CITY OF CHARLOTTESVILLE DEPARTMENT OF NEIGHBORHOOD DEVELOPMENT SERVICES STAFF REPORT TO THE ENTRANCE CORRIDOR REVIEW BOARD (ERB) ENTRANCE CORRIDOR CERTIFICATE OF APPROPROPRIATENESS DATE OF PLANNING COMMISSION MEETING: June 9, 2009 Project Name: Whole Foods Grocery Planner: Mary Joy Scala, AICP Applicant: S.J. Collins Enterprises, LLC Applicant s Representative: Dan Tucker Applicant s Relation to Owner: Project Manager Application Information Property Street Address: 1801 Hydraulic Road Owner: Peyton Associates Partnership (Ground lease owner is Meadowbrook Creek, LLC) Tax Map/Parcel #: Tax Map 41B Parcel 2 (Online Records: 41B002000) Total Square Footage/Acreage Site: 14.587 acres Comprehensive Plan (Land Use Plan) Designation: Commercial Current Zoning Classification: Highway Corridor Mixed Use with Entrance Corridor (EC) Overlay Entrance Corridor Overlay District: 34-307(a)(2) (Hydraulic Road) Current Usage: Vacant lot Applicant s Request Phase I included demolition of the Terrace Theater and a car wash. Phase II (construction of part of Hillsdale Drive at Hydraulic Road; landscaping improvements/ reconfigured parking at the existing K-Mart parking lot; and street trees along both Hydraulic Road and Hillsdale Drive) received preliminary site plan approval on July 22, 2008 from the Planning Commisssion, and a Certificate of Appropriateness from the ERB. On that same date, the preliminary site plan and EC submittals were approved for Phase III, a Whole Foods grocery store with parking garage fronting on Hydraulic Road. The applicant is now requesting an EC Certificate of Appropriateness for a revised, smaller, 40,000 SF Whole Foods grocery store fronting on Hydraulic Road, with surface parking lot for 242 cars in the rear. Previous Phase II approvals will remain in effect, and will be a condition of any Phase III approval. 1
Please refer to the Entrance Corridor plans dated May 14, 2009 with a Revised Service Road view that shows the large retaining wall; and a narrative from the applicant. The scale of the schematic plans and elevations in the booklet is 1/32 = one foot. The applicant has also submitted: Composite Landscape Plan, Site Plan, Grading Plan, Light Fixtures, photo examples of: a black vinyl coated chain link fence and timber guardrail combination above a modular retaining wall; trees planted at the base of a large retaining wall; a brown metal picket railng on a retaining wall; and a metal pipe handrail. Standard of Review The Planning Commission serves as the entrance corridor review board (ERB) responsible for administering the design review process in entrance corridor overlay districts. This development project requires a site plan, and therefore also requires a certificate of appropriateness from the ERB, pursuant to the provisions of 34-309(a)(3) of the City s Zoning Ordinance. The ERB shall act on an application within 60 days of the submittal date, and shall either approve, approve with conditions, or deny the application. Appeal would be to City Council. Standards for considering certificates of appropriateness: In conducting review of an application, the ERB must consider certain features and factors in determining the appropriateness of proposed construction, alteration, etc. of buildings or structures located within an entrance corridor overlay district. Following is a list of the standards set forth within 34-310 of the City Code: 34-310(1): Overall architectural design, form, and style of the subject building or structure, including, but not limited to: the height, mass and scale; Staff Analysis: The Highway Corridor allows a height of 80 feet (7 stories) by right. Required setbacks are 5 feet minimum; 30 feet maximum on Hydraulic Road; 5-20 feet on Hillsdale Drive. The height, mass and scale are appropriate for an urban structure in this location. The grocery store is one story high from Hillsdale Drive and the rear parking lot. The building becomes two stories at the low point on Hydraulic Road, with an office and utility space occupying part of the lower level. The southwest corner of the building at Hillsdale Drive and Hydraulic Road (pedestrian entrance) is approx. 24 feet tall from Hydraulic Road. The southeast corner of the building is approximately 35 feet high from Hydraulic Road. The main entrance to the grocery store that faces the parking is approx. 27 feet high. The side elevation facing towards Michie Drive includes a retaining wall along the exit ramp that varies in height from 1 ft at Hydraulic Road to 25 feet maximum near the drainage easement, to 5.5 feet at the rear corner, 6.5 feet in the rear, and 1.5 feet near Hillsdale Drive. This retaining 2
wall will include a safety barrier at the top (the parking lot will be higher than the abutting residential area) and will be visible from Hydraulic Road. The side elevation facing Hillsdale Drive includes a retaining wall with railing on top that separates the City sidewalk from the building and parking lot (the patio area and parking lot are lower than Hillsdale Drive). This retaining wall beside the store patio varies in height from 1 foot at the ends to 6 feet in the center. The retaining wall between Hillsdale Drive and the parking varies in height from 0 feet at the ends, to 6.9 feet at the front corner, to a maximum of 11.5 feet, to 7.4 feet and 5.4 feet at the rear corner, to 3.5 feet in the rear. 34-310(2): Exterior architectural details and features of the subject building or structure; Staff Analysis: The architectural design is compatible with the EC Corridor. The grocery store building is mostly brick, with a cultured stone base on the parking lot side, and split-face block foundation along Hydraulic Road. The main entrance features a large expanse of metal and glass storefront, cultured stone and wood columns, a wood trellis and standing seam metal canopies. There is an outdoor patio area on the Hillsdale Drive side. The Hydraulic Road elevation is articulated with two colors of brick (field and accent) that divide the façade into multiple bays. To engage the street, there is a storefront pedestrian entrance at the Hillsdale Drive intersection, and a (non-public) storefront at the lower end. Clerestory windows and recessed brick panels (thinner veneer of field brick) provide interest. On the side facing the exit ramp there are office windows and a service entrance. 