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HomeMy WebLinkAbout2203 RESOLUTION NO. 2203 A RESOLUTION amending the Bremerton Comprehensive Plan Map for a specific area located west of Warren Avenue along Burwell and Fourth Streets. WHEREAS, The Bremerton Planning Commission conducted a public hearing on December 15, 1987, to consider a request for a Comprehensive Plan Amendment for a parcel west of Warren Avenue and east of Chester encompassing properties along Fourth and Burwell Streets, and has recommended Council approval; and WHEREAS, the City Council has properly advertised and conducted a public hearing on February 3, 1988; and WHEREAS, the City Council has reviewed the staff reports and Planning Commission findings and recommendations and has determined this Plan Amendment to be in the best interests of the subject neighborhood and the City of Bremerton; now, therefore THE CITY COUNCIL OF THE CITY OF BREMERTON RESOLVES To adopt the amended Planning Commission Findings and Conclusions, as attached hereto as Exhibit "A, " and hereby amends the Bremerton Comprehensive Plan to apply the designation "Commercial" to the area bounded on the east by Warren Avenue, on the south by P.S.N.S., on the west by Chester Avenue, and on the north by the alley midway between Fourth and Fifth Streets. PASSED by the City Council of the City of Bremerton this 3rd day of February, 1988. HANK WAIBEL President, City Council APPROVED this 4 day of February, 1988. GENE LOBE, Mayor ATTEST: KATHLEEN L. McCLUSKEY, Clerk Exhibit "A" FINDINGS..& CONCLUSIONS The foll6wing findings and conclusions relate to the three criteria that are contained in the Land Use. Element of the Comprehensive. Plan for the purpose of reviewing requests for P. lan Amendments. ~1. ADOPTION OF THE AMENDMENT WILL MAINTAIN CONSISTENCY BETWEEN THE DIFFERENT PLAN ELEMENTS AND THE PLAN MAP AND CONFORMANCE BETWEEN THE PLAN MAP AND ITS IMPLEMENTING TECHNI~. A. The "Vision for Bremerton" portion of the Comprehensive Plan attempts to gradually improve the City by strengthening its balance of economic, social, cultural, and other opportunities and by revitalizing the central business district. The study area consists primarily of residential and commercial parking uses. There are no natural environment or shoreline concerns and the long-range impact of development, whether commercial or high-density residential, is not expected to have a significant physical impact on surrounding areas or the community. Several "Commercial Land Use" policies, beginning on P. 14 of the Comprehensive Plan (Policies #2, 3, 4, 6, 7, 11, 12 and 13) encourage the improvement and revitalization of existing shopping areas, while locating new areas where they will be best served by transportation services. These policies also promote the use of lower-intensity business uses such as offices and service commercial to buffer the transitional impacts between residential and heavier commercial. Central Business District Policy ~12 (P. 17 of the Plan) is to "Promote high-density residential development in and adjacent to the central business=district." This policy is currently reflected in the high- density residential designation for the subject area. Policy ~9 of the Land Use'Management section of the Plan attempts to minimize the numbers of nonconformities by recognizing existing development patterns as a partial basis for zoning. The present residential land uses and parking lots are consistent with the high- density designation and parking overlay district. Conclusion: Creating and maintaining a proper "balance" of land uses throughout the community is a key to comprehensive planning. That balance must consider all major components, including commercial land use and economic development but also residential land use, community appearance, transportation, housing, etc. The request could be found consistent with many policies that pertain to economic improvement, commercial location in relation to transportation facilities, infrastructure availability, and other factors while, at the same time, inconsistent with policies pertaining to lower-income housing opportunities, buffering, downtown revitalization and others. Timing may be the determining factor. The transition to commercial for this area might be a good long-range idea, but this additional conunercial land may not be needed at this time. The requested. change wtll add 185,400 square feet. of land to the City's commercial inventory. The majority of this land area is currently in residential use and not available for commercial development. bh~ 'D There is very little vacant land in the CBD that is suitable for a major commercial development. Expansion of the CBD area would provide more opportunities for new development. If such an expansion is to occur, the subject area is the most suitable direction. Expansion of the commercially-designated downtown area could result in new developmen~ on the periphery rather than within the downtown. This could either (1) result in a further deterioration of the CBD, or (2) have physical and economic spin-off effects that could cause additional new development or revitalization. There are too many variables to accurately determine the long-range impacts. D. The interests of the community are reflected in Plan qoals and ~olicies and are ~eared toward "balanced" community improvement. Conclusion~ The Comprehensive Plan promotes downtown commercial growth and development, but also promotes high-density and lower-income'housing in the downtown area. The need for downtown revitalization is greater than the need to expand the downtown boundaries. In this case, the expansion area doesn't add vacant coN~nercial land that is not already in a residential or commercial use, but the.:subject area does have structures and sates that are older and less valuable and that could be redeveloped less expensively than other commercial sites in the CBD. The current age and condition of the study area in general shows a need for some type of redevelopment. The applicant is suggesting that commercial would be the best way to go, while the City's Plan suggests high-density residential. ~3. THE POTENTIAL EFFECT OF THE AMENDMENT ON THE NATURAL, ECONOMIC, AND SOCIAL ENVIRONMENT OF THE CITY. WILL BE BENEFICIAL. This requested amendmeAt, if approved, will only create the opportunity for commercial development. At the present time the opportunities are for residential development. The City. could benefit considerably from either type of development. B. There will be virtually no impact on the natural environment. Probably the greatest potential for ecomomic benefit to the City would come from commercial designation and development which would increase retail' spending in the downtown area, increase property values (assuming a major successful development), and increase employment, as well as other spin-off effects. The primary benefits of high-density residential development of the subject area would be in providing a buffer for lower-density older