TABLE OF CONTENTS Introduction... 6-11 Plan Overview... 6-19 Performance and Development Standards... 6-27 Design Guidelines... 6-33 6-9
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INTRODUCTION This chapter presents an overview of the mixeduse Entertainment and Sports Center Planned Unit Development (ESC-PUD) site and also describes the overall vision and goals of the ESC-PUD, the purpose and organization of this document, and the administration and implementation of the ESC- PUD in cooperation with the Special Planning District (ESC-SPD) zoning designation. PROJECT LOCATION The ESC-PUD site is located in downtown Sacramento, which is a major transportation hub, government and employment center; cultural, recreation, and entertainment center; and, increasingly, a place where people live. The city is bisected by several major interstate and state highways, including Interstate 5 (I-5), which traverses the state north- south; Interstate 80 (I-80), which provides an east-west connection between San Francisco and Reno; U.S. Highway 50, which provides an east-west connection between Sacramento and South Lake Tahoe, and State Route 99, which traverses north-south through the Central Valley. Refer to Figure 1, Regional Context. The ESC-PUD site is generally bound by 3rd Street on the west, J Street on the north, 7th Street on the east, and borders the Entertainment and Sports Center (ESC) site on the south (refer to Figure 2, ESC-PUD Site Location). EXISTING CONDITIONS The site is comprised of several existing parcels on approximately 8.35 acres of land, primarily located on the northern three blocks of the six block Downtown Plaza area. A pedestrian walkway is located along its southern boundary, between 4th and 5th Street and continues through and connects with the ESC property. The Travelers Building (southwest corner of 5th and J Streets), and the Ramona Building, restored as the Church of Scientology (at the southeast corner of 6th and J Streets) are not part of the ESC-PUD. The existing Macy s property is also excluded from the ESC-PUD site. 1 Of the streets surrounding the ESC-PUD site, 4th and 6th Streets were previously abandoned and no longer function as City streets. 5th Street, between J and L Streets, passes below grade and under the developed uses on K Street. K Street is a pedestrian-only public space. K Street connects the ESC-PUD with Old Sacramento to the west and the K Street Mall (the Kay ) to the east. West of 4th Street, K Street descends below grade under 3rd Street and Interstate 5 and returns to street grade where K Street intersects 2nd Street in Old Sacramento. 1 Referred to as Macy s West to distinguish the original Macy s property at the west end of Downtown Plaza from the former Weinstock s department store at the east end that Macy s occupied but subsequently vacated in October 2013. 6-13
Figure 1: Regional Context The CBD includes a mixture of retail, office, governmental, entertainment and visitor-serving uses, built on a formal framework of streets and park spaces laid out for the original Sutter Land Grant in the 1840s. The vision for the CBD is a vibrant downtown core that will continue to serve as the business, governmental, retail, and entertainment center for the city and the region. A significant element in the future CBD includes new residential uses. Increasing the residential population will add vitality to the CBD by extending the hours of activity and the built-in market for retail, services, and entertainment. Existing entrance to Downtown Plaza from K St. 6-14
Downtown Plaza comprises a number of retail and office buildings, including the Downtown Plaza theater, the adjacent food court, 24 Hour Fitness, an array of small in-line retail and restaurant spaces, and the office buildings along L Street and J Street. The Macy s West store is under separate ownership. As described in Table 2-1, Downtown Plaza currently contains approximately 1,190,443 total square feet (s.f.) of retail/commercial and office space, including the 332,500 s.f. Macy s building, not proposed as part of the proposed project. Several buildings that are currently located within the contiguous property, bound by 3 rd, 7 th, J, and L Streets are not part of the proposed project and would remain unchanged. In addition to the Macy s West building, these properties include the California Fruit Building (at 4 th and J Street), the Traveler s Hotel (428 J Street), the Ramona Hotel (1007 6th Street), the 630 K Street Office Building, Hotel Marshall (1122 7 th Street), the Jade, Navin s Custom Clothiers (324 K Street), the Holiday Inn Sacramento Capitol Plaza (300 J Street) and the proposed ESC located immediately south of the ESC-PUD area. Existing interior public plaza/access Existing tunnel-bridge over 5 th St. Existing view of Downtown Plaza property from J St. 6-15
Figure 2: ESC-PUD Site Location 6-16
