ORD 2003-53 COMMERCIAL & MIXED USE DEVELOPMENTFebruary 18, 2004 - Draft
Ordinance 2003-53
An Ordinance of the City of Bainbridge Island Washington adopting new design
guidelines for commercial and mixed use development in all zoning districts
including the Neighborhood Service Centers; amending Sections 18.40.020 and
18.41.050 of the Bainbridge Island Municipal Code, and adding new Sections
18.41.025, 18.41.090, 18.41.100, and 18.41.105 to the Bainbridge Island
Municipal Code.
WHEREAS, Comprehensive Plan policies W 1.3, W 2.3, W 6.4 and NSC 1.9
direct the City to adopt design guidelines for commercial development; and
WHEREAS, the City would like to expand on and clarify the existing design
guidelines to provide greater consideration for the community character and pedestrian
safety; and
WHEREAS, there are currently no design guidelines for new development in the
neighborhood service centers of Lynwood Center, Island Center and Rolling Bay; now,
therefore
THE CITY COUNCIL OF THE CITY OF BAINBRIDGE ISLAND,
WASHINGTON, DO ORDAIN as follows:
Section 1: Footnote #7 of the "uses table" of Section 18.40.020 of the Bainbridge
Island Municipal Code is deleted.
(note: the footnote is revised and added as 18.41.050 B.1, formula take out restaurant
design guidelines )
Section 2: Section 18.41.050 B. 1 of the Bainbridge Island Municipal Code is
amended as follows:
Any formula take-out food restaurant may not exceed 4000 square feet and must be in a
building that is shared with at least one other business that is not a formula take-out food
restaurant. Only one formula take- out food restaurant is permitted per parcel, lot or tract
on which all or a portion of a building is located. No drive through facilities are allowed.
Section 3: A new section 18.41.025, Guidelines for Commercial and Mixed Use
Projects in all Zoning Districts is added to the Bainbridge Island Municipal Code as
follows:
1) Intent: to develop variation in facade treatment to provide_visual interest
Guideline:
Vary building materials or patterns to produce variations in texture.
2) Intent: to modulate the scale of building masses
Guideline: Building elevations shall be vertically modulated in no more than 20'
increments or horizontally in no more than 30' increments. Modulation is defined as a
change in plane or articulation (such as bands, cornices, setbacks or changes in material).
3) Intent: to limit the visual impact of blank walls and facades and better assure aesthetic
appeal
Guideline: Blank walls shall not be visible to public spaces. Blank facades should
otherwise be limited to the back of buildings or where required by the building code.
Treatments to alleviate blank walls shall be similar in materials to facades normally in
view of the public.
4) Intent: to establish visually prominent ground floor facades
Guideline:
The first floor of multi-storied buildings should be taller than upper floors. Minimum
ceiling height should be at least 10' to allow transom or larger display windows. Other
elements such as transom windows, canopies, cornices, and prominent entries are
encouraged. First floor uses shall be pedestrian oriented and include substantial shop
windows. Display windows on the first floor of retail and commercial buildings should
be the predominant surface of the first floor.
5) Intent: to maintain pedestrian scale along facades facing public ways.
Guideline:
Facades facing public ways shall incorporate setbacks or articulation that establishes a
pattern of bays or window openings. Facades shall include features such as display
windows, columns or bays, recessed entries or canopies or other recesses. The use of a
variety of materials at the sidewalk level is encouraged. Multiple building entrances are
encouraged.
6) Intent: to maintain the pedestrian activities by encouraging continuous frontages along
sidewalks.
Guideline:
Where parking fronts onto a public street, the maximum separation between buildings
shall be 80 feet. Greater separations are permitted if landscape setbacks are increased or
other design features such as low walls, trellises and public spaces are created along the
street frontage.
7) Intent: to reduce overall scale of the building into multiple building masses.
Guideline:
Facades over 128' in length shall be separated by pedestrian passage or open space.
Passages should be at least 12' wide and two stories in height if covered. Fagade setback
should be expressed at the roof line by changes in plane. Passage should connect to
public open space.
8)intent: to encourage the creation of public outdoor spaces.
Guideline:
Building setbacks may be increased for the creation of public outdoor seating areas.
Entry alcoves and small outdoor spaces may be located between the building and the
sidewalk.
9) Intent: to soften the impact of the built environment.
Guideline:
Encourage public pedestrian passageways and vegetation between buildings.
