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02/28/2002 - Minutes (2) PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH THURSDAY, FEBRUARY 28 , 2002 The City Council of Salt Lake City, Utah met in Work Session on Thursday, February 28, 2002, at 5:30 p.m. in Room 326, Committee Room, City County Building, 451 South State Street. In Attendance: Council Members Carlton Christensen, Van Turner, Eric Jergensen, Nancy Saxton, Jill Remington Love, Dave Buhler, and Dale Lambert. Also In Attendance: Cindy Gust-Jenson, Executive Council Director; Mayor Ross C. "Rocky" Anderson; Rocky Fluhart, Chief Administrative Officer; Jay Magure, Mayor's Chief of Staff; D. J. Baxter, Mayor' s Senior Advisor; Roger Cutler, City Attorney; Gary Mumford, Council Deputy Director/Senior Legislative Auditor; Russell Weeks, Council Policy Analyst; Janice Jardine, Council Planning and Policy Analyst; LuAnn Clark, Housing and Neighborhood Development Deputy Director; Joel Paterson, Planning/Special Projects; Stephen Goldsmith, Planning Director; Cheri Coffey, Northwest/Long Range Planner; Everett Joyce, Environmental Planning and Urban Design/Ordinances; Rick Graham, Public Services Director; Steve Fawcett, Management Services Deputy Director; David Dobbins, Community and Economic Development Acting Director; Brenda Hancock, Human Resource Management Division Director; Vic Blanton, Classification and Compensation Program Manager; Scott Folsom, Assistant Police Chief; Nancy Tessman, Library Director; Mark Johnson, Civitas, Inc. ; Jamie Maslyn, Civitas, Inc. ; Isaac Franco, Moshe Safdie and Associates; Steve Crane, VCBO Architects; Laurie Dillon, Budget Analyst; James Considine, Labor Relations Specialist; Tim Campbell, Director of Airports; Jodi Howick, Assistant City Attorney; Zane Gill, Administrative Law Judge; Claudia Sundbeck, Hearing Officer; Mary Beth Thompson, Payroll/Accounting; John Campbell, Citizens Compensation Advisory Committee; Jill Carter, Citizens Compensation Advisory Committee; and Scott Crandall, Deputy Recorder. Councilmember Buhler presided at and conducted the meeting. The meeting was called to order at 5:32 p.m. AGENDA ITEMS #1. REPORT OF THE EXECUTIVE DIRECTOR, INCLUDING REVIEW OF COUNCIL INFORMATION ITEMS AND ANNOUNCEMENTS. Cindy Gust-Jenson said Item A-12, Executive Session, would be held immediately following the formal Council meeting. She said Item D-1, Animal Services/Horse-Drawn Carriages, another ordinance which dealt exclusively with horses, had been requested from the Attorney's Office. She said both versions were available for consideration. Councilmember Saxton asked if the public hearing would include comments on animals other than horses. Ms. Gust-Jenson said yes. #2. RECEIVE AN UPDATE REGARDING ISSUES AT THE 2002 LEGISLATIVE SESSION. Councilmember Saxton said she would contact other Council Members to discuss issues which needed to be addressed. #3. RECEIVE A BRIEFING REGARDING REPEALING A SECTION OF SALT LAKE CITY CODE PERTAINING TO PARKING FOR CERTAIN PURPOSES. View Attachment Roger Cutler briefed the Council with the attached handout. Mr. Cutler said current ordinances prohibited the advertisement of vehicles on public property. He said similar ordinances had been declared unconstitutional throughout the country due to the evolution of commercial free speech. He said the law was designed to stop people from converting vacant property located along heavily traveled roads into used car lots. 02 - 1 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH THURSDAY, FEBRUARY 28 , 2002 Mr. Cutler said a lawsuit had been filed challenging the law. He said repealing the ordinance would negate the lawsuit and address future free speech issues. He said other existing ordinances could be used to address the problem. He said current ordinances prohibited the storage of vehicles on public property for more than 72 hours. He said land use regulations prohibited vehicles from being parked in front yards, side yards, and other areas. He said there were also environmental laws dealing with auto repairs and maintenance on City streets. Council Members expressed concerns about public and private parking lots being used to advertise vehicles if the ordinance was repealed. Mr. Cutler said he felt existing ordinances would address the problem but the traffic engineer could be asked to post no parking signs. He said if existing ordinances did not work, they could be modified. All Council Members were in favor of advancing the proposal. #4. RECEIVE A BRIEFING REGARDING REZONING FROM RESIDENTIAL TO NEIGHBORHOOD COMMERCIAL AT 1321 SOUTH 500 EAST PURSUANT TO PETITION NO. 400-01-45. View Attachment Janice Jardine, Everett Joyce, and Cheri Coffey briefed the Council with the attached handout. Councilmember Christensen asked if the property was currently being used for parking. Mr. Joyce said no. He said off-street parking was available on an adjacent lot. Councilmember Saxton said she felt the L shape portion of the property should be squared up and kept in the residential zone. Mr. Joyce said a jog in the property line would still exist due to garage and rear yard setbacks. Councilmember Love said the community council wanted to preserve the house but had concerns about undesirable business uses. Councilmember Love said she felt the community council would be content if the Administration would work with the owners to develop restrictive covenants regarding the types of businesses which would be allowed. Councilmember Buhler said the area was primarily residential. He said he was concerned about someone acquiring enough property to construct a large business. Councilmember Christensen asked about the differences between CN and RB zones. Mr. Joyce said the RB zone insured the residential character of structures and limited property sizes. All Council Members were in favor of holding the proposal until the Administration had an opportunity to work with the property owner to develop restrictive covenants. #5. RECEIVE A REPORT FROM THE CITIZENS COMPENSATION ADVISORY COMMITTEE. View Attachment Vic Blanton, Brenda Hancock, Jill Carter, and John Campbell briefed the Council with the attached handout. Mr. Campbell said the committee recommended merit and cost-of- living increases not exceed 3-31A-. He said they also recommended a process for slowing the mid-point ranges. Councilmember Christensen asked about compensation for senior employees. Ms. Carter said in most compensation systems the mid-point range reflected the market. She said employees beyond mid-point were generally being compensated for performance, loyalty, and seniority. Mr. Blanton said some compensation plans involved steps rather than ranges. He said typically the top step was at or slightly above the market. Councilmember Buhler asked if the Administration took exception to any of the committee's recommendations. Ms. Hancock said they were comfortable with the 02 - 2 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH THURSDAY, FEBRUARY 28 , 2002 recommendations as long as funding was available. Councilmember Lambert asked how the indexes where complied. Mr. Campbell said the Bureau of Labor Statistics published an index. Councilmember Lambert asked about the numbers over the past several years. Mr. Blanton said the regional index for western cities over the past year, with populations between 50, 000 to 1,500, 000, increased 1.9 percent. #6. RECEIVE A BRIEFING REGARDING AN INTERLOCAL AGREEMENT WITH THE UTAH DEPARTMENT OF TRANSPORTATION, UTAH TRANSPORTATION AUTHORITY, CITY OF LOGAN AND PARK CITY TO ESTABLISH A UNIFORM CERTIFICATION PROGRAM FOR DISADVANTAGED BUSINESS ENTERPRISES. View Attachment Item was moved to March 5, 2002. #7. RECEIVE A BRIEFING REGARDING TRAFFIC CODE AMENDMENTS. View Attachment Item was moved to March 5, 2002. #8 . RECEIVE A BRIEFING FROM THE AIRPORT DIRECTOR RELATED TO THE OLYMPICS. View Attachment Tim Campbell briefed the Council with a slide presentation. He said Delta Airlines normally operated with 34 check-in counters. He said 26 additional check-in counters were installed to accommodate the large crowds. He said six counters and three screening checkpoint lanes were added to the international arrivals facility. Mr. Campbell said Team 2002 was created with airport employees. He said employees wore red vests and provided way-finding services for visitors throughout the games. He said lines were long and refreshments were offered to customers while they waited. Councilmember Lambert said he received complaints about the airport being unprepared for the Olympics. He asked if a summary of the preparations could be given to the Council for distribution. Mr. Campbell said he would provide the information. #9. RECEIVE A BRIEFING REGARDING A RECLASSIFICATION OF THE PLANNING, ENVIRONMENTAL AND CAPITAL PLANNING DIRECTOR POSITION AT THE AIRPORT. View Attachment Tim Campbell briefed the Council with the attached handout. He said four of the eight senior level division director positions were merit positions. He said when vacancies occurred in these positions he wanted to reclassify them as at-will positions. Councilmember Christensen asked if merit status prohibited classification changes. Mr. Campbell said that was correct unless an employee requested a change. A straw poll was taken on approving the request. All Council Members were in favor. #10. RECEIVE A BRIEFING REGARDING A LOAN TO SCENTSATIONS LOTIONS AND OILS, LLC. FROM SALT LAKE CITY' S SMALL BUSINESS REVOLVING LOAN FUND. View Attachment LuAnn Clark and Gary Mumford briefed the Council with the attached handout. Councilmember Buhler asked if there were any changes from the handout. Mr. Mumford said no. Councilmember Buhler said the Council previously discussed loan criteria and asked if the criteria was used in this recommendation. Ms. Clark said yes. She said an official proposal regarding the criteria would be ready for Council consideration in the near future. Councilmember Buhler said future loans would be approved by the Administration based 02 - 3 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH THURSDAY, FEBRUARY 28 , 2002 on the criteria but the Council would still have the ability to audit approvals. Councilmember Saxton asked if the applicant had received other monies. Ms. Clark said the applicant invested $5,000 of their own money. Councilmember Saxton asked if the store located at 900 South and 900 East would remain open. Ms. Clark said that was correct. Councilmember Saxton asked if the applicant tried to obtain conventional financing. Ms. Clark said an error was made on the applicant' s credit regarding the cost of goods. She said based on the error, the applicant felt the bank would not give her a loan. Councilmember Saxton said she wanted to caution the City not to get into competition with banks. She said applicants needed to explore other financial options before approaching the City. The Council was in favor of advancing the item. #11. RECEIVE AN UPDATE REGARDING LIBRARY SQUARE. View Attachment Nancy Tessman, D.J. Baxter, Russell Weeks, and Mark Johnson briefed the Council with the attached handout. Councilmember Buhler said after the briefing the Council needed to study the written material then meet again to give some direction to the Library. Ms. Tessman said excavation would begin April 1, 2002 and the contractor needed to know what to do with the dirt located on the east side of the block. Councilmember Saxton asked how much dirt was needed to fill in the hole and level the ground. Ms. Tessman said more dirt was needed but the amount depended on how high the dirt would be in relation to the crescent wall. Councilmember Saxton said she understood that was part of the design. Ms. Tessman said she felt the relationship of the wall to the east side of the block had some bearing on how the east side would be developed. She said one option would be to bring the earth up to the bottom of the wall. Councilmember Buhler asked if the decision was based on whether or not housing was developed. Ms. Tessman said no. She said it had more to do with how the land was sculpted. Councilmember Turner asked what would be done if the Council did not make a decision. Ms. Tessman said $1.2 million was set aside to fulfill the original scope given to the contractor. She said the money would be used to level the open space on the perimeter of the block and create an asphalt parking area in the center. Councilmember Turner asked about the cost of building amphitheaters. Ms. Tessman said the green space associated to the east along with the performance shell would cost approximately $5 million. Councilmember Turner asked if the $1.2 million was included in the $5 million. Ms. Tessman said yes. Mr. Baxter said the $1.2 million figure had been reduced to $1.1 million due to design costs. He said the main question was should the $1.1 million be spent toward an ultimate objective or an interim solution. He said the Administration was optimistic about raising funds from donations and had been contacted by interested parties. He said fundraising deals could not be put together until Council direction was given. He said the consultants had prepared a phased approach for spending current funds and raising additional money to finish the project. A design model of the Library block proposal was used to illustrate potential uses. Discussion included: gardens, fountains, plazas, multiple activities, amphitheaters, lawns, festivals, retail shops, food carts, book stores, eating establishments, performance areas, and open space. The Council requested information on the following questions. Councilmember Love asked 02 - 4 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH THURSDAY, FEBRUARY 28 , 2002 what the current housing vacancy rate was. She said 121 housing units were originally discussed for the east side of the Library block. She asked if other locations in the area were available for 121 units. She asked what type of housing was proposed for the Library block such as subsidized housing, affordable housing, etc. Councilmember Love asked if there was a precedent where the City purchased property, other than through the Redevelopment Agency, to develop housing. She asked what the appropriate amount of open space was for communities and how the City was doing on the ratio of areas per capita excluding the foothills and mountains. She asked the designers how the Library open space was different from other open space areas in the Central City area. Councilmember Buhler asked what the annual operation and maintenance costs would be. He said he also wanted to know who would be responsible for those costs. Councilmember Christensen asked if the phasing options were listed in the material. Mr. Johnson said no. He said the phasing would be different depending on the expected outcome. He said he would provide specific information based on the outcome the Council wanted. Councilmember Jergensen said he wanted a response to Transit Oriented Development (TOD) for the Library block. He said if open space was used for the Library block, how would TOD ideas be developed along the 400 South corridor. Councilmember Buhler said he wanted to know if the light rail stop at the Library was based on a certain number of housing units being developed on the block. Councilmember Lambert asked about proposed retail outlets. Ms. Tessman said the proposal included a small amount of retail. She said work was being done with a retail advisory group to market the space. She said they wanted to meet with the Council on another occasion to discuss the retail issue. Councilmember Lambert asked how many outlets were planned. Ms. Tessman said potentially ten to twelve. Councilmember Buhler said planning and zoning issues needed to be addressed regarding liquor licenses. Ms. Tessman said none of the restaurants were currently eligible for liquor licenses. Councilmember Jergensen said major libraries across the country had shops and restaurants and he wanted to make sure they were included. Councilmember Saxton asked if the Library had checked with other businesses in the area. Ms. Tessman said most businesses they contacted were interested in being considered. Councilmember Saxton said she was concerned about larger businesses having an unfair advantage. #12. CONSIDER A MOTION TO ENTER INTO EXECUTIVE SESSION, IN KEEPING WITH UTAH CODE, TO DISCUSS LABOR NEGOTIATIONS. An Executive Session was held. See file M 02-2 for Sworn Statement and tape. The meeting adjourned at 9:41 p.m. sc 02 - 5 MEMORANDUM DATE: February 26, 2002 TO: Council Members FROM: Gary Mumford RE: PROPOSAL TO REPEAL SECTION 12.56.510 OF THE SALT LAKE CITY CODE RELATING TO PARKING VEHICLES FOR CERTAIN PURPOSES PROHIBITED CC: Rocky Fluhart,Jay Magure,Roger Cutler Section 12.56.510 prohibits parking or operating vehicles for the primary purpose of displaying vehicles for sale or exhibiting advertising. One of the original purposes for this legislation was to prevent residential areas from becoming unpermitted used car lots. However, several public advocacy groups have raised questions concerning unlawful interference with protected rights of commercial speech. The City Attorney is requesting that the City Council repealed the section to avoid unnecessary litigation. According to the code section, no person shall park or operate a vehicle upon any roadway for the principal purpose of: • Displaying such vehicle for sale; • Greasing or repairing such vehicle, except repairs necessitated by an emergency; • Displaying advertising; or • The sale of foodstuff or other merchandise in any business district. In most cases, the enforcement objectives can be adequately address by other legislation. Some examples are: o City code doesn't allow a vehicle to remain continuously parked in excess of 72 hours. o City code makes it unlawful to drive a vehicle with a sign, poster or other nontransparent material in the windows as to impair the driver's vision. o Federal Clean Water Act and Health Department regulations prohibits spilling of motor oil in the street that may enter the stormwater system. o Unless licensed to do so by the City's business license office, no person shall sale any merchandise or food from a vehicle located upon a City street. The City Attorney requests the Council's repeal the section on February 28, 2002 in order to have a pending suit dismissed. The City Attorney will be available to respond to questions. ROGER F. C UTLER SALE' . A .�..;� �'Hyi° ORP '� s IOI �-� -� �� ROSS C. ANDERSON CITY ATTORNEY LAW DEPARTMENT MAYOR COUNCIL TRANSMITTAL TO: Rocky J. Fluhart DATE: February 13, 2002 Chief Administrative Officer FROM: Roger F. Cutler g City Attorney SUBJECT: Repealing Section 12.56.510 Salt Lake City Code Parking for certain purposes prohibited DISCUSSION: Section 12.56.510 prohibits parking or operating a vehicle for the "primary purpose" of: (a) displaying the vehicle for sale; (b) greasing or repairing the vehicle; or (c) displaying advertising or for the sale of merchandise or food in any business district. The ordinance has been misinterpreted by meter readers and tickets have been issued for no other apparent reason than having a "for sale sign" on a vehicle. This application is inappropriate and raises questions concerning unlawful interference with protected rights of commercial speech. As a consequence several public advocacy groups have objected to and requested that the ordinance be repealed or amended. After consultation with the City Attorney, the Administration agreed to suspend enforcement while it considered the legal issues and decided whether amendments were desirable or, in the alternative, the ordinance should be repealed. The Administration is now of the opinion that, at this time, the ordinance should be repealed. This conclusion was reached because this section's major focus (preventing signage that would block safe operation of motor vehicles and turning residential areas into commercial used car lots) can be 451 SOUTH STATE STREET, ROOM 505, SALT LAKE CITY, UTAH B41 11 TELEPHONE: 801-535-7788 FAX: 801-535-764❑ ®RECYCLED PAPER a addressed with other laws passed since this ordinance was originally adopted. Therefore, it is recommended that this section be repealed to avoid misapplication and avoid unnecessary litigation. If the alternative enforcement activity proves unsuccessful, we can revisit the issue and draft a more narrowly tailored provision. CONTACT PERSON: Roger F. Cutler, City Attorney, 535-7788 2 SALT LAKE CITY ORDINANCE No. of 2002 (Parking for certain purposes prohibited) AN ORDINANCE REPEALING SECTION 12.56.510 OF THE SALT LAKE CITY CODE, RELATING TO PARKING FOR CERTAIN PURPOSES PROHIBITED. Be it ordained by the City Council of Salt Lake City, Utah: SECTION 1. That Section 12.56.510 of the Salt Lake City Code, relating to parking for certain purposes prohibited, be, and the same hereby is, repealed. SECTION 2. This ordinance shall take effect immediately upon the date of its first publication. Passed by the City Council of Salt Lake City, Utah this day of , 2002. CHAIRPERSON ATTEST: CHIEF DEPUTY CITY RECORDER • Transmitted to Mayor on Mayor's Action: Approved. Vetoed. MAYOR CHIEF DEPUTY CITY RECORDER (SEAL) Bill No. of 2002. Published: G\Ordinance 02\I2-56-510 parking prohibited-clean.doc 2 SALT LAKE CITY ORDINANCE No. of 2002 (Parking for certain purposes prohibited) AN ORDINANCE REPEALING SECTION 12.56.510 OF THE SALT LAKE CITY CODE, RELATING TO PARKING FOR CERTAIN PURPOSES PROHIBITED. Be it ordained by the City Council of Salt Lake City, Utah: SECTION 1. That Section 12.56.510 of the Salt Lake City Code, relating to parking for certain purposes prohibited, be, and the same hereby is, repealed. 12 56 510 Parking fair certain p s „rohibited 1.ir♦✓V♦✓iV1 No person shall park or operate a vehicle upon any roadway for the principal purpose of: A, Displaying such vehicle for sale; B. Greasing or repairing such vehicle, except repairs necessitated by an emergency; C. Displaying advertising; or D. The sale of foodstuffs or other merchandise in any business district. SECTION 2. This ordinance shall take effect immediately upon the date of its first publication. Passed by the City Council of Salt Lake City, Utah this day of , 2002. CHAIRPERSON ATTEST: CHIEF DEPUTY CITY RECORDER Transmitted to Mayor on . Mayor's Action: Approved. Vetoed. MAYOR CHIEF DEPUTY CITY RECORDER (SEAL) Bill No. of 2002. Published: . G:\Ordinance 02\12-56-510 parking prohibited.doc 2 SALT LAKE CITY COUNCIL STAFF REPORT DATE: February 22, 2002 SuBJEcr: Petition No. 400-01-45—Planning Commission request to rezone property located at 1321 South 500 Fast from Residential R-1/5000 to Neighborhood Commercial CN STAFF REPORT BY: Janice Jardine, Land Use and Policy Analyst Document Type Budget-Related Facts Policy-Related Facts Miscellaneous Facts Ordinance The proposal has no The proposal is The Administration has budget impact. presented to revise an clearly stated the existing ordinance. positive aspects of the proposal. This action would rezone the rear portion of an individual parcel of property that is currently zoned with two different zoning classifications. The first 120 feet of lot depth is zoned Neighborhood Commercial and the rear portion of the property(60 feet)is zoned Residential R-1/5000. The proposed rezoning would allow parking in the rear portion of the property to support commercial use of the existing structure. Please refer to the attached maps for clarification. OPTIONS AND MOTIONS: 1. ["I move that the Council"] Adopt an ordinance rezoning property at 1321 South 500 East from Residential R-1/5000 to Commercial Neighbor CN. 2. ["I move that the Council"] Not adopt an ordinance rezoning property at 1321 South 500 East from Residential R-1/5000 to Commercial Neighbor CN. MATTERS AT ISSUE/POTENTIAL QUESTIONS FOR ADMINISTRATION: ➢ Council Members may wish to discuss with the Administration in further detail options or steps taken to address issues,comments and opinions expressed to date relating to mitigation of potential negative impacts on the surrounding residential neighborhood. a. The Administration's transmittal states that neighboring residents have noted that the property should not be rezoned because the use of the rear yard for off-street parking would have adverse impacts on adjacent residential properties. 