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HomeMy WebLinkAbout4406 ORDINANCE NO. -//¥c AN ORDINANCE amending the Official Zoning Map of the City of Bremerton for property located southeast of the intersection of Callahan Drive and Clare Avenue. (St. Paul's Episcopal Church Rezone and P.U.D.) WHEREAS, an application was submitted by St. Paul's Episcopal Church and Episcopal Retirement Homes of Washington for approval of a Planned Unit Development for a retirement home complex on church property located south of Callahan Drive, east of Clare Avenue and west of Hemlock Street within the City of Bremerton; and WHEREAS, the PUD proposal included a request for a rezone of the subject property from "General Business (GB)" to "Multiple-family Residential (MF)"; and WHEREAS, a neighborhood meeting was held at St. Paul's Episcopal Church on March 24, 1992, where the proposed PUD project and rezone were explained to and discussed with interested citizens and where their comments and suggestions were accepted; and WHEREAS, the Bremerton Planning Commission conducted a public hearing on April 21, 1992, after which it voted unanimously to recommend City Council approval; and WHEREAS, the Bremerton City Council conducted a public hearing on May 27, 1992, following which it voted unanimously to approve the Preliminary PUD, which included the subject rezone, with the condition that deed restrictions and joint cooperative parking agreements be required as recommended by the Planning Commission; and WHEREAS, a Cooperative Parking Easement Agreement has since been prepared and entered into by St. Paul's Retirement Community, St. Paul's Episcopal Church, and the City of Bremerton, specifying the nature of supplemental parking agreements with adjacent properties, including the agreement for the joint use of church and retirement home parking facilities, and requiring the City's approval of any changes in those arrangements; now therefore THE CITY OF BREMERTON DOES HEREBY ORDAIN Section 1. That the Official Zoning Map of the City of Bremerton is hereby amended to rezone the subject property from "General Business (GB)" to "Multiple-family Residential (MF)", as shown on exhibit 'A" and further described in Exhibit "B', both of which are attached hereto and incorporated herein; and Section 2. That this decision is based on the Findings of Fact and Conclusions of Law attached hereto and incorporated herein as Exhibit "C". ~. APPROVI~D by the City Council on the first reading this ~ 0 day of ~ ~.~--'j~ ,1993. PASSED by the Bremerton City Council this /"?' day of")~/~Ldl~ ,, 1993. EILEEN FITZ, Council APPROVED this C~' day of ,~w~-~,.-~-...=.~,~ I., 1993. LOUI~ 0. MENTOR, Mayor ATTEST: KAT~HLEEN'~, City Clerk Published: Effective: Exhibit "A" REZONE MAP St. Paul's Episcopal Church and Episcopal Retirement Homes The shaded area is rezoned from 'General Business (GB)" to 'Multiple-family Residential (MF)'; MF Exhibit "B" LEGAL DESCRIPTION Thc block boundcd by Callahan, Clare, and Hcmloclr. ?00 Callahan Drive. Su~,cy and tOlX) map includcd hcrcin. ~cgal dcscription is: All that portion of ])arccl 1 of Block 3, Plat of Sccond Addi[ion Io Shcridan ])are as rocordcd ia Volumc 8 of pag~ 74 and ?5, lying northcrly of thc following dcscn3x~J linc: commcncin§ at thc Northcast comcr of said Block 3; thcnce South 19o06'05" East 96.91 feet to thc bcginning of a curve to the right whoac radlu~ rg~int bean South 70o$3'$Y' West 1,479.60 feet; thence Southcrly idong the arc of ~ald curve 305.23 feet to thc true p~int of beginning of ~mid llnc; thcnce South 70o$3'$$" West 335.33 foct to a Ix~int on a curve on thc Easterly linc of Clam Avenue whose radius point bears South 56-49'08' West 748.58 feel Exhibit "C" FINDINGS OF FACT and CONCLUSIONS OF LAW of the Bremert0n Planning Commission EPISCOPAL RETIREMENT HOMES Planned Unit Development (PUD-01-92) A. APPLICANTS: St. Paul's Episcopal Church 700 Callahan Drive Bremerton, WA 98310 David Steele Episcopal Retirement Homes 220 W. Mercer, Suite 500 Seattle, WA 98119 B. LOCATION: This Planned Unit Development (PUD) is proposed for the present site of St. Paul's Episcopal Church, located at the intersections of Callahan Drive, Clare Avenue and Hemlock Street in East Bremerton. C. GENERAL PROJECT DESCRIPTION: This is an application for a 76-unit Residential Planned Unit Development. It is intended to be a retirement complex for elderly residents, operated in conjunction with St. Paul's Episcopal Church, which will continue to occupy the eastern portion of the site. The Planned Unit Development (PUD) process allows flexibility in zoning, site design, combination of uses, and other creative solutions to design problems. In this case, the PUD includes an elderly retirement complex related to a church on the same site. The PUD application package includes the following: 1. Rezone: Since the site is currently zoned 'General Business', the PUD includes a Rezone to 'Multiple-family Residential (MF)' to allow the residential development. 2. Site Plan: The processing of the PUD includes a review of the preliminary Site Plan to ensure that the various land uses will function properly and in harmony with their surroundings. 