North Road/N. Leroy Street Subarea Plan INTRODUCTION The City of Fenton Master Plan was updated in 1996 and included a subarea plan for the North Leroy Street area of the City. It was recognized at that time that the area surrounding the North Road-North Leroy Street intersection would need even more detailed investigation in the future. The City Council authorized Langworthy, Strader, LeBlanc & Associates, Inc. (LSL Planning) and Paul Fontaine, urban designer, to work with the Planning Commission and develop a corridor plan for this area. The City would like to be proactive and encourage quality redevelopment rather than waiting for disjointed development to take place. This project is being undertaken in direct response to (1) redevelopment that has taken place farther north on N. Leroy Street; and (2) increased developer interest in land at the North Road intersection. The plan area includes the Leroy Street frontage properties from Granger Street north to Kellogg Street and west on North Road to the Shiawassee River. Public meetings were held with the Planning Commission to review existing conditions in the corridor, preliminary design concepts, and the draft final design concepts. The following plan incorporates the feedback provided at those sessions. Plan Area Boundaries Site Observations North Road/N. Leroy Street Subarea Plan Page 107 EXIS COND
The North Leroy/North Street Neighborhood Commercial District is a mixture of single-family homes that have been converted into retail or office uses, primarily single story commercial boxes. Most of the homes were built between 1920 1950 and exhibit traditional architectural features such as pitched gable roofs, dormers, shingle or clapboard siding, porches, second floors, and in some cases, fireplaces. As a general rule, the farther north one travels from the intersection of North Leroy Street and North Street, the more likely a converted single-family residential structure will be found. It is these residential structures, with their distinct architecture and front and side yards that give this district its unique character and appeal. Large, mature trees, lawns, and flowers create a more intimate and personalized atmosphere than standard commercial corridors or strip retail areas. Therefore, any design guideline or recommendation should enhance and protect the qualities established by the single-family homes, while allowing and encouraging modernization. Circulation The North Leroy/North Street neighborhood was originally platted for single family-residential use. As a result, each lot has its own driveway and curb cut onto North Leroy. Because the area was designed with intended residential uses, major circulation issues currently exist that need to be addressed. Commercial and retail uses generate more traffic and therefore have different needs than that of a single-family use. In making due with what exists, many commercial owners have widened or added additional entrances to their establishment. The larger curb cuts combined with the increase of traffic have created numerous traffic conflicts along North Leroy. Goals should be to reduce conflict points and separate areas of conflict. A traffic conflict is a situation where vehicles entering or exiting a site increase crash potential with vehicles on the roadway or vehicles, pedestrians or bicyclists accessing other sites. Page 108
Expanded curb cuts create another issue. Sidewalks become disconnected and create a significant hazard for pedestrians. Successful shopping districts need effective, safe pedestrian connections. Currently, there are sections along North Leroy that have no sidewalk for more than fifty feet. To complicate matters, there are long sections of sidewalk that have no buffer from heavy traffic that travels at speeds exceeding fifty miles per hour. Telephone poles, support wires, and lighting poles block crucial sight lines for pedestrian and driver alike, increasing the potential for an accident. The American Disabilities Act also needs to be kept in consideration and followed when renovations, infill, or modernization occurs. Long sections of sidewalk without buffers between fast moving traffic put pedestrians and bicyclists at risk. Telephone poles, cables, fences and signs block crucial sight lines for drivers and pedestrians. North Road/N. Leroy Street Subarea Plan Page 109
Parking The North Leroy/North Street District provides a variety of approaches regarding parking. Parking can be found in front, on the side, and in back of existing retail establishments. Some lots are not paved, and others, while paved, do not have stripping, wheel stops, landscaping or curbing. Placement of loading areas, storage areas, and company vehicles are also issues that contribute to an overall lack of cohesive parking standard. Effective, safe, well lit parking that is easy to find and access is essential for a successful shopping district. A lack of consistent parking design, landscaping, wheel stops, and curbing result in safety and aesthetic concerns. Inappropriately located loading and storage facilities within a site contribute to site clutter and can cause safety hazards and difficulty for parking and circulation Page 110
Some parking areas are not clearly identified and may contribute to an overall lack of cohesive parking throughout a site. Sight Lines At a standard grid intersection, there is no object to stop your line of sight. The unique Y intersection created by North Leroy and North Street creates three distinct sight lines contained within the commercial district: These sight lines are opportunities to create a positive first image, and to signal to the visitor that they are entering a new experience. Attention to gateways or entrances into the North Leroy/North Street Commercial District would also aid in the development of this area as a shopping district and promote a positive first image. Sight Line View Termination View Corridor North Road/N. Leroy Street Subarea Plan Page 111