PROJECT PURPOSE AND OBJECTIVES The ESC-PUD site proposes a mixed-use development that focuses on a specific mix of uses that will work in a coordinated fashion with the ESC immediately to the south The proposed uses will be regulated pursuant to the ESC-SPD, as established in Chapter 17.442 of the Planning and Development Code, which will establish use and process procedures for development in the site. The following are project objectives for development within the ESC-PUD site: Develop up to 1.5 million square feet of mixed-use development (office, hotel, retail, and residential). Develop property in a manner to respond to the unique site conditions and adjacency to the ESC. Chapter 3: Performance and Development Standards includes new development standards specific to the ESC-PUD site and references to the Planning and Development Code for all other standards that will apply. Chapter 4: Design Guidelines outlines all the design guidelines specific to the ESC-PUD site and cite reference to other guidelines in the Central City Urban Design Guidelines that will apply. Chapter 5: Signage includes guidance regarding signs that will be allowed within the ESC-PUD site. ADMINISTRATION Uses within the ESC-PUD site will be regulated by the requirements of Chapter 17.442, Entertainment and Sports Center Special Planning District, in the Planning and Development Code. Ensure on-site architectural design themes are compatible with the surrounding City of Sacramento properties. Support mixed-use development to encourage public transportation use, nonvehicular modes of transportation, and reduce on-site parking needs. Provide a mix of uses that encourage 24- hour activities to liven up the streetscape, and incorporated uses. ORGANIZATION OF THE DOCUMENT This ESC-PUD document has been organized into the following chapters: Chapter 1: Introduction describes an overview of the ESC-PUD site location, existing conditions, project purpose and objectives, and how the ESC- PUD will be regulated. Chapter 2: Plan Overview describes the project plans design concept, framework, permitted uses and development phasing. 6-17
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PLAN OVERVIEW This chapter describes the project plan s design concept, land use and circulation framework, potential development phasing, and contemplated uses in the ESC-PUD site. DESIGN PRINCIPLES The following design principles were considered to develop the schematic land use map, development standards and design guidelines for the ESC-PUD site: 1. Regional Visibility: The ESC-PUD site will be adjoining the future Entertainment and Sports Center (ESC) building and therefore has prime visibility in accentuating a regional destination through appropriate architectural design. 2. Location Efficiency: The ESC-PUD site is ideally located within the City s Central Business District (CBD) and benefits from easy multimodal access to freeways, public transit ways (including Amtrak, light rail and regional transit bus ways) and compatible surrounding land uses. DESIGN FRAMEWORK The following pages include diagrams that create the design framework for the Schematic Land Use Map for the ESC-PUD site. Land use framework is guided by zoning classifications. The design framework utilizes the City s Central City Urban Design Guidelines and develops them to respond to the unique role and position of the ESC-PUD properties. The circulation framework is guided by the existing road network and access to public transit. The public-private realm diagram, below, explains how the public and private realm is defined in this document and set the basis for the areas that will be addressed in the Design Guidelines chapter. Plazas and interior common open spaces (not shown in the diagram below) shall be addressed within the public realm. 3. Cultural Significance: An appropriate mix of uses within the ESC-PUD site would help to create a 24-hour activity node at a primary entryway to the City s downtown. 4. Architectural Response: The architectural scale and massing of buildings within the ESC- PUD site should respond both to the character of surrounding Downtown buildings, along with the contemporary design, and massing of the future adjacent ESC building. Figure 3: Public-Private Realm Diagram 6-21
Figure 4: Land Use Framework 6-22
Figure 5: Circulation Framework 6-23
LAND USE DEVELOPMENT The properties within the ESC-PUD area provide unique development opportunities to integrate and connect with the neighboring ESC and surrounding urban fabric. The ESC-PUD site is generally organized as 3 development areas, named A, B and C; each of which may be subdivided into one or more parcels. The project is planned to be phased although not necessarily in the sequence suggested by the names. The following is a description of a potential land use program for the ESC-PUD site. Refer also to Figure 6, Schematic Land Use Map. Retail/Commercial Retail/commercial uses would largely be constructed on the first floor of buildings on the site. Retail/commercial uses would include retail stores, theaters, fitness or athletic centers, restaurants, nightclubs, and