1 b. The Council received written correspondence noting neighborhood concerns relating to the proposed rezoning. Please see the attached letter for details. Issues include: 1. Potential 24-hour business operations 2. Security and safety concerns 3. Parking location and potential adverse impacts on surrounding residential uses 4. Planning Commission meeting procedure c. While the Central City Community Council voted to support the rezoning,the Liberty Wells Community Council voted not to support the rezoning. The Community Council expressed concerns relating to parking in the rear yard including: 1. The potential of attracting undesirable activities when the business use is closed. 2. Child safety issues relating to the proposal to use the property for a childcare facility and locating the play area in the rear yard. 3. Impacts on neighboring residential properties. d. The Planning Commission motion included conditions for the installation of a solid fence and strong vertical landscaping along the southern property boundary. The Planning Commission motion did not address that the existing ordinance would allow parking in the front yard behind the required front yard setback.This would be inconsistent with the`walkable communities' approach. e. The Planning staff report notes: 1. Rezoning the entire parcel to Neighborhood Commercial would allow parking in the rear yard,which will enhance the neighborhood streetscape and the pedestrian environment. 2. The property owner could satisfy parking requirements for a business in the front yard. 3. Requiring that parking be provided in the front yard would create a greater visual impact on the neighborhood than a parking lot in the rear yard. 4. Parking located in the rear yard would be required to include a landscaped buffer to mitigate impacts on adjacent properties. 5. Potential impacts on the property at 515 Fast Sherman Avenue were self-imposed through the approval of a specific request to construct a home without the required rear yard setback. (In 1950,the Board of Adjustment approved a variance to permit an addition to the existing retail store and allow a two-foot rear yard for a new single-family residence facing Sherman Avenue. The existing home is very close to the property line.) ➢ The Administration's analysis addresses the draft Central Community Master Plan. The Council has previously expressed concern when draft master plans(not adopted by the Council)are cited in policy analysis.Area residents and community council representatives are currently reviewing the draft master plan. The Planning Commission has reviewed the draft but has not taken formal action. A mitigating factor is that elements from the adopted 1974 Central Community Master Plan and the 1990 Urban Design Element are also included in the Administration's analysis. > While the 1995 zoning rewrite established opportunities to allow conversion of residential structures for nonresidential uses,the Council's policy that supports avoiding conversion of homes to business use,"If it looks like a house,it is a house",remains the same. Does the Council wish to revisit this policy? The existing house was previously used for a commercial childcare center and more recently, a residential rental property. Currently,the structure is being considered for use as a childcare facility. 2 KEY ELEMENTS A. The Administration's transmittal and Planning staff report provide a detailed background relating to the proposed rezoning and findings of fact that support the criteria established in the City's Zoning Ordinance, Sec. 21A.50.050-Standards for General Zoning Amendments. Please refer to the Administration's paperwork and Planning staff report for details. Key points are summarized below: 1. Zoning history: a. Prior to 1995,the property was divided with two zoning classifications, Residential R-4(low-density multi-family)and Business B-3. b. During the 1995 Zoning Rewrite,draft maps zoned the entire parcel for commercial uses. The final zoning map divided the property with two zoning classifications, Residential R-1/5000 and Neighborhood Commercial CN c. In 1999, a new property owner brought the zoning boundary issue to the attention of Planning staff. Staff administratively adjusted the zoning boundary to zone the entire parcel Neighborhood Commercial. d. After 1999, surrounding property owners raised concerns relating to the manner in which the zoning boundary had been adjusted without public notification, adverse impacts due to lack of management as a rental property,recent development activities and lack of property maintenance. Planning staff determined that it would be appropriate to rescind the administrative action and deal with the zoning boundary adjustment through the formal rezoning process. 2. The parcel layout pattern for the properties fronting on 500 East is unique. The subject lot has a greater depth than the two adjacent commercial lots. 3. Prior to 1995,zoning boundaries were established based on a standard depth. In this area along 500 East,the commercial zoning boundary extended 130 feet from the front property line and the remaining portion of the lots were zoned residential. The Zoning Ordinance specified that if the residential portion of a lot were less than 30 feet,the commercial zoning classification would apply to the entire lot area. In addition,the Zoning Ordinance allowed parking lots in residential districts as a conditional use. 4. During the 1995 Zoning Rewrite,zoning boundaries were established on a parcel-based approach rather than using a standard depth. The conditional use process for commercial parking in residential zones was removed from the Zoning Ordinance.The following criteria were used as a basis to create the citywide zoning map: a. Adopted community master plan future land use maps b. Existing zoning c. Existing land use d. Avoid multiple zoning classification on a single property e. Minimize the number of nonconforming uses and properties B. Surrounding land uses include an apartment building and a convenience store to the north and commercial and residential uses to the east,south and west. C. The purpose of the Residential R-1/5000 zone is to provide for conventional single-family residential neighborhoods on lot not less than five thousand square feet in size. (Zoning Ordinance Sec. 21 A.24.070.A) 3 D. The purpose of the Neighborhood Commercial CN zone is to provide for small-scale commercial uses that can be located within residential neighborhoods without having significant impact upon residential uses. (Zoning Ordinance Sec. 21A.26.020.A.) _ E. The Planning Commission voted to recommend that the City Council approve the proposed rezoning with the following conditions: 1. Erect a solid fence along on the southern property boundary. 2. Plant strong vertical landscaping along the southern property boundary. 3. The Planning Director be granted approval authority for the final landscape plan. F. Issues discussed at the Planning Commission hearing included: 1. History of zoning and use of the property. 2. Proposed future use of the property for a childcare facility,the intent not to locate parking in the rear yard and use the rear yard as a play area for the children. 3. Development options and limitations including the potential for parking in the front yard area,buffering requirements for a rear yard parking lot and preservation of mature landscaping. 4. Impacts on adjoining residential properties and the surrounding neighborhood including parking, lighting,property management and maintenance,and safety and security issues. 5. Concern that the current property owner was not present at the meeting. MASTER PLAN AND POLICY CONSIDERATIONS: A. The 1974 Central Community Development Plan includes the following statements: 1. Principles: a. The need to revitalize and stabilize inner-city neighborhoods. b. Greater recognition of mixed-use areas and their relative permanence. c. Neighborhood revitalization as a remedy for obsolescence and decline. 2. Policies and Proposals: a. Population: Central Community program to reverse trend of families leaving for suburbs. b. Urban Design: ...improve the architectural character of neighborhoods. 3. Land Use: Designates the properties on both sides of 500 East between 1300 South and Sherman Avenue(1330 South)for neighborhood business uses. The adjacent properties surrounding the neighborhood business area are identified for low density residential uses (5.5 units per acre). 4. Citizens' Policies and Recommendations: a. Provide an effective means of notifying residents of proposed zoning changes and city activities within their community. b. Organize the City into four block areas each with a citizen representative who will work with City staff in monitoring and reviewing new construction and changes in use of properties within their respective areas. c. Give more consideration to those factors, including residential densities, which give the community a ghetto appearance. d. Establish and enforce architectural controls to preserve the scale and mood of the neighborhoods. 4 B. The City's 1990 Urban Design Element includes statements that emphasize preserving the City's image, neighborhood character and maintaining livability while being sensitive to social and economic realities. The Urban Design Element is an adopted plan that outlines policy objectives. Applicable policy concepts include: 1. Establish performance criteria for landscaped side yards or buffers rather than prescriptive regulations, particularly where an industrial or retail/commercial district abuts a residential use. (The Zoning Ordinance requires buffers between dissimilar zoning districts rather than between dissimilar land uses.) 2. Allow individual districts to develop in response to their unique characteristics within the overall urban design scheme for the city. 3. Ensure that land uses make a positive contribution to neighborhood improvement and stability. 4. Ensure that building restoration and new construction enhance district character. 5. Require private development efforts to be compatible with urban design policies of the city regardless of whether city financial assistance is provided. 6. Treat building height, scale and character as significant features of a district's image. 7. Ensure that features of building design such as color,detail,materials and scale are responsive to district character,neighboring buildings,and the pedestrian. C. The Community Housing Plan contains the following related policy statements: 1. On a citywide basis,the City Council endorses: • Policies and programs that preserve housing opportunities as well as business opportunities within the City to ensure the continued existence of a population base and business base. While the Council supports mixed-use development, it also recognizes that there are some zones that are not conducive to residential development. As such,the Council will discourage any housing development in industrial-type zones. • Neighborhood anchor areas or commercial uses that are necessary to the function of residential neighborhoods or are compatible with residential activity. 2. The City Council supports mixed-use and mixed-income concepts and projects that achieve vibrant, safe, integrated walkable neighborhoods through a diverse mix of uses and incomes in areas with established services that: • Include public and neighborhood interaction and participation in the design process. • Incorporate an assortment of residential,commercial,and professional office uses. • Incorporate affordable housing whenever possible. • Include a variety of housing types, mixed-income levels, live/work developments,etc. D. The Council's adopted growth policy states: It is the policy of the Salt Lake City Council that growth in Salt Lake City will be deemed the most desirable if it meets the following criteria: 1. Is aesthetically pleasing; 2. Contributes to a livable community environment; 3. Yields no negative net fiscal impact unless an overriding public purpose is served;and 4. Forestalls negative impacts associated with inactivity. E. During the Council's recent discussions relating to growth, annexations and housing policy,Council Members have expressed support for developments that promote livable community concepts such as: 1. Pedestrian and bicycle friendly environments 2. Compact,transit and pedestrian oriented developments 5 3. Neighborhood anchor areas or commercial and/or business uses that are necessary to the function of residential neighborhoods or are compatible with residential activity 4. Local services that are conveniently available or can be provided and are accessible on foot F. The City's Strategic Plan and the Futures Commission Report contain statements that support Creating attractive conditions for business expansion including retention and attraction of large and small businesses,but not at the expense of minimizing environmental stewardship or neighborhood vitality. The documents express concepts such as maintaining a prominent sustainable city,ensuring the City is designed to the highest aesthetic standards and is pedestrian friendly,convenient,and inviting. CHRONOLOGY: The Administration's transmittal provides a chronology of events relating to the proposed rezoning. Key meeting dates are listed below. Please refer to the Administration's chronology for full details. • August 1,2001 Central City Community Council meeting • August 8,2001 & Liberty Wells Community Council meetings September 12,2001 • September 20,2001 Planning Commission Hearing cc: Rocky Fluhart,Jay Magure,Roger Cutler,Lynn Pace,David Dobbins,Stephen Goldsmith,Brent Wilde, Cheri Coffey,Everett Joyce,Janne Neilson,Barry Esham File Location: Community and Economic Development Dept.,Planning Division,Rezoning— 1321 South 500 East 6 FF13 2 :i 2002 Joseph Schmidtke 337 East Sherman Ave. �r-IL T-L__ r:._. 7TL-t. 3URL Li.UW 1.4Ly, V Lint Home 487-4508 Office 535-6688 Mr. BuMler I under stand that the city counsel is hearing the zoning change for 1325 south 500 east back of the lot from a R1-5000 to light commercial. I live three houses east afthe property and I attended the planning commission meeting on behalf of the neighbors. I feel the meeting was unfair in a number of ways and the planning committee had already made up their minds before the hearing. A city planner was representing the owner of the property; they wanted to adjust some zoning lines that they had made a mistake on some years back. While it was being presented Brent Wilde a city planner was seating with the committee and was injecting his thoughts. The owner ofthe property had brought a man to a neighbor hood council meeting saying he was the new owner and was buying the property and was going to open a day care, which the place had been used as for the past thirty years. This gentleman spent a lot of time cleaning the building and property. He also applied for a business license but never completed the inspection and was denied. One committee member was worried about the trees in the back being damaged when a parking lot was constructed.The trees have not been maintained and present a big bug problem A house to the west is about three to four feet from the property line. One of the committee members though that it was a self induced hardship.But when it was built forty-five years ago,the owner was not aware that the city would change it to a commercial property.The present owner of the property is an individual who has demonstrated he has no respect for the property or the people living around it. Our main concern as neighbors is that if a parking lot is allowed their it can be leased out any kind of business.Even a twenty four hour business would be able to place cars in this inclosed area all hours of day and night the property is surrounded by a three plex on the north and single family residents on the east and west In order to preserve our neighbor hood I strongly feel that this area should remain as an R1-5000. Sincerely Joseph Schmidtke 17 . w ,„.' a b y 2 y „ a � - -�;; f '-z 1��South ,,. x� , ,,,,. wr t i '''''' t 1 le t4 w ski 4ki - 4. ....„_tp ..„, _ , , a ,. 4- z ,,� �c�\." a• a !' +, t 8.4,-,, , al I k . ,. cam+' 4 �� ¢ t •s, a . r� Sherman Avenue ° A u s °o I j1Y1 I R irr;r„ k.». sypH x( - '"°%s. {t f^'^. t N,i- Aid, 6 2 3 T. x N « ..an.4 .• ay }� µ 6" 1995 Zoning Boundaries 1 P"e. , j,.-'-'0 -...,:-. ,g t. ,. .. - •,�..^,> ,v[xaF x �.. a -r t r th .�. a u , r , 1 , „ n s_ • alp n ." iiir 11 t{ g^ ... i,.y„ i11ARDW gs gg 9� FA 1'li w» , 4s,� , au3'j, 1 f } t ; it sr 11. da 5 ;z.,+%�'.; ut'"*"."* M.`.z- ...._.. „.1: .. .o,.w. ass. w� Sherman Avenue ,, , 11, 1 d V� yr ... ' f, or 1 j p y $ Mfi ' c ur s t , ,� w w „ Recommended Zoning Boundary • 2 2 STEPHEN A. GOLDSMITH S _ ft r A\ai Mgt°4 IPA ROSS G. ANDERSON PLANNING DIRECTOR COMMUNITY AND ECONOMIC DEVELOPMENT MAYOR PLANNING DIVISION BRENT B. WILDE DEPUTY PLANNING DIRECTOR COUNCIL TRANSMITTAL TO: Rocky Fluhar TRANSMITTAL DATE: Director Management Services FROM: Stephen Goldsmith,Planning Director - ) RE: PETITION 400-01-45. This is a request by the Salt Lake City Planning Commission to amend the Central Community zoning district map by correcting a map error created during the 1995 citywide zoning rewrite for the property at 1321 South 500 East. Staff Contact: Everett L. Joyce 535-7930 RECOMMENDATION: That the City Council hold a discussion and schedule a public hearing regarding the proposed zoning district map amendment to rezone the rear portion of the parcel at 1321 S. 500 East from "R-1/5000"Residential to "CN" Neighborhood Commercial as described in the attached ordinance. DOCUMENT TYPE: Ordinance BUDGET IMPACT: Not applicable. DISCUSSION: Issue Origin: One of the objectives of the 1995 citywide zoning rewrite project was to ensure parcels were not split by two zoning classifications unless appropriate. The intent for the subject parcel was to zone the entire property CN. In 1999,the prospective property owner identified the parcel was split by two zoning districts. At that time the zoning map was administratively corrected. Later,neighborhood problems resulted from students renting the property and inquiring neighbors became aware of the zoning adjustment and objected to the administrative action. The Planning staff determined it was necessary to provide a formal public process to identify and address issues with zoning the entire parcel "CN". This issue was presented to the Planning Commission and they initiated a petition to consider rezoning the entire parcel at 1321 S 500 East to "CN"Neighborhood Commercial. The petition request is to rezone the eastern portion of parcel number 16- 07-478-015 located at 1321 South 500 East Street. The rear portion of the lot to be rezoned is 5,020 sq. ft. or 30%of the lot. 451 SOUTH STATE STREET, ROOM 406, SALT LAKE CITY, UTAH 8411 1 TELEPHONE:801-535-7757 FAX:801-535-6174 CI RECYCLED PAPER Analysis: The 1974 Central Community Development Plan depicts the properties fronting on 500 East between 1300 South Street and Sherman Avenue as Neighborhood Business. The adjacent properties surrounding the neighborhood business area are designated for low density residential land uses. The draft Central Community master plan update also identifies the property on the Future Land Use map as Neighborhood Commercial. Adjacent commercial properties fronting 500 East Street are zoned entirely CN. The subject parcel is deeper than the adjacent commercial properties. In 1950, the properties to the south, 1329 South 500 East(Cozza's Market) and 515 Sherman Avenue (single family home),were one corner parcel with the same depth as the 1321 South 500 East parcel. The Board of Adjustment approved a request to permit an addition to the retail store and to allow a two-foot rear yard for a new single-family residence in the rear of the lot facing Sherman Avenue. This petition has been routed to other City departments for review and comment. The City departments do not have any objection to the proposed rezone. Public Process: The request was presented to the Central City and Liberty Wells community councils. The Central City community council heard the rezoning request on August 1, 2001. The community council believed that the property should be rezoned so that parking would be in the rear yard rather than the front yard. The rezoning request was discussed at the Liberty Wells community council meetings of August 8, 2001 and September 12, 2001. The community council recommended that the zoning remain split on the parcel so that the rear yard could not be used for parking because of their belief that the rear yard parking would attract undesirable activities when the business was closed,would interfere with the safety of children in the playground area and was too close to neighboring residential properties. The child safety issue relates to the current potential purchase and use by a daycare center. The Liberty Wells Community Council also expressed concerns with the existing property owner's lack of maintenance of the property. On October 4, 2001, the Planning Commission approved a motion to forward Petition 400-01-45 with a positive recommendation to the City Council to adopt the proposed Central Community zoning district map amendment to change the zoning of the rear portion of the parcel at 1321 S. 500 East from"R-1/5000"Residential to "CN" Neighborhood Commercial. Relevant Ordinances: Section 21A.50.050 Standards for General Amendments. Contents Chronology Proposed Ordinance City Council Hearing Notice Notice Mailing List Planning Commission Public Hearing Notice and Postmark Planning Commission Staff Report and department comments Planning Commission agenda and minutes for October 4, 2001 Original Petition Chronology Chronology May 17, 2001 Planning Commission initiated the petition August 1, 2001 Petition request presented to the Central City Community Council August 8, 2001 Petition request presented to the Liberty Wells Community Council August 27, 2001 Petition review and response request sent to Engineering, Fire, Public Utilities, and Transportation Sept. 12, 2001 Continued petition discussion at the Liberty Wells Community Council Sept. 19, 2001 Notice of Planning Commission public hearing October 4, 2001 Planning Commission public hearing October 15, 2001 Ordinance request sent to City Attorney October 18, 2001 Planning Commission ratified minutes of October 4, 2001 meeting October 29, 2001 Received ordinance from City Attorney November 8, 2001 Requested ordinance revision