ARLINGTON COUNTY, VIRGINIA County Board Agenda Item Meeting of February 25, 2006 DATE: February 17, 2006 SUBJECT: SITE PLAN AMENDMENT (CARRY-OVER) for approximately 176- room hotel, up to approximately 20,000 square feet of retail and restaurant, revised to approximately 10,000 square feet, with modifications to use regulations for parking and to exclude storage, mechanical and hotel back of house spaces from the density calculation; 1425 N. Adams St. aka Lot 6, Courthouse Plaza (RPC #18-005-042) Applicant: Donohoe Development Company By: Martin D. Walsh, Attorney Walsh, Colucci, Lubeley, Emrich & Terpak P.C. 2200 Clarendon Boulevard, 13th Floor Arlington, Virginia 22201 C.M. RECOMMENDATION: Approve the site plan amendment request for an approximately 176-room hotel, up to approximately 10,000 square feet of retail and restaurant, with modifications to use regulations for parking and to exclude storage, mechanical and hotel back of house spaces from the density calculation, subject to the conditions of the staff report which supersede the previous conditions approved on May 18, 1985, and which apply to the hotel parcel only. ISSUES: None County Manager: County Attorney: Staff: Freida Wray, Planning Division, CPHD Adam Denton, Planning Division, DES Bruce Bourque, AED Robert Corletta, PRCR PLA-4244
SUMMARY: The applicant has submitted a major site plan amendment for development of a 10-story, 176-room, extended-stay Marriott Residence Inn hotel. The proposed hotel would complete the Courthouse Plaza Site Plan, which was originally approved in 1985. In June 2005, the County Board approved a long-term agreement with the Donohoe Companies, which includes provision and operation of a limited services hotel (equivalent to a Marriott Residence Inn and a Hilton Embassy Suites), a high quality restaurant, and ground floor retail. This proposal was first reviewed by the County Board in December 2005. It was deferred twice to January 21, 2006 and again to February 25, 2006, to allow time for the applicant and staff to address several outstanding issues. During the deferral period, the applicant withdrew its request for an optional 10,000 square feet of expanded below-grade retail space. The issues that the County Board directed the applicant and staff to further evaluate included: refinement of the façade design; provision of a porte-cochere at the hotel s entrance on North Adams Street; the neighborhood-designated tree; green roof application; concept for signage; and, parking. These issues have been satisfactorily addressed and are discussed in detail in the Discussion section of this report. This major site plan amendment is consistent with the urban design goals for the County s government center, as envisioned in the Courthouse Sector Plan Addendum. The design of the building and plaza complement existing surrounding development through the incorporation of sandstone-colored materials articulated in the base, banding, and cornice and roof lines. The proposal would complete the western end of Courthouse Plaza, which has been partially excavated for approximately 18 years. The proposed hotel would also enhance existing development through the provision of strong restaurant and retail anchors. The applicant proposes a number of amenities, including, but not limited to, provision of crosswalks, curb extensions at the two intersections on Adams Street to restrict traffic, a curb extension/pedestrian refuge area and crosswalk adjacent to the 14 th Street entrance to the arcade, a water element that has year-round use and visual interest, public art, public outdoor seating and furnishings within the plaza, provision of public use and access easements over the plaza, lowering of the Metro air intake/exhaust ventilation shafts on Clarendon Boulevard, provision of a sustainable building with a total of 26 LEED points including Energy Star and vegetated green roofs, provision of a financial contribution to the Housing Reserve Fund in an amount consistent with the new ordinance, as well as a contribution to the Utility Undergrounding Fund. Therefore, staff recommends that the County Board approve the proposed site plan amendment, subject to the conditions of the staff report which supersede the previous conditions approved on May 18, 1985 and apply to the hotel parcel only. BACKGROUND: The site is part of the Courthouse Plaza Site Plan, which was approved by the County Board on May 18, 1985. The approved site plan is for a mixed-use development consisting of two (2) 14-story office buildings, a 17-story residential building, a 17-story hotel, retail space and a cinema. The hotel was approved to be a full-service hotel containing 202,984 square feet of GFA, 276 hotel rooms, banquet and meeting facilities, and 193 parking spaces. While the site plan has been vested, the hotel was not constructed for economic reasons and the parcel returned to the County in 1989. Courthouse Plaza Hotel -2-
In 1996, the County solicited proposals for development of the hotel consistent with the approved site plan, and in 1998 entered into agreement with Concord Partners for its development. On July 16, 1998, the County Board approved a major site plan amendment for a 17-story, 202,984 square foot, full-service hotel containing 324 hotel rooms (increased by 48 rooms), banquet and meeting facilities, and 197 parking spaces. Concord Partners was unable to obtain financing and the parcel was returned to the County in 2002. In 2003, the County contracted the International Economic Development Council (IEDC) to conduct a market analysis of the hotel site prior to a new solicitation. The analysis suggested that a select service hotel with 175-225 rooms would be a more appropriate fit for the Courthouse market. The County issued a Request For Qualifications (RFQ) for construction and operation of a select service hotel, in which six (6) proposals were submitted. The Donohoe Companies was selected among the three finalists to be the County s preferred developer. On June 20, 2005, the County Board entered into a long-term agreement with the Donohoe Companies for provision and operation of the hotel, a high quality restaurant, and ground floor and below grade retail and food service uses. This major site plan amendment was first reviewed by the County Board at its recessed meeting on December 14, 2005. The County Board deferred the request twice to January 21, 2006 and again to February 25, 2006, to allow time for the applicant and staff to address several outstanding