other similar uses, as per Section 17.442.040 of the ESC-SPD chapter. Up to approximately 350,000 square feet of retail/commercial uses would be developed within the ESC-PUD area. Office The ESC-PUD site would include up to approximately 475,000 square feet of office space. The ESC-PUD will not prescribe where on the site the office space will be developed, nor any minimum amount of office space to be built, but it is currently anticipated that the office space built as part of the project would largely be constructed in one or more buildings located generally in the northern portion of the site, along J Street. Hotel The ESC-PUD site would include up to approximately 250 hotel rooms. The hotel would include space for lobbies, meeting rooms, in-hotel retail and restaurants, and other support uses. The ESC-PUD will not prescribe the specific location or configuration of the hotel uses, but it is currently anticipated that the hotel would be part of the larger development. One possible configuration would be for the hotel entrance to be located along J Street with some below-grade parking and reception area on the first floor. Second floor uses could include meeting rooms and other complementary uses such as in-hotel retail and restaurant, business center, and hotel offices. Hotel rooms would potentially be located on upper floors. The hotel may also include an outdoor swimming pool and associated open space. Residential The ESC-PUD site will include construction of up to 550 multi-family residential units, likely in two or more towers on the site. The proposed ESC-PUD does not prescribe the unit types or sizes. Like other uses within the development, the residential uses would be designed and built to meet market conditions. At this time, one- and two-bedroom units are anticipated. It is also anticipated that the total residential square footage would be approximately 500,000 square feet, including residential units, common area, and mechanical and other support spaces. Open Space Areas The ESC-PUD site would include plazas, pedestrian circulation, and other open spaces that would be designed to seamlessly integrate with the plazas and courtyards of the adjacent ESC building site. Over time, the development of mixed-use buildings in the ESC-PUD site could alter the open space that currently exists west of 5 th Street between Macy s and the Downtown Plaza cinemas. Common open space plazas may accommodate pedestrian flow and access to the ESC building, and surrounding retail/commercial and other mixed uses. Open space areas would be activated by retail and restaurant storefronts, sidewalk cafes, retail kiosks, and small scale performance venues. It is anticipated that these areas could be occasionally used for small outdoor concerts, cultural performances or other community activities. The ESC-PUD area plazas and open spaces would be comprised of hardscape and landscaped areas. USES Refer to section 17.442.040 Uses, in the Planning and Development Code for permitted and conditional uses allowed within the ESC-PUD site. 6-24
Figure 6: Schematic Land Use Map 6-25
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PERFORMANCE AND DEVELOPMENT STANDARDS This chapter includes the development standards that will guide the ESC-PUD design and development. The following development standards build off of the City s Planning and Development Code, and adjust them to facilitate the goals and objectives of the ESC-PUD. In general, the standards set forth under Article VIII. C-3 Zone Central Business District Zone (Planning and Development Code, Section 17.216.800 17.216.880) and the Central City Urban Design Guidelines apply, except as modified herein and by the ESC-SPD. RATIONALE Pursuant to the requirements of Chapter 17.442 Entertainment and Sports Center Special Planning District (ESC-SPD), in the City of Sacramento s Planning and Development Code, the development standards that are specific to the site have been cited in the sections below. BUILDING SITING Purpose: The intent of building siting standards is to provide guidance on lot coverage, setbacks and tower stepbacks. Standards: Refer to Section 17.216.840 C-3 zone (Lot size, width, and depth) and 17.216.850 C-3 zone (Setbacks and stepbacks), in City of Sacramento s Planning and Development Code for all standards and definitions that apply, except as recommended below and shown in Figure 7, Building Footprint Diagram: Interior Side and Rear Setbacks: There is no minimum interior side or rear setback requirement. However, a clear-zone determined through the Site Plan and Design Review process for pedestrian access shall be maintained along the eastwest axis of the rear lot line. 6-29 Rear Tower Setbacks: The maximum rear tower setback for residential, commercial and mixed-use towers will be 10 feet from the rear lot line. If the rear lot line is adjacent to an alley, the setback is measured to the centerline of the alley. All other requirements under Section 17.218.840 and 17.216.850 apply.