from City Attorney November 15, 2001 Received final revised ordinance from City Attorney Proposed Ordinance AFFECTS SIDWELL NO.: 16-07-478-015 SALT LAKE CITY ORDINANCE No. of 2001 (Rezoning property located at approximately 1321 South 500 East) AN ORDINANCE REZONING THE REAR PORTION OF PROPERTY LOCATED AT APPROXIMATELY 1321 SOUTH 500 EAST FROM RESIDENTIAL (R-1-5000) TO NEIGHBORHOOD COMMERCIAL(CN), PURSUANT TO PETITION NO. 400-01-45. WHEREAS, the City Council of Salt Lake City, Utah, has held public hearings before its own body and before the Planning Commission, and has taken in to consideration citizen testimony, filing, and demographic details of the area, the long range general plans of the City, and any local master plan as part of its deliberations. Pursuant to these deliberations,the City Council has concluded that the proposed change of zoning for the rear portion of the property located at approximately 1321 South 500 East is appropriate for the development of the community in that area. NOW, THEREFORE,be it ordained by the City Council of Salt Lake City,Utah: SECTION 1. That the rear portion of the property located at approximately 1321 South 500 East which is more particularly described on Exhibit A attached hereto, shall be and hereby is rezoned from Residential (R-1-5000)to Neighborhood Commercial ( . SECTION 2. Amendment of Zoning Map. The Salt Lake City Zoning Map, as adopted by the Salt Lake City Code,relating to the fixing of boundaries and zoning districts, shall be, and hereby is amended consistent with the rezoning identified above. SECTION 3. Conditions. The rezoning identified herein shall be subject to the applicant submitting acceptable plans, and obtaining a permit for each of the following: (1) A solid fence on the southern boundary of the property; (2) Strong vertical landscaping on the southern boundary; and (3) Approval of the final landscaping plan by the Salt Lake City Planning Director. SECTION 4. Effective Date. This ordinance shall become effective on the date of its first publication and shall be recorded with the Salt Lake County Recorder. The City Recorder is instructed not to publish or record this ordinance until the conditions identified above have been met, as certified by the Salt Lake City Planning Director. SECTION 5. Time. If the conditions identified above have not been met within one year from the date that this ordinance is signed,this ordinance shall become null and void. The City Council may, for good cause shown, extend the time period for satisfying the conditions identified above. Passed by the City Council of Salt Lake City,Utah, this day of , 2001. CHAIRPERSON ATTEST AND COUNTERSIGN: CHIEF DEPUTY CITY RECORDER 2 Transmitted to Mayor on Mayor's Action: Approved Vetoed. MAYOR ATTEST AND COUNTERSIGN: CHIEF DEPUTY CITY RECORDER (SEAL) APPROVED AS TO FORM Salt Lake Cit Attorney` Office Date 1 Bill No. of 2001. Published: By G:\Ordina0l\Rezoning 1321 South 500 East-Oct 25,2001.doc 3 EXHIBIT "A" Commencing 73 Feet North from the SW Corner of LOT 11, BLOCK 14, 5 AC PLAT A, Big Field Survey, thence North 83.67 Feet; thence East 180 Feet; thence South 83.67 Feet; thence West 180 Feet to the point of beginning. S,p 11-� v Planning Commission SALT LAKE CITY PLANNING COMMISSION STAFF REPORT Petition 400-01-45 Rezoning property at 1321 S. 500 East from R-1/5000 to CN October 4, 2001 REQUEST Petition 400-01-45 is a request to the administrative action. This petition rezone a portion of a parcel located at request will provide a formal public process 1321 South 500 East from R-1/5000 to to zone the entire parcel "CN". CN Neighborhood Commercial. Historically the property was always split with commercial and residential Eiro MID 1300$ zoning. In the 1995 citywide zoning �, era. le , l��l in rewrite the intent was to zone the entire SHERMAN AVE run Awl property CN. In1999,when it wasinima IRMS �� 1 � rim' s;: 11.\R1'1.l'AVE IlARRISONA\'E identified that the parcel was stills litcal } � � = a by two zoning districts, the zoning map � � 1 _0z AISM was administratively corrected. ��.,�:_,.��r t �3izt� a,. i� 13R0\Yh(YC,AVF. ll �� .at g Neighborhood problems resulted from CLEVELAND AVE students renting the property and inquiring neighbors became aware of 1 �' ' itiktififid the zoning adjustment and objected to COMMUNITY / NEIGHBORHOOD COUNCIL REVIEW The request was presented to the Central City and Liberty Wells community councils. The Central City community council heard the rezoning request on August 1, 2001. The community council believed that the property should be rezoned so that parking would be in the rear yard rather than the front yard. The rezoning request was discussed at the Liberty Wells community council meetings of August 8, 2001 and September 12, 2001. The community council recommended that the zoning remain split on the parcel so that the rear yard could not be used for parking because of their belief that the rear yard parking would attract undesirable activities when the business was closed, would interfere with the safety of children in the playground area and was too close to neighboring residential properties. The child safety issue relates to the current potential purchase and use by a daycare center. The Liberty Wells Community Council also expressed concerns with the existing property owner's lack of maintenance of the property. W W WWNLN'YYNN 1@ipiYNWqfNfTtiMNNYrNbbMYUb1NMlfiifiN'IWNM4YIiN1iNNIt53NNni1NWMNb1iNUNNMNYpNNNWIT Petition 400-01-45 Page 1 GENERAL BACKGROUND AND OVERVIEW Applicant: Salt Lake City Planning Commission Purpose of zoning map amendment: To correct a zoning map error from the 1995 citywide zoning rewrite that was intended to zone the entire parcel "CN". Previous Case Files: None Existing zoning: The existing zoning district map designation is "CN"because of an administrative map correction. This petition request will provide a public process with a formal City decision to the administrative action that designated the entire parcel "CN". Existing Master Plan Policy: The 1974 Central Community Development Plan depicts the properties fronting on 500 East between 1300 South Street and Sherman Avenue as Neighborhood Business. The adjacent properties surrounding the neighborhood business area are designated for low density residential land uses. The draft Central Community master plan update identifies the property on the Future Land Use map as Neighborhood Commercial. Affected area and parcel number: The eastern portion of parcel number 16-07-478-015 located at 1321 South 500 East Street. The rear portion of the lot to be rezoned is 5,020 sq. ft. or 30%of the lot. IDENTIFICATION AND ANALYSIS OF ISSUES Zoning History Prior to1995 Zoning Map Front 130' was zoned B-3. 10,877 sq. ft. Rear 50' was zoned R-4. 4,183 sq. ft. 1995 Zoning Preliminary Map: Entire parcel was zoned CN. 15,060 sq. ft. Final Map: Front 120' was zoned CN. 10,040 sq. ft. Rear 60"was zoned R-1/5000. 5,020 sq. ft. 1999 Zoning Administrative Map Adjustment: Entire parcel zoned CN. 15,060 sq. ft. Petition 400-01-45 Page 2 Administrative Action Two of the key objectives in the 1995 citywide zoning rewrite project were to base zoning changes on existing land use and to avoid splitting properties with two zoning districts. Through its review of initial zoning rewrite maps, Planning staff identified that the entire subject parcel was to be zoned"CN." In1999 a new property owner brought the split zoning issue to the attention of the Planning Staff. The administrative determination was that the split zoning on the adopted map was an error. Therefore, the staff corrected the zoning map to make the entire parcel CN Neighborhood Commercial. Petition Request Development activity on the subject parcel brought forward concerns by the neighborhood about the existing zoning. Neighboring residents believe that the property should remain with the split zoning because the use of the rear yard for off-street parking would have adverse impacts on adjacent residential properties. Rather than requiring the neighborhood to appeal the administrative mapping action the staff determined it would be best to rescind the administrative action and request a formal petition and zoning map amendment process. The Planning Commission initiated the petition at its July 19,2001 meeting. It ' .. =' r». `�:.> :ham,?'a :f ' .t "3' `'.€ "'S,'�x s a .--.'v 3 ! a�' . v w �5 �."'„��'''1 tea. 1 @@ 'f '�' '" 1 -- .+--<^' } ..�.l.'l.-....:.T,.., ''''._�....,..w,...r-.:- a #. s �R ^.. `, sy';,e 'v,.- "Cv `.3. � 3r.` xy „� t..9+�s I a r l +�k -44' 'a'; I ' t '� t .�� '- � i�� t � y 1 ,:'Vi :1-10'. rl ''' , i ,.3 t\ y- .x ' .3 fy, .,�.ke' qT,3 s -y�,zy.,.y J wd`j -. 4�-- ��..,.e �' i- 6 &�^^'�'1�>. 3 , Z d,4' -1� 5 ,. �1�+.�1Ilt .. 'Pam: t" : ,f Y£ M....i.:-.,...., '''4`i 1; 1 4*......, ;,30e,-,4.14,4",)4„ , ' '., : ,- ,.,: 742 f ,c tri 1 I. � PYt� #a 1L ''" � s"�z is ma's � � e� �� `�,.<,. � '��J11,�wID6y ; 11 - 'i :I ,-3'; , t.. - - -- ,i WI '---i --f' _.%-7-%t *,'4'itz- j----''' ,-7.r. 4,4- ,,,.I. IT.-:,, , ,,4 , =,...„ 1 .:_:_$ ,.., ,, ,. _ ,..„1 ,,,...„.„,„.. _ .1 ri,-----___,__ ____,__,_. _ , i,,..,,I .,,., .:".„;..4 -...,..= * 1 I 1 er . a ^ �' 3I ' S id 'SA3 k Sherman Avenue, ue t_:�"—a Tg5=t# .}t i - ,*IN f _is a t ...._ t:,v .,..aC .�. ...i'?�»...., 3' �. _.._. __ � .. i t3es._.__- _ 3.SL'.:._...,. .r..._e._.�.a{.._n._ w ; 1995 Zoning Boundaries iWW1i1TiUliiTTlifi _ _ -➢JYIffIrNYYY1ipYFIW4WWliWlli MHbLMN - igWYpigiNMMF'MfiMilYf(YYC Page 3 Petition 400-01-45 Differences in Approach to Split Lot Zoning-Pre-1995 and 1995 Zoning Rewrite Pre-1995 Zoning Approach. Prior to 1995,neighborhood commercial boundaries were set at a standard depth along the block face for the immediate area. In the case of the 1300 South 500 East area, commercial zoning extended 130 feet from the front property line and the remaining portions of lots were zoned residential. Prior to 1995,the zoning ordinance addressed how to treat lots that were split between zoning districts. If the residential portion of the split lot was less than 30' deep the lot would be considered zoned entirely commercial. The zoning ordinance also allowed, as a conditional use, parking lots on residential zoned properties for commercial parking on adjacent lots. Therefore,there were zoning solutions for split lots prior to 1995 that do not exist in the current ordinance. After 1995 Zoning Rewrite Approach. Zoning boundaries were established on a parcel base approach rather than a standard depth approach. A key objective of the 1995 Rewrite Project was not to split zone individual parcels. There were rare cases where split lot zoning was intentional. These were usually when the two zoning districts were similar or where parcels were rather large so that there was a realistic potential use on the rear portion of the lot for land uses that the zone permitted. The conditional use approval of commercial parking on residentially zoned lots was eliminated in the 1995 rewrite. CODE CRITEPJA / DISCUSSION / FINDINGS OF FACT Section 21A.50.050 Standards for General Amendments. A. Whether the proposed amendment is consistent with the purposes, goals, objectives, and policies of the adopted general plan of Salt Lake City. Discussion: The proposed amendment is supported by the adopted city master plan. The master plan identifies neighborhood business land uses for the properties fronting on 500 East between 1300 South and Sherman Avenue. The following are policies in the draft Central Community Master Plan,the Urban Design Element and the City's Futures Commission Report that support the provision of placing parking in the rear yards of businesses,which the rezone action would allow. 1. Design and orient buildings to make neighborhoods pedestrian friendly. 2. Developments incorporate a walkable environment that is convenient for residents and employees to travel by transit,bicycle, foot or car. 3. Reduce cumulative air emissions through transportation and parking policies that favor the use of mass transit and non-motorized transportation methods. 4. Require yard areas of properties on principle streets be treated as front yard space. 5. Introduce pedestrian-oriented elements such as landscaping, sidewalk lighting, pedestrian-oriented building and site design into neighborhood commercial centers. — Petition 400-01-45 Page 4 1999 Administrative Zoning Action. The key objectives in the 1995 citywide zoning were to base zoning changes on 1)master plan future land use maps,2) existing zoning, 3) existing land use, 4) avoid multiple zoning districts on a single property, and 5)to minimize the number of nonconforming properties. Planning staff review of preliminary zoning maps used to create the City's electronic parcel based zoning map identified that the adopted zoning map was in error by splitting the subject parcel with two zoning classifications. The final adopted map was not consistent with the preliminary map wherein, the entire parcel was zoned CN. Staff believes the correct zoning classification for the subject parcel is CN Neighborhood Commercial. Findings: Rezoning the entire parcel at 1321 South 500 East Street to CN- Neighborhood Commercial would allow parking in the rear yard,which will enhance the neighborhood streetscape and the pedestrian environment. This is consistent with the 1974 Central Community Master Plan,the 2001 draft community master plan, the Salt Lake City Futures Commission Report, and the 1995 citywide zoning rewrite mapping policies. B. Whether the proposed amendment is harmonious with the overall character of existing development in the immediate vicinity of the subject property. Discussion: The split zoning on the subject parcel is unique in that the adjacent commercial properties fronting 500 East Street are zoned entirely CN. However, the subject parcel is deeper than the adjacent commercial properties. The rear yard portion of the 1321 S 500 East lot is surrounded by residential properties to the north,west and south. The abutting properties to the north are an apartment complex with four dwelling units and a 7-11 commercial retail store. The abutting residential property to the west is a single-family dwelling. The abutting properties to the south are a single-family dwelling and Rico Brand (Cozza's Market)retail store. The CN zoning district states the district is intended to provide for small-scale commercial uses that can be located within residential neighborhoods without having significant impacts upon residential uses. To meet this purpose statement,buffer yards are required on any CN lot abutting a residential district. This buffer yard consists of a seven foot wide landscaped area at the property line with the following requirements: 1). Shade trees at a rate of one per thirty linear feet, 2) Shrubs having a mature height of not less than four feet along the entire length of the landscape buffer, 3)Areas not planted with trees or shrubs shall be maintained in turf or groundcover and 4)A solid fence between four and six feet erected at the property line unless waived by the zoning administrator. The parcel layout pattern for the properties fronting on 500 East is unique. The subject lot has a greater depth than the two adjacent commercial lots. However,in 1950 the south property, 1329 South 500 East(Cozza's Market),was a corner parcel with the same depth as the 1321 South 500 East parcel. The Board of Adjustment NYiYMYf4fWMNWn4tlWgbYMiWYY�YWwUiYYh'YxxfWtN kNYiritl'WNNYMNiTYYfWiMMxNNMYW/1fYVY'KWtIMN6Nt Petition 400-01-45 Page 5 approved a request for the 1329 South property to permit an addition to the retail store and to allow a two-foot rear yard for a new single residence in the rear of the lot facing Sherman Avenue. Because of this variance,the house is located near the proposed parking area of the subject property. However, there is enough room on the subject property to provide the required seven-foot landscaped buffer. Therefore the adjacent home to the south can be adequately buffered from a parking lot in the rear yard. Findings: The property owner could satisfy parking requirements for a business in the front yard. Requiring that parking be provided in the front yard would create a greater visual impact on the neighborhood than a parking lot in the rear yard. Parking located in the rear yard would be required to include a landscaped buffer to mitigate impacts from a parking lot on adjacent properties. The 1321 S. 500 East parcel in the past had the same lot depth as the original parcel to the south. Subdividing the adjacent property into two lots, one with a residence built without adequate rear yard created an inconsistency with the overall development character. The proposed zoning map amendment is harmonious with -the overall character of existing commercial development fronting on 500 East Street. C. The extent to which the proposed amendment will adversely affect adjacent properties. Discussion: If the rear portion of the property is rezoned,there is potential for adverse impacts related to off-street parking in the rear yard. This is an issue with any neighborhood commercial land use adjacent to a residential use. As a means to mitigate these potential impacts, the zoning ordinance requires that parking in the CN zone, abutting a residentially zoned property have a seven-foot landscape buffer at the property line. In addition screening of the parking lot is also required to prevent headlights from shining onto abutting properties. Parking lot lighting will discourage inappropriate activity in the rear yard of the subject property. Residents have identified that the abutting property at 515 E. Sherman Avenue has the greatest impact due to its two-foot rear yard depth. In 1950, the Board of Adjustment permitted expansion of the market and placement of the residential dwelling in the rear of the lot on Sherman Avenue. This action created the potential for impacts because of the inadequate rear yard. Staff does not believe the subject property owner should be penalized for inadequacies on other lots, especially when the CN property owner can meet current zoning regulations. Findings: Rezoning the entire parcel to CN would permit development consistent with the standards for commercial uses located within residential neighborhoods citywide. The two adjacent properties fronting on 500 East Street are completely zoned CN. Future development of the property will need to meet the landscape buffer yard requirements of the Salt Lake City zoning code to minimize the impact — lakliiilikliltlelpialt Petition 400-01-45 Page 6 on adjacent properties. Potential impacts on the property at 515 E. Sherman Avenue were self-imposed through approval of a specific request to construct the home without the required rear yard setback,which protects the residence from impacts on adjacent properties. The rezoning amendment will not adversely impact adjacent properties. D. Whether the proposed amendment is consistent with the provisions of any applicable overlay zoning districts,which may impose additional standards. Discussion: There are no overlay districts affecting the subject properties. Findings: This standard is not applicable. E. The adequacy of public facilities and services intended to serve the subject property,including but not limited to roadways,parks and recreational facilities, police and fire protection, schools, storm water drainage systems, water supplies, and waste water and refuse collection. Discussion: The subject property is already developed. The last long term use of the property was for a commercial day care center. The proposed use is also for a day care center. The property has public facilities and utilities in place. The Transportation Division recommends rezoning approval to allow parking in the rear yard to provide an improved on-site traffic circulation pattern that would reduce conflict with existing traffic functions impacting the public right of way. The Public Utilities Department had no objections to the petition request. The Engineering Division identified the need for curb, gutter and sidewalk repair. This would be accomplished through the issuance of a building permit on the subject property. Findings: The public facilities and utilities are adequate to serve the property. RECOMMENDATION: Based on the findings of fact, staff recommends that the Planning Commission forward a favorable recommendation to the City Council to change the zoning of the rear portion of the parcel at 1321 S. 500 East from "R-1/5000"Residential to "CN"Neighborhood Commercial. Everett L. Joyce October 4,2001 iM�4MlbY�W IiMYY4YN5WIWiiY4Ww„dWNLWibtiWtyNM1WMN�afbM/YN4�WtldYtliNYiiW�gIbNM1WYWNWSWYIY�WdiYGYYbW11W�YY1TY1Ti�M�NYtY Petition 400-01-45 Page 7 STEPHEN A. GOLDSMITH 1F �i 7 � � ✓� � �J® i ROSS C. ANDERSON PLANNING DIRECTOR COMMUNITY AND ECONOMIC DEVELOPMENT MAYOR BRENT B. WILDE PLANNING DIVISION DEPUTY PLANNING DIRECTOR SALT LAKE CITY CORPORATION MEMORANDUM TO: Scott Weiler,Engineering Brad Larson, Fire Brad Stewart,Public Utilities Kevin Young, Transportation FROM: Everett L. Joyce, Planning Division ‘/" SUBJECT: Department response to petition to rezone property at 1321 S. 500 E. DATE: August 27, 2001 Petition 400-01-45 is a request to rezone the rear portion of a parcel from R-1-5000 to CN that is located at 1321 South 500 East. The Sidwell parcel number is 16-07-478-015. The first 120 feet of lot depth is zoned CN Neighborhood Commercial. There exists a large house that was previously used as a commercial daycare center for 60 children. The rezoning would allow for parking in the rear of the lot to support commercial use of the existing structure. This request is made to provide a finding in the staff report to the Planning Commission that City services are adequate to support rezoning the property. Evaluation criteria: The adequacy of public facilities and services intended to serve the subject property, including but not limited to roadways, parks and recreational facilities,police and fire protection, schools,storm water drainage systems, water supplies,and waste water and refuse collection. Please review this rezone request and identify if you have any issues or concerns regarding the provision of services if rezoning the entire lot to CN occurs. I would appreciate it if you could respond by September 7th. Thank you for your assistance in this matter. If you have any questions please e-mail me or call me at 535-7930. 451 SOUTH STATE STREET, ROOM 406, SALT LAKE CITY, UTAH B41 1 1 TELEPHONE:B01-535-7757 FAX:801-535-6174 aRECYCLED PAPER a„�r,k'r, ?..•Y``1 �.r¢-'�,^a ,a;�?}�V G;'i,"'wv�✓x''s. F .0<...r. �^r�; " y^u;,.y,w ' ,;:t 7•, "A. "..•rro.x"Xy.kj,a w.+.' .�°¢;A,.; r,,F,. +i", S�,'-tf t�..= � -« „N t :-. lik • +�« a" iir. x:,�� MVi « �';M,, i, 4,, . ', ' . ,y . t , "�+te.A" t" �0..v k J3 to'„ t . pj3 ? a �3? r sy „," "< ,a» '> „ A r i., ,, r«t , °sv 'ro� ��p � Y3i', +, " ' ° �, �ae'' "iiz i 'dY+, p '" ��.t: Y »�- r, "n r � • ",r Fa �, � e �' 'fsv' s ' <.� i i �, w ,,,+ . 1,, . n a. 4+'*?nu°s i` r � ,`' " �akW r ae.' 4v «rr'1" M;:ti` ^, i rs� .,. , „,. • °� g +2r'+ v ,„°^�rim twr n «'3 ,.,e� , ' g< "a4d+v� V1'„W ':; u ,,; ina ;t4''`"`,',+,„w. L: , ,7 . r>t a' � , . � � � '� "*a'x, mAmw'w'�'k' 1,(4 r,t t, ;°:`rd,r"., .yr r• °, wi M9 a�^ ^yy .«yr<`9.h' . '4+" . , dhw '^t" , ,,° 1 ",4c* "�"� a .§a ,t,£tiY,A f t n F ? 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L I .