issues, which are discussed in detail in the Discussion section of this report. The following provides additional information about the site and location: Site: The site is located on the western end of Courthouse Plaza and is bounded by Clarendon Boulevard to the north, North Adams Street to the west and 14 th Street to the south. The hotel parcel, which was excavated with the construction of Courthouse Plaza in 1987 and has been vacant ever since, totals 42,849 square feet of site area. Adjacent development includes: To the north: The 7-story Navy League office building (SP #351). To the east: The 17- and 14-story Courthouse Plaza residential and office buildings (SP #231). To the west: The 11-story Charleston Condominium building (SP #252) To the south: The Courthouse Hill Condominium (6-stories) and Townhouse (4-stories) development (SP #225) Zoning: The site is currently zoned C-O Commercial Office Building, Hotel and Multiple Family Dwelling Districts. Land Use: The site s designation on the General Land Use Plan (GLUP) is a striped pattern of 50 percent High Residential and 50 percent High Office-Apartment-Hotel (up to 3.8 FAR office density, up to 4.8 FAR apartment density, up to 3.8 FAR hotel density). Neighborhood: The site is located within the Clarendon-Courthouse Civic Association. Courthouse Plaza Hotel - 3 -
Proposed Development: The following table sets forth the statistical summary for the project. Approved Plan (1985) Proposed Plan (2005) Site Area (for hotel parcel only) 42,849 SF (0.9924 acres) Density Hotel G.F.A. 202,984 sf 131,655 sf Hotel Rooms 276 rooms 176 rooms Retail GFA - 9,455 sf Total GFA 202,984 sf 141,110 sf Building Height Average Site Elevation 226.8 feet 226.8 feet Main Roof Elevation - 338.3 feet Main Roof Height - 111.5 feet Roof Parapet Approx. 2 feet Penthouse Roof Elevation 423.99 feet 356.3 feet Penthouse Roof 197.19 feet 129.5 feet Number of stories 17 stories 10 stories Parking Hotel Parking 193 spaces 88 spaces Hotel Parking Ratio 0.7 space/room 0.5 space/room C-O Required Hotel Parking 193 spaces 123 spaces C-O Required Hotel Pkg. Ratio 0.7 space/room 0.7 space/room Completion of Courthouse Plaza Parking 92 spaces 92 spaces Total Proposed Parking 1 285 spaces 180 spaces LEED Score - 26 points Density and Uses: This major site plan amendment is for an extended-stay hotel containing 176 rooms, 5,510 square feet of restaurant space and 3,945 square feet of retail/food service space. The ground floor plan locates the 5,510-square foot restaurant adjacent to the corner of Adams Street and Clarendon Boulevard. This space is designated for the high quality restaurant referenced in the land lease. The predominance of the restaurant façade would be glass. The space would be oriented to Clarendon Boulevard and the plaza, with its entrance facing the plaza. The 3,945 square foot retail/food service space would be located on the southeast corner of the building, adjacent to the existing arcade and 14 th Street. This retail space would have an entrance adjacent to the plaza. It would be designed to include transparency adjacent to the plaza, arcade, and 14 th Street frontages, in order to animate the pedestrian experience along those frontages. The hotel would have two lobby entrances accented with architectural metal canopies and transparent walls that would allow a pedestrian connection/pass-through between the plaza and Adams Street and would provide a visual connection to the plaza. The hotel s guest lounge, breakfast area, small meeting space (500 square feet) and reservations desk would flank the lobby area. The hotel offices, guest exercise room and indoor swimming pool would be located along the building s 14 th Street frontage. The building s GFA, including hotel and ground floor retail areas, would total 141,110 square feet. Site and Design: The proposed building would be located on the western end of Courthouse Plaza, adjacent to Clarendon Boulevard and North Adams and 14 th Streets. It would anchor the 1 Parking is not required for the retail and restaurant uses because Section 33 of the Zoning Ordinance allows parking exemptions for retail and restaurant uses located within 1,000 feet of a Metro entrance. Courthouse Plaza Hotel - 4 -
Courthouse Plaza development and provide a terminus vista to the plaza. The building s mass would have a northwest orientation, stepping up in height from five (5) stories adjacent to 14 th Street across from the existing six (6) story condominium and four (4) story townhouse developments, to 10 stories adjacent to Clarendon Boulevard and North Adams Street across from the 11-story Charleston condominium building. As envisioned in the Courthouse Sector Plan Addendum and the approved Courthouse Plaza Site Plan, the building is designed to be compatible with other buildings within the Courthouse Plaza development in order to create a sense of place and a unified visual image for the County s government center. The hotel s façade would consist of primarily buff-colored masonry, glass and metal window systems on the building tower, and primarily glass with metal trim along the two-story tall base adjacent to the plaza. The tower s corner element at Clarendon Boulevard and Adams Street would be designed with a glass curtain wall system to give this anchor greater prominence and visual interest. Along the plaza elevation, the building tower would be set back at various dimensions to accentuate the two-story tall transparent base. In response to citizen concerns about the building s relationship to existing buildings located adjacent to Courthouse Plaza, the applicant has redesigned the building façade to include a sandstone-colored treatment in the building base, banding, and cornice and roof lines, and window systems consisting of champagne-colored metal panels with sandstone-colored trim. The applicant proposes to utilize existing Courthouse Plaza garage and loading access points for vehicular access to the site. The existing Clarendon Boulevard garage access point would be used for hotel parking ingress. The existing 14 th Street garage and loading access points would be used for hotel loading and parking egress. In addition, along Adams Street the applicant proposes to construct on-street parking and a hotel guest drop-off/delivery area, as envisioned in the original 1985 site plan approval. This proposal would complete the site plan s internal plaza, which is designed to include special paving, canopy trees, planting areas, public and private outdoor