Salt Lake City Council
July 19, 2011
Salt Lake City Council
Image Area
Facts about the Parleys Way Property • Walmart owns the property at 2705 East Parleys Way. • Walmart intends to open a Supercenter to serve the East Bench. • Salt Lake City provides two options for Walmart to develop the property:
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Option 1:
Request rezoning from CB to CS to allow complete demolition of existing building and construction of new 92,000 sq ft store.
Option 2:
Remodel the existing 120,000 sq ft building in compliance with non-conforming use rules (limited demolition.)
Facts about the Parleys Way Property Status Option 1:
• Walmart’s request to rezone the property from CB to CS and amend the Land Use Map of the East Bench Master Plan accordingly are currently being reviewed by the Salt Lake City Council.
Status Option 2: • Salt Lake City has approved Walmart’s plan to remodel the existing building in compliance with non-conforming use rules (limited demolition.) • Walmart has an active building permit to remodel the building and operate as a Supercenter. Permit expires in January 2012.
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Why Are We Here? Walmart wants to build a new, smaller, more energy efficient Supercenter. Two factors prevent Walmart from building a new, smaller more energy efficient Supercenter under the current CB zone: 1.Supercenter is a non-conforming use in the current CB zone. 2.Salt Lake City’s zoning caps demolition of non-conforming uses at 50% of the value of the building.
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How Does Rezoning to CS Address the Issue? • To build a new, smaller, more energy efficient Supercenter, complete demolition is necessary.
• Rezoning to CS is the only appropriate option allowing complete demolition of the existing building.
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Rezoning Proposal
Rezoning Proposal Square Footage Height (Max/Avg)
Landscaping
Area A Lighting
Energy Savings Water Usage
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91,750 sq ft (No outdoor garden center) 33/26 ft (Includes screening for rooftop mechanical equipment) 17%-22% (300 trees & 1000 shrubs = 143% inc) 1.15 acres 25 ft downshaded with pedestrian accent lighting 10,696 x 106 Btu’s/yr ( 25% savings) 3,244 gal/day ( 20% savings)
Trips (PM Peak)
355 ( 24% reduction)
Pedestrian Walkways
1,900 lf ( 322% increase)
Rezoning and Amending the East Bench Master Plan There are 3 questions to ask when considering the request to rezone the property at 2705 East Parleys Way and amend the Land Use Map of the East Bench Master Plan.
1.Theoretical: Is Community Shopping (CS) an appropriate zoning designation for the property at 2705 East Parleys Way? 2.Historical: Is there precedent for rezoning and amending the Master Plan? 3.Practical: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community?
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis Community Business (CB) & Community Shopping (CS) allow many of the same land uses but there are key differences in the 4 principal characteristics that define the two zones. 1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria 4. Parcel Size & Access
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings Community Business (CB) • • •
Maximum 15,000 sq ft for first floor, or Maximum 20,000 sq ft for entire building Larger buildings allowed through Conditional Use Permit.
Community Shopping (CS) •
No maximum building size
• Current building size is 120,000 sq ft. Size and scale of the building on
this property is not consistent with the size and scale of buildings in CB zones.
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings 2. Lot Size Community Business • •
No minimum lot size, but Any new proposed lot exceeding 4 acres is allowed only with a Conditional Use Permit
Community Shopping • •
Minimum lot size is1.4 acres No maximum lot size
• Lot size is more than 10 acres. (Next largest CB zoned lot is approx. 4 acres.) The lot size of this property is not consistent with the lot sizes of other CB zoned properties in Salt Lake City. 10
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria Community Business • Maximum front yard set back (requiring buildings to be close to the sidewalk or street) • Minimum floor glass & other façade treatments • Parking lot lighting requirements Community Shopping • Planned Development Review process is required.
• Current site design is not consistent with site design requirements for
CB zone. Planned Development Review process is the best process to guide development of this 10 acre site.