10) Intent: to encourage compatibility of development with both community and
neighborhood characteristics.
Guideline:
Building designs should respond to nearby buildings that meet the upgraded design
standards by using shared elements, materials or massing.
· 11) Intent: to minimize the intrusiveness of commercial signage
Guideline:
Signage, corporate colors and other icons of the business may not dominate the exterior
of the building, including canopies and separate outdoor structures covering activities
associated with the business. Color should be used to express changes in detail or
material but exterior building or structure colors may not be used as signs, or the
extension of signs.
When businesses are sold or tenants are changed, any sign modification shall trigger this
requirement.
12)To improve the pedestrian envirOnment around buildings and minimize curb cuts.
Guideline:
Where a drive through facility is allowed, drive throughs must be in conjunction with a
parking lot that serves the same business, must be to the side or rear of the building and
should not be visible from public streets. Drive throughs should consist of no more than a
single vehicle lane.
13) Intent: to provide pedestrian access to buildings.
Guideline:
Provide multiple entrances along streets. Pedestrian passageways are encouraged.
14) Intent: to provide weather protection for pedestrians
Guideline:
Recessed entries and/or overhead weather protection above the sidewalk entrances shall
be used.
15) Intent: to maintain smaller scale commercial buildings.
Guideline:
Buildings in excess of a 10,000 square foot footprint should be visually split into two or
more distinct elements.
16) Intent: to reduce the visual impact of parking areas.
Guideline:
Create small parking clusters connected by vegetated landscaping and pedestrian
walkways. Internal streets that connect or serve parking areas shall be designed as streets
with sidewalks, planters and pedestrian scale lighting.
Section 4. A new Section 18.41.090 is added to the Bainbridge Island Municipal Code
as follows:
18.41.090 Lynwood Center design guidelines
1) Intent: to ensure implementation of the adopted Lynwood Center Plan.
Guideline:
Any new proposals should be consistent with the adopted Lynwood Center plan
2) Intent: to minimize the impact of parking lots
Guideline:
Parking shall be placed behind buildings or in a single row along the street.
3) Intent: to encourage the continuance of the existing character of Lynwood Center.
Guideline: The Tudor character should be retained with features such as pitched roofs, a
mix of external materials, exposed timbering and small, mullioned windows. Restoration
of the existing Tudor building is encouraged.
4) Intent: to encourage multiple uses of sidewalks
Guideline: 7-10 foot wide sidewalks are encouraged, especially where sidewalk seating
is anticipated.
Section 5. A new section 18.41.100 is added to the Bainbridge Island Municipal Code
as follows:
18.41.100 Island Center design guidelines
1) Intent: to ensure implementation of the adopted Island Center Plan.
Guideline:
Design guidelines will be consistent with the adopted Island Center Plan.
2) Intent: to minimize the impact of parking lots.
Guideline:
Parking should be behind buildings or in a single row in front of buildings.
3) Intent: to limit the visual impact of parking.
Guideline:
Where parking is provided in front of buildings, a landscaping strip should be placed
between arterials and the parking
4) Intent: to improve pedestrian safety.
Guideline:
Parking is not allowed between the landscape strip and the arterials.
5) Intent: to expand the mix of building types and uses.
Guideline:'
Multi-storied, mixed use buildings are encouraged
Section 6. A new section 18.41.110 is added to the Bainbridge Island Municipal Code
as follows:
18.41.110 Rolling Bay Design Guidelines
1)Intent: to encourage compatible development
Guideline: Development of a Special Planning Area plan in conjunction with local
residents and property owners is recommended and encouraged. Design guidelines shall
be consistent with the adopted plan..
2) Intent: to encourage the continuance of the existing aesthetics of the area
Guideline:
Continue the scale and character of existing buildings.
3) Intent: To minimize the appearance of parking lots
Guideline:
Parking shall be behind buildings or in a single row along the street.
4) Intent: To strengthen the designation of Rolling Bay as a Neighborhood Service
Center..
Guideline:
Develop a public "green" at or near the intersection of Sunrise Drive and Valley Road
5) Intent: To encourage pedestrian orientation.
Guideline: Ground floor retail is preferred along the sidewalks.
Section 7. This ordinance shall take effect and be in force five days from and after its
passage, approval and publication as required by law and following the appointment of
the Design Review Board.