Figure 7: Building Footprint Diagram 6-30
BUILDING MASSING AND SCALE Purpose: The intent of building massing and scale standards is to provide guidance on building height, development intensity and building separation requirements to accommodate proposed development while creating an interesting urban skyline, and a variety of indoor and outdoor spaces with sufficient solar and wind access. Standards: Refer to Section 17.216.830 C-3 zone (Height, density, lot coverage, and floor area ratios) and Section 17.216.850 C-3 zone (Setbacks and stepbacks), in the City of Sacramento s Planning and Development Code for all standards and definitions that apply, except residential density standards established in ESCSPD and definition of building base as below: The provision of small public spaces serving residents and patrons is encouraged. Building base and street wall shall refer to the first 85 feet of building height, which has been increased to generally match the higher building height of adjacent ESC and maintain a street height consistency in the block. SMALL PUBLIC SPACES Purpose: The intent of small public spaces standards is to provide guidance on outdoor areas, plazas and courtyards requirements to create onsite outdoor spaces for residents and visitors. Standards: Refer to Section 17.600.135 (Open Space for multi-unit dwellings), in the City of Sacramento s Planning and Development Code for all standards and definitions that apply. 6-31
ON-SITE CIRCULATION, LOADING AREAS AND PARKING Purpose: The intent of on-site circulation standards is to provide guidance on loading areas and non-vehicular areas to promote efficient circulation for all types of transportation modes. Standards: Refer to Section 17.608 (Parking), Section 17.616 Recycling and Solid Waste Disposal Regulations in the City of Sacramento s Planning and Development Code for all standards and definitions that apply. LANDSCAPING AND PAVING Purpose: The intent of landscaping and paving standards is to provide guidance on paving, lighting, planting and irrigation, and maintenance to promote well-maintained and well-lit landscaped and paved areas. Standards: Refer to Section 17.612 (Landscaping and Paving Regulations) and Section 17.620 (Wall, Fence and Gate Regulations) in the City of Sacramento s Planning and Development Code for all standards and definitions that apply. Landscaping in the PUD shall be well maintained and lit. 6-32
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DESIGN GUIDELINES This chapter includes the design guidelines that will guide design and development within the ESC-PUD site. The following design guidelines build off of the City s Central City Urban Design Guidelines, and adjust them to facilitate the goals and objectives of the ESC-PUD. In general, the design guidelines set forth in the Central City Urban Design Guidelines, Chapter 3-Public Realm and Chapter 4-Private Realm apply, except as modified herein and by the ESC-SPD. RATIONALE Pursuant to the requirements of Chapter 17.442 Entertainment and Sports Center Special Planning District (ESC-SPD), in the Planning and Development Code of the City, the design guidelines that are specific to the ESC-PUD site have been cited in the sections below. DG 1: PUBLIC REALM Purpose: The intent of public realm guidelines is to provide design criteria for how the public areas (including streets, alleys, outdoor plazas, open space, and sidewalks) within the site should be developed in a manner to enhance user experience and create a vibrant streetscape. Refer to the Central City Urban Design Guidelines, Chapter 3 Public Realm for design guidance, along with additional guidelines as highlighted in the subsections below. Where design guidelines in the subsections below contradict guidelines in the Central City Urban Design Guidelines, the guidelines noted below will supersede. DG 1.1 Streets and Intersections Refer to design guidelines in Chapter 3: Public Realm, Section 3.B.1 (Street Types) of the Central City Urban Design Guidelines for design guidelines that apply along with the ones cited below. 6-35 Corridor Streets : J and 5th Streets are considered corridor streets that serve as arterials through downtown Sacramento that are intended to provide efficient circulation and connect freeways and regional highways. J Street abuts the northern boundary of the site. 5th Street dips down below the surrounding streets and a pedestrian bridge over 5th Street connects the eastern parcels and western parcels of Downtown Plaza. One-way Transit Street : 7th Street along the eastern edge of the site is considered a one-way transit street. Guidelines: Tall street trees with wide canopies should be planted at regular intervals, where feasible, to provide adequate shade along the sidewalk. DG1.1. Neighborhood Retail Street : 4th and 6th Streets provide vehicular access from the northern edge of the site but are not through streets. Guidelines: 4th Street right-of-way may be adjusted to increase the available site for the potential expansion of the cinema/theater. DG1.2. On-Site Alleys (Future): On-site alleys may be designed for access to emergency vehicles, loading and service areas. Guidelines: On-site alleys should be designed with no more than 28-foot right-of-way. DG1.3. Refer to Central City Urban Design Guidelines, Chapter 3, and Section B Alleys: Shared-Use Alleys for recommended design guidelines. DG1.4.