seating areas and an artistically designed water element that would be attractive year-round. The applicant has agreed to continue the streetscape treatment that exists on Clarendon Boulevard and 14 th Street, including the double row of street trees and the landscape strip adjacent to the building wall on 14 th Street. LEED Scorecard: The proposed LEED score is 26 points. This includes credits primarily for Sustainable Sites and Indoor Environmental Quality. The applicant would achieve Credit 7.2, Landscape and Exterior Design to Reduce Heat Islands, Roof under the Sustainable Sites category of the LEED-NC Version 2.2 Registered Project Checklist. The applicant s revised proposal would include an Energy Star-compliant, high-reflectance and high-emissivity or similar roof surface finish on the 10-story tower, a vegetated green roof on the five story wing, and a decorative parterre/paver treatment on the one story wing. The applicant has a LEED accredited professional working on the project. In addition, the applicant would utilize Energy Star appliances and fixtures, and implement a green hotel management program, such as Green Planet, as part of its housekeeping services. Transportation: The Master Transportation Plan classifies North Clarendon Boulevard as a principal arterial, North Adams Street as a neighborhood-minor street, and North 14 th Street as a Courthouse Plaza Hotel - 5 -
neighborhood principal street. Trip Generation: A Traffic Impact Analysis (TIA) submitted by the applicant, prepared by Wells & Associates, dated August 2005, assessed the impacts of the development on the adjacent street system. The proposed 176-room hotel and 9,455 square feet of retail and restaurant uses would generate 70 AM (40 in, 30 out) and 115 PM (60 in, 55 out) peak hour vehicle trips. The Department of Environmental Services does not take traffic counts in the immediate area of the subject site plan as part of its regular traffic counting program. Special traffic counts were taken for a neighborhood traffic study. The following table details the all day, non-directional volumes and speeds. Traffic Volumes and Speeds Date of Count Street Volume Average Speed 04-11-2000 14 th Street North, 4,856 23mph east of North Barton Street 08-19-2005 14 th Street North, 4,578 24mph west of North Wayne Street 08-19-2005 14 th Street North, 3,426 20mph east of North Veitch 03-24-2004 Clarendon Boulevard, east of North Wayne Street 15,096 N/A Source: Arlington County Department of Environmental Services The applicant has proposed to use the existing loading dock located adjacent to North Wayne Street, which is connected by an internal spine. A freight elevator is provided near the loading dock, providing direct access to the proposed restaurant. Parking: Two levels of underground garage are proposed to be constructed below the hotel footprint and would be tied to the existing Courthouse Plaza parking garage with ingress provided on Clarendon Boulevard. The existing exit-only access point located on 14 th Street North would provide hotel egress. The new phases of the garage would contain 88 parking spaces for the hotel use at a ratio of.5 space per room, and 92 parking spaces to complete the approved parking requirement for the Courthouse Plaza Site Plan. A modification of use regulations is proposed for the hotel parking ratio, which staff supports and is discussed later in this report. The hotel parking would be located on the garage s P1 level and the public parking would be located on the P2 level. The applicant has agreed to provide a jump elevator for public access to the plaza, as referenced in Condition #79. Section 33 of the Zoning Ordinance permits exemptions from the parking requirements for retail and service-commercial uses and restaurants located within 1,000 feet of a Metro Station entrance. This would permit the first 5,000 square feet of retail floor area in the building to be exempt from the parking requirement. The restaurant use would also be exempt because it proposes to have less than 200 seats. Streets and sidewalks: The site has frontage along three public streets. Clarendon Boulevard is currently constructed to a 42-foot width between face of curbs for one-way travel eastbound, including two travel lanes approximately 12 feet wide, on-street parking on both sides of the street, and a five (5) foot bike lane. The street section would not change with this proposal. The sidewalk width ranges from approximately 24 feet to 29.4 feet wide, measured from the back of Courthouse Plaza Hotel - 6 -
curb to the building wall, which includes eight (8) inch banding, five (5) foot wide tree grates and a minimum 10-foot wide clear sidewalk. A public pedestrian connection is proposed through the site, connecting the various elements of the Courthouse Plaza site plan. Staff has recommended in Condition #74, and the applicant has agreed that it would lower to the final sidewalk elevation the two (2) existing Metro air intake/exhaust ventilation shaft structures which are located in the middle of the sidewalk approximately 10 feet behind the street curb along Clarendon Boulevard near the intersection with North Adams Street. North Adams Street currently exists and is planned to continue to operate as a two-way street within a 42-foot wide paved area with on-street parking on both sides and two travel lanes approximately 14 feet wide. It would not change with this proposal. The applicant proposes a mid-block nub for the sole purpose to separate passenger loading from on-street parking. The sidewalk width ranges from approximately 16.2 feet to 21.8 feet wide, measured from the back of curb to the building wall, which includes 8-inch banding, 5-foot by 12-foot wide tree pits and a minimum 10-foot wide clear sidewalk. 