3. Parking Viariati0n: Because of the 'elderly housing' nature of this project, and because of the availability of transportation services and joint parking arrangements, the PUD includes a request for a reduction in the amount of required parking and approval of off-site parking that is available through joint parking agreements with neighboring businesses. D. DEVELOPMENT & TRENDS in the VICINITY: North: Combination of single-family homes and duplexes north of Callahan and west of Old Wheaton Way. West: Warren Avenue, a major arterial highway, becomes Wheaton Way north of Sheridan Road. South: Medical-related facilities and offices are to the immediate south. Farther south on Clare Avenue are Claremont East Retirement Apartments and Bremerton Convalescent and Rehabilitation Center. East: The long narrow block between Hemlock and Wheaton Way consists primarily of medical-related businesses, interspersed with some remaining vacant lots and an apartment complex on the north side of the Sheridan Village Shopping Center. E. COMPREHENSIVE PLAN: The Comprehensive P[an designation of the proposed site is 'COMMERCIAL', as are the business areas to the south and east, and the residential area to the north. A high-density residential district is also shown along the east side of Warren Avenue and includes the Claremont East development. High-density is also indicated around the residential northeastern and eastern sides of this commercial district. Since the PUD proposal is consistent with the Plan's intent of providing high-density residential around the periphery of the commercial district, it appears that the general intent would be met by this proposal and a Plan Amendment is not warranted. F. ZONING & PLANNED UNIT DEVELOPMENT: The present zoning of the PUD site is 'General Business (GB)', which is a fairly high- intensity commercial zone that includes Harrison Hospital, surrounding medical-related facil~as, and other businesses, including restaurants, general shopping, auto services, etc. The only form of residential allowed in this zone is 'Residential Over Commercial'. The applicants are requesting the rezone as part of the PUD because they are interested only in the retirement development and have no desire to develop a mixed residential/commercial/church complex. The zoning on the north side of Callahan Drive is 'Professional Office (PO)'. That area still includes mostly residential uses and only one professional office. To the southwest is the Claremont East facility, which is zoned 'Multi-family Residential (MI=),. In order to build the proposed development, the applica~qt has requested 'Multi-family (MF')' zoning for this PUD. The existing church and the apaYa'nen~ would be compatible and legal uses in the 'MF' zone. The criteria for approval of a rezone will be addressed in this report. G. PUBLIC UTILITIES AND SERVICES: water. Bremerton's Water Utility provides service to this area and can accommodate the proposed develoi:,'ner~,- Sewer: Bremerton provides sewer services to this area and can accommodate the proposed development ~ormwater: The site is not served by a City stormdrai'~ system and will have to be designed to provide on-site stormwater detention or other atternative that can ~ approved by the City's E,qgineering Department. That level 3 of detail is part of the permitting phase that follows approval of the Preliminary PUD Plan. Fire: Bremerton's closest Fire Station is located on Olympus Drive, just south of Sylvan Way. The subject site is easily accessible via Olympus, Sheridan Road, Old Wheaton Way, and Callahan Drive. That station is manned 24 hours a day by firemen and emergency medical personnel. The Pacific Avenue fire station is also within easy range via Eleventh Street and Warren Avenue. The proposed structures will require sprinkler systems, hard-wired smoke detectors and other fire safety devices. Police: Bremerton Police Department currently serves the area. The Police Department expressed concerns about the possible need for on-street parking if adequate off-street parking is not provided. An overflow situation could occur at peak parking times, such as during church services or other major church functions. Medical: This site is in close proximity to Harrison Hospital and also to a large number of other medical services surrounding the hospital. This was an important siting consideration of the applicant and will be equally important to the future elderly occupants of the facility. H. OTHER COMMENTS RECEIVED: This proposal was circulated for review and comments, with the following relevant comments received: 1. Safe walking areas should be provided for students and other pedestrians in the area. 2. This site is not suitable for commercial development and is better suited to the proposed use. 3. Engineering Dept. will have to review and approve any driveway improvements or changes to driveway locations. 4. Current Comprehensive Plan designation doesn't provide for the type of mix that is being proposed. The City should probably develop a 'mixed-use' Plan designation that might be used where mixed use development is appropriate and should be encouraged. This is one of those areas. 