34-310(3): Texture, materials and color of materials proposed for use on the subject building or structure; Staff Analysis: The building materials as shown are consistent with the guidelines and are appropriate for the Hydraulic Road Entrance Corridor. There is a color copy of the materials in the packet, but an actual materials board will be available at the ERB meeting, and should be examined. The proposed materials consist of: Roofs: Standing seam (galvanized color) metal roof on the canopies; transluscent insulated roof panels over the storefront bump-out; a flat roof (material not noted) is proposed on the grocery store. Mechanical screening: The applicant notes that most of the mechanical equipment will be located on the roof. The zoning ordinance requires that all mechanical equipment, whether on the ground or on a roof, is screened from view of any public right of way. This screening should be a condition of approval. 3
Walls: Brick veneer in two colors, field (red) and accent (light red), tan cultured stone that resembles local fieldstone, and tan split-faced block foundation. Windows, doors and storefronts: transparent glass in dark brown hollow metal storefront. Service doors are metal. Retaining Walls and Railings: The walls are tan block. Railings on top of the retaining wall along Hillside Drive are dark brown hollow metal with square vertical pickets. The safety barrier on top of the east side wall is proposed as black chain link fencing, supplemented with an timber automobile guardrail in places. The short length of hand rail at the pedestrian entrance on Hydraulic/Hillsdale is a metal pipe railing. (See photo examples of railing types). Paving areas: Public sidewalks and patio area will be scored concrete. The loading dock area will be concrete. The parking area will be asphalt paving. 34-310(4): Design and arrangement of buildings and structures on the subject site; Staff Analysis: The design and arrangement of the buildings on the site generally meet the guidelines. The street edges are defined with the building, with the depressed parking located behind. In contrast, K-Mart has a parking lot in front of the building. The service area is enclosed, and segregated as much as possible from the main vehicular flow. The applicant was asked to make the store interact as much as possible with Hydraulic Road. The result is a corner storefront entrance, clerestory windows, and office entrance. The building really puts its best front to the parking lot, with a welcoming patio area on Hillsdale Drive. The rear of the development is enclosed with a retaining wall that borders an adjoining residential property. Pedestrian access from those residences is anticipated to accur via the City sidewalks. Pedestrian circulation within the parking lot warrants discussion. The City Traffic Engineer has recommended against the car exit ramp, so that needs to be resolved before the site plan becomes final. 34-310(5): The extent to which the features and characteristics described within paragraphs (1)-(4),above, are architecturally compatible (or incompatible) with similar features and characteristics of other buildings and structures having frontage on the same EC street(s) as the subject property. Staff Analysis: The proposed development is generally compatible with other properties along Hydraulic Road, and will be a good addition to the corridor. The building materials as shown are consistent with the guidelines. The quality and appearance of building materials and their 4
compatibility and consistency with local building materials is important because this corridor is a gateway to the City s Downtown and University areas. 34-310(6): Provisions of the Entrance Corridor Design Guidelines. Relevant sections of the guidelines include: Section 1 (Introduction) The pertinent Entrance Corridor design principles are expanded below: Design For a Corridor Vision New building design should be compatible (in massing, scale, materials, colors) with other neighboring structures that contribute to the overall quality of the corridor. Existing developments should be encouraged to make upgrades consistent with the corridor vision. Site designs should contain some common elements to provide continuity along the corridor. New development, including franchise development, should complement the City s character and respect those qualities that distinguish the City s built environment. Preserve History Preserve historic buildings and distinctive architecture from earlier periods. Encourage new contemporary design that is respectful ofhistoric building design. Facilitate Pedestrian Access Encourage compact, walkable developments. Design pedestrian connections from sidewalk and car to buildings, between buildings, and between corridor properties and adjacent residential areas. Maintain Human Scale in Buildings and Spaces Consider the