•aa: ‘� "1w�i s� A 4 �,w�,,,°-' s '?Pi � - x «: +, { r" 46 tSes1 �a „ ?aµ a k f�: v gg Y ` r n, -, wp }i 4.E' ? v ' � � a `br1� k8 �� z , '4t" v ", 1-4, k, ' 4 , tr 8511,e> yX • 4. ,44 a� .,� +i xW " � r ✓, s x : wr ,' i '' .N ,� "4 f k ` + � e t ` ritr z r "x } a at✓gyp ; A5 v t :t.{ £ q , kw "a b `0,^ 6 r«° a : „,N«.'s 'ff "a.at .Ci 44,A41, , k a7 ." s ^,,a' ' x <ad., , ,', ».awvy«x „.„, e r , 4 b .,„ ui' ,-„ ,� � ;a °Mti.".4 `' r ;,. '!«;:,E 'sr: d a x c *"s,xa � i ai,+« w« „ ;.a ,` r E; » `+y .d v. :"Kc" ,,a' s l Jq -t �a,,..„„ " te„9 M. ' Fw . "v W r ? a e *' 'C , S � rrir A .4,y r, ,'. am �" � Te ; .*q w. 1 a. 441yamr dz«w >...^.,A,w.3,,,,•;r ; iu t,... pt 1995 Zoning Boundaries Joyce, Everett From: Stewart, Brad Sent: Wednesday,August 29, 2001 10:13 AM To: Joyce, Everett Cc: Garcia, Peggy; Cowles,Vicki Subject: Rezone petition at 1321 S. 500 E. Salt Lake City Public Utilities has no objection to the rezoning petition at the above mentioned location. Public Utilities does not foresee any water, sewer or storm drainage capacity issues for uses that are typical for the proposed zoning and size of lot. Brad i tr mi STEPHEN A. GOLDSMITH � � [ `='^ �. .jS• :� el•mk �V ROSS C. ANDERSON PLANNING DIRECTOR COMMUNITY AND ECONOMIC DEVELOPMENT MAYOR BRENT B.WILDE PLANNING DIVISION DEPUTY PLANNING DIRECTOR SALT LAKE CITY CORPORATION MEMORANDUM TO: Scott Weiler, Engineering Brad Larson, Fire Brad Stewart,Public Utilities Kevin Young, Transportation FROM: Everett L.Joyce,Planning Division €/" SUBJECT: Department response to petition to rezone property at 1321 S. 500 E. DATE: August 27, 2001 Petition 400-01-45 is a request to rezone the rear portion of a parcel from R-1-5000 to CN that is located at 1321 South 500 East. The Sidwell parcel number is 16-07-478-015. The first 120 feet of lot depth is zoned CN Neighborhood Commercial. There exists a large house that was previously used as a commercial daycare center for 60 children. The rezoning would allow for parking in the rear of the lot to support commercial use of the existing structure. This request is made to provide a finding in the staff report to the Planning Commission that City services are adequate to support rezoning the property. Evaluation criteria: The adequacy of public facilities and services intended to serve the subject property, including but not limited to roadways, parks.and recreational facilities,police and fire protection, schools, storm water drainage systems,water supplies, and waste water and refuse collection. Please review this rezone request and identify if you have any issues or concerns regarding the provision of services if rezoning the entire lot to CN occurs. I would appreciate it if you could respond by September 7th. Thank you for your assistance in this matter. If you have any questions please e-mail me or call me at 535-7930. NAM= MINN* DATE 451 SOUTH STATE STREET,ROOM 405,SALT LAKE CITY, UTAH 84111 -- __�,�.�.,,,„t,,,„„TglzEj, w.801-535-7757 FAX:B01-535-6174 is r:� wccrcLeo r.rcv ALISON GREGERSEN WEYHER SARI. �`aaI _ .i. C`+I� .�.��`.Mai 1 ROSS C. "ROCKY"ANDERSON DIRECTOR COMMUNITY AND ECONOMIC DEVELOPMENT MAYOR •i i ll September 7,2001 SEP - 7 2001 Everett L. Joyce Planning Division 451 South State Street,Room.406 Salt Lake City,Utah 84111 Re:Petition#400-01-45 to rezone the rear portion of a lot,at 1321 South 500 East, from R-1- 5000 to CN. Dear Everett: The Division of Transportation review comments and recommendations are for approval of the proposed rezone as follows: We recommend approval to provide on site traffic circulation to allow parking in the rear for an existing 60 children Daycare facility and reduce conflict with existing traffic functions impacting the public way. Please feel free to call me,at 535-6630 if you have any further questions. Sincerely, Onli Barry D.Walsh' Transportation Engineer Assoc. cc: Kevin J.Young,P.E. Scott Weiler,Engineering file 451 SOUTH STATE STREET, ROOM 404, SALT LAKE CITY,UTAH 84111 TELEPHONE:801-535-6230 FAX: 801-535-6005 S� ECYCLEC PAPER RICHARD GRAHAM A, /2 TY �,RE RATIRit ROSS C. "ROCKY"ANDERSON PUBLIC SERVICES DIRECTOR DEPARTMENT OF PUBLIC SERVICES MAYDR d € 0 ft I TO: EVERETT L. JOYCE, PLANNING ''ii SEP 2U I FROM: SCOTT WEILER, P.E., ENGINEERING AS4NR N€ s i Di tii C ito > DATE: SEPTEMBER 12, 2001 SUBJECT: Rezoning for property at 1321 S. 500 East City Engineering review comments are as follows: 1. SLC Engineering has no objection to the proposed rezone. 2. It is our understanding that a plat will not be required for this project. 3. Curb, gutter and sidewalk exist in 500 East Street along the frontage of the proposed project. Approximately 8 sections of curb& gutter are badly cracked and must be replaced. Also,two sidewalk joints are uneven causing a tripping hazard and must be ground down or replaced with new concrete. The existing drive approach is expected to remain. 4. Prior to installing public way improvements a permit to work in the public way must be obtained from SLC Engineering. cc: Craig Smith Bill Brown Brad Stewart Barry Walsh Vault SALT LAKE CITY ENGINEERING 324 SOUTH STATE STREET,SUITE 310, SALT LAKE CITY, UTAH B41 1 1 TELEPHONE: B01-535-7961 FAX: B01-535-6093 :: RECYCLED PAPER I "w ii iu aip Is SGrleuuleu TO leave at 4:00 p.m. AGENDA FOR THE SALT LAKE CITY PLANNING COMMISSION MEETING In Room 126 of th City &County Building at 451 South State Street Thursday, October 4, 2001, at 5:45 p.m. The Planning Commission will be having dinner at 5:00 p.m., in Room 126. During the dinner, Staff may share planning information with the Planning Commission. This portion of the meeting will be open to the public. 1. APPROVAL OF MINUTES from Thursday, September 20, 2001 2. PUBLIC HEARINGS a. PUBLIC HEARING at 5:50 p.m.- Petition No. 410-554, a request by Pace Pollard Architects, representing the Utah Opera Company, requesting a conditional use for additional building height of up to three stories or forty- five feet for an addition to the Utah Opera Company production studios at 336 North 400 West. (Staff: Nelson Knight at 535-6260) b. PUBLIC HEARING at 6:10 p.m.- Petition No.400-01-47, by the Salt Lake City Planning Commission, requesting to amend Chapter 21A.24.010G-Residential Flaq Lot Standards and Section 21A.54.150E - Planned Development Standards of the Salt Lake City Zoning Ordinance. (Staff: Ray McCandless at 535- 7282) c. PUBLIC HEARING at 6:40 p.m.—Petition No.400-01-04, by Joan and Ryan Williams, requesting to close a portion of March Street(2955 West)between 500-570 South; and to declare the subject portion of the street as surplus property. The requested action will facilitate current and future commercial redevelopment of the two abutting properties (Williams property and Turner Gas Co.)and for security of the abutting business owners. (Staff: Jackie Gasparik at 535-6354) d. PUBLIC HEARING at 7:00 p.m.-Petition No. 400-01-48, a request by The Salt Lake City Council to create a Transit Oriented Zoning Di-Mat e n 4 a Recyalt Lake City Planning Commission to rezone the S e gal o t r it nted Zoning, between 200 and 900 East. (Staff: Doug Dansie at 535-6182) THIS ITEM HAS BEEN POSTPONED . PUBLIC HEARING at 7:30 p.m.- Petition No. 400-01-45, a request by the Salt Lake City Planning Commission to amend the zoning district map so that all of the parcel at 1321 South 500 East Street is zoned CN Neighborhood Commercial. The rear 60'of the parcel is presently zoned R-1-5000. (Staff: Everett Joyce at 535-7930) f. PUBLIC HEARING at 7:55 p.m.- Petition No. 400-01-49, by the Salt Lake City Administration, requesting that Salt Lake City adopt an ordinance that grants the Mayor authority to approve temporary uses relating to the 2002 Winter Olympic Games, which are not currently allowed by existing ordinances. 3. OTHER BUSINESS • a. The Woodbury Corporation is requesting an extension of time for petition number 410-458, which granted approval for the renovation and expansion of the Redman building, located at 1240 East 2100 South in the Sugar House Business District. The Commission granted planned development approval for residential condominium ownership and subdivision approval on October 19, 2000. (Staff: Melissa Anderson at 535-6184) Salt Lake City Corporation complies with all ADA guidelines. If you are planning to attend the public meeting and, due to a disability,need assistance in understanding or participating in the meeting,please notify the City 24 hours in advance of the meeting and we will try to provide whatever assistance may be required. Please call 535-7757 for assistance. PLEASE TURN OFF CELL PHONES AND PAGERS BEFORE THE MEETING BEGINS. AT YOUR REQUEST A SECURITY ESCORT WILL BE PROVIDED TO ACCOMPANY YOU TO YOUR CAR AFTER THE MEETING. THANK YOU. COMMUNITY AND ECONOMIC DEVELOPMENT•PLANNING DIVISION•451 SOUTH STATE STREET.ROOM 406•SALT LAKE CITY.UT 84111 TELEPHONE:801-535-7757-FAX.801-535-6174 Minutes - October 4, 2001 Page 1 of 4 PUBLIC HEARING - Petition No.400-01-48, a request by The Salt Lake City Council to create a Transit Oriented Zoning District and Petition No. 400-01-12, a request by the Salt Lake City Planning Commission to rezone the 400 South CC Commercial Corridor to Transit Oriented Zoning, between 200 and 900 East. This item was postponed. PUBLIC HEARING -Petition No.400-01-45 a request by the Salt Lake City Planning Commission to amend the zoning district map so that all of the parcel at 1321 South 500 East Street is zoned CN Neighborhood Commercial. The rear 60'of the parcel is presently zoned R-1-5000. Ms. Arnold recused herself from this hearing as she has a conflict of interests. Mr. Joyce presented the staff report. Historically the property was always split with commercial and residential zoning. In the 1995 citywide zoning rewrite the intent was to zone the entire property CN. In 1999,when it was identified that the parcel was still split by two zoning districts, the zoning map was administratively corrected. Neighborhood problems resulted from students renting the property and inquiring neighbors became aware of the zoning adjustment and objected to the administrative action. This petition request will provide a formal public process to zone the entire parcel `CN'. Mr. Nelson asked if the backyard could be used for commercial uses (parking), if the property is not rezoned. Mr. Joyce stated that the backyard could not be used for parking. The daycare facility that was on the property, is non-conforming because of the rear yard being zoned R-1-5/000. Ms. Barrows asked if there was a negative to leaving the zoning split, other than the City likes parcels to have single zones. Mr. Joyce stated that as a commercial property, it is restricted in its uses compared to other properties that are zoned CN. He explained that with the current zoning, a commercial use would have to provide off street parking in the front yard. All the trees and vegetation would have to be removed and two driveways would have to brought in from the road. Mr.Wilde explained the way the property is currently zoned, the rear yard is not able to satisfy any benefit to a commercial business. http://www.slcgov.com/boards/plancom/min_10042001.htm 11/14/2001 Minutes - October 4, 2001 Page 2 of 4 , Ms. Barrows was concerned about losing the two mature trees in the rear yard of the property, if the zoning were changed. Mr. Wilde suggested that the Planning Commission recommend a conditional rezone requiring a parking layout that preserves the trees. Mr. Jonas was concerned about the impact of this property on the adjoining neighbors. Mr.Wilde explained that if a parking lot were built in the rear yard,there would be a seven-foot landscape buffer on all three sides. The Planning Commission has the authority to require a six-foot solid light-proof fence. Mr. Boyden was concerned that if the trees were left in the rear parking lot, additional parking may have to be required in the front yard. Mr. Jonas was concerned that even with the zone change, the parking could still be placed in the front yard. Mr. Wilde suggested making a condition that the parking be placed in the rear yard. Mr. Daniels opened the public hearing. Joseph Schmidtke, resident, stated the new owner wants to put another daycare facility on the parcel and he does not want to put a parking lot in the rear yard. He stated the owner of the property is only going to use the bottom floor of the house for this business and the rear yard as a play area for the children. There are currently five parking stalls on the property. He is opposed to changing the zoning in the rear yard. He is concerned that opening the access to the rear yard with a parking lot will encourage transients to the property. Mr. Jonas and Ms. Barrows stated they didn't understand what difference it would make whether the rear yard was left as it is or made into a parking lot and how it would attract transients. Mr. Schmidtke stated the owner was going to keep a dog and put security lights in the rear yard when the business is not open. He feels the new property owner is going to take care of the property. — http://wwvv.slcgov.com/boards/plancom/min_10042001.htm 11/14/2001 Minutes- October 4, 2001 Page 3 of 4 Ms. Barrows explained that the Planning Commission is concerned with the long term zoning issues. Jean Palmer, realtor that sold the property to the current property owner, stated that if what Mr. Schmidtke says is true, the property has been sold again. She did not believe that the home has sold and changed hands. She stated the previous owner had a daycare center in the home for 45 years. She stated the previous owner sold this property as the mortgage holder and the first trustee on the deed. This was to be her income for the rest of her life. She believes there are conflicts within the neighborhood causing opposition to this rezoning. She is in favor of this petition so a viable commercial enterprise can be established on this property. Ms. Barrows asked who owns the property. Mr. Wilde explained that the property owner could be in the process of selling the property. He is not aware of who owns the property. Mr. Schmidtke stated a contract has been signed to sell the property. Ms. Barrows asked if a daycare business could operate on the property with the current zoning. Mr. Wilde explained that a daycare business could operate on the property as long as they can satisfy the eight parking stall requirement in the front or side yards. Ms. Barrows asked if on-street parking could be included for the parking requirement. Mr. Wilde explained that on-street parking could be included if it were approved by the Development Review Team. He stated that eight stalls for a daycare center is not an unreasonable amount when you consider that the employees and parents would need parking stalls. Mr. Daniels closed the public hearing. Ms. Barrows is concerned that the property owner was not present at the meeting. She is concerned about the type of business that could be established on this parcel. She does not want to lose the trees that are on the property. http://www.slcgov.com/boards/plancom/min_10042001.htm 11/14/2001 Minutes - October 4, ZUU1 Yage 4 of 4 Mr. Boyden stated the difficulty is that there is a non-usable area of land at the rear of this property. If parking is placed on the property, trees will be lost. He felt the parcel should be zoned consistently. Ms. Barrows agreed that the parcel should have consistent zoning. She felt that a daycare facility is important to the community. Mr. Jonas stated that the purpose of the CN zone is to create a successful commercial business. The Planning Commission should make this parcel as potentially successful as possible. Mr. Muir agreed with Mr.Jonas. The Planning Commission needs to acknowledge that the parcel is historically a commercial property and should do whatever is necessary to make the commercial venture thrive. Mr.Jonas asked that a condition of approval should include a solid fence, strong vertical landscaping and the final landscaping plan to meet with the approval of the Planning Director. Motion for Case#400-01-45: Ms. McDonald made a motion for Petition No.400-01-45, based on the findings of fact to forward a favorable recommendation to the City Council to change the zoning of the rear portion of the parcel at 1321 South 500 East from R-1/5000 Residential to CN Neighborhood Commercial. Conditions of Approval: 1. Erect a solid fence on the southern boundary. 2. Plant strong vertical landscaping on the southern boundary. 3. The Planning Director be granted approval authority for the final landscape plan. Ms. Barrows seconded the motion. Ms. Barrows, Ms. McDonald, Mr. Chambless, Mr. Muir, Mr. Nelson, Mr. Boyden and Mr.Jonas voted`Aye". Mr. Daniels, as Chairperson,did not vote. The motion carried. http://www.slcgov.com/boards/plancorn/min_10042001.htm 11/14/2001 Askir ROCKY J. FLU HART SALT Li T. Y GORPO °'�k API ROSS C. ANDERSON CHIEF ADMINISTRATIVE OFFICER MAYOR COUNCIL TRANSMITTAL TO: Salt Lake City Council DATE: January 29, 2002 FROM: Rocky J. Fluhart, Chief Administrative Officer' a SUBJECT: 2002-2003 Report of the Citizens Compensation Advisory Committee(CCAC) RECOMMENDATION: That the City Council receive a presentation of the report by the CCAC's John Campbell and Jill Carter. FUNDING: If Committee recommendations were implemented, funding impact would occur with Council approval of compensation plans for various pay classifications. BACKGROUND AND DISCUSSION: The CCAC is ready to present its 2002-2003 recommendations on general pay increases,which primarily call for fiscal restraint. The Committee recommends keeping salary structure and merit increases within 3.0 to 3.5 percent, avoiding paying the highest rate in the local market, and relying on the West Region CPI-U, Class B/C cities for reference on cost-of-living changes. CONTACT PERSONS: Vic Blanton, CCAC Staff Member Telephone: 535-6026 Jill Carter, Former Chair, CCAC Telephone: 581-9910 John Campbell,Vice Chair, CCAC Telephone: 964-6787 451 SOUTH STATE STREET, ROOM 238, SALT LAKE CITY, UTAH S41 1 1 TELEPHONE: 80 1-535-6426 FAX: 801-535-61 90 is `«� aecrcco PnveA MEMORANDUM DATE: February 26, 2002 TO: Council Members FROM: Gary Mumford RE: ANNUAL REPORT FROM THE CITIZENS COMPENSATION ADVISORY COMMITTEE CC: Rocky Fluhart,Jay Magure,John Campbell,Jill Carter,Brenda Hancock,Vic Blanton The Citizens Compensation Advisory Committee was established to evaluate and make recommendations to the Mayor and City Council regarding compensation levels. The attached recommendations of the Committee are advisory and subject to the City's fiscal ability. In the past the Administration has taken these recommendations into consideration when proposing compensation plans for the Council's consideration. Two Committee members,John Campbell and Jill Carter,plan to be present at the briefing to respond to questions from the Council. Brenda Hancock and Vic Blanton serve as staff for the Committee. The major recommendations contained in the Committee's report are as follows: • Pay structure or cost-of-living increases plus merits should be limited to 3 to 3'/%percent. The Committee recommends the total cost to the City for pay increases including general cost- of-living and merit increases be limited to 3 to 3'/2 percent. The costs of merit increases vary between pay plans with steps,and will affect the amount available to increase the respective pay structures. For employees in plans with merit steps,many employees are not eligible for a merit increase because they are already at the top step. For example, 100-series grades have only five merit steps,and depending on the step they receive at hire,employees with satisfactory performance often take only three years to reach the top step. With most employees in the 100 series already at the top,the cost of merits is nominal. Another example is the 200 series,which has 10 steps to each grade. The majority of employees in this group are eligible for merit increases. Therefore,the merit cost is significant. In such plans,the Committee recommends that increases to the pay structure be limited to 2 percent so that the combined increases,including merit,not exceed 3 to 31/2 percent. Professional employee and executive salary plans do not have merit steps. The Committee recommends a general pay increase for professional and executive employees of 2 to 2'/2 percent. The actual cost to the City may be 3 to 31/2 percent when calculating increases based on midpoint. The general pay increase is applied by determining whether each employee is below the midpoint or above the midpoint. Most employees are below the midpoint and will receive an increase greater than the general pay increase depending on the extent below midpoint. Employees above the midpoint will receive less than the general pay increase. • Increases to the pay structure should not exceed 2 percent. Past increases to the City's salary ranges may have been too high based on the local market. The Committee recommends smaller increases to the pay structures. • The City should not pay the highest rate in the area. In the past,the City sometimes desired to pay the highest rates in the local area. The Committee recommends that the City be competitive in the local market but not the highest. • The City should use the regional index when factoring the Consumer Price Index into salary decisions. In the past,the City has used the national Consumer Price Index rather than a regional index(west region for cities having population of 50,000 to 1,500,000)that may more closely reflect the local market. In addition to making recommendations to the Mayor and City Council regarding compensation levels for the City's employees,the Committee also works on other compensation-related issues that come to the Committee's attention. The Citizens Compensation Advisory Committee welcomes the opportunity to address the Council's compensation or benefit issues during the coming year. The Council may wish to consider whether there are issues that would be appropriate to ask the Citizens Compensation Advisory Committee to explore. FEB 2 2002 Joseph Schmidtke 537 East Sherman Ave. T_1__ /''�:a... TTL_L km.y, titan Home 487-4508 Office 535-6688 Mr. Buhler 1 under stand that the city counsel is healing the zoning change for i325 south 500 east back of the lot from a R 1-5000 to light commercial. I live three houses east of the property and I attended the planning commission meeting on behalf of the neighbors. I feel the meeting was unfair in a number of ways and the planning committee had already made up their minds before the hearing. A city planner was representing the owner of the property; they wanted to adjust some zoning lines that they had made a mistake on some years back. While it was being presented Brent Wilde a city planner was seating with the committee and was injecting his thoughts. The owner of the property had brought a man to a neighbor hood council meeting saying he was the new owner and was buying the property and was going to open a day care, which the place had been used as for the past thirty years. This gentleman spent a lot of time cleaning the building and property. He also applied for a business license but never completed the inspection and was denied. One committee member was worried about the trees in the back being damaged when a parking lot was constructed. The trees have not been maintained and present a big bug problem. A house to the west is about three to four feet from the property line. One of the committee