Looking northwest on North Leroy Street Signage and Site Details Currently, there are no identifying or unifying features to suggest that the North Leroy/North Street intersection is a unique commercial district. Instead, each commercial establishment has its own standards for signage, landscaping, lighting, and overall maintenance. There is a particularly wide degree of variation in each of these. Since this is an older area of the City with existing, nonconforming site conditions, the appearance is not as neat and defined as the Owen Road corridor, west of U.S. 23. As mentioned previously, this was primarily a residential area that has since been transformed into a commercial corridor. The ability for each site to accommodate modern signage and site features is constrained. Many of the commercial signs in the corridor are typical of those found in highway commercial corridors. They are intended to get the attention of motorists traveling on roads with greater building setbacks. A limited number of the signs in the corridor are appropriate for the building setbacks and scale, but they are clearly overpowered by the other signs. To establish a unique character for the corridor, an architecturally sympathetic set of sign standards is needed. Page 112
A) Excessive signage and temporary signs clutter views and cause distractions and screen sight lines of motorists and pedestrians. B) Numerous access points contribute to traffic conflicts and make for an inhospitable pedestrian system. C) Utility lines, cables, poles, lights, etc. limit views and are unattractive. D) Limited landscaping and buffers are not aesthetically pleasing and potentially hazardous. Dangerous pedestrian surroundings North Road/N. Leroy Street Subarea Plan Page 113
A) Landscaping between the sidewalk and street is attractive and provides a good safety buffer. B) Limited site access reduces conflict points and contributes to a pedestrian friendly area. C) Monument style signs are easy to read by motorists and pedestrians and help to maintain the character of the area without being distracting. D) The absence of utility lines and poles allows landscaping and architecture to be enjoyed and uninterrupted. The three main guiding principals in creating a concept plan for the North Leroy /North Street Commercial District are as follows: PRELIMINARY CONCEPT PLAN 1. Establish a Focal Point A focal point reaffirms the character and values of a community while creating an attractive amenity that establishes a center. The Southern corner at the intersection makes an ideal focal point for it is not only involved in all three sight lines as discussed earlier, it is also the busiest spot in terms of traffic flow. The traffic light provides motorists with the time to appreciate any improvements that are made and also allows pedestrians to reach this point comfortably and safely. 2. Consolidate Parking and Eliminate Access Points Access to safe and convenient parking is essential for a shopping district. Through the creation of shared parking lots, curb cuts can be drastically reduced, while improving the overall street image and overall parking standards. Page 114
3. Maintain Existing Character The setbacks and size of the single-family houses have established a definite rhythm that any infill or renovation must respect. The farther from the focal point, the further off the road a store or office should be sited. The side and back yards should also be kept to maintain the large trees. Concept Plan VILLAGE PLAN The Village Plan is created by applying the ideas contained within the Preliminary Concept Plan to actual site conditions. We refer to this Plan as the Village Plan for that is what is essentially being created an area with a unique and separate identity, but contained within the greater community of Fenton. Naming the North Leroy/North Street Commercial District the Village or North Village will help create a definite image in the minds of visitors and residents. Some of the goals of the Village Plan are as follows: Goals of the Village Plan 1. Define a focal point and create a cohesive image for the corridor. 2. Limit the intensity of land uses to those that will fit within the proposed design scheme outlined in the Village Plan. 3. Establish a design theme for buildings and sites that will enhance the smallscale, neighborhood feel for the area. 4. Reduce access points (associated plan shows ten curb cuts from thirty-five originally). 5. Create municipal/shared parking inside of the rear or side areas behind existing retail establishments. 6. Provide a guide for property owners and developers that wish to improve buildings and sites. Creating and maintaining the small-scale character outlined in the Village Plan North Road/N. Leroy Street Subarea Plan Page 115
requires regulation of uses, lot size and site/building design. They must work in unison to clearly delineate what is permitted in terms of land use and what is expected with the character of development. By establishing standards in the Zoning Ordinance for the Village area, future development will be more compatible with the concepts of this Plan. Land Use Current zoning for the corridor is GBD, General Business District but as mentioned already, the small size of the sites and character of the area does not support all of the uses permitted in the GBD District. The purpose section of the GBD District states that it is intended to accommodate commercial establishments that serve community-wide shopping and service needs. This corridor is clearly not a community-wide shopping district and many of the permitted and special land uses are too intense for this area. The area farther north on N. Leroy Street is more appropriate for such uses, due to larger lot sizes and distance from single-family residential areas. A more appropriate designation for the village area might be NBD, Neighborhood Business District with a Planned Unit Development (PUD) overlay. Uses permitted in the NBD district are more compatible with adjacent residential uses than those in the GBD district. The PUD designation would also provide needed design control and flexibility to encourage development that fits into the concepts of this plan. Also of concern is the appropriate transition of residential to commercial and office uses. Residential properties border the southern and western edge of this corridor along N. Leroy and North Road, respectively. It is important to ensure proper transition for nuisance factors, such as noise, odor, congestion, etc., and to maintain the character of the area. By limiting the size and scale of new commercial development in the corridor, better transition between these uses can be provided. North Road is heavily wooded leading up to the corridor and there is a desire to maintain that natural buffer between the commercial and residential uses. This can be accomplished be establishing firm limits for the Village area and not allowing encroachment beyond that point. The PUD overlay would also help ensure the protection of street trees and wooded areas, especially next to the Shiawassee River on North Road. To help ensure that the present character is maintained and enhanced, general design guidelines are needed. The guidelines are recommendations that should be observed whenever possible; especially during the site plan review process. Certain situations will arise when renovating existing buildings that it may be impractical or damaging to follow certain guidelines. For example, when a building is being renovated and the site does not have enough room for rear or side parking, the guidelines may not apply. In general, the guidelines should be flexible enough to accommodate the many different site qualities that currently exist but specific enough to give a direction as to the type of development the Page 116