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis
1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria 4. Parcel Size & Access Community Business • Comprised of smaller parcels owned and operated independently • Driveway access serves one parcel or use • Parcels have prominent street frontage and provide the opportunity to place buildings close to the front property line. Community Shopping • Comprised of larger parcels ,or • Combination of smaller parcels that function as a larger parcel • Controlled driveway access that serves one large business or combination of businesses • Located along arterials that serve as major thoroughfares. • Parcel Size and Access are inconsistent with CB characteristics and are much more similar to CS zone standards. 13
Conclusion: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff conclusion • Lot size is more than 10 acres • Property is located along 2 arterials (Foothill Blvd/Parleys Way) • Limited, controlled access (shared driveway) serving several parcels that act as 1 large parcel • Property is isolated from single family residential neighborhoods “When comparing subject property to existing properties in both CB & CS zoning districts, subject property has characteristics more associated with the CS zone.” (Planning Commission Staff Report. February 4, 2011. p. 9.)
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Question 2: Is there precedent for rezoning? Salt Lake City has demonstrated that rezoning is an appropriate tool for effective city planning.
•From 2006-June 2011, Salt Lake City Council received 36 rezone requests. Thirty-five (35) rezone requests were approved.
•Most requests required a similar corresponding change to the Land Use Maps in the Master Plan.
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Conclusions: Is there precedent for rezoning? Conclusion:
“In summary, it is the opinion of staff that the requested zoning amendment generally meets the criteria for zoning amendments as stated in the East Bench Master Plan.” (Planning Commission Staff Report. February 4, 2011. p. 18.)
Conclusion:
“Staff finds that the request to rezone 2705 E. Parleys Way from CB to CS is consistent with the purposes, goals, objective, and policies of the adopted general plan of Salt Lake City….” (Planning Commission Staff Report. February 4, 2011. p. 19.)
Conclusion:
“Staff finds that the proposed amendment does not conflict with the purpose and intent of the Zoning Ordinance and the characteristics of the property are consistent with the purpose of the proposed zoning district.” (Planning Commission Staff Report. February 4, 2011. p. 20.)
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Question 2: Is there precedent for amending the MP? Master Plans are updated regularly to reflect current circumstances and development trends. Downtown MP—adopted 1995, update in progress West Salt Lake MP—adopted 1995, update in progress Avenues MP—adopted 1979, revised 1987 Capitol Hill MP—adopted 1981, revised 1999 Central Community MP—adopted 1974, revised 2005 East Bench MP—adopted 1987, funds allocated in FY2012 City budget to begin updating process. Conclusion: “It is staff’s opinion that the proposed master plan amendment does not substantially contradict any of the other policies, goals, or strategies of the East Bench Master Plan and that modifying the master plan would not substantially impact the integrity of either the community or the master plan.” (Planning Commission Staff Report. February 4, 2011. p. 14.)
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? There are 4 principal benefits to rezoning the property at 2705 East Parleys Way which make the outcome of rezoning desirable for the community. 1.Result in a new, smaller, more energy efficient store 2.Fulfill Community Priorities of the East Bench Master Plan 3.Improve Community Experience 4.Planned Development Review process
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 1. Result in a new, smaller, more energy efficient store New = Reconfigure site Install water detention facilities at Walmart’s cost Change steepness of parking lot grade Implement energy efficiencies, e.g. daylight harvesting Smaller = 23% smaller building (compared to existing) 24% reduction in traffic generation (compared to existing) 1.15 acres of excess land created for community benefit (Area A) 17-22% additional landscaping (compared to remodel) Less energy consumption
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 2. Fulfill Community Priorities of the East Bench Master Plan • Redeveloping existing commercial properties • Reducing trip miles • Integrating adjacent mixed uses • Creating and connecting pedestrian walkways • Providing additional services for the community • Creating community benefit opportunity (Area A) • Connecting to trails and transit systems • Installing water detention facilities
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 3. Improve community experience • 143% increase in landscaping • Planting 300 trees and 1,000 shrubs • Improved truck circulation in and around the site • Pedestrian level lighting • Shaded walkways • Reduced light pollution • 24% reduction in trips to the site • 14% reduction in hardscape surface
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 4. Planned Development Review Process Rezoning results in the requirement for a Planned Development Review Process, allowing additional community input and city guidance in site design. Conclusion: “Staff believes it can recommend approval based on the fact that [the proposal] meets the criteria in the master plan and impacts can be mitigated through proper site design.” (Planning Commission Staff Report. February 4, 2011. p. 18.)
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Questions?