members though that it was a self induced hardship. But when it was built forty-five years ago,the owner was not aware that the city would change it to a commercial property.The present owner of the property is an individual who has demonstrated he has no respect for the property or the people living around it. Our main concern as neighbors is that if a parking lot is allowed their it can be leased out any kind of business.Even a twenty four hour business would be able to place cars in this inclosed area all hours of day and night the property is surrounded by a three plex on the north and single family residents on the east and west In order to preserve our neighbor hood I strongly feel that this area should remain as an R1-5000. Sincerely Joseph Schmidtke • • Pay 1 1 1 1 1 Years Citizens Compensation Advisory Committee(CCAC) FISCAL YEAR 2002-2003 ANNUAL REPORT • 2002-2003 Annual Report to the Mayor and City Council • Citizens Compensation Advisory Committee Executive Summary INTRODUCTION We are pleased to provide to the Mayor and City Council the Committee's Annual Report for Fiscal Year 2002- 2003. Following is an executive summary of our compensation recommendations. We provide detail supporting the recommendations—along with brief discussion on miscellaneous topics—starting on page 3. EXERCISE RESTRAINT IN PAY-RAISE DECISIONS This year,the principle of paying within fiscal ability warrants special emphasis. The terrorist acts of September 11 have created uncertainty that has already caused devastating economic impact in many • employment sectors, and which may translate into further austere times ahead. Also, in the equation for fair-and- competitive pay, observation about how SLCC salaries currently compare in general with local market rates suggests the need for temperance in compensation policy. KEEP COLA AND MERIT-INCREASE BUDGET WITHIN A 3.0 TO 3.5 PERCENT RANGE Cost-of-living adjustments (COLAs) and merit increases are the principal drivers of the salary increase budget. For each pay series,the City should calculate the cost of merit increases, and deduct it from the budget cap to determine COLA or pay structure increases. SLOW DOWN PAY-RANGE MIDPOINT INCREASES Surveys of local salary averages show that the City's pay • structure midpoints are too high. Overcorrecting and CCAC 2002-2003 ANNUAL REPORT morale problems are risks if the midpoints are simply cut back. We advocate continuing to increase them, but at a • lower rate than has been the case during the past half- dozen years. AIM FOR MARKET ALIGNMENT,NOT THE HIGHEST RATE Avoid any deliberate decision to pay the highest rate in the area for any rank-and-file benchmark position. Otherwise,there may be a persistent or long-term inflationary ripple effect on local government pay practices. The objective is to be competitive—not the highest—especially when working from a higher-than-50th percentile salary database. USE THE WEST REGION CPI-U, "CLASS B/C"CITIES The U. S. Bureau of Labor Statistics publishes the Consumer Price Index for all Urban Consumers (CPI-U), on a national as well as regional basis. In factoring the CPI-U into salary decisions,the City's prior practice has • been to reference the national index. Now that the City has switched from a national to a local market for pay practice comparisons, use of a regional index geared to city size may be more defensible. "Class B/C"cities are cities having population of 50,000 to 1,500,000. REMIND EMPLOYEES THAT THEY ARE APPRECIATED Let employees know that they are valued. Communicate that pay raises—including cost of living increases—must match the City's ability to pay. Pay that is fair to both employees and taxpayers must align with market to be competitive, but must also be within the City's fiscal ability. • CCAC 2002-2003 ANNUAL REPORT DISCUSSION • Current Circumstances Call for Pay-Raise Restraint The events of September 11 have changed our process. Normally, our pay raise recommendation for the coming year is based on compensation trend forecasts issued by late August or early September. Although some analysts expect the economy to begin a recovery by mid 2002, original total-salary- budget-increase predictions reaching into the 4.1 to 4.5 percent range are now being scaled back in some cases by as much as a full percent. Economic indicators actually signaled that a recession was underway before September 11. However,the terrorist acts committed on that date have dramatically worsened problems, creating a precipitous slide in corporate earnings,and forcing widespread job cuts. The effect has been, and will continue to be,felt in all sectors. • The Committee has always advised the City to pay competitive salaries within fiscal ability. This year,the point has special meaning. We advocate a very conservative position on pay raises for the coming year, not only because of a shaky economy, but also because of how SLCC salaries for many jobs compare on average with those of local employers. We understand that the City is approaching negotiations with both the Fire and the AFSCME unions. Traditional focus on both sides of the table—in assessing compensation fairness— centers on cost-of-living indicators and market comparisons. Consumer Price Index The Bureau of Labor Statistics reports that the national Consumer Price Index for All Urban Consumers(CPI-U) declined 0.4 percent in December before seasonal adjustment. This was the fourth monthly decline during 2001. For the 12- month period ended in November,the CPI-U increased by only • 1.6 percent, down from 3.7 percent the preceding January. 3 CCAC 2002-2003 ANNUAL REPORT Historically, the City has relied on the national CPI-U for • consumer price data,there being no credible data source for the Wasatch Front. When the City switched from a national to a local market for pay-practice comparisons, some expressed concern that it seemed contradictory to rely on national data for consumer price information. We addressed the concern in our March 2001 meeting and decided that a reasonable compromise would be use of the West Region index for"Class B/C cities."(Class B/C cities are cities having population of 50,000 to 1,500,000.) We voted to recommend to the Mayor and City Council adoption of the compromise. Numbers reported in December for the West Region, Class B/C cities, although higher than the national index, reflected a similar pattern of change, dropping from a 3.9 percent increase rate at year beginning to less than 2.5 percent by December. Like the national index, the December change was negative, as were the reported changes for April,August and November. The December 2000 to December 2001 average annual • increase reported by the West Region CPI-U for Class B/C Cities was 3.1 percent. However, given the pattern in recent months,we have no reason to doubt that the West Region Index is headed in the same direction as the national index. While there is much uncertainty,we believe that any factoring of the CPI-U into pay-raise decisions should be based on expectations in the 2.0 to 2.5 percent range. A Look at Past Patterns How has the City employee fared on average in terms of salary increases vs.the CPI-U? The following charts are illustrative. They give a history of the SLCC full-time employee's average year-end salary, and show how the numbers would have compared had increases (starting with the base salary in 1997) been linked to the CPI-U. Comparisons are made first for all City employees, then for the AFSCME (Local 1004) 100 Series, the AFSCME 200 Series, and the Firefighter(Local 1645)400 Series. • 4 CCAC 2002-2003 ANNUAL REPORT • SALARY INCREASE ILL1JSTRA11ON-ALL EMPLOYEES How SLCCs Average Salary Grew Vs.How It Would Have Grown If Driven by the Western Region Consuner Price Index for All Urban Corsumers(CA-U),Class BIC Cities $3,600 - $3,500 $3.529 R $3,403 $3,430 >' $3.323 $3,323 $3,200 p $3.201 $3,225 E $3,100 $3.136 _,.. co $3,000 $3,037 $3.070 $2,900 < $2,800 $2 700 1997 1998 1999 2000 2001 Year Average increase: CPI-U, 2.3%; SLCC salary, 3.8%. • SALARY INCREASE ILLUSTRA11ON-100 SEPoES How SLCCs Average Salary Grew Vs.How It Would Have Grown if Driven by the Western Region Constrner Price Index for All Urban Consumers(CA-UJ),Class BIC Cities $2,900 L., $2,850 _ $2.848 $2,8C0 $2,801 • $2,791 (/) $2,750 $2,737 E $2,700 $2.710 O $2,650 $2.643 $2,600 $2,634 ca $2,550 -' $2,579 $2 500 $2.551 < $2,450 $2,400 1997 1998 1999 2000 2001 Year Average increase: CPI-U, 2.3%; SLCC salary, 2.8%. 5 CCAC 2002-2003 ANNUAL REPORT SALARY INCREASE ILU1S7RATION-200 SINES • I-Iow3CCs Passage Salary cltiewVs.Haw It%brid Have Goal If Driven bpthe Abstain Reglm Castamf Hine Index for All Urban assurers(CPI-U),Class B'Caties $2,7C0 A$2,600 $2,612 $Z5C0 $2,562 $2,475 ' $2440 g $2300 $2,331 • $2369 �ca-u • m $2,2°3 $2231 $2,255 " _ $2,100 $2,030 1997 1999 1999 2330 2031 Year Average increase: CPI-U, 2.3%; SLCC salary, 4.0%. SDLARII INCREASE ILWSTRATI01-A00SERIES • Hav3CCsAuerage SalaryotwVs Have¶Abdd lbw Gann if Diven bytt&Ak tem Realm Casurer Price lrriecfarAll Uban answers(421,411),pass PIC arias $3,900 $33827 $3,7C0 "Es $3.704 3.657 T$3,X0 $3.441 g $3 W $3,337 $3.051 - $3240 --CPI-U m$3,100 _----- $3.150 $3.084 SLCC Q sz900 $3,051 $2,700 1997 159E 1999 2000 2001 Year Average increase: CPI-U, 2.3%; SLCC salary, 5.9%. It should be noted that the variance in SLCC salary increase rates for the different pay series reflects to a considerable • 6 CCAC 2002-2003 ANNUAL REPORT extent corresponding differences in merit increases. For • example, the majority of incumbents in the 100 Series are topped out, reflecting the fact that the pay grade only has five merit steps. In contrast,the 200 Series pay structure has 10 merit steps per pay grade, and many incumbents have not yet reached the top. Given the same"COLA,"the average total salary increase for the 200 Series is going to be predictably higher,therefore,than for the 100 Series. The charts make the point that SLCC's pay raises have significantly outpaced increases in the Consumer Price Index over the past five years. Certainly, based on this observation, fairness is not undone should there be restraint in the City's pay raise decisions during the coming year. Back to the"COLA" Many of the City's pay plans use a step structure as opposed to open ranges. The 100, 200 and 400 Series pay plans are step structures,as are those used for the 500 Series (Police • Officers), and the 800 and 900 Series(Police and Fire supervisors). The term typically used to define an annual general pay increase for employees in step structure pay plans is the"COLA,"acronym for cost of living adjustment. Returning to our suggestion on page 2 for a CPI-U increase expectation of 2.0 to 2.5 percent, it is interesting that Hay Group's 2001 COMPENSATION TREND SURVEY projects the Salt Lake City Area average COLA increases for the Year 2002 at 2.0 to 2.3 percent. It seems noteworthy that this survey— conducted by Hay for the Board of Governors of the Federal Reserve System—preceded the September 11 events. Given the real possibility that the projected numbers would be less than 2.0 to 2.3 percent had Hay conducted its survey after September 11,we do not feel that our CPI-U increase expectation of 2.0 to 2.5 percent is understated. • CCAC 2002-2003 ANNUAL REPORT City Salaries Compared to Local Market As previously reported, more than 95 percent of SLCC's • personnel are recruited from the Wasatch Front and surrounding area within Utah. This fact caused us to question the appropriateness of using a national market for pay practice comparisons on most positions. We felt that a switch from the national to the local market was in order, and the Mayor and City Council agreed. The change came after many years of seeing national salary rates drive the City's pay decisions. Despite the construction boom and low unemployment enjoyed by Utah in the 90s, national wage rates have been decidedly higher on average than those on the home front. We believe that for a public agency, paying wages that are sufficiently competitive to attract and retain qualified personnel is fair to both employees and taxpayers. Wages that are more than sufficient are neither fair nor justified. Some braking needed to occur. This realization,combined with low consumer price increases, • contributed to modest pay increases at SLCC, starting with the 2000-2001 Fiscal Year. At the same time, a tight labor market (before the current economy)began exerting upward pressure on local employer rates. The combined effect has been to narrow the difference between City rates and those of local employers. However,the separation remains significant for many City positions. AFSCME 100 Series—Operations and Maintenance The American Federation of State, County and Municipal Employees(AFSCME) is one of the contracts up for renewal next July. Benchmark positions covered under the memorandum of understanding between the Union and the City are operations and maintenance jobs, many of which are standard benchmarks in the local job market. The chart on the next page graphs July 1, 2001 survey data combined from two annual surveys, one by the Radford Division of AON; the other by the Wasatch Compensation Group(WCG). • 8 CCAC 2002-2003 ANNUAL REPORT • AON's survey covers both private and public sectors, so it tends to report higher base salary rates than the WCG survey, which polls public agencies only. In the chart and the other illustrations which follow—where both AON and WCG provided data on the same position—the higher average salary is used for comparison with the City salary. Even so, the chart shows that the City's average salary exceeds the market average in every case, averaging about six percent higher overall. Only the rates for Plumber and Heating Plant Operator are relatively close. Average Maintenance/Operator Salaries--SLCC Vs.Wasatch Front $4.000.00- $3,500.00 _ o 0 $3,000.00- • $2,50000 ' $2,000.00 ' IOAONIWCG ■SLCC $1,500.00 - $1,000.00- $500.00 $. ___.--__:_ —._—ter_—_7__.-T IIVAG (:arountcr Weida! Water l nclri.:vi. hfucheiitic Meter Ir Ma.r,:I acd AFSCME 200 Series—Clerical and Technical In the next chart, average salaries for the AFSCME • clerical/technical series present a similar picture,with SLCC 9 CCAC 2002-2003 ANNUAL REPORT exceeding market average by about six percent for the • benchmarks shown. ClericallTechnical Average Salaries—SLCC Vs.Wasatch Front $3,000.00- $2,500.00 $1,500.00 pAONAvcG O so $1,000.00 Z $500.00. 1111 $ Warehouse Customer General Records Secretary II Accounting BiINng Clerk Dispatcher II • Worker Service Rep Clerk III Clerk CRrk 300/600(Professional)Series These are open-range (rather than stepped)salary structures, in which the range midpoints drive pay adjustments.The 300 Series are positions whose incumbents are subject to the overtime requirements of the Fair Labor Standards Act(FLSA). The 600 Series are considered FLSA exempt. Between the two,the City's actual salary rates for the 300 Series come closest to aligning with the local market average. As shown by the first regression analysis chart on the next page, the separation is consistently narrow(averaging about three percent) between the actual-salary plot lines. • 10 CCAC 2002-2003 ANNUAL REPORT • Still, based on the survey data,the plot line for the City's pay structure midpoints is high compared to market actual salary rates. SLCC VS.LOCAL MARKET SALARIES-300 SERIES ACTUAL AVERAGE AND CITY MIDPOINT RATES From July 1,2001 AON and Wasatch Compensation Group Surveys $4,500 - $4,000 y=1Y468x-35294 y=1665.8x-47974 A/SLCC ACTUAL $3,500 — �LEEMIDPOINT — $3,000 y=1312.2x-37382 MKT ACTUAL y $2,500 -Linear(MKT) fi• $2,000 - -- Linear(SLCC) o Linear(MIDPOINT) $1,500 - $1,000 - $500 • $- 303 304 305 306 307 308 309 310 311 312 313 Grade The same thing is true for the 600 Series, as illustrated by the chart on the next page. Since the midpoint's control function is to bring salaries within a pay zone calculated to approximate market average, the data suggests a need to slow the pace of midpoint increases. • 11 CCAC 2002-2003 ANNUAL REPORT SLCC VS.LOCAL MARKET SALARIES-SOS SERIES ACTUAL AVERAGE AND CITY MIDPOINT • RATES $ 8 000 From July 1,2001 AON and Wasatch Compensation Group Surveys $7,000 -- y-e--$16:46x 187837 -- SLCC ACTUAL $6,000 --- $5,000 JP ::ffIx : 000 000 —$2,000 $1,000 S- 602 604 606 608 610 612 614 616 Grade We note that compared to the 300 Series chart,there exists • with the 600 Series a larger actual-salary separation between City rates and local market rates. This may be defensible in certain cases where filling a vacancy would rely on a national search. For each of the past five or six years,the midpoints in both series have been lifted about three percent pursuant to trend. Plus, in two of those years, the City made adjustments to move pay policy from 95 percent of market average to market average. During the two-year adjustment,the midpoint increases approximated 5.4 percent each year. This was per our recommendation. It now appears,at least with respect to local market comparisons, we overshot. We recommend that the increase this year not exceed two percent. We do not recommend cutting, nor do we advise giving no increase. Keeping pace with pay trend is a moving target. Even in austere times,there will tend to be some upward movement. Gradual correction is preferred over • 12 CCAC 2002-2003 ANNUAL REPORT • precipitous action, and usually helps avoid serious morale problems. A midpoint deceleration will help cure the problem shown in the following chart. As a percentage of midpoint, the current distribution of SLCC professional employees'salaries is skewed too far to the left. By formula, the City's system drives higher pay adjustments for those below the midpoint, lower pay adjustments for those above. Given normal process, this picture translates into higher salary increases than would otherwise be the case. Where SLCC's Professional Employees Are in., Salary Range--July 1,2001• 250 y 200 o74- . • 150,. 1—Frequency] o• •w • 101 a E z 50; 1 I I I --FF- N- c0 [ co OJ O) O 0 C C <") On a final note before leaving the 600 Series:when the City relied on national rates,the survey data came exclusively from public agencies. Hence, City salaries for job benchmarks such as City Planner and Parks Maintenance Supervisor—which are typically found only in the public sector—were influenced by the pay practices of such organizations as Portland, Oregon and Indianapolis, Indiana, rather than the likes of Ford Motor or Dow • Chemical. On a local basis, however,the City competes with both private and public employers for qualified personnel. The 13 CCAC 2002-2003 ANNUAL REPORT result for some benchmark positions is one in which the City is guided by local rates that are actually higher than national • public-sector rates previously relied upon. Rates for the City's Senior Assistant City Attorneys,for example, align with the AON survey for the Wasatch Front, but are higher than the national average for cities. Executives The City looks both locally and nationally to fill executive positions. However, particularly since many of SLCC's executive position benchmarks are exclusive to City Government, it is interesting.to compare the City's actual salary rates with those of other local agencies. The following chart presents the picture. Salary for Executive Positions-JULY 1,2001 WASATCH COMPENSATION GROUP SURVEY AVG. Sandy, SALT SALT WvO, LAKE WEST LAKE SLOG, SLCGAV • Position a n' SANDY VALLEY COUNTY MURRAY PROVO OLDEN M.nray ERAGE Chief NM.Officer $55.47 $57.58 $57.45 $50.71 $46.76 $57.52 96.4% City Attorney $57.33 $53.53 $55.26 $50.15 $46.68 $46.74 $4234 $51.41 111.5% Deputy City Attomey(AAg. $47.75 $40.22 $33.41 $37.75 $36.82 129.7% Police Chief $51.61 $42.68 $44.70 $44.75 $46.16 $44.98 $39.93 $44.57 115.8% Fire Chief $45.94 $44.92 $43.42 $40.51 $42.20 $44.10 $41.19 $42.76 107.4% R6lic Works Dir. $50.57 $44.73 $46.29 $44.64 $48.45 $50.53 $41.19 $46.03 109.9% Rick Works.Dep Dir $43.62 $25.99 $34.97 $37.95 $32.97 132.3% CEDD $38.62 $45.45 $46.29 $41.88 $41.77 $41.19 $44.54 86.7% Chef BuloingOffidal $40.92 $32.38 $29.04 $3205 $31.34 $31.01 $31.16 131.3% Redevelopment Director $31.97 $47.64 $34.12 $42.21 $34.21 $40.88 78.2% Moran Resource Dr $39.95 $34.23 $4323 $39.48 $43.98 $46.47 $32.80 $40.23 99.3% C1tyTreasurer $37.26 $31.86 $32.05 $37.66 $31.69 $33.86 110.1% City Engineer $44.60 $33.32 $34.97 $38.40 $47.63 $35.45 $35.56 125.4% Assistant Police al $39.96 $36.62 $38.57 $38.58 $41.43 37.32 $33.46 $38.80 103.0% Deputy Fire Chief $40.68 $39.64 $37.83 $31.06 $35.53 37.32 $34.34 $36.02 113.0"% Average 110.0% Where data is missing on the chart, it was either unavailable or the respective agency did not have a position match. It should be kept in mind that the scope of responsibilities may differ substantially between that of a Salt Lake City executive, and a counterpart working in a much smaller agency. • 14 CCAC 2002-2003 ANNUAL REPORT • Police and Fire Police In using local agencies for salary comparisons, position match is a focal issue for SLCC police officers and firefighters. We appreciate the argument that SLCC personnel are faced with different, if not necessarily greater, challenges. In last year's report, we clarified that in recommending the local market for pay rate comparisons on police and fire wages, our advice was not intended to limit the City to the average(50th percentile)of pay rates of all the Valley's agencies. A higher average is acceptable,we said, if the City is more likely to be in competition with Sandy, Murray, and West Valley City or Salt Lake County for public safety personnel, than with Ogden, Provo, West Jordan or South Salt Lake. Accordingly,for the current police contract,the City factored into bargaining considerations the average of salary rates paid • by the cities of Sandy, Murray and West Valley, and by Salt Lake County. (The top officer rates of the three cities are higher than the County's.)The resulting average called for an upward "market-based"adjustment in SLCC's rates,an interesting development considering the fact that the predominant influence comes from agencies smaller than SLCC. It occurs to us that the practice of these agencies may reflect deliberate policy to keep up with or stay slightly ahead of SLCC. If so,the implication may be troubling over the long term from an inflationary aspect. The following chart from the WCG survey shows how the numbers compare for police on July 1, 2001, putting SLCC ahead of average on top officers by 6.5 percent. (Shift differential,which is paid only by SLCC, is included.) SALT HIGH WEST LAKE MARKET SANDY MURRAY VALLEY COUNTY AVERAGE SLCC • $ 22.10 $ 23.40 $ 21.12 $ 20.56 $ 21.80 $ 23.21 15 CCAC 2002-2003 ANNUAL REPORT Note that the Murray City rate is 99.2 percent of the SLCC rate. • To"stay in the game," Murray apparently boosted its July 1 rate for top officer by 7.2 percent! It will learn on the next survey round that despite the effort, it has dropped off the pace. Pursuant to collective bargaining agreement, on December 23, the SLCC top officer(with shift differential)went to$23.83 per hour. It will be interesting to see Murray's response next July 1. Limiting salary comparisons to the higher-paying agencies results in paying salary rates higher than the 50th percentile (local average). Hence, consideration has already been given to the idea that the SLCC position is an overmatch to the police officer position, as it exists on average with all other agencies along the Wasatch Front. It is inappropriate to then decide to pay a rate that exceeds the higher percentile. We recommend that the City avoid this result in future negotiations. For police supervisory personnel, the smaller local agencies continue to maintain stride or outpace SLCC, as shown in the • following chart listing July 1, 2001 WCG survey results. This is true despite SLCC's 4.5 percent market adjustments to its police supervisory positions by last July. HIGH WEST SALT LAKE MARKET SANDY MURRAY VALLEY COUNTY AVERAGE SLCC Sergeant $ 28.11 $ 28.35 $ 26.70 $ 25.55 $ 27.18 $ 27.87 Lieutenant $ 31.91 $ 32.80 $ 30.69 $ 30.89 $ 31.57 $ 32.78 Captain $ 36.88 N/A $ 35.27 $ 33.40 $ 35.18 $ 34.98 Fire In approaching the upcoming Firefighter contract renewal, Fire Union representatives asked that"market comparison" include consideration of benefits value as well as salary. Without making any commitment with respect to bargained rates,the • City agreed to participate in the approach. The total 16 CCAC 2002-2003 ANNUAL REPORT compensation value (TCV) column on the following chart shows the City to be in stride with the identified market average, at 100 percent for the Top Firefighter EMT group. Again, it is surprising that the average pay practice of smaller agencies is on a par with, or higher than, Salt Lake City. We repeat our concern that this may be the direct result of other local agencies using SLCC as a benchmark when setting pay policy. The data actually suggests that market increases are in order for Paramedic, Engineer, Fire Captain and Battalion Chief. We urge restraint, particularly when SLCC pay action may be treated by other agencies as a benchmark to be equaled or exceeded. Salt Lake City Corporation's Average Total Compensation Value (NC) as a Percent of the Identified Local Market Average for Top Firefighter Positions From the July 1,2001 Wasatch Compensation Group Survey Position TCV — SLCC/MKT. Firefighter EMT 100% Firefighter Paramedic 96% Firefighter Engineer 94% Fire Captain 90% Battalion Chief 97% Other Miscellaneous Subjects Turnover Voluntary quits and retirements from the City continue to be low, averaging less than eight percent early this year during the peak of a tight labor market. We expect the rate to move even lower in the months ahead. At least for the near term, the City can expect a marked increase in labor availability. 