Sidewalks and Building Interface Area Street Furnishings and Amenities The quality of sidewalks including width, paving, and its maintenance lend to a comfortable and pedestrian experience in an urban environment and is critical to providing a complimentary interface with the ESC and the surrounding plaza. Refer to design guidelines in Chapter 3: Public Realm, Section 3.C.1 (Sidewalks) and Section 3.C.2 (Functional Zones) of the Central City Urban Design Guidelines for design guidelines that apply along with the ones cited below. High-quality and durable street furnishings and amenities (such as bicycle racks, transit stops, street lighting, drinking fountains, wayfinding signage, kiosks and restrooms, seating, bollards, trash and recycling receptacles, and tree grates) are important in creating the look and feel of public spaces and streetscapes. Refer to design guidelines in Chapter 3: Public Realm, Section 3.C.3 (Street Furnishings and Amenities) of the Central City Urban Design Guidelines for design guidelines that apply along with the ones cited below. Guidelines: Guidelines: Sidewalks should be at least 10 feet wide, if abutting outdoor seating areas, with a minimum 6-foot clear zone for pedestrians at all times. DG1.7. Sidewalk paving material, for streets surrounding the ESC-PUD site, should be chosen in a manner to create a distinctive identity for the block, reduce urban heat island effect, and provide stormwater management. DG1.8. DG1.5. DG1.6. The design and specifications of street furnishings and amenities on the ESC-PUD and ESC building should be coordinated to create a uniform and attractive look for the whole block. On-street bicycle racks may be integrated in the design of the amenity zone on all streets surrounding the site, especially within clear visibility of pedestrian-oriented daytime ground floor retail uses. Bus-pull out areas should be integrated within the design of the pedestrian zone at suitable locations determined during Site Plan and Design Review process. DG1.9. DG1.10. Street lighting should consider having fixtures at two different levels to address adequate lighting on both pedestrian realm and travelway realm, while reducing glare into the adjoining buildings. Provide generous sidewalk spaces to serve pedestrian needs/uses. DG1.11. Outdoor plazas for large gathering of people should consider installation of drinking fountains, and public restrooms near seating areas. 6-36
Landscaping On-street and on-site landscaping with canopy trees and climate appropriate plants will help to complement the paved urbanscape, create comfortable pedestrian environment and reduce urban heat island effect. Refer to design guidelines in Chapter 3: Public Realm, Section 3.D (Landscape) of the Central City Urban Design Guidelines for design guidelines that apply along with the ones cited below. Guidelines: Guidelines: DG1.13. Small public spaces and outdoor seating areas should be integrated within pedestrian zones to encourage attractive street-level uses and punctuations along the building face. DG1.14. A public space/entry corridor from the northern edge (along J Street, between 5th and 6th Street) of the ESC-PUD site to the ESC building should be provided. a This public space/entry corridor should serve as a northerly connection to the ESC plaza and should be designed as a common open space, shared by both mixed-use buildings and the ESC building. The public space may also provide loading access during off-peak hours and non-event times. b Limit street furnishings and amenities towards the edges of the right-of-way to preserve maximum clear zone for pedestrians and vehicles. c Provide adequate street lighting and security cameras to encourage public safety at all times. d Encourage street-level windows, active uses and façade articulation for buildings along the public space corridor to encourage eyes-on-street and create an interesting and dynamic pedestrian experience. DG1.12. Landscaping palette should be coordinated between the ESC-PUD and the ESC building to create a continuity and theme among plant species within the block. Public Spaces Careful location and attractive design of outdoor sitting areas, plazas and small public spaces help in promoting pedestrian activity. Refer to design guidelines in Chapter 3: Public Realm, Section 3.E (Small Public Places) and Chapter 4: Private Realm, Section 4.a (Open Space Small Public Spaces) of the Central City Urban Design Guidelines for design guidelines that apply along with the ones cited below. Public Art Refer to the design guidelines in Chapter 3: Public Realm, Section 3.F (Public Art) of the Central City Urban Design Guidelines, in addition to the ones cited below. Integrate outdoor seating areas and public space within the pedestrian zone along J and 7th Street. Guidelines: DG1.15. Coordinate and integrate public art design and location with the themes of the adjoining ESC building property. 6-37