neighborhoods, providing opportunities for new multtpl~- family housing in close proximity to PSNS and the downtown area, etc. Such housing would also be within walking distance of the ferry terminal, Olympic College, library, City~all, and other facilities. A major social concern will be to ensure that commercial redevelopment of this former residential neighborhood area will include provisions for buffering along the Chester Avenue side to help stabilize and protect the neighborhood to the west, preventing further non-residential encroachment in that direction. Conclusions: Although high-density residential may, from a community planning point of view, be a very appropriate use for this area, it isn't likely that such development will happen if there is no interest. The present interests of the applicant, who represents approximately One-third of the affected properties, is commercial development. What is ultimately permitted will be determined by the zoning that is applied. Generally speaking, we are oonsidering such uses as retail business, restaurants, commercial services, offices, financial services, and possibly auto service businesses, recreation and entertainment facilities, and other uses. The category is very broad. The requested Business Core (BC) zoning would include most commercial uses normally found in the CBD and would also allow a building height of 150 feet, which may be inappropriate adjacent to a low- density neighborhood. That zoning district would also permit high-density residential development which could result in a combination of commercial and multi-family residential. That type of mixture could prove very beneficial to the CBD, surrounding areas, and the community as a whole. If redevelopment of this area is to occur, the City must provide the opportunity consistent with owners' interests. Pure residential is not of interest at this time and won't happen. Commercial, possibly including some residential,.is not being formally proposed, but is much more likely to be feasible and, if properly planned.and designed, could be of considerable benefit to the community. PLANNING COMMISSION RECOMMENDATION: The Planning Commission recommends City Council APPROVAL of this request for a Comprehensive Plan Amendment to the designation of "Commercial" for the following reasons: 1. The area has changed considerably over the years from a single-family home neighborhood to an old investor-owned, tenter occupied, multi- family area interspersed with commercial parking lots. The neighborhood cohesiveness has been lost and there is a need for redevelopment. 2. The existing transportation systems and utilities infrastructure are suitable for either residential or commercial development, but the location at the intersection of Burwell and Warren (arterials) tends to favor commercial development. The transportation advantages might also favor residential, but could adversely impact the neighborhood environment and livability. 3. The requested change can be made to the Comprehensive Plan Map without disrupting the overall intent of the Plan or the relationships of its elements. However, development compatibility with surrounding uses will depend to a large extent on the zoning that is applied and mitigation measures incorporated into development plans. 4. Without assuming any details of future development in this area, the potential effects of con~nercial development must take into consideration all possibilities allowed in the commercial zoning districts. There are no apparent obstacles to any type of commercial development. However, better control over uses, building heights, and other development details will be gained through the zoning that is later applied. 5. The potential effects of a commercial redevelopment will be beneficial to the City economically and socially, especially if multiple-family residential is included in the development. It is recommended that this Plan Amendment include the area along the south side of Burwell Street, which is also currently included in the residential Plan designation, for the following reasons: 1. This area consists of the Kitsap Federal Credit Union (financial), two multiple-family residential structures, and large off-street parking areas to serve those uses. 2. The two residential structures are old and potential candidates for redevelopment. Their location is surrounded by arterial streets, PSNS, and commercial uses and is not an attractive site for multi- family residential development. It might be very suitable for a business or office development that can benefit from the traffic and arterial street visibility and access. Ce The Planning Commission recommends that the "Commercial" Plan designation be approved to establish the long-range development intent of this area, and that the proposed new Zoning Map be amended to show the study area north of Burwell as Business Core (BC). The block on the south side of Burwell is proposed for General Business (GB) and should remain that way. This future zoning pattern is recommended for the following reasons: 1. The area south of Burwell Street consists of mostly business uses already and was previously recommended by the Commission for Business Core (BC) zoning. 2. Inclusion of the area north of Burwell Street in the BC zone will establish a clear residential/commercial boundary along Chester Avenue and simplify the zoning by having only one zoning designation within this area. 3. By establishing the high-intensity BC zone now, the City will reduce the need for future rezones to accommodate new commercial development and will also take that burden off property owners and developers. 4. Business Core (BC) zoning will maximize the utilization of Burwell and Warren as major arterials and state highways, and will encourage new development. Bremerton Planning Commission RECOMMENDED ZONING Upon Adoption of New Zoning Map I I I _ IIIi ,d~nsLIt t .sat s s, t It s t s st s ~ II II CBR = Central Bremerton Residential BC = Business Core GB = General Business STAFF REPORT CITY OF BREMERTON PLANNING DEPARTMENT APPLICATION: LOCATION: CPA-5-87 --- COMPREHENSIVE PLAN MAP AMENDMENT Requested Change: High-density Residential to Commercial One and one-half block area bounded on the east by Warren Avenue, on the west by Chester Avenue, on the south by Burwell Street, and on the north by the alley midway between Fourth and Fifth Streets, as shown in the maps below. II It DATE OF APPLICATION: October 30, 1987 PLANNING COMMISSION HEARING: December 15, 1987 CITY COUNCIL HEARING: February 3, 1988 PREPARED BY: Ron W. Hough Manager, Long-range Planning PLANNING COMMISSION RECOMMENDATION: On Dec. 15, 1987, the Bremerton Planning Commission voted unanimously (6-0) to approve this requested Plan Amendment from "Residential" to "Commercial" for the area shown as shaded below, which includes the half block on the south side of Burwell Street in addition to the original study area. I I I I I I I I I I I II!11 I I I I I · ORIGINAL STUDY AREA "":" }:: :.]