17 CCAC 2002-2003 ANNUAL REPORT Exit Interview Program Although no patterns have yet been reported, we are pleased to learn that the City has implemented an exit interview program. We recommended such action in our last report. Staff has promised feedback as soon as data can be sorted and analyzed. Low turnover has contributed to a relatively small data base. Performance Evaluation Feedback We are also glad to know that supervisors are presently being trained on use of a new performance management model. Formal feedback is critically important to good performance management. We should take this opportunity, however, to repeat our advice against linking pay (for employees below the executive level) to performance evaluation. Readers are referred to last year's report for detailed discussion on this topic. Un-Classified Employees Compensation Plan On July 1, 2001, the City implemented a compensation plan for "Un-Classified" employees. We first looked at this issue back in late 1999, when staff informed us of an approach used by many public agencies throughout the country. At SLCC, the plan is for employees who are appointed and at will, but who are not executives. Distinguishing features of the new plan are a modest severance benefit, and a so-called broadband pay schedule. The pay schedule allows the appointing authority more flexibility in deciding salary. Currently, there are 38 employees in the plan, consisting primarily of appointed attorneys, and professional employees in the offices of Mayor and City Council. In Closing We direct the reader to the executive summary presented on this report's first two pages. It contains our recommendations 18 CCAC 2002-2003 ANNUAL REPORT for the Fiscal Year 2002-2003. The central theme of these recommendations is pay-raise restraint—as called for by the current economy and to align more closely with market. As a citizen advisory committee, we appreciate the opportunity to provide input and guidance for the City's compensation and benefits practice. We look forward to reviewing this report with the Mayor and the City Council, and we will be glad to answer any questions or discuss any needed follow-up. Buzz Hoffmann, Chair John Campbell, Vice Chair Tom Bielen . Jill Carter Ron Coleman Diane Mansfield Dalmas Nelson 19 MEMORANDUM DATE: February 26, 2002 TO: Council Members FROM: Gary Mumford RE: AGREEMENT ESTABLISHING UTAH UNIFORM CERTIFICATION PROGRAM FOR DISADVANTAGED BUSINESS ENTERPRISES CC: Rocky Fluhart,Jay Magure,Tim Campbell,Russ Pack,Roger Cutler,Jodi Howick Federal law requires agencies that receive federal transportation funds to contract a certain percentage of construction work, along with certain purchases and concessions, to disadvantaged businesses. The percentage can vary each year,but for the past two years it has been 7 percent. The purpose of the legislation is to help disadvantaged businesses succeed. In the past, the larger recipients of these federal funds have had their own certification programs where businesses owned and controlled by socially and economically disadvantaged individuals could apply for disadvantaged business status. Under recent federal legislation, all recipients of federal transportation funds within the state are now required to participate in a single, statewide program to certify disadvantaged business enterprises. The five entities in the state that either currently operate a certification program or receive federal transportation funds directly from the Federal Department of Transportation are proposing a Utah Unified Certification Program as follows: • Utah Transit Authority will be responsible for certifications in the area of public transit construction and public transit-related services. • Salt Lake City Department of Airports will be responsible for certifications in the area of airport-specific expertise and airport concessions. • Utah Department of Transportation will be responsible for certifications in the area of general construction for highways and airports and all other areas. Under the agreement, all government agencies that use these disadvantaged business subcontractors will help pay to operate the program. The agencies that also perform certifications will receive credit for their work. It is estimated that the City will pay for services under this agreement through the Department of Airports in the amount of$5,500 in the first year of operation. A disadvantaged business enterprise must meet the following federal requirements: o At least 51% owned and controlled by socially and economically disadvantaged individuals (i.e., minorities, women) o Annual gross income for construction does not exceed $17.42 million for the business or $750,000 in personal net worth for the owner o Annual gross income for concessions does not exceed $30 million over three years o Meets Small Business Administration's definition for small business size in the primary industry group • o Disadvantaged owners are U.S. citizens or have legal permanent residence Airport management requests the Council authorize the Mayor to enter into an interlocal agreement to create a Utah Unified Certification Program. Airport representatives will be available to respond to questions. d SALT LAKE CITY COUNCIL STAFF REPORT DATE: February 26,2002 SUBJECT: Proposal to Reclassify a Division Director Position at the Airport from the Professional Compensation Plan to the Executive Compensation Plan STAFF REPORT BY: Gary Mumford Document Type Budget-Related Facts Policy-Related Facts Miscellaneous Facts Ordinance The reclassification is The proposal is presented to Reclassifying this position estimated to cost an revise the executive to the executive plan will additional$8,000 compensation plan to create help the Airport retain annually. one additional executive skilled administrators and position. One 600-series assist in recruiting efforts position will be deleted from if the position becomes the staffing document. vacant. There are eight directors within the Department of Airports that report directly to the Executive Director. Four of these directors are classified within the executive compensation plan and four director positions are classified within the professional employee compensation plan. The Department of Airports is requesting that the Director of Planning,Environmental and Capital Program position be reclassified from the professional compensation plan to the executive compensation plan. MATTERS AT ISSUE: • Budgetary Impact-The Department of Airports estimates that the reclassification will cost an additional$8,000 annually in salary and benefit costs. • Appointed At-Will Employee-The reclassification will move the position from merit status to"at-will" status. This change will allow the executive director more discretion in replacing incumbents that do not meet expectations. • Recruitment-In the event this position becomes vacant,the executive compensation plan allows the Executive Director more flexibility in offering appropriate compensation following a national search to find qualified candidates who have relevant aviation industry experience. • Retention-National airports and consulting firms are constantly seeking aviation administrators and can sometimes offer compensation packages in excess of what the existing classification for this position allows. The Executive Director of Airports would like greater flexibility in negotiating reasonable compensation for individuals in this position. • Number of Executive Positions-Past Councils have generally preferred to limit the number of executive positions in City government. • Consistency within the Department of Airports—It appears to Council staff that there may also be an inconsistency with some other airport directors even if the Director of Planning, Environmental and Capital Program position is reclassified. For example,the Director of Engineering would still be classified within the professional employees compensation plan (600 series)even though he supervises 47 employees and reports directly to the executive director. OPTIONS: The Council may wish to consider,among other options,the following: 1. Refer this ordinance to a future Council Meeting for consideration. 2. Defer consideration of this reclassification until the regular annual review of the compensation plans in May or June with a July 1st effective date. 3. Encourage the Administration to consider requesting a position audit by the Human Resource Division to determine whether the position can be upgraded within the 600- series. This may help set a more appropriate salary and assist with retention of the current employee. It would not provide as much compensation flexibility or allow the executive director as much latitude for hiring or firing. 4. Encourage the Executive Director of Airports to set an appropriate level of salary within the current salary grade. The salary of the Director of Planning,Environmental and Capital Program is currently below the midpoint and could be administratively increased. However,this would not remove the position from the merit system or provide the executive director with as much compensation flexibility for hiring. ANALYSIS AND POLICY CONSIDERATIONS: The Department of Airports is requesting that the Council add one executive position(grade 004) and delete one 600-series position from the staffing document. The salary level for the proposed 004 executive position is from$67,102 to$95,243. The current pay grades and salary levels of directors reporting to the Executive Director of Airports is as follows: AIRPORT DIRECTORS REPORTING DIRECTLY TO THE EXECUTIVE DIRECTOR CURRENT PAY GRADE CLASSIFICATIONS s S K :f� 3 �� r�F s :�. o •�#£ 4 �� g �s 3 b �. 3€ ` .: < 3 ah �1 s<ya\ tF : ,; ,S�F � 'j'3„: iK t t � s� { l ✓< � •».� �>rrr�m '�>�.t /,•.:>�:. .r>�.nr ' Director of Operations 195 Executive Pay Plan $73,713 to$104,623 Grade 003 Director of Finance& 19 Executive Pay Plan Accounting Grade 003 $73,713 to$104,623 Director of Administration& 35 Executive Pay Plan Commercial Services Grade 003 $73,713 to$104,623 Director of Maintenance 227 Executive Pay Plan $63,431 to$90,027 Grade 005 Director of Engineering 47 Professional Pay Plan $67,338 to$106,426 Grade 615. �%r??sq??� '�•, ':xan .» ,,,?��:�vx;av :.?Y<# ,.ss. 7? aw t;,;�{,, ✓'^, „�.:,x:, a. •,.�;,:... .asp :;� •. ..•.y u Y pa. z,vz%:R`p...,;,., a�•<�z 'u 'emrwz i> . . 4. �''?,;,B,','?::ss ',^c~ ., !`-;zx:^�"x^,✓ ✓s.�� aS�i 9�.�; ¢t' <usF^;' 7" ��7'.•a.. a' /T• .. ,F �. `3."' K 4 ��y��r;,.v �iJ•'� �;... 2 l...; ?)• '^i� y!.'3 J„M ..,,>:;,,...;.,•,.,.ri,,,,.» .,�;.:xl ,.».,w.�,„r.....,»�,�:�.a:�R� ,:,,,3 .:;W,:„,.�-,,''?z�:lY'., ,s,»'ar�'' �.....,.'u.:n.�i,:.ws>:„ ',..r•.,%.;,,a.:.. :... „,:, .�,rr'.,,.»,,;<; Director of Community and 9 Professional Pay Plan $53,793 to$85,025 Public Relations including some part-time Grade 612 .ositions Director of Air Service and 0 Professional Pay Plan $53,793 to$85,025 Marketing Grade 612 Job Requirements The Airport's executive director indicates in the transmittal that there is disparity between the position classification and the job requirements. The position is responsible for directing: (1) the Airport's comprehensive planning programs, (2) the environmental affairs program, and (3) the federal compliance program. At-Will Status Professional employees classified within the 600-series plan are merit employees that have certain rights relating to separation including warnings and hearings. The executive director states that it is essential that he have the ability to replace incumbents that do not accept the overall philosophies of the Administration,are not willing to serve the interest of the City, or are not willing to follow the guidance provided by the department executive. Market Consistency The transmittal emphasizes that airport planning and environmental management is highly specialized. Unless one or more subordinates are being trained to eventually assume the director's position,the Airport would more than likely need to recruit from the national market. Department heads have more latitude with executive positions to offer competitive market salaries when recruiting. According to the executive director,national airports and private consulting firms are continually seeking competent aviation administrators. The executive director would like greater flexibility in negotiating reasonable compensation for the current individual in this position. Budget Consideration The Department of Airports is estimating that the cost of an appropriate salary adjustment will be about$8,000. The Department is not requesting additional appropriations for this adjustment,but intends to absorb the expense within existing appropriations. Number of Executive Positions The Council and Administration have been successful in limiting the number of executive positions within the City over the past several years. The number of authorized executive positions has remained reasonably constant: Fiscal Year Number of Executive Positions 1992-93 47 1993-94 46 1994-95 48 1995-96 48 1996-97 48 1997-98 47 • 1998-99 46 1999-00 47 2000-01 48 2001-02 48 The Airport has 553 employees and 5 executive positions. The below chart summarizes the number of authorized executive positions and employees per City Department. Number of Current Executive Positions by Department Public Services 622 5 Police De.artment 587 5 De•artment of • • •orts 553 5 Public Utilities 400 5 Fire De.artment 365 3 Mana;ement Services 181 6 Communit &Economic Develo.ment 129 6 Cit Attorne s Office 37 4 Note: Does not include executive positions within the Mayor's Office,Office of the City Council,RDA Director,Olympic Opportunity Director,or justice court judges. cc: Rocky Fluhart,Jay Magure,Tim Campbell,Brenda Hancock,Vic Blanton,Jamey Knighton COUNCIL TRANSMITTAL T7'1117 TO: RockyJ. Fluhart DATE: January22, 2002 Chief Administrative Officer FROM: Timothy L. Campbell, A.A.E .L�,�/ Executive Director SUBJECT: Reclassification of Planning, Environmental and Capital Program Director-Airport STAFF CONTACT: Timothy L. Campbell DOCUMENT TYPE: Ordinance to Amend Executive Compensation Plan BUDGET IMPACT: Estimated at $8,000 annually. Funds are available in the current budget to accommodate this change. DISCUSSION: The Planning, Environmental and Capital Program Director-Airport plays an integral role in establishing the overall vision and strategic plans for the development and operation of the Airport's facilities and services. Consequently, the individual that fills the position must be responsive to the direction provided by the Airport Executive Director. It is important that the employee in this position understands and accepts the overall philosophies of the administration, is committed to serving the interests of the City, and is willing to follow the guidance provided by the department executive. It is essential that the Executive Director of Airports have the ability to appoint, and if necessary replace, incumbents that do not meet these expectations. The existing classification does not allow for the degree of discretion that might be needed to ensure proper management of the Airport's planning programs. There is an inconsistency between the position classification and the actual requirements of this position. As the position description reflects, the Planning, Environmental, and Capital Program Director-Airport is accountable for three separate, yet distinct, departmental functions. The position is responsible for directing, 1) the airport's comprehensive planning programs, 2) the environmental affairs program, and 3) the federal compliance program, which includes the airport's DBE, grant management, and capital improvement functions. Typically, the director of any one of these individual programs could be at an executive level. However, when all three areas of responsibility are combined, as they are in this position, the disparity between the classification and the job requirements is apparent. Another important concern is that of market consistency. Airport management is a very competitive, highly specialized discipline. This is certainly true with respect to airport planning and environmental management, in which a broad range of specialized knowledge and skills are required. In the event this position becomes vacant, a national search to find a qualified replacement would be imperative. Given industry market conditions, it would be difficult to find competent candidates, who have adequate aviation industry experience, at the current classification grade. Presently, the lure from the private sector employers as well as from other national airports is a genuine threat to retaining the airport's most capable administrators. This is particularly true in this case. National consulting firms are constantly seeking highly competent aviation administrators and can offer compensation packages far in excess of what the existing classification allows. This places the Department of Airports at a distinct disadvantage when trying to retain skilled administrators in our mission-critical positions. It is necessary to have greater flexibility in negotiating reasonable compensation for individuals in this position. RECOMMENDATION: To amend the Executive Compensation Plan to move the Planning, Environmental and Capital Program Director-Airport to the Executive Level. Job Title: PLANNING, ENVIRONMENTAL AND CAPITAL PROGRAM DIRECTOR-AIRPORT Job Code Number: FLSA: Exempt EEO Code: Pay Level: 004 JOB SUMMARY: Under the general administrative direction of the Executive Director of Airports, plans, organizes, and directs specific administrative functions for the Salt Lake City Department of Airports including comprehensive strategic plans, master plans, capital improvement programs, noise and environmental affairs, grant management, and federal compliance programs. THIS IS AN APPOINTED AT-WILL POSITION TYPICAL DUTIES 1. Directs a staff of the Department of Airport's planning, environmental programs, capital improvement programs, and federal program management functions. Responsible for personnel actions and administrative matters as they apply to the operation, performance, and accountability of the division. Prepares and directs the implementation of the work program and annual operating budget for the division. 2. Directs the development, implementation and maintenance of the Airport strategic plan and five-year Capital Improvement Program (CIP). Develops policies, procedures and programs to facilitate the comprehensive planning, preliminary design and development of airport facilities. Directs preparation, research, and coordination of studies and special reports including master plans, environmental assessments, mitigation plans, and noise abatement programs essential to develop and implement the strategic and Capital Improvement Programs. Establishes facility development alternatives and policies and presents recommendations of future projects and priorities to ensure compatibility with the airport master plan. Advises the Executive Director, Airport Board, airlines and other city departments on planning and administrative matters concerning airport facility development. 3. Develops and directs policies, procedures and processes to implement the comprehensive grant management program of the Department of Airports. Oversees application, prioritization, coordination, reporting and auditing processes to obtain federal entitlement and discretionary grants and to ensure compliance with grant assurances. 4. Directs hiring of professional consultants to perform complex airport studies and analyses. Responsible for establishing scopes of services, negotiating project budgets, contract conditions and approving payments. Reviews, evaluates and directs all consultant performance and work products to ensure consistency with the policies and strategic objectives. 5. Develops and directs policies and procedures to administer the Disadvantaged Business Enterprise (DBE) program for the. Represents the Department as the official DBE liaison to certify and maintain compliance with federal laws, and reporting requirements. Directs the preparation and coordination of compliance audits, reports, and documents. 6. Directs the development and implementation of policies, procedures and programs in all areas of environmental protection, including air quality, water quality, natural resource conservation, noise abatement, hazardous materials and related disciplines. Directs programs to ensure City's airports are planned and developed in accordance with the National Environmental Policy Act (NEPA) and operated in compliance with applicable federal, state and local environmental laws and regulations. Negotiates with federal, state, and local enforcement and regulatory agencies to obtain permits and resolve disputes concerning compliance with environmental regulations. 