5. 'Great improvement to the Sheridan Area." 4 REZONE --- Episcopal Retirement Home P.U.D.--- A. CRITERIA FOR REZONE: Zoning Ordinance Chapter X, Section 5-B includes the criteria for approval of Rezones, as follow: 1. The rezone is substantively consistent with the Comprehensive Plan. The applicant has requested 'Multi-family (MF)' zoning. The City's Plan Map shows a 'Commercial' designation in the general area of the site. The Plan is intended to be general and not necessarily site-specific. The Comprehensive Plan Map designates a 'Hospital' site at the eastern edge of a 'Commercial' district which, in turn, is surrounded on most sides by the high-density residential designation 'RESIDENTIAL, 15-30 DUJAc.' The subject site is on the periphery of the commercial district and is consistent with the policy of allowing such residential uses around the outer edge of the commercial district. The proposal is substantively consistent with the Plan. 2. The Rezone is necessary because conditions in the Immediate vicinity have so markedly changed that {~ Rezone is required in the public Interest. When the St. Paul's Episcopal Church property was originally zoned 'B-2' (under the City's former zoning) and later 'General Business' in 1988, it was felt that this was a good location for a variety of commercial uses that could take advantage of the easy access and high visibility from Warren Avenue. However, this location is at the junction of C/are Avenue and Cal/ahan Drive, both of which act as off-ramps from Warren Avenue. Traffic speed is relatively high and, when combined with the topography, curves and poor sight distances, this is no longer a good location for commercial development or additional driveways. Thus, residential zoning is a good alternative and more suitable than it was a few years ago. The region has been growing rapid/y, accompanied by Iow vacancy rates and an imbalance of housing availability. The continuing growth in the numbers of senior citizens contributes to the need for more housing for that specific age group, and in locations most convenient to their needs. Thus, this proposal has as strong relationship to the 'public interests' of this community. 5 3. The Rezone would not result in adverse environmental consequences. The rezone will not increase the potential for adverse environmental consequences, The site was cleared some time ago, has been used for other purlx~es, and is not considered to be 'natural" in an environmental sense. A SEPA Determinab'on of Nonsignificance (DNS) was issued on April 7, 1992, following a review of the applicant's Environmen~ Check/ist. This review was based on the PUD proposal and Rezone. Actual development wi//include provisions for mitigation measures, as necessary, including stormwater drainage and detention improvements. 4. The Rezone bears a substantial relationship to the public welfare because there is a _oublic need for a change ,of the kind in questlQn; {~nd thFt need will be best served by changing the zoning. A primary public need is for the provision of new housing opportunities at all economic levels in and around Bremerton to help accommodate new growth. This developmen~ will have a small impact on the total need, but will contribute in a positive way. The proposed development ~':,! specifically beneFrt the housing needs of the senior market, which is an important part of the housing mb~ure within our community, and will also help to strengthen the adjacent commercial district with the presence of additior~ customers~/client$. 5. Essential p~blic facilities ~nd services are presently evailable and adequate, or can be reasonably made available. As noted'in the introductory part of this report, a J;, major ub'lities, including ~r and sewer, are available to serve this deve.,'opment. Also available are police, fire, trash collec~on, and other services normally found in cities. The spec/ftc details of how some of those services v,:71 actually be provided, such as where the dumpsters will be located, etc., wit; be determined during the final design phase and approved ~flrough the Site Plan Review process. B. CONCLUSIONS: 1. This Rezone will allow higher-density residential ~,"ses around the periphery of a commercial district and will be substantively consistent with the City's Comprehensive Plan. 2. A number of changes have occurred in this area in recent years. The primary changes that justify this Rezone a,,e increased trzffic and the regional growth that has brought a housing shortzge to the commune, including a shortage of housing specifically designed for the senior pop.iation. 3. There will be no adverse environmental impact as a result of this rezone. 4. All major utilities and services are in place and available to serve the proposed development, with the exception of a stormdrain system. On-site detention can and will be designed to handle the stormwater. 5. The fact that the property is very near Warren Avenue, a major arterial, will provide easy and convenient access to this development without adding additional commercial traffic. The placement of higher density development adjacent to arterial streets keeps traffic out of lower-density neighborhoods and also facilitates the use of public transit. 