!" ....:':"'i"' :,= .:: i:.::2i . :::' '.: .':..;. i,: .:.:. :=""..~:"':";"".y".Y 7.'.".'.;' :'r? ;~.:.' :.'.~'::.":.':-: 0 Area reccm~nended for Plan Amendment by Planning Commission. BRP-~ I. BACKGROUND INFORMATION APPLICANT: DeJong & Schroeder, on behalf of Joel Diamond. OTHER AFFECTED OWNERS: Diamond Parking, Inc. is the largest property owner in the area with about 36 percent of the total area. The following is a summary of property ownership, according to recent County Assessor's data: MAP LAND AREA PERCENT KEY OWNED OF TOTAL OWNERS A 66,229 sq.ft.' 35.7% Diamond Parking, Inc. B 12,360 sq. ft. 6.7% First Church of Christ Scientist C 12,360 sq.ft. 6.7% Crenshaw D 12,360 sq.ft. 6.7% Ulbright E 9,991 sq.ft. 5.3% Cooper F 9,270 sq. ft. 5.0% Ludwig G 9,270 sq. ft. 5.0% Wingo H 7,210 sq. ft. 3.9% Soriano I 6,180 sq.ft. 3.3% Bryan & Roberrs J 6,180 sq. ft. 3.3% Heesacker & Olson K 6,180 sq. ft. 3.3% Kitsap Fed. Credit Union (Parking) L 6,180 sq.ft. 3.3% O'Day M 5,150 sq. ft. 2.8% Maryott N 5,150 sq.ft. 2.8% Seattle First National Bank O 5,150 sq. ft. 2.8% Severson P 3,090 sq.ft. 1.7% Gentry Q 3,090 sq. ft. 1.7% Karlsson 185,400 sq. ft. 100.0% TOTAL AREA I I II I'1 till III!1 I I' I' I ! hi~'.l'll II ! iiirl I !111 ! r IUI I I I!11 II1 · C C D D GO L A AA A : .sT:.: = F A A AHAPE E M B B =~ ].~'H QA 0 K II J A A ~ELL DESCRIPTION OF PROPOSAL: The block and one-half area that is subject of this request for a Plan Amendment is currently designated on the City's Comprehensive Plan as "Residential, 15-30 Dwelling Units per Acre". The applicant is asking the City to change this designation to "Commercial" for reasons stated in the application letter which is attached. EXISTING LAND USES & SITE DATA: The map below illustrates the general land use patterns within the study area and includes the block on the south side of Burwell since it is also included in the Residential Plan category. The following is a summary of existing land uses in the study area only: Single-family Dwellings Multi-family Dwellings Off-street Parking Lots Other Land Uses 14 92 total units 78 70,030 sq.ft. (approx.) 37.8% of total area 185 paved spaces (unpaved not counted) First Church of Christ Scientist Vintage Shoppe (Convenience Market) Bremerton Service Center Rainier Properties', Inc. Office In addition to the above, the .south side of Burwell Street includes the Kitsap Federal Credit Union, 36 multi-family dwellings, and 125 paved parking spaces, including those on the south end of Warren Avenue. e Single-family Dwelling ~Multl-family Dwelling (Number indicatee units) []Commercial, Of[ice, Financial and Quasi-public I[~:.,'.-~ OTf-atreet Parking Lots i~"-;.~t:~/~'.'' (Paved and unpaved) Development Patterns: The study area is actually an area in transition. It was originally a part of a larger neighborhood of single-family homes. Today, it is at the fringe of the central business district and is slowly changing to non-residential uses. However, it appears that the need for parking has dictated the direction of recent land use changes. Commercial parking lots, both paved and unimproved, comprise about 38 percent of the land area and have replaced many older homes. There are very few other commercial businesses in the area and no new commercial structures. By far the largest non-residential use is the church at the corner of Fourth and Warren. A recent land use update, conducted in December, 1987, found only six pure single-family properties (one house on one lot). All other properties have been converted to multiple-family housing, parking lots, or other non-residential uses. Multi-family dwellings account for 85 percent of all dwellings and many of those are actually converted single- family homes or converted garages. Parking Impact: The close proximity of the Puget Sound Naval Shipyard has had a significant impact on this area. The City's Comprehensive Plan included the area in a "parking overlay" designation for the development of off-street parking facilities. And, property owners have continued to convert residential property to parking facilities. This trend began long before the City's parking overlay designation and, in many cases, parking areas that could provide parking for local residents have become commercial lots with spaces rented by shipyard workers or other non-residents. As a result, many rear yards have been converted to resident parking and there is a major deficiency in the number of off-street parking spaces, based on the City's current parking regulations. The current mix of single-family and multi- family dwellings should include approximately 150 residential off-street parking spaces. Those spaces are not being provided with the rentals. Property Values: A review of County Assessor's records shows that the 1987 Market Value, including land and improvements of the entire study area was $2,062,200. The land value was about 37 percent and the improvements 63 percent of that total. The majority of the buildings are old, deteriorating, and many appear to be maintained at minimum levels. With the exception of a handful of single-family and some duplex units, there is very little indication of neighborhood pride and the cohesivehess of the former neighborhood has been eroding away with each new parking lot. Very few of the dwellings are owner-occupied. The assessed values of the single-family homes (improvements only) average $24,078 while the values of multi-family structures average a considerably lower $11,900 per unit. Overall, the assessed value of the land itself is approximately $4.07 per square foot, or about $20,412 for a mid-sized 5,000 sq. ft. lot. However, these figures are distorted by the considerably higher values placed on the three lots that have Warren Avenue frontage. Those three lots have an average assessed value of $60,767. All other lots in the area have an average assessed value of $17,362. The average lot size is 5,150 square feet. ASSESSED VALUE/LAND USE SUMMARY MAP PROPERTY KEY SQ. FOOTAGE 1 6,180 2 6,180 3 6,180 4 6,180 5 3,090 6 6,180 , 6,180 9 6,180 10 3,090 11 9,270 12 6,180 13 6,180 14 5~150 15 6,180 16 3,811 17 3,090 18 3,399 19 3,090 20 3,090 21 6,180 22 6,180 23 9,270 24 2,250 25 2,900 26 4,120 27 3,090 28 4,120 29 5,150 30 6,180 31 32 3,090 33 6,180 34 6,180 35 9,270 36 6,180 ASSESSOR' S MARKET VALUE $ 76,300 $ 41 100 $ 54 270 $ 55.960 $ 10 150 $ 18 500 $ 18 .S00 $ 31,700 $ 70,900 $ 21,600 $ 77.900 $159 900 $ 18 500 $ 64,160 $ 85 . 