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Salt Lake City Council
Image Area
Facts about the Parleys Way Property • Walmart owns the property at 2705 East Parleys Way. • Walmart intends to open a Supercenter to serve the East Bench. • Salt Lake City provides two options for Walmart to develop the property:
2
Option 1:
Request rezoning from CB to CS to allow complete demolition of existing building and construction of new 92,000 sq ft store.
Option 2:
Remodel the existing 120,000 sq ft building in compliance with non-conforming use rules (limited demolition.)
Facts about the Parleys Way Property Status Option 1:
• Walmart’s request to rezone the property from CB to CS and amend the Land Use Map of the East Bench Master Plan accordingly are currently being reviewed by the Salt Lake City Council.
Status Option 2: • Salt Lake City has approved Walmart’s plan to remodel the existing building in compliance with non-conforming use rules (limited demolition.) • Walmart has an active building permit to remodel the building and operate as a Supercenter. Permit expires in January 2012.
3
Why Are We Here? Walmart wants to build a new, smaller, more energy efficient Supercenter. Two factors prevent Walmart from building a new, smaller more energy efficient Supercenter under the current CB zone: 1.Supercenter is a non-conforming use in the current CB zone. 2.Salt Lake City’s zoning caps demolition of non-conforming uses at 50% of the value of the building.
4
How Does Rezoning to CS Address the Issue? • To build a new, smaller, more energy efficient Supercenter, complete demolition is necessary.
• Rezoning to CS is the only appropriate option allowing complete demolition of the existing building.
5
Rezoning Proposal
Rezoning Proposal Square Footage Height (Max/Avg)
Landscaping
Area A Lighting
Energy Savings Water Usage
6
91,750 sq ft (No outdoor garden center) 33/26 ft (Includes screening for rooftop mechanical equipment) 17%-22% (300 trees & 1000 shrubs = 143% inc) 1.15 acres 25 ft downshaded with pedestrian accent lighting 10,696 x 106 Btu’s/yr ( 25% savings) 3,244 gal/day ( 20% savings)
Trips (PM Peak)
355 ( 24% reduction)
Pedestrian Walkways
1,900 lf ( 322% increase)
Rezoning and Amending the East Bench Master Plan There are 3 questions to ask when considering the request to rezone the property at 2705 East Parleys Way and amend the Land Use Map of the East Bench Master Plan.
1.Theoretical: Is Community Shopping (CS) an appropriate zoning designation for the property at 2705 East Parleys Way? 2.Historical: Is there precedent for rezoning and amending the Master Plan? 3.Practical: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community?
7
Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis Community Business (CB) & Community Shopping (CS) allow many of the same land uses but there are key differences in the 4 principal characteristics that define the two zones. 1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria 4. Parcel Size & Access
8
Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings Community Business (CB) • • •
Maximum 15,000 sq ft for first floor, or Maximum 20,000 sq ft for entire building Larger buildings allowed through Conditional Use Permit.
Community Shopping (CS) •
No maximum building size
• Current building size is 120,000 sq ft. Size and scale of the building on
this property is not consistent with the size and scale of buildings in CB zones.
9
Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings 2. Lot Size Community Business • •
No minimum lot size, but Any new proposed lot exceeding 4 acres is allowed only with a Conditional Use Permit
Community Shopping • •
Minimum lot size is1.4 acres No maximum lot size
• Lot size is more than 10 acres. (Next largest CB zoned lot is approx. 4 acres.) The lot size of this property is not consistent with the lot sizes of other CB zoned properties in Salt Lake City. 10
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Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis 1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria Community Business • Maximum front yard set back (requiring buildings to be close to the sidewalk or street) • Minimum floor glass & other façade treatments • Parking lot lighting requirements Community Shopping • Planned Development Review process is required.
• Current site design is not consistent with site design requirements for
CB zone. Planned Development Review process is the best process to guide development of this 10 acre site.