PASSED by the City Council this 1 4day of 3,pr± 1 ,2004
APPROVED by the Mayor this 1 5 day of /~pr± 1 ,2004
Darlene Kordonowy, Mayo~
ATTEST/AUTHENTICATE:
APPROVED AS TO FORM:
Rod P. Kaseguma, City Attorney
FILED WITH THE CITY CLERK:
PASSED BY THE CITY COUNCIL:
PUBLISHED:
EFFECTIVE DATE:
ORDINANCE NUMBER
January 22, 2004
April 14, 2004
April 21, 2004
April 26, 2004
2003-53
Memorandum
Date: February 18, 2004,
To;
Mayor Kordonowy and members of the City Council
From: Design Review Committee
Subject: Transmittal of recommendations from the Design Review Committee
The 90 Day Design Review Committee appointed by the Mayor began meeting in
June, 2003. Members of the committee included Gayle Bard, Barbara Tolliver,
Julie Kriegh, Tom Kuniholm, Bill Luria, Rod McKenzie, Michael Read, Eric
Schmidt and Charlie Wenzlau. Councilmember Norm Wooldridge served as
chair. Stephanie Warren was the staff advisor and recorder. Over time, some of
the members of the committee were unable to continue their participation and
this transmittal is being sent by those of us who made it to the end.
Recommendations For Future Council Action
1.
The location of formula take-out food restaurants - Some members of the
committee feel that due to the highly restrictive current area where
formula take-out food restaurants may locate, the city is vulnerable to
costly legal action. It suggests that the city get a formal opinion from the
city attorney assessing the current status. If he confirms that the city is
vulnerable because of current restrictions, the committee recommends that
you begin a public process to determine what minimum expansion would
reduce that vulnerability to an acceptable level. The committee feels that
the new guidelines will minimize the aesthetic impact of such businesses
in any zone, and therefore reduce the potential for the island deteriorating
to "Anyplace USA."
Special Planning Area for Rolling Bay: The committee recommends that
the City initiate a special planning area process for Rolling Bay.
Density bonuses as incentives: Among the proposed new design
guidelines is a guideline for Rolling Bay that encourages the creation of a
"green" at or near the intersection of Sunrise Drive and Valley Road. The
committee's earlier draft of this policy included a provision that the
design review board recommend a density bonus for this "green." The
committee does not feel that despite its desirability, a public "green" will
happen without incentives. Since it is a zoning issue, not a design issue,
however, the committee suggests that the subject be part of a special
planning area process for Rolling Bay.
Existing design guidelines: The existing Design Guidelines 18.41 do not
conflict with the proposed new ones. However, some are redundant and
would improve by combining with the newly proposed guidelines.
Furthermore, most would benefit by becoming general guidelines rather
than oriented to individual downtown zoning areas. After the Design
Review Board has used the new and old guidelines for at least six months,
and submitted suggestions for improvements, we recommend that a
formal effort to combine them be undertaken.
Summary of Design Review Committee Activities
The Committee's initial work focused on defining objectives. One of the primary
objectives was to find ways to keep Bainbridge Island from looking like
"Anyplace USA" especially in relation to formula take-out food restaurants and
other formula businesses. Norm's stated objective was "to limit the potential for
aesthetically objectionable, nationally thematic commercial structures on
Bainbridge Island that diminish the unique character of the Island as a special
place, apart from every other place in the U.S." The committee proceeded to
discuss their hopes. Bill Luria expressed his objective of implementation of the
Comprehensive Plan and wanted to know if the existing guidelines were
effective. Other members didn't want the guidelines to be too prescriptive, but
rather to allow some design flexibility. The committee discussed whether it was
process or the guidelines that were the problem. The committee also discussed
the relevant elements of design, location and function that defined the character
of a community. Committee members reviewed the City's existing design
guidelines and guidelines from other cities in Washington and from other states.
The committee also reviewed the City's existing regulations for review and
approval of commercial and mixed used projects. In the end, we focused on
design guidelines and the design review process.
From early in our work, most committee members agreed that the permit review
process should include a review that specifically focused on project design and
spent several meetings discussing the components of good and bad design.
While existing regulations reference design review and the staff and the planning
commissions, when reviewing commercial projects, includes an analysis of the
project's consistency with relevant design guidelines, there is no group whose
specific focus is on project design aesthetics. Committee members agreed that a
design review board would be an important addition to the project review
process provided it did not add significantly to the time required for project
review. We recommended, and the council approved, creation of a design
review board. The board will participate in the existing pre-application process.