820 $ 38,550 $ 86,630 $ 58,260 $ 40,480 $ 51,240 $ 63 .S30 $ 68,050 $ 27,800 $ 43,300 $ 38,800 $ 44,000 $ 34,040 $ 33,630 $ 96,500 $ 18,500 $ 41,770 $ 51,460 $111,000 $ 87,000 $170,000 $ 52 ,S00 $2,062,200 DWELLING UNITS SINGLE MULTI- OT~ER THAN FAMILY FAMILY TOTAL RESIDENTIAL 5 5 I 1 2 2 4 4 I I I 1 3 3 2 9 8 15 2 3 4 2 2 4 4 2 2 2 2 3 3 4 4 4 4 1 1 1 1 2 6 1 2 10 8 15 Market Parking Lot Parking Lot Paxking Lot Paxking Lot Svcs. Center Parking Lot Parking Lot Church Parking Lot Parking Lot Paxking Lot Paxking Lot Parking Lot Paxking Lot Office Parking Lot o% I · U 0 II 0 II II e · · 185,400 14 78 92 Streets & Traffic: The study area lies at the intersection of two state highways, both of which are classified by the City as "Arterials". These are Burwell Street (SR-304) and Warren Avenue (SR-303). The following is a summary of the four streets in the immediate vicinity of this requested Plan Amendment: BURWELL WARREN Functional Classification ARTERIAL ARTERIAL (SR-304) (SR-303) Right-of-way Width Pavement Width Number of Lanes Surface Type CHESTER FOURTH LOCAL LOCAL ACCESS ACCESS 60 ft. 60 ft. 60 ft. 60 ft. 44 ft. 46 ft. 25 ft. 44 ft. 2 4 2 2 Asphalt/Asphalt Concrete Conc./AC Concrete Surface Condition POOR GOOD FAIR FAIR Traffic Count 16,650 10,700 1,100 3,200 Sidewalks YES YES YES YES Curbs YES YES YES YES Source: Bremerton Engineering Dept. 12/87 Fourth Street provides direct access to about two-thirds of all the properties in the study area. The transition from residential uses to parking lots has not caused a significant increase in traffic since the lots cater primarily to long-term (all day) workers and generate very little traffic between peak periods. The traffic on Fourth Street is typically light during most periods of the day, providing access to and from the residential neighborhood to the west. On-street parking in this block of Fourth Street also appears to be lighter than on other streets in the area. Burwell Street and Warren Avenue are major arterials that provide good direct access to the study area but also adversely affect the residential environment with traffic congestion and noise} particularly those properties that front on Burwell. Whether this area ultimately develops as a high-density residential district or a commercial/office district, all four of these streets can expect an increased traffic load. A major concern should be to prevent overflow traffic from adversely affecting the more stable residential neighborhood to the west of Chester Avenue. Other Site Data: Topography: Gentle upward slope toward the west. Utilities: Sewer: YES Natural Gas: YES Water: YES Refuse Svc.: YES Elec: YES T.V. Cable: YES Phone: YES II. COMPREHENSIVE PLAN CURRENT DESIGNATION OF AREA: As shown on the map below, the present Comprehensive Plan Map designation for the subject area is "RESIDENTIAL, 15-30 DWELLING UNITS PER ACRE". The half-block fronting on the south side of Burwell Street is also within this area and is also being considered for Commercial. This classification is the highest residential density available and there are some good basic planning reasons why the Plan Map was drawn to include the study area. First of all, the designation reflects the actual land uses in the area, which are predominantly multiple-family residential. There are 92 residential dwelling units, compared to only two small commercial businesses, the Bremerton Service Center and a church. Secondly, this block could be an ideal location for a high-density multi- family district which would be in very close proximity to PSNS and the business district, convenient to major traffic and bus routes, and which could provide a buffer area between the commercial uses and ~he quieter single-family home neighborhood to the west. This designation of high- density residential was appropriate and consistent with key policies of the Comprehensive Plan. COMPREHENSIVE PLAN GOALS & POLICIES: The goals, policies and objectives of Bremerton's Comprehensive Plan help provide guidance for long-range decision-making and were reflected in the Plan Map, which was adopted in July, 1986. Not all goals and policies will apply in the same way to all properties in the City and there is considerable opportunity for error in policy interpretation. The final decision on this Plan Amendment request will include a combination of existing land use factors and the interpretations of adopted goals and policies. This section of the staff report in intended to point out some of the goals and policies that are most relevant to this application. Land Use Goal: "Promote a compatible mix of land uses that encourages investment tempered to protect the environment, while providing an attractive, livable community." Policy 2: "Establish land use patterns that: a. Minimize conflicts between neighbring uses; b. Cluster higher intensity uses convenient to major streets, transit routes and other public services; and c. Facilitate the efficient, convenient movement of people, service and goods, and minimize travel demands." Policy 5: "Create opportunities for land uses that will strengthen the role of the City as an economic and social focal point of Kitsap County." COMMENTS: The Amendment application would tend to create additional economic development (commercial) opportunities and could eventually establish a more effective division between the Central Business District and residential neighborhoods by using Chester Avenue as the boundary. However, it getting to that point, 92 lower-income dwelling units are in the way. Residential Land Use Goal: "Provide attractive, levable residential areas that are compatible with the prevailing or planned character of surrounding areas and that are in keeping with land capabilities and available public services." Policy 2: "Encourage housing construction, rehabilitation and maintenance in residential areas where public services are available and adequate." Policy 3: "Provide opportunities for those that work, attend schools, or conduct other activities in Bremerton to reside within the City rather than commute." Policy 8: "Locate low-income housing units convenient to shopping and transit services. Avoid concentrations of such units in any one area." Policy 9: "Locate public or private housing for the elderly convenient to shopping, transit and medical services." COMMENTS: These policies tend to favor the promotion of housing, especially for the elderly and lower-income, in areas that are convenient. They also encourage rehabilitation. Commercial Land Use Goal: "Provide commercial facilities that meet present and future needs for a full range of goods and services to the Bremerton area." Policy 2: "Locate commercial land uses where they will have access from the arterial and collector street system and will minimize traffic congestion." Policy 3: "Locate major commercial areas where access is available by various modes of transportation." Policy 4: "Promote the expansion of existing commercial centers and prohibit the proliferation of new or scattered commercial uses." Policy 11: "Provide transitional areas for lower intensity business and institutional uses as buffer areas between higher intensity business areas and residential areas." Policy 12: "Promote the revitalization of existing business districts." Policy 13: "Encourage restoration and conversion of older buildings to establish space for small businesses." COMMENTS: The subject area will have ~he transportation access that is required of a commercial area. However, it is not clear whether this amendment would result in an unnecessary expansion of the CBD, or will enhance the commercial character of the downtown. Since