7. Represents the Department's plans, policies, and programs regarding strategic planning, capital improvement activities, environmental affairs, and grant management to the public, media and government agencies. Presents the results and recommendations of these programs to the Executive Director, Airport Board, mayors, city councils, planning commissions, airlines and other aviation-related representatives and interested parties. 8. Performs other duties as necessary. MINIMUM QUALIFICATIONS 1. Graduation from an accredited college or university with a Bachelor's Degree in aviation management, planning, engineering, or a related field and eight (8) years of increasingly responsible management experience in airport management, including master planning, capital programming and environmental compliance. Experience must include at least four(4)years in a civil airport or aviation administrative capacity. 2. Thorough knowledge of the principles of organization, management, public administration, airport and community planning, airport development, construction and operation, federal and statutory requirements of DBE management and grant administration, environmental laws and regulations pertaining to wetlands, hazardous materials, air and water quality. Requires advanced special knowledge of aviation noise modeling, airspace demand/capacity analysis and aviation forecasting. 3. Ability to perform complex analysis, supervise professional consultants and their work products. 4. Thorough knowledge of Federal Aviation Regulations, and Advisory Circulars, federal, state and local environmental laws. 5. Ability to communicate effectively both orally and in writing with individuals of varied professional backgrounds. Ability to establish effective working relationships with representatives of public and private agencies to present, negotiate, and advocate airport policies regarding planning and environmental issues. 6. AAE Certification or ability to become certified within one year. 7. Possession of a valid Utah State Driver's License. WORKING CONDITIONS 1. Light physical effort. Comfortable working positions handling light weights, intermittent sitting, standing, and walking. 2. Constant exposure to stress as a result of the technical nature of the analyses and interaction with government officials and representatives to achieve airport objectives. 3. May be required to work non-traditional hours. A TEN-YEAR CRIMINAL AND EMPLOYMENT BACKGROUND CHECK IS REQUIRED BY THE DEPARTMENT OF AIRPORTS AND FEDERAL AVIATION ADMINISTRATION FOR THIS POSITION. The above statements are intended to describe the general nature and level of work being performed by persons assigned to this job. They are not intended to be an exhaustive list of all duties, responsibilities and skills required of personnel so classified. All requirements are subject to possible modification to reasonably accommodate individuals with disabilities. Approved by: Date: Title: Department: HR Approval: Revised Job: New Job: MEMORANDUM DATE: February 26, 2002 TO: Council Members - FROM: Gary Mumford RE: Request for Small Business Loan—Scentsations Lotions & Oils Scentsations Lotions& Oils has been in business in the 900 South 900 East shopping district since 1995. The business opened a second store at the Bridges Project at 200 South 500 West in February and added two full-time employees at the new location. The business applied for a $25,350 loan from the City's Small Business Revolving Loan Fund to help finance build-out costs and working capital. The loan will be secured by a corporate guarantee from Scentsations Lotions& Oils, LLC, by the personal guarantee of the owner, and by a lien on the personal residence of the business owner. The credit report of the owner doesn't show any delinquencies or unpaid accounts. The Small Business Loan Committee favorably recommends a five-year loan at 6% interest rate. Update on criteria for the City's small business revolving loan program Following a briefing last fall from the Administration regarding the Small Business Revolving Loan Program, the Council established a Council Subcommittee to propose criteria for the entire Council to consider. On November 27, the Council Subcommittee recommended that uniform and consistent procedures be adopted for processing loan applications using a composite numerical score with an established threshold in which a certain number of points would be necessary before the Loan Committee could recommend awarding a loan. The Council asked the Administration to draft an ordinance,to establish general criteria and to prepare a point-system matrix for evaluating applications. At the recommendation of the City Attorney, the Council also requested that the ordinance authorize the Administration to issue loans without Council approval of individual loans. The Administration's staff member assigned to this project left City employment in December, which has resulted in a delay in presenting the Council with a proposed ordinance. cc: Rocky Fluhart,Jay Magure,David Dobbins,LuAnn Clark,Bob Gore I t-P' SALT'HAE:CITY- CORPS - :ION: DAVID DOBBINS - — ROSS C. "ROCKY" ANDERSON DEPUTY DIRECTOR COMMUNITY AND ECONOMIC DEVELOPMENT MAYOR COUNCIL TRANSMITT AID cF TO: Rocky Fluhart, Chief Administrative Officer` DATE: February 11, 2002 FROM: David Dobbins RE: A resolution authorizing the Mayor to execute a loan agreement and related loan documents with Scentsations Lotions & Oils, LLC, for a$25,350 loan from Salt Lake City's Small Business Revolving Loan Fund. STAFF CONTACT: LuAnn Clark, Acting Director Housing and Neighborhood Development DOCUMENT TYPE: Resolution BUDGET IMPACT: $25,350 from the City's Small Business Revolving Loan Fund. DISCUSSION: Scentsations Lotions & Oils is a retail establishment that sells natural body care products for men and women. It has been in business since 1995 in the 9th and 9t11 shopping district, and is expanding to a second location at the Bridges Project at 200 South 500 West. It anticipates that it will significantly increase its sales and add two full-time employees at the new location, and has applied to the City for a small business loan to accommodate the expansion. The attached resolution authorizes a $25,350 loan from the City's Small Business Revolving Loan Fund to Scentsations Lotions & Oils for a term of five years at an interest rate of six percent, fixed for the term of the loan. Proceeds of the loan will be used for build-out costs and working capital at the new location. The loan will be secured by a lien on the personal residence of the business owner, and by the owner maintaining a credit life insurance policy in an amount not less than the loan amount with the City named as loss payee. The loan will also be guaranteed personally by the owner and by a corporate guarantee from Scentsations Lotions & Oils, LLC. The Small Business Revolving Loan Fund Committee favorably recommends this loan. 451 SOUTH STATE STREET, ROOM 404, SALT LAKE CITY, UTAH 841 1 1 TELEPHONE: B01-535-6230 FAX: 801-535-SO0S ®Recrc _o raPew RESOLUTION NO. OF 2002 AUTHORIZING A LOAN FROM SALT LAKE CITY'S SMALL BUSINESS REVOLVING LOAN FUND TO SCENTSATIONS LOTIONS & OILS, LLC WHEREAS, Salt Lake City has a Small Business Revolving Loan Fund to encourage private investment and promote economic development within the City; and WHEREAS, Scentsations Lotions & Oils, LLC is an established neighborhood business that has been located at 865 East 900 South since 1995; and WHEREAS, Scentsations is expanding to a second location at the Bridges Project at 200 South 500 West which will provide it with an opportunity to significantly increase its sales and add two full-time employees; and WHEREAS, Scentsations has applied to the City for a small business loan to accommodate the expansion; THEREFORE, BE IT RESOLVED by the City Council of Salt Lake City, Utah: 1. It does hereby approve a $25,300 loan from Salt Lake City's Small Business Revolving Loan Fund to Scentsations Lotions & Oils, LLC to be used for build-out costs and working capital at its new location at the Bridges Project at 200 South 500 West. 2. The loan will be made in accordance with terms and conditions to be set forth in legal documents to be approved by the City Attorney's Office which shall include a term of five years with an interest rate of 6.00%, fixed for the term of the loan. The loan will be secured by a lien on the personal residence of the business owner, and by the owner maintaining a credit life insurance policy in an amount not less than the loan amount with the City named as loss payee. The loan will also by guaranteed personally by the owner and by a corporate guarantee from Scentsations Lotions & Oils, LLC. 2. Ross C. Anderson, Mayor of Salt Lake City, Utah, following approval of the City Attorney, is hereby authorized to execute the requisite loan documents on behalf of Salt Lake City Corporation and to act in accordance with their teuuus. Passed by the City Council of Salt Lake City, Utah, this day of March, 2002. SALT LAKE CITY COUNCIL By: CHAIR APPROVED AS TO FORM Salt Lakes/City Attorneys Office Date 1e - - MEMORANDUM DATE: February 26, 2002 TO: City Council Members FROM: Russell Weeks RE: Briefing: Library Block CC: Cindy Gust-Jenson,Rocky Fluhart,David Dobbins,Nancy Tessman, D.J.Baxter,Stephen Goldsmith,Gary Mumford,Joel Patterson This memorandum is intended to provide background for the City Council's briefing of items involving the development of the Library Block. The memorandum includes a brief summary of items contained in Library Square,a study prepared by Civitas Inc.The City Council informally requested a study at its November 27,2001 meeting. (Please see Attachment No. 1.)It is Council staff's understanding that representatives of Civitas Inc. may make an oral presentation to the City Council on February 28. It also is Council staff's understanding that Salt Lake City Library System administrators may seek some direction from the Council on how to proceed on the eastern four acres of the Library Block. Library System administrators indicated at the February 21 Library System Board of Directors meeting that contractors involved in the project to build the new main library may need to know by mid-March whether earth from the excavation of the block should be moved off- site or retained on-site for possible landscaping uses. The"Discussion/Background portion of the memorandum is intended to provide a summary of points involving the potential development of the eastern four acres on the Library Block. LIBRARY SQUARE KEY POINTS The study appears to recommend: • That"further development of the east side of Library Square should proceed into the next level of detailed design."(Page 19.) • That development of the east side of the block as open space will cost between$5 million and$5.5 million. The study notes that$1.2 million currently is available for the project and that$3.8 million to$4.2 million remains to be raised. (Page 19.) • That a small-area plan may be needed as an"intermediate step"to make potential zoning changes in the area around the block"appropriate and effective."The area contemplated for the small-area plan would be bordered by State Street, 700 East Street,200 South Street and 600 South Street. (Pages 19 and 20.) 1 LIBRARY SQUARE OBSERVATIONS The study noted that the new main library under construction"will serve as a ... year- round civic gathering place with an active public plaza and a strong relationship to the historic City&County Building."(Page 3.) The study also noted that the block's eastern four acres constitute an"unresolved piece" of the block's future development. Developing the eastern four acres as open space would help create a"common ground"that would benefit the entire city and the neighborhood surrounding it. (Pages 3,4,5.) According to the study: "Salt Lake needs a permanent,generously sized place for year-round large and small gatherings.Unlike a neighborhood park,Library Square's cultural,educational and open space uses will appeal to a broad range of residents,valley-wide. ... The central neighborhoods on the east side of downtown Salt Lake are dramatically under-built.Vast areas of open land and surface parking characterize the area,with an ever-diminishing supply of decent,affordable housing.Current zoning and land values encourage the razing of homes for low-rise offices,which further diminish land values while consuming large areas to meet parking demand."(Page 4.) The study acknowledges that City government is nearing completion of the Central City Master Plan and is working on transit-oriented zoning to apply to the light rail line on the 400 South corridor. (Page 19.)However,it suggests that the City may want to undertake a "multifaceted,neighborhood plan"for a smaller area around the Library Block.The plan would- include an overlay zone that would contain"policies,tools,and incentives that would guide future neighborhood development."(Page 11.) DISCUSSIONBACKGROUND There appear to remain two main issues involving the future development of the eastern four acres of the Library Block: • Would making the eastern four acres into open space in itself promote the development of housing around its periphery? • How would Salt Lake City pay to develop open space on the eastern four acres? By way of background,development of the eastern four acres of the block was not included in the$84 million bond passed by voters in November 1998. One reason for not including money in the bond for development of the eastern four acres was the proposed master plan for the block recommended for adoption by the Planning Commission in June 1998 foresaw full development of the block in 10 to 20 years.The bond election was based on that master plan. The$84 million included: • $52.7 million—design,construction and furnishing of new main library. • $1.95 million—expansion of the Sprague and Anderson-Foothill branch libraries. 2 f , • • $12.2 million—construction of an underground parking garage. • $2.5 million—demolition of Metropolitan Hall of Justice,court buildings and underground parking garage. • $2.2 million—construction of plaza area on western side of the block. • $2 million—replacement of boiler serving the City&County Building and new and existing main libraries. • $6.8 million—design fees and contingencies. • $3 million—underwriters charges,bond issuance costs and other items. About$1.2 million of the$84 million was allocated to return the eastern four acres of the block to usable space after the Metropolitan Hall of Justice was demolished. HOUSING ISSUES Discussion of housing issues involving the Library Block first arose in 2000 when the Administration and the new library's architect moved away from viewing the eastern four acres as a site for mixed uses including housing. A new master plan to make the eastern four blocks open space was presented to the Planning Commission on August 17,2000,and received a favorable recommendation. A key point of the new plan was that attractive open space would encourage housing development around the periphery of the block.However,some members of the City Council saw the use of open space as a net loss of 121 housing units because at One point the new library's architect had designed a series of garden apartments on the eastern four acres as a possible use for the site. A December 6,2001,memorandum from the Mayor to the City Council included a discussion of zoning around the Library Block. (Please see Attachment No. 2.)The document and a March 2,2001,City Council staff memorandum contain the following information about zoning in the area around the block. Downtown-1 Central Business District: "Although the D-1 District allows multi-family housing,there is no limit on the development of non-residential structures,nor are there provisions to force a mix of uses." CC Corridor Commercial: "The Administration intends to replace the CC District along 400 South with a new Transit Corridor District that will allow greater building heights, ... encourage mixed-use development and restrict certain auto-intensive uses such as drive through operations." R-MU Residential Mixed Use District: "The R-MU zoning in the East Downtown planning area has not been overly successful in attracting mixed-use residential projects that take advantage of the additional building height.Even though the R-MU District allows 75 to 125 foot mixed-use buildings,the provision to allow up to three stories of non-residential uses has proven to be a disincentive for developers to provide housing. Developers are able to generate a sufficient return on their investment solely from the commercial use of the property." RO Residential/Office District:The RO District encourages the preservation of exiting residential development by requiring a minimum lot area of 20,000 square feet for new commercial construction.However,this district does not force new development to include a 3 residential component. If a developer can assemble 20,000 square feet or more of property,the RO District allows enough commercial density to provide a sufficient investment return without adding a residential component." — D-3 Downtown Warehouse/Residential District:The D-3 District includes language that strongly encourages the mix of commercial and office uses with residential dwellings,but there is not an absolute requirement to force the mix of uses.Because of the number of multiple story warehouses and the mixed-use controls contained in the D-3 regulations,a number of mixed-use projects exist. Earlier presentations by the Administration to the City Council also included three other options to encourage housing around the Library Block. • Rezone the block faces on 300 East and 500 East streets to a high-density residential district such as RMF-75 High Density Multi-family Residential District.The Administration noted that all existing commercial development in the rezoned area would become non-conforming uses. • Create a hybrid similar to a Residential Mixed Use District that would require commercial development to include a housing component. • Create a"civic overlay"along block faces surrounding the Library Block that would require a residential component in all new development.The overlay would extend to a depth of 300 feet from the block face.The overlay also would contain a process similar to one used by the Historic Landmark Commission in which a developer of a solely commercial project would have to prove that a significant economic hardship would result if a residential component were included in the development. FINANCIAL ISSUES An Administration transmittal in 2001 suggest three options for funding development of the eastern four acres of the Library Block: • A fund raising campaign could generate a significant amount of funding for needed improvements on the Library Block. • The City could generate money through a bond election. • A special improvement district could be created to generate money.This process would generate funds by assessing property owners within the SID over a 5 to 10 year period. However,the City would need to demonstrate that the improvements generate a direct benefit for the property owners within the SID.The most common use of special improvement districts is for street improvements. However,the City Council may have several options for developing the Library Block's eastern four acres. Some of the options may be contingent on other events. Other options may have to be explored more fully. All options probably will have to be weighed against other priorities or issues involving the City. Options include: 1. Using some of the estimated$6.45 million in potential revenue generated by the 2002 Winter Olympics.The City Council placed$5.8 million of the potential 4 revenue into fund balance for the 2002-2003 fiscal year.The council also discussed allocating at least a portion of the money to developing the eastern four acres.However,the sum remains an estimate contingent upon how the Winter Olympics fared. 2. Another potential Olympics related revenue source might be the return of Salt Lake City's share of sales tax revenue diverted to help build Olympics facilities. State Law 63A-7-113 titled Disbursement of the Olympic Special Revenue Fund mandates that Salt Lake City should receive its share of sales tax diverted to help build Olympic facilities no later than May 5,2003.The City also would receive interest on the diverted money. Off-the-cuff estimates generally place the amount Salt Lake City should receive at about$5 million.However,the diversion may be contingent upon the success of the Olympics and the Legislature's willingness not to change the law. 3. There may be another method of bonding for developing the eastern four acres besides seeking another general obligation bond.The City might issue bonds under the Municipal Building Authority. That would have to be researched. 4. The RDA Board of Directors also might appropriate funds in budgets between 2002 and 2008.It also might issue bonds.However,the bonds would have to be paid off by the 2008 expiration date of the CBD Project Area,according to RDA staff. 5. It might be possible to use some of the interest earnings on the bond to help develop the eastern four acres.However,there are two caveats. The first is that it is City Council staffs understanding that the bulk of the interest earnings from the bond is earmarked to pay for the construction of the new main library.The second is,according to a telephone voice mail to Council staff in December,the counsel for the bond issue said that using interest earnings to develop a formal green space is a gray area that might require legal research. 6. Another possible method of generating money to develop the area is a special improvement district in which the Salt Lake City Library System pays the assessment as the adjoining property owner.That method has not been researched,and neither the Library Board of Trustees nor the library administration has been approached about the possibility. The following is a rough chronology of financial issues involved in the Library Block project: NOVEMBER 1998 City residents vote to approve the issuance of up to$84 million in general obligation bonds to fund demolition of existing buildings,the construction of a new Main Library,a public plaza,and expansions of the Sprague and Anderson-Foothill branch libraries. OCTOBER 1999 Salt Lake City issues$81 million in general obligation bonds.The stated purpose of using the bond proceeds: 5 t The proceeds of the Bonds will be used for the purpose of(a)acquiring, constructing and improving library facilities,parking facilities and related improvements and facilities,and(b)demolishing buildings(other than the existing library building)and constructing improvements in connection with the redevelopment of the library block (Block 37).One of the costs of demolition includes providing for the prepayment of a portion of lease revenue bonds issued by the City's municipal building authority(the "Authority")to finance parking facilities that will be demolished.The balance of the proceeds of the Bonds will be used to pay certain bond issuance expenses. The bond issue includes$1.2 million for what have been described as"site finishes"and "filling in the hole"left by demolition of part of the underground parking structure and lower portions of the Metropolitan Hall of Justice, 3`d District Court and Salt Lake County Jail that were located on the eastern four acres of the block. JANUARY-DECEMBER 2000 • Demolition on the block starts. • Mayor Ross C.Anderson makes a new proposal to develop the eastern four acres as open space. Cost estimates for the proposal range from$4 million to$5.5 million. • In June 2000 the Salt Lake City Redevelopment Agency Board of Directors adopts the Agency's annual implementation budget for fiscal year 2000-2001.The budget includes a $2.28 million allocation to help fund improvements and housing on the Library Block. However,the allocation is contingent upon(1)The Agency receiving either additional tax increment over and above tax increment needed for other projects and programs included in the Central Business District fund or unbudgeted interest earnings in the same fund,and(2)the sale of the Block 53 housing parcel at 250 South 200 East.The Agency does not receive additional tax increment,or extra interest,and the housing parcel remains unsold.As a result,no funds are allocated to the Library Block. JANUARY-DECEMBER 2001 A February 6 transmittal for a City Council briefmg on the proposed Library Block Master Plan contains the following information about potential funding for improvements on the block's eastern four acres. "Library Bond:The Finance Division provided information about possible funding sources for the additional parking and the development of opens space.However, Staff has since been informed that the funds identified,interest earnings from the bond and proceeds from the$3 million of the authorized bond allotment that has yet to be issued,are not available for parking or open space improvements." The transmittal goes on to say that the$2.28 million the RDA Board allocated for the 2000-2001 fiscal year probably would not materialize. The transmittal then proposes three other potential funding sources: • A fund raising campaign could generate a significant amount of funding for needed improvements on the Library Block. • The City could generate money through a bond election. 