DG 2: PRIVATE REALM Purpose: The intent of private realm guidelines is to provide design criteria for how the private areas associated with buildings (including types, bulk controls, façade treatment) within the site should be developed to create attractive building design that respond architecturally to the City s image as appropriate given the unique characteristics of the ESC-PUD area. Refer to the Central City Urban Design Guidelines, Chapter 4 Private Realm for design guidance, along with additional guidelines as highlighted in the sub-sections, below. Where Design Guidelines in the subsections, below, contradict with guidelines in the Central City Urban Design Guidelines, the guidelines noted below will supersede. Siting and Orientation The intent of siting and orientation guidelines is to provide design criteria for how the buildings should be setback in the ESC-PUD from the streets and alleys. Refer to design guidelines in Chapter 4: Private Realm, Section 4.B.1 through 4.B.7 of the Central City Urban Design Guidelines for all design guidelines that apply, in addition to the ones provided below. Guidelines: DG2.1. New buildings should be located on build-tolines with some breaks along the building base to break a monotonous wall surface. Locate buildings on build-to-lines with breaks along the building base. 6-38 DG2.2. Residential towers should be oriented in a manner to optimize solar, wind access, and units. DG2.3. Encourage access to building loading, utilities and services in the subterranean level to minimize visual impact at street level. Building Massing and Scale Building massing and scale guidelines describe how the street wall and building base height, tower separation, and height differentiation concepts should be integrated within the architectural design of the buildings. In additional to the guidelines provided below, refer to Residential High-rise and Commercial High-rise design guidelines under Chapter 4: Private Realm, Section C Building Types and Section D Massing and Building Configuration for all applicable design guidelines. Guidelines: DG2.4. Encourage a street-wall height of 85-foot for both residential high-rise and commercial highrise buildings. All bulk control standards described below will apply above the street-wall height. DG2.5. Above 85-foot height, there should be a 10% bulk reduction for the top 20% of residential, mixed use and commercial buildings.
Street wall heights should be no greater than 85 feet for residential or commercial frontages. DG2.6. For all types of buildings: a Maximum average tower floor plate will be 25,000 sq. ft. b No maximum plan dimension required c No maximum diagonal dimension required Building Façade Treatment Building façade guidelines provide design guidance regarding the ground level uses, building fenestration/transparency, materials, colors, and canopies/awnings. Refer to design guidelines in Chapter 4: Private Realm, Section 4.D.4 (subsections a through l) of the Central City Urban Design Guidelines for design guidelines that apply, in addition to the ones cited below. Articulate the street wall façade of residential and commercial buildings. Building Façade Lighting Refer to design guidelines in Chapter 4: Private Realm, Section 4.D.4.j of the Central City Urban Design Guidelines for design guidelines that apply, in addition to the one cited below. Guidelines: DG2.8. Building façade lighting may be used tastefully to create public art displays on surfaces. Guidelines: DG2.7. Façade articulation of street wall is encouraged with no more than 60 feet of unbroken length of façade in residential and commercial buildings. Building façade lighting may create public art. 6-39