it is obviously an expansion outward, it cannot be considered a revitalization of the existing downtown district. There are also 14 policies pertaining more directly to the improvement and rehabilitation of the central business district. None of those policies specifically encourages in-fill development or discourages an outward expansion of the business district. It is obvious that the Plan does encourage all types of improvement activities within the CBD. This Plan Amendment request will have no direct positive impact on the CBD and, instead of utilizing the resources presently available in the CBD, it would create a new commercial area on the periphery and possibly pull some business out of the core area. ZONING: The map on the following page shows the current zoning within and surrounding the study area. Four zoning districts are represented, three of which are commercial districts. However, the two commercial uses in the area (market and office) are both in the residential zone. All properties fronting on Warren Avenue are zoned for commercial use while most of the existing residential properties are zoned R-2, which is most appropriate for multiple-family development. For the most part, the current zoning is appropriate to protect the existing uses, with the exceptions of the market and office uses. The issue of zoning must follow the decision on this Plan Amendment request in order to keep the City's zoning consistent with the Plan for F"]Res|dentlal-2 (R-Z) ~7/'~Co, m.erclal (C) ~8uslness-2 (8-2) ~eustness-3 CURRENT ZONING I t I t/iqFt: I I t ! Illltlt~ I ft!.L|JIl.llrr'r)' +-t.H-rt I+t-I,,H 'l+t. ] B+H II,H, IIIllgIIIIIIIIIt 14T '~' 66 F'AIIIIA~.UT the long-range future of this area. The applicant has requested that the area be included in the "Business Core (BC)" zoning district, as shown for the CBD on the new proposed Zoning Map. That map currently proposes the area for "Multiple-family (M~)" which is consistent with the Comprehensive Plan Map. In consideration of the existing land use patterns in the area, it may be premature to rezone 92 residences to commercial, possibly resulting in nonconformity problems. However, if the long-range plan for the area is changed to commercial, the short-term zoning might remain residential to protect the interests of the existing development until such time as a development proposal is submitted for a commercial project. Although an application was not submitted for a rezone, it is staff's understanding that the proposed new Zoning Map will be amended, if necessary, to reflect the most appropriate zoning, based on this action and at the direction of the City Council. No specific zoning proposal is recommended at this time. IV. COMMENT SUMMARY CURRENT PLANNING: To provide for transition from CBD commercial on the east and residential to the west and north of the area requested for change, recommend the Mixed Use Zone (Commercial - Residential - Parking) with residential and some mixed commercial adjacent to the existing residential to the west and north. Recommend against expanding this area as part of the CBD. (No parking need be provided in the CBD) WASTEWATER: (1) No identifiable problems noted. (2) Development is subject to all applicable specifications required by the City of Bremerton, DSHS Rules and Regulations, State and Federal laws. (3) Prior to additional connections or enlargement of sanitary and storm water systems, plans are subject to review and approval by the City of Bremerton Engineering Dept. and payment in full of assessed fees at the City Municipal Utilities Center. (4) Sanitary and stormwater mains per attached drawings. (Maps were included to show the locations of mains in the vicinity of this application. III. ENVIRONMENTAL REVIEW The applicant's environmental checklist was submitted , reviewed by City staff, and a Determination of Nonsignificance (DNS) was issued per WAC 197-11-340(2) on December 7, 1987. The following is a brief summary of checklist comments: 1. The applicant indicated the proposed timing or schedule to be "ASAP". However, there are no activities being proposed at this time, related to this Plan Amendment application. 2. Applicant listed the description of the proposal, proposed uses, and size of project, etc. as "Change of residential district to a commercial district." (Additional information was provided in the letter of application.) 3. There may be an increase in stormwater runoff as a result of future commercial development and more parking lots. 4. Increased traffic may occur between 8 AM and 5 PM. 5. There is no immediate proposal for demolition of the residential structures. However, the applicant indicated that "in the long term, structures may be removed." 6. All questions pertaining to displacement of current residents and the demographics of future development cannot be answered since a specific project is not being proposed. 7. There are no historical or cultural sites of any significance in the area. WATER: (1) Development is subject to APWA and AWWA specifications, DSHS rules and regulations, Bremerton Municipal Code, and utility standards. --- Other comments similar to those provided by Wastewater. OTHERS: Comment forms were returned without comments from the following: Health Department School District Police/Traffic City Attorney Engineering Building . Parks Fire V. FINDINGS & CO'NCLUSIONS The following findings and conclusions relate to the three criteria that are contained in the Land Use Element of the Comprehensive Plan for the purpose of reviewing requests for Plan Amendments. ~1. ADOPTION OF THE AMENDMENT WILL MAINTAIN CONSISTENCY BETWEEN THE DIFFERENT PLAN ELEMENTS AND THE PLAN MAP AND CONFORMANCE BETWEEN THE PLAN MAP AND ITS IM~PLEMENTING TECHNI~[~. A. The "Vision for Bremerton" portion of the Comprehensive Plan attempts to gradually improve the City by strengthening its balance of economic, social, cultural, and other opportunities and by revitalizing the central business district· The study area consists primarily of residential and commercial parking uses. There are no natural environment or shoreline concerns and the long-range impact of development, whether commercial or high-density residential, is not expected to have a significant physical impact on surrounding areas or the community. Several "Commercial Land Use" policies, beginning on P. 14 of the Comprehensive Plan (Policies ~2, 3, 4, 6, 7, 11, 12 and 13) encourage the improvement and revitalization of existing shopping areas, while locating new areas where they will be best served by transportation services. These policies also promote the use of lower-intensity business uses such as offices and service commercial to buffer the transitional impacts between residential and heavier commercial. Central Business District Policy ~12 (P. 17 of the Plan) is to "Promote high-density residential development in and adjacent to the central business=district." This policy is currently reflected in the high- density residential designation for the subject area. Policy ~9 