12
Question 1: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff analysis
1. Size & Scale of Buildings 2. Lot Size 3. Design Criteria 4. Parcel Size & Access Community Business • Comprised of smaller parcels owned and operated independently • Driveway access serves one parcel or use • Parcels have prominent street frontage and provide the opportunity to place buildings close to the front property line. Community Shopping • Comprised of larger parcels ,or • Combination of smaller parcels that function as a larger parcel • Controlled driveway access that serves one large business or combination of businesses • Located along arterials that serve as major thoroughfares. • Parcel Size and Access are inconsistent with CB characteristics and are much more similar to CS zone standards. 13
Conclusion: Is CS zoning appropriate for the property at 2705 East Parleys Way? City staff conclusion • Lot size is more than 10 acres • Property is located along 2 arterials (Foothill Blvd/Parleys Way) • Limited, controlled access (shared driveway) serving several parcels that act as 1 large parcel • Property is isolated from single family residential neighborhoods “When comparing subject property to existing properties in both CB & CS zoning districts, subject property has characteristics more associated with the CS zone.” (Planning Commission Staff Report. February 4, 2011. p. 9.)
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Question 2: Is there precedent for rezoning? Salt Lake City has demonstrated that rezoning is an appropriate tool for effective city planning.
•From 2006-June 2011, Salt Lake City Council received 36 rezone requests. Thirty-five (35) rezone requests were approved.
•Most requests required a similar corresponding change to the Land Use Maps in the Master Plan.
15
Conclusions: Is there precedent for rezoning? Conclusion:
“In summary, it is the opinion of staff that the requested zoning amendment generally meets the criteria for zoning amendments as stated in the East Bench Master Plan.” (Planning Commission Staff Report. February 4, 2011. p. 18.)
Conclusion:
“Staff finds that the request to rezone 2705 E. Parleys Way from CB to CS is consistent with the purposes, goals, objective, and policies of the adopted general plan of Salt Lake City….” (Planning Commission Staff Report. February 4, 2011. p. 19.)
Conclusion:
“Staff finds that the proposed amendment does not conflict with the purpose and intent of the Zoning Ordinance and the characteristics of the property are consistent with the purpose of the proposed zoning district.” (Planning Commission Staff Report. February 4, 2011. p. 20.)
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Question 2: Is there precedent for amending the MP? Master Plans are updated regularly to reflect current circumstances and development trends. Downtown MP—adopted 1995, update in progress West Salt Lake MP—adopted 1995, update in progress Avenues MP—adopted 1979, revised 1987 Capitol Hill MP—adopted 1981, revised 1999 Central Community MP—adopted 1974, revised 2005 East Bench MP—adopted 1987, funds allocated in FY2012 City budget to begin updating process. Conclusion: “It is staff’s opinion that the proposed master plan amendment does not substantially contradict any of the other policies, goals, or strategies of the East Bench Master Plan and that modifying the master plan would not substantially impact the integrity of either the community or the master plan.” (Planning Commission Staff Report. February 4, 2011. p. 14.)
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Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? There are 4 principal benefits to rezoning the property at 2705 East Parleys Way which make the outcome of rezoning desirable for the community. 1.Result in a new, smaller, more energy efficient store 2.Fulfill Community Priorities of the East Bench Master Plan 3.Improve Community Experience 4.Planned Development Review process
18
Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 1. Result in a new, smaller, more energy efficient store New = Reconfigure site Install water detention facilities at Walmart’s cost Change steepness of parking lot grade Implement energy efficiencies, e.g. daylight harvesting Smaller = 23% smaller building (compared to existing) 24% reduction in traffic generation (compared to existing) 1.15 acres of excess land created for community benefit (Area A) 17-22% additional landscaping (compared to remodel) Less energy consumption
19
Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 2. Fulfill Community Priorities of the East Bench Master Plan • Redeveloping existing commercial properties • Reducing trip miles • Integrating adjacent mixed uses • Creating and connecting pedestrian walkways • Providing additional services for the community • Creating community benefit opportunity (Area A) • Connecting to trails and transit systems • Installing water detention facilities
20
Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 3. Improve community experience • 143% increase in landscaping • Planting 300 trees and 1,000 shrubs • Improved truck circulation in and around the site • Pedestrian level lighting • Shaded walkways • Reduced light pollution • 24% reduction in trips to the site • 14% reduction in hardscape surface
21
Question 3: Is the outcome of rezoning the property at 2705 East Parleys Way desirable for the community? 4. Planned Development Review Process Rezoning results in the requirement for a Planned Development Review Process, allowing additional community input and city guidance in site design. Conclusion: “Staff believes it can recommend approval based on the fact that [the proposal] meets the criteria in the master plan and impacts can be mitigated through proper site design.” (Planning Commission Staff Report. February 4, 2011. p. 18.)
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Questions?
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