Following submittal of a complete application, the board will meet to make
recommendations to the planning commission and the planning director only on
a project's consistency with adopted design guidelines. Design review board
members are currently being selected.
Along with the recommendation to create a design review board, the committee
agreed that it was important to strengthen the existing design guidelines,
particularly as they related to formula take-out food restaurants and other
formula businesses. We also thought that there should be design guidelines for
commercial and mixed use projects in all zones, including the neighborhood
service centers. The committee spent many meetings crafting the proposed new
guidelines that are currently before the council for third reading and adoption.
The committee also spent time discussing formula take-out food restaurants and
other formula businesses such as banks and real estate offices, and if they should
be regulated differently. Currently, formula take-out food restaurants are only
allowed on the east side of SR305 in the High School Road I district. Other
formula businesses are allowed wherever commercial uses are permitted. Some
members of the committee wanted to see some expansion of where formula take-
out food restaurants were permitted. They felt that there might be legal jeopardy
by restricting them to such a small area of the Island and if we had a strong
design review process, location wouldn't be as critical. Some committee
members felt that with the new guidelines and a design review board, issues
related to the aesthetics and other environmental impacts of formula take-out
food restaurants would be addressed. The committee held a public meeting in
October to get community response to the work they had done including the
new design guidelines, the design review board and formula businesses.
However, most of the more than 50 citizens who attended the meeting were only
concerned about the potential for any expansion of the location of formula take
out food restaurants and did not provide input on the other elements of the
committees work. As a result of the response at the community meeting, the
committee decided not to pursue any zoning changes that could change the
location of formula take-out food restaurants and only to focus on creating a
design review board and providing them with clear and strong guidelines with
which to review projects.
Please note our additional recommendations to the council in the Executive
Summary above.
While the design review committee process ended up taking longer than 90 days,
the committee feels that important work has been accomplished toward
improving the character of our community. As always, however, there is
additional work that Still needs to be done and we would like to encourage the
council to continue the City's work on this issue.
Sincerely,
Norm Wooldridge, chair
Charlie Wenzlau
Bill Luria
Julie Kreigh
Michael Read
Tom Kuniholm
Eric Schmidt
Guidelines
for
Commercial and Mixed Use Projects
including
Guidelines
for
Lynwood Center
Island Center
and Rolling Bay
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To develop variation in faqade treatment to provide_visual interest
Guideline:
Vary building materials or patterns to produce variations in texture.
Guidelines Jbr Commercial and Mixed Use Projects in all Zoning Districts
2
Intent:
To modulate the scale of building masses
Guideline:
Building elevations shall be vertically modulated in no more than
20' increments or horizontally in no more than 30' increments.
Modulation is defined as a change in plane or articulation (such as
bands, cornices, setbacks or changes in material).
20' MAX.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To limit the visual impact of blank walls and facades and better assure
aesthetic appeal
Guideline:
Blank walls shall not be visible to public spaces. Blank facades
should otherwise be limited to the back of buildings or where required
by the building code. Treatments to alleviate blank walls shall be
similar in materials to facades normally in view of the public.
7-
Guidelinestfor Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To establish visually prominent ground floor facades
Guideline:
The first floor of multi-storied buildings should be taller than upper
floors. Minimum ceiling height should be at least 1 O' to allow
transom or larger display windows. Other elements such as transom
windows, canopies, cornices, and prominent entries are encouraged.
First floor uses shall be pedestrian oriented and include substantial
shop windows. Display windows on the first floor of retail and
commercial buildings should be the predominant surface of the first
floor.
Guidelines.iht Commercial and Mixed Use Projects in all Zoning Districts
$
Intent:
To maintain pedestrian scale along facades facing public ways.
Guideline:
Facades facing public ways shall incorporate setbacks or articulation
that establishes a pattern of bays or window openings. Facades shall
include features such as display windows, columns or bays, recessed
entries or canopies or other recesses. The use of a variety of materials
at the sidewalk level is encouraged. Multiple building entrances are
encouraged.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To maintain the pedestrian activities by encouraging continuous
frontages along sidewalks.
Guideline:
Where parking fronts onto a public street, the maximum separation
between buildings shall be 80 feet. Greater separations are permitted
if landscape setbacks are increased or other design features such as
low walls, trellises and public spaces are created along the street
frontaee.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
7
Intent:
To reduce overall scale of the building into multiple building masses.