of the Land Use Management section of the Plan attempts to minimize the numbers of nonconformities by recognizing existing development patterns as a partial Basis for zoning· The present residential land uses and parking lots are consistent with the high- density designation and parking overlay district· Conclusion: Creating and maintaining a proper "balance" of land uses throughout the community is a key to comprehensive planning. That balance must consider all major components, including commercial land use and economic development but also residential land use, community appearance, transportation, housing, etc. The request could be found consistent with many policies that pertain to economic improvement, commercial location in relation to transportation facilities, infrastructure availability, and other factors while, at the same time, inconsistent with policies pertaining to lower-income housing opportunities, buffering, downtown revitalization and others. Timing may be the determining factor. The transition to commercial for this area might be a good long-range idea, but this additional commercial land may not be needed at this time. ~2. ADOPTION OF THE AMENDMENT WILL PROMOTE THE OVERALL GOALS AND POLICIES OF THE PLAN AND THE INTERESTS OF THE ENTIRE COMMUNITY. The requested change will add 185,400 square feet. of land to the City's commercial inventory. The majority of this land area is currently in residential use and not available for commercial development. There is very little vacant land in the CBD that is suitable for a major commercial development. Expansion of the CBD area would provide more opportunities for new development. If such an expansion is to occur, the subject area is the most suitable direction. Expansion of the commercially-designated downtown area could result in new development on the periphery rather than within the downtown. This could either (1) result in a further deterioration of the CBD, or (2) have physical and economic spin-off e[fects that could cause additional new development or revitalization. There are too many variables to accurately determine the long-range impacts. D. The interests of the community are reflected in Plan qoals and DOlicles and are Geared toward "balanced" community improvement. Conclusion: The Comprehensive Plan promotes downtown commercial growth and development, but also promotes high-density and lower-income'housing in the downtown area. The need for downtown revitalization is greater than the need to expand the downtown boundaries. In this case, the expansion area doesn't add vacant cormnercial land that is not already in a residential or commercial use, but the:subject area does have structures and sites that are older and less valuable and that could be redeveloped less expensively than other commercial sites in the CBD. The current age and condition of the study area in general shows a need for some type of redevelopment. The applicant is suggesting that commercial would be the best way to go, while the City's Plan suggests high-density residential. ~3. THE POTENTIAL EFFECT OF THE AMENDMENT ON THE NATURAL, ECONOMIC, AND SOCIAL ENVIRONMENT OF THE CITY WILL BE BENEFICIAL. This requested amendment, if approved, will only create the opportunity for commercial development. At the present time the opportunities are for residential development. The City could benefit considerably from either type of development. B. There will be virtually no impact on the natural environment. Probably the greatest potential for economic benefit to the City would come from commercial designation and development which would increase retail' spending in the downtown area, increase property values (assuming a major successful development), and increase employment, as well as other spin-off effects. The primary benefits of high-density residential development of the subject area would be in providing a buffer for lower-density older neighborhoods, providing opportunities for new multipl~- family housing in close proximity to PSNS and the downtown area, etc. Such housing would also be within walking distance of the ferry terminal, Olympic College, library, City Hall, and other facilities. A major social concern will be to ensure that commercial redevelopment of this former residential neighborhood area will include provisions for buffering along the Chester Avenue side to help stabilize and protect the neighborhood to the west, preventing further non-residential encroachment in that direction. Conclusions: Although high-density residential may, from a community planning point of view, be a very appropriate use for this area, it isn't likely that such development will happen if there is no interest. The present interests of the applicant, who represents approximately onesthird of the affected properties, is commercial development. What is ultimately permitted will be determined by the zoning that is applied. Generally speaking, we are considering such uses as retail business, restaurants, commercial services, offices, financial services, and possibly auto service businesses, recreation and entertainment facilities, and other uses. The category is very broad. The requested Business Core (BC) zoning would include most commercial uses normally found in the CBD and would also allow a building height of 150 feet, which may be inappropriate adjacent to a low-density neighborhood. That zoning district also would permit high-density residential development which could result in a combination of commercial and multi-family residential. That type of mixture could prove very beneficial to the CBD, surrounding areas, and the community as a whole. If redevelopment of this area is to occur, the City must provide the opportunity consistent with owners' interests. Pure residential is not of interest at this time and won't happen. Commercial, possibly including some residential, is not being formally proposed, but is much more likely to be feasible and, if properly planned and designed, could be of considerable benefit to the community. VI. RECOMMENDATION STAFF RECOMMENDATION: A. Staff recommends APPROVAL of this request for a Comprehensive Plan Amendment to the designation of "Commercial" for the subject area for the following reasons: 1. The area has changed considerably over the years from a single-family home neighborhood to an old investor-owned, tenter occupied, multi- family area interspersed with commercial parking lots. The neighborhood cohesivehess has been lost and there is a need for redevelopment. 2. The existing transportation systems and utilities infrastructure are suitable for either residential or commercial development, but the location at the intersection of Burwell and Warren (arterials) tends to favor commercial development. The transportation advantages might also favor residential, but could adversely impact the neighbor- hood environment and livability. 