14 th Street North currently exists and is planned to continue to operate as a two-way street within a 39-foot wide paved area with on-street parking on both sides and two travel lanes approximately 14 feet wide. It would not change with this proposal. An existing 20-foot wide pedestrian arcade would remain, providing access from 14 th Street North to the interior plaza. The sidewalk width ranges from approximately 15 feet to 23 feet wide, measured from the back of curb to the landscape strip, which includes 8-inch banding, 5-foot by 12-foot wide tree pits and a minimum 10-foot wide clear sidewalk. An 18-foot wide landscape strip would be provided between the back of the sidewalk and the proposed building, and would include an additional staggered row of street trees and extensive plantings including ground cover, shrubs, tall plants and seasonal plants. Transportation Demand Management (TDM) Program: Consistent with site plan development and the County s adopted TDM Policy, staff recommends that the developer implement a TDM Plan to reduce single occupancy vehicle (SOV) trips to and from the site. Staff recommends and the applicant has agreed to implement the TDM strategies that are briefly summarized below and referenced in Condition #48: Provide a Transportation Kiosk in the hotel lobby. Provide a parking management plan including a schematic drawing depicting an area parking plan for all block faces abutting the site. Provide free SmarTrip cards for all new hotel employees. Designate a member of the building management team as Property Transportation Coordinator with responsibilities for completing and coordinating TDM Plan obligations. Conduct a transportation monitoring study of the site. Public Transit: The subject site is located approximately 1,500 feet from the Courthouse Metro Station. This station is located on the Orange Line. Metrobus service is also available adjacent to the site along Clarendon Boulevard and provides connections between Ballston and Farragut Square in the District of Columbia (Route 38) and between Seven Corners and Rosslyn (Route 4) Bicycle Access: There are several on and off-street bicycle facilities located adjacent to the site. Courthouse Plaza Hotel - 7 -
Clarendon Boulevard has an existing 5-foot wide bike lane along the site frontage and connects to the Arlington Boulevard Trail (varies between an off-street bicycle trail and an on-street bicycle route) runs alongside the site frontage and connects to the W&OD Trail to the west and connects to other bicycle routes including Route 110 and the Mount Vernon Trails and bridge connections to the District of Columbia. Utilities: Adequate water and sanitary sewer system capacity is available to serve the proposed development. The water and sanitary sewer infrastructure necessary to support the development was constructed during the initial phase of construction for Courthouse Plaza by the original developer and the County. Consistent with site plan development and the Utility Undergrounding Plan, the developer agrees to contribute to the Utility Underground Fund in the amount of $24,810 ($25,000 x.9924 acres). The developer will be required to comply with the new Chesapeake Bay Preservation Ordinance and the Plan of Development requirements, including a Resource Protection Area Delineation (site is not located in an RPA), a Landscape Conservation Plan, a Storm Water Management Plan, and an Erosion and Sediment Control Plan. DISCUSSION Adopted Plans and Policies: The General Land Use Plan (GLUP), approved Courthouse Plaza Site Plan, and the Courthouse Sector Plan Addendum guide development on this site. In addition, the requirements of the Request for Qualifications (RFQ) provide further guidance for development on this site. General Land Use Plan: The existing GLUP is a striped pattern of 50 percent High Residential and 50 percent High Office-Apartment-Hotel. The intent of this designation is to ensure a viable overall mix of uses, which this proposal would achieve through development of the hotel and completion of the Courthouse Plaza Site Plan. Courthouse Plaza Site Plan: The approved site plan s concept for the hotel called for a denser, full-service facility with extensive banquet and meeting rooms. While this concept proved to be economically unfeasible, the approved site plan does provide guidance on the building s relationship to the development, requiring pedestrian entrances to the plaza from the adjacent residential neighborhood; provision of an informal plaza with lawn, plantings and an outdoor café for the on-site restaurant; and a unified architectural theme that ties the Courthouse Plaza buildings together. The proposed development achieves the goal of the approved site plan by providing a visual and pedestrian connection through the hotel lobby from Adams Street to the plaza, and completing the plaza with landscaping, public and private outdoor seating areas, and café uses. The building design relates to existing development within Courthouse Plaza, and further refinements have resulted in a design that complements existing buildings located adjacent to Courthouse Plaza. Courthouse Sector Plan Addendum: The Addendum, which was adopted by the County Board on November 13, 1993, doesn t identify the hotel site as a key redevelopment site because the site plan was already approved (1985) and vested. Therefore, it does not provide specific urban Courthouse Plaza Hotel - 8 -
design guidelines for this specific site. However, the urban design goal for the Courthouse area is: To successfully project the civic nature of Arlington County s Government Center by achieving a unified visual image and creating attractive urban public and private spaces that will invite maximum use. The objectives address establishment of the area s sense of place; civic character; coordinated streetscape and open space systems; coordinated vehicular/pedestrian/bike circulation systems; balancing parking, vehicular circulation and transit use; diverse mix of uses; and effective transitions between commercial and residential neighborhoods. The illustrative plan for the Courthouse area shows a footprint similar to the proposal with a water feature in front of the building in the plaza. The Addendum identifies general guidelines designed to create a high quality urban environment, and this proposal meets the guidelines through: Continuity in the design intent of, and establishment of a terminus for, existing development in Courthouse Plaza. Continuation of highly visible, clearly defined, 24-hour pedestrian passageways from Clarendon Boulevard and 14 th Street (arcade). Provision of a pedestrian connection through the hotel lobby and visual connections through the use of transparent facades for the hotel lobby, restaurant and retail spaces. Provision of a retail base that defines and activates the street and plaza frontages. Provision of crosswalks at all intersections and across from the arcade on 14 th Street. Transitions in building height and mass to adjacent residential neighborhoods to the south, by stepping down in height to the five (5) story wing adjacent to 14 th Street and setting the building tower back approximately 24 feet from the five story wing s edge. Provision of