6. The subject site is well suited to residential development for a number of reasons, including its close proximity to a major hospital and its related medical services and facilities, convenience to other commercial/shopping opportunities, public transit, and social and recreational opportunities (Sheridan Center). C. RECOMMENDATION: The Bremerton Planning Commission recommends City Couhcil approval of the Rezone component (from 'GB' to 'MF') of this Planned Unit Development. PLANNED UNIT DEVELOPMENT --- Episcopal Retirement Home P.U.D. --- A. OVERALL CONCEPT: (Applicant's Description) 'in answer to requests from elderly groups in Bremerton who wish to live near their churches, doctors and the hospital, St. Paul's Church has undertaken a program to develop their unused land for a 76-unit elderly housing service center. The center will provide meal service, activities, exercise center, housekeeping and transportation. An underground garage, entered from Hemlock Street, should provide parking for cars expected. Because of the services provided at the center, residents will not drive much, and as they age, the cars will soon disappear, cutting down on traffic 7 movement in general. Another benefit to the Cily in genera/is the planned improvements to the parking for St. Paul's Church, and moving entrance drives from busy Ca/lahan to Hemlock. The entire block of/and will be extensively landscaped to enhance the residential character. The building is planned as three smaller un/ts with corridor connections.' The dwellings will not be reserved for members of the Episcopal Church but will be offered to the general public at market rates. The facility will not be publicly subsidized. It will be owned and managed by a non-profit corporation and the Episcopal Retirement Homes of Washington. The average age of tenants will be in the range of 75 to 77 years. About one of every four tenants will own an automobile. Most older residents will not. Auto ownership will be highest immediately after opening of the facility and is expected to decrease as the resident population ages. B. PRELIMINARY PLAN DESCRIPTION: ,!. Site Description: Approx. 3.5 acres total area, or 154,240 sq.ft. Site has frontage on Hemlock Street (east), Clare Avenue (west) and Callahan Drive (north). .2. Land Description: Generally sloping from north to south with relatively fiat areas for church and accessory parking. The proposed residential structures will be along the lower southwestern portions of the site. 3. Access: Property currently has access from Callahan Drive. PUD will include an internal private driveway system that eliminates the Callahan access and provides two access points from Hemlock. 4. Density: The 'MF" zone allows a density of 22 units per acre through the PUD process. The site's 3.54 acres would allow 78 dwelling units. The proposal is for 76 units. 8 Additional density can be achieved only through the PUD process in exchange for additional open space. Additional open space is being provided, as are additional internal recreational facilities that are not required by the City. However, no density bonus is being requested in return. 5. O.Den S_oace: The PUD is in 'preliminary' form at this stage and the amount and location of open space areas can be adjusted as necessary. The City requires that a minimum of 15 percent of the entire site be provided as open space. The applicant calculates the total open space to be approximately 45 percent. Staff will ensure that the Final PUD Plan includes at least 15 percent open space, not including required setbacks and other cosmetic landscaping (parking lot islands, small planters, etc.). The PUD Plan will probably exceed the City's open space requirement. The requirement is being met in the forms of open grassy areas, outdoor seating areas for passive enjoyment of views, etc., and a peripheral walking/jogging path for pleasure and exercise. These will be supplemented by other indoor recreational and exercise facilities. C. OFF-STREET PARKING: Parking is probably the most controversial element of this PUD. The applicant is requesting relief from the City's normal parking requirements in consideration of the type of facility and its occupants. This relief from the typical parking requirements is necessary to this project. A reduced parking standard is typical of senior housing projects of this type, but has not been common practice in Bremerton. 1. Minimum Off-street Parking Requirements: The following provisions of the Zoning Ordinance pertain to parking at St. Paul's Church: I parking space per four fixed seats (or 1 space for each 80 inches of pew seating). --- The church can seat nearly 200 people. 49 spaces required. · 1 space for each 300 sq.ft, of floor area for office areas. --- The church has a small 400 sq.ft, office. I space required. · 1 space for each classroom used for Sunday School or other educational purposes. --- The church has five classrooms for Sunday school. 5 spaces required. 