impact of building design, especially height, mass, complexity of form, and architectural details, and the impact of spaces created, on the people who will pass by, live, work, or shop there. The size, placement and number of doors, windows, portals and openings define human scale. Preserve and Enhance Natural Character Daylight streams, and retain mature trees and natural buffers. Work with topography to minimize grading and limit the introduction of impervious surfaces. Encourage plantings of diverse native species. Create a Sense of Place In corridors where substantial pedestrian activity occurs or is encouraged, or where mixed use and multi-building projects are proposed, one goal will be creating a sense of place. Building arrangements, uses, natural features, and landscaping should contribute, where feasible, to create exterior space where people can interact. Create an Inviting Public Realm Design inviting streetscapes and public spaces. Redevelopment of properties should enhance the existing streetscapes and create an engaging public realm. Create Restrained Communications Private signage and advertising should be harmonious and in scale with building elements and landscaping features. Mask the Utilitarian: Provide screening from adjacent properties and public view of: parking lots, outdoor storage and loading areas, refuse areas, mechanical and communication equipment, and other uses that have adverse impacts. Where feasible, relegate parking behind buildings. 5
Respect and Enhance Charlottesville s Character Architectural transplants from other locales, and shallow or artificial imitations of the Jeffersonian architectural style are examples of building designs that are neither appropriate nor desirable. Objectionable or incompatible aspects of franchise design or corporate signature buildings must be modified or customized to fit the character of this community. Staff Analysis: The proposal will meet the Design Principles. Section 2 (Streetscape) The previously approved (Preliminary) Phase II landscape plan includes 25 Red Maple and 13 White Oak street trees along Hydraulic Road and on both sides of Hillsdale Drive. The street trees are located between the City sidewalk and the curb to shield pedestrians from traffic. The interior parking lot landscaping at K-Mart includes 7 Village Green Zelcova trees. A hedge of inkberry holly (now cherry laurel) is also shown. The current plan shows along the building s Hyraulic Road frontage an additional landscaped area with deciduous and evergreen shrubs and 4 Sweetbay Magnolia. Staff Analysis: The streetscape proposal is well done. Section 3 (Site): Staff Analysis: The proposal appropriately brings the structure to the street. Pole lighting will meet the dark sky requirements. Signage, including three wall signs, is more than the sign ordinance allows, but may be approved administratively as a Comprehensive Signage Plan. Within an entrance corridor a property is allowed two signs, with 75 sq. feet area total for walls signage. All signs (including the wall sign facing the exit ramp) must be located below the second floor sill line, and no higher than twenty feet. Staff recommends in this case that three signs be permitted, with the total of the two signs facing Hydraulic Road limited to 75 sq. feet; and the sign facing the parking lot limited to 50 sq. feet. If the ERB agrees, staff will proceed in that direction. The rear parking area needs discussion regarding the landscaping and pedestrian circulation. The most important site concern remaining is pedestrian ease and safety within this car-oriented environment. Staff suggests that the ERB should make recommendations regarding the rear parking lot, and then allow staff to proceed with administrative approval of the site plan in accordance with the site plan regulations. The street landscaping has been adequately addressed with the required number of street trees, and landscaping of the building frontage. Other site landscaping includes ten crape myrtles planted at the top of the large retaining wall; and at the base there are six Sycamore trees, 16 Japanese Black Pine trees, and 21 wax myrtle (decidulous shrubs). 6
Section 4 (Buildings): Staff Analysis: The building designs and materials are generally nicely designed and compatible with the EC Guidelines. Section 5 (Individual Corridors): Hydraulic Road Vision There is potential for redevelopment of the older sites along the corridor. Large new buildings should be designed to reduce mass. Opportunities include: building closer to Hydraulic Road, adding landscaping along the streets and in parking lots, and creating pedestrian and auto connectivity within and between developments.west of Rt. 29 pedestrian connections would be important if older commercial and residential properties along Hydraulic Road are redeveloped. Staff Analysis: This plan has elements that fit the vision. Public Comments Received No public comments have been received regarding the Entrance Corridor application. Staff Recommendations Staff recommends approval of the Phase III Entrance Corridor application with the following conditions: 1. Phase II approvals are a condition of this approval. 2. All mechanical equipment must be screened from view of a public right-of-way. 3. All areas indicated to be brick, including the recessed brick panels, shall be real brick. 4. The signage must comply with signage regulations, but may be approved administratively. 5. The corner pedestrian entrance must allow the public access to the grocery store. 6. Any major changes occasioned by site plan review would be subject to EC approval. 7