a prominent glass corner element on the building tower that reinforces the intersection of Clarendon Boulevard and Adams Street as an activity node and identifies this block as a gateway to the County s government center. Request for Qualifications: The RFQ was issued in 2004 and required candidates to demonstrate, among other things, their ability to provide a viable retail component that complements and strengthens the existing retail; and provide architectural quality, design and materials equivalent to and compatible with other components of Courthouse Plaza. This proposal achieves this through provision of retail spaces that anchor the development with a high quality restaurant adjacent to Clarendon Boulevard and a retail use at the opposite end of the development. Again, the proposed building is compatible with existing development in Courthouse Plaza through the use of similar building materials, colors, vertically-designed fenestration, and a strong base that relates to the existing Courthouse Plaza architecture. Further refinements to the façade have resulted in a design that achieves connectivity to existing buildings located adjacent to Courthouse Plaza. The proposed development would complete the design intent of the plaza and compliment it with an artistically designed water feature, landscaping and outdoor furnishings. Issues: Conceptual plans for the proposed development were first presented to citizens at a community meeting convened by staff in December 2004. At that time the plans indicated an eleven (11) story building whose massing was oriented towards 14 th Street, adjacent to the lowrise residential condominium and townhouse neighborhood, and stepping down to a two (2) story element adjacent to Clarendon Boulevard. In response to citizen comments, the applicant Courthouse Plaza Hotel - 9 -
redesigned the building to re-orient the massing away from 14 th Street, stepping the height down at that location to five (5) stories, which is more compatible with adjacent development, and relocating the predominance of the building mass to Clarendon Boulevard. In addition, the overall building height was reduced by one story, from 11 to 10 stories. Also, in response to citizen comments, the applicant reduced the size of the meeting room from a 20-person to 16- person seating capacity, and relocated the mechanical shafts vertically to the roof to preclude placement of ventilation louvers/grills on the main building facades. When the County Board reviewed this proposal at its December 14, 2005 recessed meeting, the Board identified six (6) issues requiring further analysis. A discussion of the issues is provided below. Refinement of the façade design. Throughout the formal public review process, the most prevalent issue was the treatment and design of the building façade and its relationship to existing structures within, and adjacent structures located outside, the Courthouse Plaza Site Plan. Recognizing that the overall design intent for the Courthouse area is to project the civic nature of Arlington County s government center and to achieve a unifying architectural theme for buildings in Courthouse Plaza, emphasis was placed on achieving a façade design that relates well to the existing development in Courthouse Plaza and which also incorporates similar building materials, color, and trim. The design of the glass and metal window system with its vertical orientation, and use of buff-colored masonry provides continuity and unification of structures within the site plan. The use of sandstone-colored materials in the building s base, banding, trim, and cornice and roof lines provide connectivity to adjacent buildings, particularly the residential buildings on 14 th Street and North Adams Streets. Further refinements to the façade have included banding that accentuates the building s base, middle and top (Attachment A). In addition to the incorporation of color, the applicant has enhanced the building elevation at the plaza s terminus vista to give it more prominence. Metal trellis work has been incorporated into the design of the façade and at the roof top. A vertical textured masonry treatment would be provided on the elevator tower. The restaurant frontage would be strengthened through architectural detailing and provision of a metal trellis canopy at its entrance. The trellis designs would continue the hotel s architectural theme. Staff believes that the architectural and design enhancements have improved the character of the building and its connectivity to buildings located within and outside Courthouse Plaza. Provision of a porte-cochere at the hotel s entrance on Adams Street. In response to citizen concerns for potential illegal u-turns on North Adams Street (southbound direction), staff and the applicant were requested to reconsider provision of a portecochere drive adjacent to the hotel s lobby entrance on the North Adams Street. As illustrated in Attachment 1, provision of a porte-cochere drive would adversely impact the interior plaza contiguous to the east of the hotel and the streetscape on North Adams Street. It would require the hotel lobby to be reconfigured and extend out into the plaza due to the relocation of approximately 3,200 square feet of lobby space. This would result in the loss of an equal amount of plaza space and a portion of the water feature. The visual connection that is now proposed from the plaza to Adams Street would also be Courthouse Plaza Hotel - 10 -
eliminated. The porte-cochere drive would have two (2) driveway entrances that cross the public sidewalk on Adams Street, resulting in significant pedestrian/vehicular conflicts, as well as the loss of several on-street parking spaces. The hotel would operate as an extended-stay hotel, which by its very nature has a lower daily room turn-over rate compared to conventional hotels. The applicant has found that with its other urban extended-day hotels in the Washington, DC area, 75% of their business is from repeat customers who become familiar with the immediate area street network, hotel parking garage and hotel access points, after their initial stay at the hotel. The applicant s traffic consultant has provided traffic counts and researched similar use hotels in the area. It has determined that, based on this hotel s proximity to Metro, it would generate approximately 13 vehicle trips per day that would potentially make u- turns to access a porte-cochere for check-ins and check-outs. At an estimated 28 arrivals per day, 40% of