community desires. Village Plan Focal Point Options North Road/N. Leroy Street Subarea Plan Page 117
A series of three focal point options are presented as a guide to future development at the southern corner of N. Leroy Street and North Road. This location has been identified in the plan as a critical area visually and will help define the future character of the corridor. Since a series of options are available, future development possibilities are not fixed. General direction is given, however, so that proposals will meet the intent of this plan and subsequent zoning amendments. Option A depicts a commercial development with zero lot line building setbacks and a series of small shops. Parking is to the rear and the buildings will have a traditional look with large display windows and canopies. Option B anticipates a mixed-use development with small-scale retail at the point and residential townhouses or condominiums to the rear. Option C proposes a park at the point, smaller retail shops to the rear and parking in between the two. Option A Parking in rear Option B Housing Option C GN LINES Civic Park Space The City of Fenton Planning Commission determined that one of the keys to successful Page 118
redevelopment of this area is quality design. Any future improvements to the corridor must take into consideration public safety, the enhancement of desired community character, more efficient traffic circulation, improved site layout and building design, etc. The goal is to create an environment where people not only want to visit, but also to slow down and increase the opportunity for shopping. The following design guidelines are aimed at gradually upgrading the appearance and functionality of the corridor. As property owners, developer and business owners apply for site plan review, the Planning Commission can incorporate these guidelines into the review process. In the case of new construction, all of the design guidelines can be followed. With existing sites where limitations are present, only some of the guidelines may be applicable. 1. Massing All new and renovated structures should be no more than two stores. A gabled roof should be used for all structures less than thirty feet wide. For structures greater than thirty feet in width, the façade will divided into sections less than thirty feet by recesses that are at least one foot in depth and two feet in width 2. Setbacks All new structures that are within one hundred feet of the North Leroy / North Street intersection (focal point area) should be within six feet of the street right of way except existing single-family houses. Structures more than two hundred feet from the intersection should be setback at least eight feet from the right of way. 3. Materials Renovations and new construction should use the following materials: wood, one color brick, stone. 4. Entrance Façade All stores and offices should have their entrances fronting N. Leroy or North Street. Large floor to ceiling windows should be discouraged. Windows should follow the same proportions set by existing single-family homes for buildings more than two hundred feet from the intersection. For those buildings contained within the focal point should follow the precedent set on S. Leroy Street in downtown Fenton. 5. Sidewalks All sidewalks should be at least five feet in width, have at least a three foot landscaped buffer (lawn) and align with pedestrian crossings. In the focal point area (within fifty feet of intersection) sidewalks should be at least eight feet in width, but they do not require a buffer. In all instances curbs must be present and maintained. 6. Sight Lines All utility lines and fixtures should be removed from the sidewalk buffer area. 7. Parking All parking should be contained in side and rear yard setbacks. Parking lots should be lit for nighttime use, and should have stripping, the appropriate markings and number of handicap spaces, wheel stops, a clear path to the building and landscaping. North Road/N. Leroy Street Subarea Plan Page 119
8. Curb Cuts No curb cut should be more than twenty-four feet in width and ideally two hundred feet from the nearest curb on the same side of the street. 9. Signage Signs will be limited to awning and lawn type configurations outside the focal point. Inside the focal point area window signs will be allowed, and a post sign no higher than eighteen feet will be allowed for a building that has more than two users. 10. Landscaping All buildings outside focal point area will be required to maintain a grass lawn, and if no trees are currently present, should be required to plant one non ornamental, non evergreen type tree. The location of the new planting should not interfere with visual or physical access to the building. This Plan presents a series of concepts and recommendations that will be useful to the Planning Commission, property owners, developers and business owners in the North Leroy Street-North Road corridor. The overall goal of the Plan is to encourage integrated development, create a sense of place and improve the viability of each property. In the long run this will create a better corridor than would be achieved with haphazard development. RECOMMEND- ATIONS 1. This Plan should be adopted by the Planning Commission as an amendment to the Master Plan. By doing so, it will ensure that the corridor plan becomes a part of the document that guides future land use decisions in the City. 2. A planned unit development (PUD) district should be created in this corridor to encourage innovative redevelopment that might not be possible under the current zoning regulations. Page 120