Guideline:
Facades over 128' in length shall be separated by pedestrian passage
or open space. Passages should be at least 12' wide and two stories in
height if covered. FaCade setback should be expressed at the roof line
by changes in plane. Passage should connect to public open space.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To encourage the creation of public outdoor spaces.
Guideline:
Building setbacks may be increased for the creation of public outdoor
seating areas. Entry alcoves and small outdoor spaces may be located
between the building and the sidewalk.
Guidelines Jbr Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To soften the impact of the built environment.
Guideline:
Encourage public pedestrian passageways and vegetation
between buildings.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
JO
Intent:
To encourage compatibility of development with both
community and neighborhood characteristics.
Guideline:
Building designs should respond to nearby buildings that
meet the upgraded design standards by using shared elements,
materials or massing.
Guidelines.for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To minimize the intrusiveness of commercial signage
Guideline:
Signage, corporate colors and other icons of the business may not
dominate the exterior of the building, including canopies and separate
outdoor structures covering activities associated with the business.
Color should be used to express changes in detail or material but
exterior building or structure colors may not be used as signs, or the
extension of signs.
When businesses are sold or tenants are changed, any sign
modification shall trigger this requirement.
Guidelines./hr Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To improve the pedestrian environment around buildings and
minimize curb cuts.
Guideline:
Where a drive through facility is allowed, drive throughs must be in
conjunction with a parking lot that serves the same business, must be
to the side or rear of the building and should not be visible from public
streets. Drive throughs should consist of no more than a single vehicle
lane.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To provide pedestrian access to buildings.
Guideline:
Provide multiple entrances along streets. Pedestrian passageways are
encouraged.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To provide weather protection for pedestrians
Guideline:
Recessed entries and/or overhead weather protection above the
sidewalk entrances shall be used.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To maintain smaller scale commercial buildings.
Guideline:
Buildings in excess of a 10,000 square foot footprint should be
visually split into two or more distinct elements.
Guidelines for Commercial and Mixed Use Projects in all Zoning Districts
Intent:
To reduce the visual impact of parking areas.
Guideline:
Create small parking clusters connected by vegetated landscaping
and pedestrian walkways. Internal streets that connect or serve
parking areas shall be designed as streets with sidewalks, planters and
pedestrian scale lighting.
Lynwood Center Design Guidelines
ri Intent:
To ensure implementation of the adopted Lynwood Center Plan.
Guideline:
Any new proposals should be consistent with the adopted
Lynwood Center plan
2 Intent:
To minimize the impact of parking lots
Guideline:
Parking shall be placed behind buildings
or in a single row along the street.
3 Intent:
To encourage the continuance of the existing
character of Lynwood Center.
Guideline:
The Tudor character should be retained with
features such as pitched roofs, a mix of external
materials, exposed timbering and small, mullioned
windows. Restoration of the existing Tudor
building is encouraged.
4 Intent:
To encourage multiple uses of sidewalks
Guideline:
7-10 foot wide sidewalks are encouraged, especially where
sidewalk seating is anticipated.
Island Center Design Guidelines
~! Intent:
To ensure implementation of the adopted Island
Center Plan.
Guideline:
Design guidelines will be consistent with the
adopted Island Center Plan.
2 Intent:
To minimize the impact o£parking lots.
Guideline:
Parking should be behind buildings or in a single row in £ront o£
buildings.
3 Intent:
To limit the visual impact of parking.
Guideline:
Where parking is provided in from of
buildings, a landscaping strip should be
placed between arterials and the parking
4 Intent:
To improve pedestrian safety.
Guideline:
Parking is not allowed between the landscape strip and the arterials.
5 Intent:
To expand the mix of building types and uses.
Guideline:
Multi-storied, mixed use buildings are encouraged
Rolling Bay Design Guidelines
~ Intent:
To encourage compatible development
Guideline:
Development of a Special Planning Area plan in conjunction with local
residents and property owners is recommended and encouraged. Design
guidelines shall be consistent with the adopted plan.
2 Intent:
To encourage the continuance of the existing aesthetics
of the area
Guideline:
Continue the scale and character of existing buildings.
3 Intent:
To minimize the appearance of parking lots
Guideline:
Parking shall be behind buildings or in a single row along the
street.
4l Intent:
To strengthen the designation of Rolling Bay as a
Neighborhood Service Center.
Guideline:
Develop a public "green" at or near the intersection
of Sunrise Drive and Valley Road
5 Intent:
To encourage pedestrian orientation.
Guideline:
Ground floor retail is preferred along the sidewalks.