as required by Development Services.
4. That the developer secure permits to construct or reconstruct existing sidewalks, alleys, curb and gutter, and street lights as necessary along 20th Street and St. Paul Avenue, or submit a letter from a Missouri Licensed Civil Engineer stating that the sidewalks, curb and gutter are in a good state of repair and meet the requirements set forth in Chapters 56 and 64 of the Code of Ordinances, as required by Development Services, prior to recording the plat. Sidewalks should be in conformance with the design standards of the 22nd & Main Tax Increment Financing Plan.
5. That the developer enter into an 24 month (from date of plan approval by ordinance) secured deferral agreement for the repair of sidewalks, curbs, and gutters and sidewalk along Wyandotte Street as required by Development Services in accordance with Chapters 56 and 64 of the Code, prior to recording of the plat. Sidewalks should be in conformance with the design standards of the 22nd & Main Tax Increment Financing Plan.
6. That the developer submit plans for grading and siltation and erosion control to Development Services for approval prior to the commencement of any construction activities.
7. That the developer submit a street tree planting plan prior to or concurrent with the final plat submittal, secure the approval of the City Forester for street trees planted on right-of-way (with a copy to be submitted to the City Planning and Development Department staff), and agree to plant in conformance with the plan approved by the City Forester. The plan shall include size, type, species, and placement of trees.
8. That the developer contribute $14,225.18 in lieu of parkland dedication for 119 multifamily units (119 units X 2.0 X .006 X $9,961.61 (year 2006) = $14,225.18) in satisfaction of Section 66-128 of the Subdivision Regulations.
9. That the minimum required right-of-way width for St. Paul Avenue be waived so as to permit the right-of-way as shown on the development plan.
10. That the developer grant a Noise and Aviation Easement to the City as required by Development Services.
11. That the developer receive any necessary approval of the Board of Zoning Adjustment for maneuvering in public right of way.
12. That the developer submit covenants, conditions and restrictions to the Law Department for approval for the maintenance of common elements and private open space tracts.
13. That the final plat show and describe all wall dimensions, as well as all floor and ceiling elevations, for each of the condominium units.
14. That the developer submit a final plan to the Director of City Development for approval, including detailed information on landscaping, signage (including elevations), lighting (including a photometric study showing zero foot-candles at the property line and no direct illumination beyond the property line)and building elevations
Respectfully submitted,
Larry H. Stice
Planner
Staff Report
Case No. 13564-URD
June 6, 2006
Page PAGE 2
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