3. The requested change can be made to the Comprehensive Plan Map without disrupting the overall intent of the Plan or the relationships of its elements. However, development compatibility with surrounding uses will depend to a large extent on the zoning that is applied and mitigation measures incorporated into development plans. 4. Without assuming any details of future development in this area, the potential effects of commercial development must take into consideration all possibilities allowed in the commercial zoning districts. There are no apparent obstacles to any type of commercial development. However, better control over uses, building heights, and other development details will be gained through the zoning that is later applied. 5. The potential effects of a commercial redevelopment will be beneficial to the City economically and socially, especially if multiple-family residential is included in the development. Staff also recommends that the Comprehensive Plan Amendment be approved to establish the long-range development intent of this area, but that the zoning of the area continue to be residential or similar designation that will recognize existing land uses and minimize nonconformities, for the following reasons: 1. There is no commercial development plan at this time. It is possible that the residences will remain, possibly for several years. Placing them in a nonconforming situation could further discourage maintenance and needed repairs that are important to the occupants. 2. Individual fezones within the area, as development proposals occur, will provide better opportunities to buffer those properties that are not a part of that development and would reduce land use conflicts. 3. A major or unique commercial development on a part of the area could change the development prospects for the surrounding area and lead to another type of zoning. It is easier to adjust zoning as developments are proposed than it is to "down-zone" later on. Cw Staff also recommends that this Plan Amendment include the area along the south side of Burwell Street, which is also currently included in the residential designation of the Plan, for the following reasons: 1. This area consists of the Kitsap Federal Credit Union (financial), two multi-family residential structures, and large off-street parking areas to serve those uses. 2. The two residential structures are old and potential candidates for redevelopment. Their location is surrounded by the credit union, major arterial streets and PSNS, and is not an attractive site for multi-family residential development. It might be very suitable for a business or office development that can benefit from the traffic and visibility. ZONING CONSIDERATIONS: 1. Although no "fezone" application was submitted, the applicant has verbally stated that the preferred zoning for the subject area is "Business Core", which is the zoning being proposed for the downtown Bremerton business district. 2j Because a new Zoning Ordinance and Mapare being considered fo~ adoption and because there is no development proposal, the existing zoning will remain in place until adoption of the new Zoning Map, at which time the new zoning will be applied. The Planning Commission will suggest the most appropriate zoning and the City Council will make the final decision. 3. LAND USE CONSIDERATIONS: a.Impact of commercial zoning districts on existing residential and commercial development within the azea. b. Impact on the "neighborhood", including social and economic. c. Effects that commercial development of this area might have on efforts to rehabilitate:the downtown area. d. Impacts resulting from the close proximity of PSNS. CIRCULATION/PARKING CONSIDERATIONS: a. Effects of higher-intensity development on Burwell and Warren and on their intersection. b. Possible spread of "strip comercial" type development of small independent businesses along these arterials. c. Spill-over of commercial traffic into adjacent residential areas. d. Importance of commercial parking lots in this area. 5. Consistency with the Comprehensive Plan. · 6. What type of commercial zoning will best serve the public need in this area? The following commercial zoning districts were considered: PO (Professional Office) -- Intended for low-intensity small-scale office use and also intended to serve as a buffer between residential areas and commercial areas. NB (Neighborhood Business) -- Intended to provide for limited retail activity and personal services in or adjacent to residential areas and to provide neighborhood convenience. GB (General Business) -- Located primarily along major arterial streets and highways, this district provides a wide variety of retail businesses and services. High-intensity commercial areas. SC (Shopping Center) -- Not appropriate for this location at this time. BC (Business Core) -- The heart of the City's high-intensity major commercial and financial center. Encourages pedestrian-oriented daytime and nighttime activities, including multiple-family residential uses on upper floors. Long-termparking and other auto-oriented uses are discouraged in favor of pedestrians and mass. transit service. MX (Mixed Use) -- Intended to provide for higher-density residential uses mixed with small-scale office and commercial uses, but does not allow "commercial parking lots". ZONING ALTERNATIVES: ALTERNATIVE "A" This alternative would extend the proposed Business Core (BC) district to Chester, as requested by the applicant. The block on the south side of Burwell is already proposed to be General Business (GB) and no change is suggested for that block. The BC district is already proposed for lands to the north and east of the study area. ~his would establish a uniform ccemercial/residential boundary at Chester Avenue. The following is a summary of..the types of uses that are or may be allowed in the BC zoning district: · Multi-family residential above commercial uses. · Day Care Center, Foster Home, and Group Residential Facility. · Hotels and Motels. · Restaurants, Cafes, Fast Food, Delicatessen. · Drinking places, ~ith or without entertainment. · Theaters. · Video/Pinball Arcade. · Public and Private Schools. · Churches. · Library and other social type facilities (clubs, meeting halls, etC.). · Convalescent/Rest Home. · Hospitals, Clinics, and other medical services. · Most types of personal services (barber, beauty, laundry, photo,etc.). · Home Occupations. · Most types of retail commercial sales businesses. · Automotive, boat, truck and similar sales and service establishments. · Commercial Parking Lots, Carwashes, terminals. · Small engine and other repair services. · Banking and other financial services. · Grocery stores, convenience markets, other specialty food stores. · Professional and general offices. · Home maintenance and repair supplies (hardware, elec., plumbing, etc..) · Nursery and garden supplies. · Furniture and equipment rental and leasing. · Manufacturing of products from pottery or stone. · Printing and publishing. · Mini-warehousing. · Utilities and communications facilities. ALTERNATIVE "A" II Etl II I BIll lg ~ II Ga, ALT. "A" ADVANTAGES: 1. Wide range of future development potential. Zoning would allow the same uses and intensity of development as allowed in the central business district of Bremerton. 