9 · I space for each 5 children for areas used for day care centers or nursery schools. --- The church doesn't operate a day care or nursery school function. · TOTAL PARKING REQUIREMENT: 55 spaces The following provisions of the Zoning Ordinance pertain to parking for the proposed senior retirement complex: · The typical one-bedroom apartment normally requires 1.5 off-street parking spaces per unit. A 76-unit apartment complex, with no special considerations, would require 114 spaces. This figure is based on a one-bedroom apartment because this is a 'preliminary' PUD Plan and the parking requirements vary slightly with the size (number of bedrooms) of the units. 2. ProPOsed (:;)fi-street Parking in Preliminary PUD Plan: According to the raw figures noted above, a free-standing church of this type should have 55 spaces and a separate 76-unit apartment complex should have 114 for a combined total of 169 off-street parking spaces. The applicant is proposing a development that includes a total of 116 parking spaces on site, not including joint-use agreements that provide additional parking off-site. If 55 of those spaces are needed to meet the church's requirements, the remaining 61 spaces would go toward the residential needs. An additional 60 spaces are available through a joint-use parking agreement, bringing the total to 121 residential spaces, or about 1.6 spaces per unit, which is more than normally required by the City. Although all of these spaces are not on the site, nor will they be always available, they are intended to be available during peak traffic times and special occasions when needed most, such as during major holidays and on weekends when visitations and church activities are most likely. The City's basic minimum parking standards don't take into consideration the fact that this is a mixed-use development with the parking shared by the church and its residential partner. The joint-use of parking can effectively reduce the total need and make more efficient use of the space. Joint-use Parking Agreements: St. Paul's Episcopal Church currently has a joint-use parking agreement to use the parking lot of the Mountain View Medical building, located immediately south of the church. Medical offices are normally open weekdays and Saturdays and do not conflict with the church's Sunday peak parking period. The church's peak period parking capacity was expanded by 30 additional spaces through this agreement. In return, the businesses can use church parking for their overflow, if necessary, during their normal business hours -- usually during weekdays when church demand is least. lo 4. State of the Art - Elderly Pprkinc~ Requirements: Experience in the provision of senior housing has resulted in updated parking code requirements in a number of communities. Some of the codes within the State of Washington that have been amended to allow such reduced parking requirements include Spokane, Seattle, Tacoma and Kent. A key to allowing reduced parking is some assurance that the complex will continue to be occupied by elderly tenants. To accomplish this, it is becoming more common to file a deed restriction or cooperative parking agreement limiting the use of the property or its parking capacity to retirement/elderly housing, or providing a reserve land area in case additional parking is needed in the future. The following is a brief summary of their codes: Seattle: Multi-family structures for Iow-income elderly require one space for each 6 units. Low-income disabled require one space for each 4 units. Spokane: Low-income subsidized retirement/elderly apartments require one space for each 3 units. If not subsidized, they require one space per unit or one space per 3 units with a deed restriction. Tacoma: Normal parking standards may be administratively reduced to one space per 3 units, provided that (1) The units are for retired persons with an average of 1.5 persons-per-unit or less, or (2) for Iow-income elderly, or (3) for a combination of the two situations. The developer may also be required to provide a reserve area for future additional parking if needed to accommodate a conversion to non-elderly housing. A deed restriction is not necessary. Kent: The City of Kent doesn't have a minimum requirement for elderly housing, but does allow the number of spaces to be reduced to whatever level can be justified by the applicant. However, Kent also requires that a reserve area be set aside to accept additional parking if needed for a future conversion or other change. The applicant is designing for and marketing this project to seniors. However, past experience with similar projects in Bremerton have brought out some doubts about the applicants' ability to hold the project to seniors only. They were concerned that, if the senior market was weak, families or sailors might move in and bring with them more cars and other problems that don't normally occur in a senior development. On the other hand, there is a need for housing for all ages and economic segments of the community and the same performance standards don't apply equally to all types or tenants of housing. There is also a need to support the area's mass transit