the guests would arrive by personal or rental cars (12 arrival trips). If 75% of the customers are return guests, then approximately 25% could potentially make the mistake of turning onto N. Adams Street from the north and making a u-turn (3 trips). An estimated 13 taxi pick-ups and drop-offs may occur each day at the hotel. Of the 13 taxi trips, it is estimated that 50% would be pick-ups ordered from the hotel front desk to the Red Top taxi stand on North Courthouse Road. These taxis would arrive on the proper side of North Adams Street and would not require a u-turn. This leaves a potential of seven (7) taxi trips that could make a u-turn on North Adams Street, which would most likely be less since taxis will have local knowledge of the area. According to Virginia State traffic laws, u-turns may only take place in intersections unless posted otherwise. If a hotel guest or taxi were to make a u-turn, it could be accomplished at the intersection of North Adams Street and 14th Street North. Given the estimated low number of vehicle trips to the site, and the lower estimate for potential u-turns, staff does not believe that a porte-cochere drive is warranted. To address the potential for and discourage illegal u-turns on N. Adams Street, staff recommends that the applicant develop a parking and loading management plan that would include an advertising and marketing plan providing specific directions to the hotel from the various approaches (Condition #82). Finally, staff would consider adding signage on N. Adams Street to prohibit illegal u-turns and would study the provision of a four-way stop at the intersection of North Adams and 14 th Streets. Neighborhood-designated tree. A 28-inch diameter at breast height (dbh) White Oak tree is located on the south property line adjacent to 14 th Street. The applicant has proposed to remove the tree, which has a tree replacement value of four (4) 4-4 ½ inch caliper trees according to the County s Tree Replacement Guidelines. This particular tree was designated a Neighborhood Tree by the Notable Tree Committee of the Beautification Committee of Arlington County in 2004. While trees designated by the Notable Tree Committee are not afforded the same protection as trees designated by the County Board under the County s Tree Preservation Ordinance, the potential of preserving this mature shade tree has been identified as an issue. Staff was requested to determine if the tree could be preserved. Courthouse Plaza Hotel - 11 -
The attached report prepared by the applicant s arborist, Zimar and Associates, Inc., (Attachment 2) indicates that the tree is very stressed, growing very slowly, and has a health condition rating of 60%. There are significant factors impacting the tree s condition, including decay, severe root zone disturbance, compaction, and fill around the tree s trunk. The report indicates that stress expressed in the tree s slow growth, thin crown and extensive sprouting from dormant buds is likely caused by very poor site conditions (rutting in the turf within 20 feet of the tree and poor turf condition) and impacts from previous construction around the tree, including road improvements. The report concluded that future development (including building, streetscape and road construction) adjacent to the tree would further impact its health, and recommended against any modifications to the proposed site design to preserve the tree because of the high risk of the tree failing whether or not such modifications are made. Staff concurs with the consultant s findings on the health of the tree and that future construction activity adjacent to the tree would contribute to its further decline. To preserve the tree an undisturbed critical root zone with a 28 foot radius would be required. The existing condition to the north of the tree s trunk would need to be undisturbed. No grading, excavation, fill or planting is advised in order to minimize adverse impacts to the root system and provide the best scenario for preservation of the tree. The sidewalk would have to be constructed south of the tree where pavement already exists to allow the least impact on the tree. However, this would compromise the streetscape along 14 th Street. The sidewalk would be constructed adjacent to the back of curb at a width of eight to ten feet and sharply transition to the proposed streetscape treatment (15-foot wide sidewalk with 5-foot wide tree pits located adjacent to the back of curb) along the balance of the site s frontage. The planting beds along the face of the building and the improvements for curb and gutter, sidewalk and street will require filling and/or grading and excavation. This would be in stark contrast to the undisturbed critical root zone required to preserve the tree. Two options for preservation of the tree are illustrated in Attachments 3A,B,C and 4A,B. Attachments 3A,B,C illustrate the optimal conditions for preserving the tree, which includes a 12-foot grass area contiguous to the south of the tree in order to protect the entire root system and sidewalk beyond. This option would require that the curb extend further into the street, potentially resulting in the loss of 15 on-street parking spaces on the south side of 14 th Street. Attachments 4A,B illustrate an option to preserve the tree as well as the on-street parking spaces on the south side of 14 th Street. This option includes a 5-foot wide grass strip contiguous to the south of the tree and sidewalk beyond. With both options, WalkArlington staff indicate that pedestrians will most likely use the straightest travel route and the tendency will be to travel across the tree s root berm on the north side of the tree, causing additional impacts on the tree s already stressed root system. Preservation of the tree would also result in the loss of six (6) parking spaces in the below-grade garage structure, three (3) spaces on each of the P1 and P2 levels, at an estimated total value of $270,000 ($45,000 per space for hard and soft costs). Even with the implementation of the preservation measures described above, existing stress on the tree will be exacerbated by the construction activity and the probability of its long term Courthouse Plaza Hotel - 12 -