2. Maximires the use of two intersecting state highways (Burwell and Warren) for access to the area. 3. would help promote the redevelopment of a declining residential area that is mostly investor-owned already. 4. Would establish a clear north-south boundary along Chester Avenue to separate commercial from residential districts, 5. Would expand siting opportunities for core-type development that can't find suitable sites elsewhere in the CBD. ALT. "A" DISADVANTAGES: 1. Would zone a fairly large area (4.3 ac.) for high-intensity commercial development in advance of any' specific development proposals. There is no documentation of public or community "need" for this much additional BC zoning, especially in light of the amount of undeveloped or underutilized land already in the CBD, as well as vacant buildings that could be remodeled if such a need existed. 2. Would greatly increase traffic on Fourth Street, which is a quiet residential street west of Warren, with the exception of traffic to and from the commercial parking lots that presently exist. 3. There is no "transitional 'zone" between the highly-intense BC zone and the low-density CBR (Central Bremerton Residential) zone to the west. Visual impacts of buildings 150 feet tall (potentially), noise, and commercial traffic will have impacts on the adjacent neighborhood. 4. Immediately west of Chester Avenue is a portion of a Neighborhood Conservation District. The BC district will not encourage the " rehabilitation or ~reservation of this district for single-f-~m{lY living. 5. Expansion of the Business Core zoning district will provide additional development opportunities but will not encourage rehabilitation or new development in the downtown area. It may even attract development away from the downtown with cheaper land, easier access, and better building sites. This alternative is intended to base the zoning-on existing land use patterns in the area and also on present zoning. The maps on the following page show both existing land uses and existing zoning. South of Burwell.. This block consists of the credit union, a large apartment building, a smaller apartment building, and commercial parking. All except the large apartment building are currently zoned commercial. Alternative "B" will place the entire block in the GB (General Business) zone. Only the apartment buildings will become "nonconformities". All other uses will be accommodated in the GB district. North of Burwell: All areas that are currently zoned for commercial development will be included in a commercial zone. Lots fronting on Warren Avenue would be included in the Business Core (BC) zone. The small market at the NE comer of Fourth and Chester would be added to the Neighborhood Business zone. ALTERNATIVE "B" Alternative "B" includes Neighborhood Business CNB) zoning along Chester Avenue to provide a buffer of lower-intensity convenience ccmmnercial or offices that will have the least potential for adverse impacts on the neighborhood. The interior of the area would be zoned Mixed Use (MX) which would be a "holding zone" for the time being. This district would accommodate existing residential and commercial land uses without creating unnecessary nonconformities. Some compatible commercial or office development could be added. If larger or more intense development is planned, the City would consider future rezone requests that are in harmony with the community's needs and with site demands, as demonstrated by actual development proposals. ALT. "B" ADVANTAGES: 1. No existing land uses would become nonconforming. 2. All properties within the study area that currently have some type of commercial zoning would continue to have commercial zoning. 3. The Neighborhood Business zone would be expanded to take in the existing convenience market at 4th and Chester which is currently a nonconforming use. 4.Both sides of Warren Avenue would be included in the Business Core (BC) zone. 5. The interior MX zone would allow for additional multiple-family residential development, as well as cemmercial and professional businesses that are compatible with r~idential uses. 6. Commercial parking lots could be developed under the L~{m~ted Parking Overlay zone which covers this entire area. 7. The maximum building height of the NB district (30 ft.) and the MX district (60 ft. ) are more compatible with the low-density CBR district to the west than would the 150 feet allowed under the BC zone. It is considerably easier for the City to approve an increase in zoning intensity (up-zoning) in the future than it is to down-zone if future conditions warrant a change of that type. Over-zoning in advance of actual need should be avoided. ALT. "B" DISADVANTAGES: 1. This zoning pattern would not accommodate an immediate proposal for a major commercial development and ~ fezone may be necessary. 2. The MX zoning may protect existing multi-family rental housing in the area that might otherwise be phased out earlier. 3. Development proposals involving highly-intense commercial uses may be discouraged in the NB district along Chester, or more extensive impact mitigation measures required by the City. STAFF RECOMMENDATION TO PLANNING COMMISSION: Staff felt there was no immediate need to include this entire area in a high-intensity commercial zoning district at this time. The need for such zoning has not been demonstrated, nonconformities would result, and there are no known development plans that would require that zoning. Therefore, staff recommended Alternative "B" for the Planning Commission's consideration, primarily for the reasons outlined in the explanation of Alternative "B". PLANNING COMMISSION RECOMMENDATION TO CITY COUNCIL: The Bremerton Planning Commission, after considering the various zoning alternatives made possible by the Comprehensive Plan Amendment to COMMERCIAL, recommends that the City Council give primary consideration to staff Alternative "A", as illustrated in this staff report, for the eventual zoning of the area bounded by Warren Avenue on the east, PSNS on the south, Chester Avenue on the west, and the alley midway between Fourth and Fifth Streets on the north, for the following reasons: The area south of Burwell Street consists of mostly business uses already and was previously recommended by the Commission for GB (General Business) zoning. Inclusion of the area north of Burwell Street in the BC zone will establish a clear residential/commercial boundary along Chester Avenue and simplify the zoning by having only one zoning designation. By establishing the high-intensity BC (Business Core) zone now, the City will reduce the need for future rezones to accommodate new commercial development and will also take that burden off property owners and developers. BC (Business Core) zoning will maximire the utilization of Burwell and Warren as major arterials and state highways, and will encourage new development. see