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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.