survival beyond five (5) years after completion of construction would be questionable. For the reasons described above, staff does not recommend that extensive efforts be made for the tree to be preserved. The proposal would continue the streetscape treatment that currently exists on the east end of the block, including continuation of the existing improved curb alignment, installation of Northern Red Oak street trees adjacent to the back of curb, provision of a second staggered row of Northern Red Oak street trees and abundant landscaping in a landscape strip adjacent to the building, and construction of a 15-foot wide sidewalk with a minimum 10-foot clear sidewalk width (Attachment 5A,B). Under optimal planting conditions, the Northern Red Oak tree could reach a height of 60 to 80 feet, with a canopy width of 45 to 65 feet. A total of 12 Northern Red Oaks would be planted in the streetscape and landscape area along the site frontage on 14 th Street. Due to the number of trees, more canopy would be provided than the existing single subject tree. A number of trees existing on the site would also be required to be replaced. The applicant s preliminary tree replacement plan shows 43 tree replacements, including the four (4) tree replacements required of the subject White Oak tree. When replacing trees, County policy is to maximize the tree canopy as much as possible given the site conditions. County staff will review the final tree replacement calculations and tree replacement plan to ensure that they reflect the policies outlined in the Arlington County Tree Replacement Guidelines (Condition #3.c). The County also is committed to preserving the two (2) very mature, healthy oak trees located on the east end of Courthouse Plaza adjacent to the surface parking lot. When the east end is redeveloped, significant measures will be required and undertaken to preserve the trees. Green roof application. The applicant was requested to consider a green roof on the building s one- and five-story wings. The previous proposal included a green roof on 50 percent of the roof surface of the five story wing. The project has been redesigned to increase the green roof application on the five story wing to 100 percent of the roof surface. The applicant considered the green roof application on the one story roof, but its analysis found that it would present certain technical challenges. The tower would continue to have an Energy Star roof and the roof of the one story wing would have a decorative parterre/paver treatment. LEED requires that 75% of the building s roof surfaces meet the standards of Credit 7.2, Landscape and Exterior Design to Reduce Heat Islands, Roof. If the proposed treatments do not cover 75% of the building s roof surfaces, then the applicant would expand the vegetated green roof treatment on the five story wing to the adjacent one story roof of the retail/food service space. In addition to providing LEED-compliant roof surface treatments, the applicant has agreed to install Energy Star appliances and fixtures in the hotel s common spaces and individual rooms, and implement a green hotel management program, such as Green Planet, as a part of its housekeeping services. These provisions are outlined in Condition #66 of the staff report. Concept for signage. The applicant was requested to provide the County Board with concepts on the type and location of building identification signage. Condition #47 requires that any revisions to the approved Courthouse Plaza comprehensive sign plan, Courthouse Plaza Hotel - 13 -
including new exterior signs associated with the hotel and retail uses approved as a part of this site plan, must be approved by the County Board. Images of the development show concepts for hotel identification signage no higher on the building than 35 feet. The hotel signs would be located on the canopies at the lobby entrances and on the building adjacent to North Adams Street. The final locations and designs of the signage will be provided as part of the revised Courthouse Plaza comprehensive sign plan. Parking. Staff was requested to analyze two issues relative to parking: 1) the proposed modification of use regulation to reduce the required hotel parking ratio from.7 space per room to.5 space per room; and 2) potential construction of an additional 184 parking spaces on the P3 and P4 levels. Staff supports the request to reduce the parking ratio to.5 space per room, which is discussed below in the Modification of Use Regulations section of the report. In June 1996, the County s parking consultant, DESMAN Associates, prepared a study of the parking space opportunities, development activities, and supply/demand relationships in the Courthouse Plaza area. In January 2006, DESMAN updated the study to include commercial projects developed after 1996, including Colonial Place 3 (1999), Courthouse Towers (2001) and the Navy League building (2005), as well as planned developments including Courthouse Hotel, Courthouse Square and the Landmark site. DESMAN concluded that there would be sufficient capacity to absorb the potential loss of the 178-space surface lot and 50 spaces under Court Square West during construction. This would require the County to coordinate with local private sector parking operators and to be proactive in absorbing new and displaced parking activities. Courthouse Plaza currently has 1,612 parking spaces in four (4) levels of below grade garage, including 175 spaces available to the general public. The proposed hotel development would provide 92 additional public parking spaces, in addition to 88 spaces reserved for the hotel. DESMAN was requested to comment on whether the County should pursue development of additional publicly available parking beneath the proposed hotel on the P3 and P4 garage levels. Some of the comments made by DESMAN include the following: o Current/projected public parking demand surplus conditions. Field surveys conducted by DESMAN indicated that there are 1,471 off-street and 128 on-street publicly available parking spaces in the Courthouse area. Parking occupancy surveys conducted by DESMAN during a weekday indicated that only 85% of the off-street and 66% of the on-street publicly available parking spaces were occupied during the peak period of use. This nets a surplus of 265 publicly available parking spaces. This suggests that Courthouse Plaza s current parking demands are being met. o Efficiency and convenience of additional below grade parking. The DESMAN study indicated that the path or route to the P3 and P4 parking levels under the proposed hotel will be challenging and less desirable to short-term visitors because of design inefficiencies in the existing garage and their general inconvenience. Courthouse Plaza Hotel - 14 -