system, especially in projects that are conveniently located along transit routes, as is this project. Some transportation experts feel that the best way to effectively encourage transit ridership is to put the squeeze on parking availability. There are ways to provide the needed flexibility through the PUD process. In this case, the requested parking appears to adequately meet the City's requirements for normal 'family" parking requirements. Some of that parking is off-site through parking agreements, which is a legitimate way of providing for parking needs. The amount of parking that is actually provided on-site is felt by the applicant to be consistent with the actual needs of this project, as determined by the experiences of similar facilities of this type and with the adjusted standards adopted by other jurisdictions that have studied those needs closely. The proposed condition that approval be accompanied by a deed restriction or cooperative parking agreement will require the owner to provide additional parking if, and when, a conversion to a different or higher intensity use (including 'family' or non- elderly housing) is necessary or desirable. D. CONCLUSIONS: 1. This PUD has been well-designed to best utilize an irregular piece of property while allowing for interrelationships between the development, the church and the adjacent business/medical district. 2. Access is adequate and will be improved with this development by moving the primary access from Callahan to Hemlock Street. 3. The architect has been careful in the arrangement of structures to maximize their interrelationships and accessibility, but without crowding the site. Setbacks are met and exceeded, and the landscape plan and trees will help the overall appearance without blocking the views of neighbors to the north. 4. Drainage of the site will be part of the more detailed construction plans and is not expected to be a problem. 5. The entire site, including the existing church, is included in this PUD Plan and, upon approval, will be recorded and become binding upon the property. The property will not be split or otherwise altered significantly without City approval of a revised PUD Plan. 6. Although it appears that the proposed parking will meet the City's minimum requirements, 'satellite parking" off the site normally requires a Special Use Permit. Thus, this PUD includes a request to allow a portion of the total parking requirement to be off-site and provided through joint parking agreements with adjacent businesses. The City Council is asked to consider the unique needs of senior tenants, as opposed to young singles and families who statistically have more vehicles, more activities and more daily trips. 3.2 7. The location, access, size and shape of the site, and other characteristics favor approval of the "MF' zoning and this PUD. This is a good "in-fill' location that requires some degree of design innovation to get the most efficient development and use of this site. 8. The PUD section of the Zoning Ordinance allows an increase in density in exchange for additional open space. The applicants are providing up to 20 percent open space (15% required), which might allow up to four additional units per acre, or an additional 14 units. However, no 'density bonus' is being requested at this time. 9. A 'neighborhood meeting' was held on March 24, 1992, to discuss the proposal, City requirements, and other aspects of the project. Neighborhood residents met at St. Paul's Church with the applicant, the architect, Father Wenseldt, and the City Planning Manager. Several concerns were raised and new suggestions incorporated into the plans. There were no major concerns that couldn't be overcome through design. 10. Considering all the auto-oriented and high intensity commercial uses that could be located on this site under the current 'GB' zoning, it was the Planning Commission's conclusion that a change to "MF" zoning is very desirable at this location and will not adversely affect the commercial district, but will complement it. RECOMMENDATION: Following its public hearing on April 21, 1992, the Bremerton Planning Commission voted unanimously to recommend City Council APPROVAL of this Preliminary Planned Unit Development, as designed, with the following conditions: 1. That a deed restriction or cooperative parking agreement be filed limiting this development to elderly retirement housing with available parking to be maintained at a level of at least one parking space per dwelling unit; and 2. That the deed restriction or cooperative parking agreement clearly state that, if the development is to be converted to a more intense use in the future, additional off-street parking shall be provided to meet the code requirements for that conversion. VIR ~GI~ NIA McBRIDE, Vice-Chair Date DONALD L PRATT, Secretary 13 £pi~copal Retirement Homes PUD Single-family Dwelling. Duplex. ~ Multiple-family & Institutional. ffi Commercial & Professional Offices. CURRENT ZONING Episcopal Retirement Homes PUD DR Duplex Residential MF Multiple-family Residential PO Professional Office GB General Business PS Parks & Schools MF INTEGRUS ARCHITECTURE