Memorandum

City of Lawrence

Planning and Development Services

 

TO:

David L. Corliss, City Manager

 

FROM:

Planning Staff

 

CC:

Scott McCullough, Director, Planning and Development Services Amy Miller, Assistant Director, Planning

Sheila Stogsdill, Planning Administrator

Lynne Braddock Zollner, Historic Resources Administrator

 

Date:

September 5, 2013

 

RE:

Downtown Redevelopment Memo Recommendations from the Planning Commission and Historic Resources Commission

 

 

Background

Staff was directed to complete a downtown survey that evaluates development and redevelopment opportunities primarily along New Hampshire, Massachusetts, Vermont and Rhode Island Streets between 6th street and 11th street to determine the areas of downtown where the height, mass and scale could be altered from current conditions.  At the January 8, 2013 City Commission meeting, the Commission received this memo and refer the matter to the Historic Resources Commission and Planning Commission with specific direction to discuss the information in this report and provide comments/recommendations on the following issues:

 

1.    The level and location of density and height in the Downtown area.

2.    With input from the Public Works Department, discuss whether the Downtown Design Guidelines appropriately address the nature of parking (angled and parallel) in the Downtown area and whether intersection improvements, such as traffic circles, would be appropriate to serve the multi-modal demands in the Downtown area.

3.    The establishment of policies that address the use of city surface parking lots as development demand increases.

 

The Historic Resources Commission and Planning Commission met jointly at the March 13th and April 10th PC mid-month meetings and June 20th HRC meeting.  At the June HRC meeting the HRC had 5 out of 6 members present and the PC had 9 out of 10 members present with a total of 14 out of 16 members present.  Public comment was taken and recommendations on the items were voted on.  This memo is the joint recommendation of the HRC and PC regarding the issues identified in the memo.

 

 

 

HRC and PC Direction on Identified Issues

The following is the recommendations on each issue from the HRC and PC.

 

Item 1:  The level and location of density and height in the Downtown area.

 

One main discussion point is how buildings’ height, mass and scale on Vermont and New Hampshire Streets relate to Massachusetts Street on the one hand, and the residential neighborhoods to their other side on the other hand.

 

Density is usually implemented through building height and massing.  Under the currently adopted guidelines, Massachusetts Street would be taller, overall, than Vermont and New Hampshire Streets; however, as this report reflects, the overwhelming majority of parcels poised for development are on Vermont and New Hampshire Streets.  If Downtown’s density is to increase, then it must do so on Vermont and New Hampshire Streets since Massachusetts Street is predominantly built-out at a height of 2-3 stories.

 

The Development Code sets a maximum height in the CD district of 90’ with a notation that this standard is:

 

“Subject to location and height limitations in Downtown Design Guidelines and Downtown Design Standards.” 

 

The Guidelines state the following about the height of new development:

 

“The height of new buildings and additions shall relate to the prevailing heights of nearby buildings. New construction that greatly varies in height from adjacent buildings shall not be permitted.”

 

When taking these standards together, which has been the practice, there is no right to 90’ and each project is analyzed within the context of its surroundings.

 

ACTION TAKEN

The HRC and PC found that there is a discrepancy in perceived expectation between the Development Code height maximum of 90’ in the CD District and the Downtown Design Guidelines.  They recommended that the code be changed to reduce the height of the CD District from the current 90’ and revise the Downtown Design Guidelines to speak more directly to transition and/or height limits. (14-0)

 

Item 2:  Do the Downtown Design Guidelines appropriately address the nature of parking (angled and parallel) in the Downtown area and would intersection improvements, such as traffic circles, be appropriate to serve the multi-modal demands in the Downtown area?

 

The Downtown Design Guidelines include a standard that requires on-street parking on Massachusetts Street be angled and parking on Vermont and New Hampshire Streets to be parallel.  The Guidelines are silent on intersection improvements such as roundabouts. 

 

ACTION TAKEN

In the June memo, staff provided options for the commissions to consider.  The HRC and PC decided to vote on each of the following options individually instead of providing a majority consensus vote. 

 

1.    Adhere to the existing policies in the Downtown Design Guidelines (maintain parallel parking on Vermont and New Hampshire Streets). (9)

2.    Review and determine actions on proposals on case-by-case basis, recognizing that it may be appropriate to veer from the guidelines in specific instances. (1)

3.    Complete a comprehensive study of parking and intersections downtown and revise current policies as appropriate. (4)

 

Additionally, regarding the recommendation of using roundabouts downtown, the HRC and PC voted as follows:

 

1.    Recommended discouraging the use of roundabouts in the Downtown Conservation Overlay District. (10-3-1)

 

Item 3:  The establishment of policies that address the use of city surface parking lots as development demand increases.

 

There are 11 city-owned surface parking lots and 4 private vacant lots that have potential to develop.  The city-owned parking lots have received some attention recently for their development opportunities.  As long as these parcels maintain their function as public parking in some capacity, it is feasible that they may also be built up for a mixed use project.

 

ACTION TAKEN

The HRC and PC voted to recommend establishing the following policies regarding the use of city surface parking lots for development. (14-0)

1.    Any development on a city-owned lot should maintain the same number of, or more, public parking spaces as existing at time of development, as well as accommodate all of the code-identified demand generated by the proposed uses, even though there is no requirement to provide parking in the CD district.  This is so parking is not reduced in a relative manner due to the increased demand of any new development.

2.    Any city-owned lot should undergo a public process for consideration for development.  One process option, for example, would be to issue a Request for Proposals so that all development options are considered as the lot is converted.

3.    All development should adhere to the development standards of the Downtown Design Guidelines, any historic review, and any other codes, policies, and processes adopted at the time of development.

4.    If a city-owned parking lot should be developed and parking cannot be provided, other means of compensation should be given.

 

 

Action Requested

Consider the recommendations of the Historic Resources Commission and Planning Commission regarding the Issues identified in the Downtown Development Memo and direct staff as appropriate.