o Construction and operating cost estimates. In order to construct the P3 and P4 levels of below-grade parking, preliminary estimates indicate an investment of $8.3 million, or $45,000 per space, would be required. The costs are higher than normal because of the confined nature of the site, the location of the WMATA tunnel which requires extensive monitoring, and the likely need for costly and significant de-watering systems due to the high water table. Offsetting these higher costs is a $200,000 credit associated with the site s partial excavation. Given the less than desirable location of the spaces, the estimated operating and maintenance cost of $720 per space per year will most likely not be recouped. o Relationship of parking on the hotel site (west end) to public parking on the surface lot (east end). With the potential for a maximum of 661,000 square feet of commercial development on the east end (Courthouse Square and Landmark sites), a total of 1,140 parking spaces would be required based on a parking ratio of one (1) space per 580 square feet. The number of parking spaces that could be constructed on the Courthouse Square site, when adjacent sidewalks are incorporated, could be upwards of 1,220 spaces located in four levels of below grade garage. However, the number of parking spaces would be reduced to 1,009 spaces in order to preserve the two existing mature trees located adjacent to the surface lot. On the Landmark site, approximately 230 spaces could be constructed in two levels of below grade garage. With preservation of the two trees, the parking capacity that would be available to meet the parking requirement for commercial development at the east end would total 1,239 spaces, or 99 spaces over the parking requirement. This does not include the construction of additional parking spaces beneath the Court Square West site or on adjacent streets. DESMAN was requested to comment on whether additional parking beneath the hotel would be needed to address the loss of the 178-space public surface lot on the east end during construction. During construction of the east end, as many as 228 existing parking spaces, including 178 spaces in the surface lot and 50 spaces in Court Square West, may be eliminated. This loss can be accommodated by the net increase in local inventory from the projected availability of public parking in the new Navy League building and the 92 new public parking spaces to be created on the hotel site. Moreover, it may be possible to phase future construction to reduce the potential shortfall to as little as 50 spaces during construction on the Court Square West site, or 86 spaces during construction on the surface lot. Based on the applicant s operating history, there could be as many as 35 parking spaces available to the public in the hotel parking inventory (Attachment 6, Wells and Associates memo). Assuming an 85% peak usage of existing and future publicly available on- and off-street parking spaces in the Courthouse area, as many as 400 spaces may be available to address any potential shortfall. Modification of Use Regulations: The applicant has requested a modification of use regulations to allow a reduction in the hotel parking ratio, and to exclude from the density calculation gross floor area associated with hotel storage, mechanical and back of house spaces located on the Courthouse Plaza Hotel - 15 -
garage levels. The County Board has previously approved a reduction in the hotel parking ratio to.5 space per room for hotels located on top of or in close proximity to Metro Stations; i.e., the Westin at Arlington Gateway in Ballston, Hilton Garden Inn near Courthouse Metro, and the Waterview hotel in Rosslyn. The applicant has submitted data on other Residence Inn hotels in the Washington, D.C. area, which demonstrate that parking occupancy ranged from.25 to.43 space per room (Attachment 6, Wells and Associates memo). The difference between.7 and.5 space per room is 35 spaces. The cost of the additional spaces is $1,600,000. There are no incremental revenues associated with these spaces based on the applicant s operating history. Assuming this data would be typical and applicable to the Courthouse Plaza hotel, which is connected to Metro through the existing development and is also supported by existing shared office and public parking that would be increased through this proposal, the proposed parking ratio should be adequate to serve the hotel. The applicant has requested that garage level storage (700 square feet), hotel back-of-house (2,600 square feet) and mechanical rooms be excluded from the density calculations. Mechanical rooms for electrical and utility purposes are typically excluded from the density calculations because these uses are usually located on the garage levels. The County Board has previously excluded below-grade storage and hotel back-of-house areas from the density calculations in other approved site plans. Staff supports this request because they do not add to the bulk and mass of the building. Community Process: Public meetings that were held on this proposal are listed below. In addition, the developer attended a minimum of three (3) civic association and homeowners association meetings. Pre-Filing and Post-Filing Citizen Meetings: Four (4) meetings were held in December, 2004; March, 2005; July, 2005; and, on February 1, 2006. Site Plan Review Committee: Four (4) meetings were held on September 22, 2005; October 17, 2005; November 3, 2005; and, November 14, 2005. Planning Commission: At its carry-over meeting on February 15, 2006, the Planning Commission voted to approve the proposed site plan amendment, and recommended that the applicant consider the architectural refinements expressed by Commissioner Foster, consider LEED certification from the US Green Building Council, and amend the language in Condition #31 to require the developer to notify the Clarendon Courthouse Civic Association (CCCA) of plans to provide an alternative window treatment along the retail s 14 th Street elevation in order to locate back of house functions adjacent to that frontage. Staff concurs with the Commission and has amended Condition #31 to require notification to the CCCA on potential future plans to alter the window treatment on both the 14 th Street and Adams Street retail and restaurant frontages. Transportation Commission: At its meeting on December 6, 2005, the Transportation Commission voted to defer the proposal to the January 5 and 21, 2006 Transportation Courthouse Plaza Hotel - 16 -