6 3 • A special improvement district could be created to generate money.This process would generate funds by assessing property owners within the SID over a 5 to 10 year period. However,the City would need to demonstrate that the improvements generate a direct benefit for the property owners within the SID.The most common use of special improvement districts is for street improvements. In June 2001 the City Council adopts the City's budget for fiscal years 2001-2002 and 2002- 2003.The only funds allocated for the library project are for debt service on the general obligation bonds for the library bond issue. However,based on Administration estimates that the City would receive about$6.45 million in Olympics related revenue in the 2002-2003 fiscal year,the City Council discusses paying off infrastructure costs such as the Library Block,Liberty Park and deferred maintenance on items such as local street improvements if the Olympics related revenue materialized. In adopting the budget for the two fiscal years the City Council allocates$5.8 million of the potential revenue into fund balance. In November 2001, City Council Members receive a letter from Salt Lake City Library System Director Nancy Tessman that says in part,"Recent estimates ... indicate that interest revenue of$8 million has been earned to date,and the total budget of$92 million is now supported.Additional earned interest revenue may eventually be available to fund additional projects on the block or other branch library projects." On November 27 the City Council in a 5-2 straw poll votes to allow Ms.Tessman to allocate $90,000"from a fund to do some planning on open space"for the eastern four acres of the Library Block. 2002 At the January 17 meeting of the Redevelopment Agency Board of Directors the Board discusses the proposed strategic plan for the Central Business District Project Area for the years 2002-2008.Included in the proposed plan under the section titled Strategic Plan Priorities is a paragraph that says: • Develop a downtown amenity—Encourage the creation of an urban amenity such as a public market to support housing.In many cities where downtown housing is successful,there are amenities that make the downtown neighborhood special.In Seattle and San Francisco there is the bay;in Portland there are the parks blocks and a linear waterfront park. Since Salt Lake City does not have a natural amenity in the downtown area,it should create some urban amenities. During discussion among the Board,some members indicate that developing the eastern four acres of the Library Block as open space could qualify as an urban amenity. 7 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH Attachment No. 1 WORK SESSION TUESDAY, NOVEMBER 27, 2001 3 : 00 a .m. on minors . He said the Councilmember C. Christensen current curfew ordinance needed to said the parking consultant had be clarified. determined that parking was sufficient . Ms . Tessman said #9 . RECEIVE A BRIEFING parking exceeded what was required REGARDING THE PROGRESS OF THE by law. Councilmember C. LIBRARY BUILDING AND THE EAST SIDE Christensen asked if there was any OF THE LIBRARY BLOCK. negative aspect to filling back the hole. He asked if the dirt Nancy Tessman briefed the would need to be removed again. Council from the attached handout . Ms . Tessman said that depended on what the Council decided to do. Ms . Gust-Jenson said a memo She said it would be a duplication of expenditure if the Library had been provided which gave the proceeded with the original plan Council an update on the Central and then the plan was changed to City Master Plan. She said the require the earth be put back in a memo stated the chronology of the different shape. She said the Central City Plan in the past and Council had not taken a vote on what the plans were for the whether they wanted a parking lot future. She said the Master Plan and green space on the eastside. should come to the Council in the spring. Councilmember Rogan said he felt it was time to hear from the Councilmember Thompson said Administration and get this issue the Council wanted to see the resolved. He said the Council had Central Area Master Plan submitted been a responsible party by and some input on housing for the putting the issues on the table City. He said the City was giving clearly and asking directly and up housing on the eastside of the repeatedly for information. He Library block with the new plan. said the Council had not received He asked Ms . Tessman if April or the needed information. May would be soon enough for the Council to address the eastside of Councilmember K. Christensen the block. Ms . Tessman said they said there were three issues; 1) needed to know by the end of the Central Area Master Plan, 2) a January what direction to proceed housing plan, and 3) the plan or in. She said after that they direction which the City wished to would proceed with the original go on the east side of the Library plan which was to put additional block. He said any of the three earth back in the hole. She said issues could interplay together. then the block would be a parking He said he did not understand why area with green space around it. all three issues could not be She said if the Council decided to advanced at the same time. He reverse that course, it could be said the Council needed answers done, but there would be with respect to housing. He said expenditures to deal with. no issue should be held in abeyance until the other issues were solved first . 01 - 5 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH WORK SESSION TUESDAY, NOVEMBER 27, 2001 had held discussions with the Councilmember K. Christensen Council about what present zoning said if the Council was inclined issues there were in the area to use the eastside of the block surrounding the block. He said for open space, then the Council the Administration could bring a should make a decision. He comprehensive plan to the Council suggested that the Council of zoning changes which needed to authorize the Administration and be made and what the City could do the Library to move toward open to encourage marketing of property space but indicate that there owned by RDA. He said an amenity would be no approvals of any of such as the library block would the plans until the Central Area help promote housing in any Plan was back to the Council . community which demonstrated a commitment to housing. Councilmember Saxton said a process had been in the works for Councilmember Saxton said she a long time and had never came to wanted to hold a candid discussion fruition. She said the Council with the Administration on the had no leverage to get the master block. Mayor Anderson said he plan done if they moved ahead. agreed with Councilmember Saxton. She said residents had not been He said he wanted to see that the able to give input on the plan. Council' s questions got answered. She said it was unfair to the public to make a decision of open Councilmember C. Christensen space until the City had a master asked Ms . Tessman about work plan. Ms . Tessman said she performed so far by the understood Councilmember Saxton' s consultants . He asked what the position. She said the effort of consultants would be doing if the the Library Board was to try and City was to proceed on a limited get information about the block. basis . Ms . Tessman said the She said the consultants were consultants were trying to enlarge going to study surrounding blocks a number of issues relating to and investigate a number of questions the Council had shared options . with her with regard to other options on the block. She said Mayor Anderson said it would the Planning Commission had be May before the master plan reviewed two variations on the could be presented. He said the plan. She said they had a meeting plan had been in the process for where a number of people were approximately seven years . He invited. She said they wanted to said the Administration had been set up a public meeting so more trying to move it along in an open people could participate. She public process . said the next steps would be to talk more fully with the Council Councilmember Rogan said they and the community about viability had asked for a commitment from issues . She said research had the Administration with regard to been done around other blocks to - providing housing around the obtain a record on what kind of block. Mayor Anderson said they 01 - 6 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH WORK SESSION TUESDAY, NOVEMBER 27, 2001 - development did occur as a result the master plan and the housing of an amenity like the library. policy discussion. Councilmember Saxton said the Council could give Councilmember C. Christensen Ms . Tessman authorization to use said he felt the City should move some money to have the consultants forward in a limited manner and do scoping and planning. obtain some additional information. Councilmember Buhler said he supported the suggestion that the Councilmember Thompson said Library proceed with more scoping it had been made clear to the and planning. He said it looked Administration that some Council like the master plan was Members were concerned about the progressing. He said he agreed master plan and housing. He said that a decision needed to be made. those concerns had not been He said Ms . Tessman needed addressed. He said as he read the direction. Councilmember Turner memo it appeared there had been said he agreed that hard decisions significant developments made in needed to be made. He said he did the master plan. He said it not want to spend extra money on appeared as if the Planning the hole. He said if the process Commission had sent the plan back could be expedited, he wanted to for more work and input . He said do that. He said the Library the Council should be updated on a Block and Washington Square were regular basis . He said with for public use and they belonged respect to the housing policy, if to the City. Councilmember C. the Council chose open space they Christensen said he wanted to see would be giving up 121 proposed the block as open space. He said housing units . He said housing he wanted the Library to come back would help support amenities with scenarios and show the around the block. He said Council Council how they would fit into needed to address ongoing the master plan. maintenance of the open space and where the City could get 121 Ms. Tessman said it would proposed housing units, cost approximately $90, 000 for the consultants to do program and Councilmember Saxton said the schematic planning. She said that Library block was zoned would be 2 to 3% of the budget . institutional . Councilmember She said the Council acting as the Thompson said the block itself was Redevelopment Agency (RDA) had not going to change in terms of authorized a certain amount of use so what the City did on the money towards the project. She block would not be changed by the said she could take the money out master plan. He said the master of the $1 . 2 million or out of the plan would affect what happened contingency fund. around the block. Councilmember Thompson asked Councilmember Thompson asked for a straw poll on a request that if the Council wanted to move as a courtesy Ms . Tessman take forward or wait for completion of $90, 000 from a fund and do some 01 - 7 PROCEEDINGS OF THE CITY COUNCIL OF SALT LAKE CITY, UTAH WORK SESSION TUESDAY, NOVEMBER 27, 2001 planning on open space and before as criteria, but was not listed in anymore money could be spent, the the briefing report . She said the Council wanted to see a housing loans were for small businesses policy for the area around the and they needed to have block and the general area and guidelines . firm dates on the master plan. Council Members C. Christensen, K. Councilmember K. Christensen Christensen, Thompson, Buhler and said if a financial statement was Turner were in favor. Council pulled and a business was not Members Saxton and Rogan were not meeting other obligations and had in favor. clear credit problems, then the business would not be rated. #10 . RECEIVE AN UPDATE FROM THE COUNCIL' S SMALL BUSINESS Councilmember Thompson asked REVOLVING LOAN SUBCOMMITTEE if the Council felt comfortable REGARDING LOAN CRITERIA. THE with the criteria and with the COUNCIL MAY ALSO REVIEW SEVERAL threshold concept . All Council LOAN APPLICATIONS. Members were in favor. Councilmember Thompson said Councilmember Thompson said the subcommittee consisted of there were seven loan applications Council Members Turner, Buhler and the Council needed to consider: C. Christensen. Councilmember 1) Eaglegate Automation, Inc. Buhler said they wanted to propose Mr. McCrady said this business was that there be objective criteria locally owned. He said they were used in evaluating loan continuing to grow market share. applications which revolved around He said a large percentage of certain policies . He said their sales came from outside of businesses would be able to earn a Utah. He said they came into the certain number of points based on City to increase the tax base. the criteria they met . He said if Councilmember K. Christensen asked they were over a certain threshold what the value to debt was on the then the business would be second mortgage. Mr. McCrady said eligible for a loan. He said the the loan to value was 90% on the Attorney' s Office had said that second. Councilmember K. the Council should adopt a policy Christensen asked if the City was and criteria in the form of an getting a personal guarantee. Mr. ordinance. He said then the McCrady said the City always Administration would have the required personal guarantees on obligation to carry out the their loans . He said in addition ordinance. He said the proposed the City had strong guarantors on ordinance could require periodic the project beyond the owners of reports to the Council on loans the business . which had been made and how the criteria was used. Councilmember Councilmember Saxton said Saxton asked about the credit Eaglegate had been in business for report . Councilmember Buhler said 20 years . She asked why they the credit report would be listed could not get a bank loan. Mr. 01 - 8 Attachment No. 2 MEMORANDUM To: Salt Lake City Council From: Ross C.Anderson, Mayor Date: December 6, 2001 Re: Master Planning,Housing Priorities, and Housing Plan for Library Block This Memorandum responds to three concerns expressed by members of the City Council during the November 27 work session. For clarity, the memo is divided into three parts. Part I: Salt Lake City's Commitment to Master Planning Part II: Salt Lake City's Housing Priorities Part III: A Plan for Creating Housing Opportunities Around the Library Block The included materials and recommendations will provide the Council with a solid assurance that our Administration is working vigorously on both master planning and housing issues. The staff in our Planning Division is carrying a heavier load than ever, and is working hard to continue the long and ongoing process of updating various community master plans for Salt Lake City. At the same time, division staffers are often called upon to respond to special requests from the Council. This Administration's goal is to ensure that Salt Lake City continues to lead the way in Utah in providing a livable community with unmatched quality of life. For the past two years, Planning Division staff members have been doing this, and more, to the best of their ability. For the last six months, they have carried an even heavier load, due to the removal of a staff position. The role of the Planning Division has never been simply to maintain ongoing responsibilities, such as master plans, code revisions, and Board of Adjustment issues. The Council and I have relied on the Planning Division and its Director to provide visionary, long-term thinking and leadership for the City.Ehope the Council will join me in acknowledging the magnitude and complexity of these tasks, and in expressing appreciation for the dedication and hard work Stephen Goldsmith and the planning staff have provided Part I: Salt Lake City's Commitment to Master Planning Master planning provides Salt Lake City's communities with an unparalleled opportunity to determine their own fate. Our neighborhoods and Community Councils have invested many hours meeting with City staffers, consultants, and neighbors to discuss and codify the qualities that make their communities unique, and the vision they have for their communities' futures. Master planning, when done well, is a very time-consuming process. The key component of a successful plan is enthusiastic acceptance by the community to which the plan applies. The only certain way of ensuring that the plan actually reflects the desires of the community is to solicit the involvement of as many community members as possible. As communities change and grow, as some residents leave and others take their places, the priorities of communities may change. This necessitates not only active involvement from the community in the master planning process, but also regular updates to the master plans, so they continue to reflect the vision of the residents and businesses who make up the community. If this is not done, and public support for the plan is allowed to wane, the document gathers dust on the shelf, and no longer can serve as a guide to development of the community. Thus, the community involvement in master planning is critical. It does not come easily, however. Community members are busy people, with families,jobs, and other responsibilities. Eliciting and incorporating their input is rarely easy or fast. Thus, if we are committed to providing high quality plans for our communities, we must be prepared to undertake serious community involvement, and accept the challenges that come along with it. Attached to this document is a list of all Salt Lake City master plans approved since 1990. I have also included their starting and completion dates, to provide the Council with an understanding of how varied the time requirements of a plan can be. While some proceed quickly to completion, and others take numerous years, there should be no doubt about this Administration's commitment to master planning. As perhaps the most democratic function of city government, master planning provides residents with a direct connection to the destiny of their community. We recognize the unmatched value of master planning communities and neighborhoods, and adamantly disagree with the claim of one City Council member that we do not believe master plans are important. Master planning is indeed a critical function of community involvement in City government, and a high priority of this Administration. You will see from the attached table that in the first two years of our Administration, our Planning Division has carried three master plans through the adoption process, as well as completing or near completing four other planning documents. This compares very favorably with the prior Administration. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 2 of 14 Part II: Salt Lake City's Housing Priorities History of Community Housing Plan Development The Salt Lake City Community Housing Plan represents a synthesis of work conducted over the last four years by a wide variety of citizens concerned with housing issues. The effort to develop a new Community Housing Plan for Salt Lake City began in 1996 when the City Council approved funding for the project. The City Council felt there was a need to update the existing Salt Lake City Housing Policy, which was adopted in 1990. In the years after the prior policy was adopted, the housing market in Salt Lake City changed dramatically with the affordability of housing declining rapidly for a significant percentage of households in Salt Lake City. In May 1997, a consultant was hired to develop the plan. The consultant collected background data and developed a project steering committee made up of eighteen citizens, including for-profit and non-profit housing developers, City Council members, Community Council members, and housing advocates. Then they organized two community workshops on housing issues, and mailed a survey to 15,000 City residents regarding housing preferences. Seven hundred residents returned the housing preference survey and the results were compiled in a draft document called Salt Lake City Housing Policy/Plan, delivered to the City Council in September 1997. A second consultant was hired after the Administration and City Council reviewed the first draft plan. This new consultant also met with community representatives concerned with housing issues and with City Council Members. In June 1998, he delivered 1998 Housing Policies to the City Council. In October 1998,the City Council received the Corradini Administration's response to the 1998 Housing Policies. In the same month a letter was sent to approximately 200 organizations and individuals who had an interest in housing issues, asking for written comments in response to the 1998 Housing Policies. The City Council established a Housing Policy Subcommittee and from October 1998 to July 1999 the subcommittee met to develop final housing policy statements and implementation strategies. In December 1999,the City Council approved a Resolution adopting the Council's Housing Policy statements. Our Administration developed the Salt Lake Community Housing Plan based on these statements. We reviewed the previously proposed policies, the comments of housing advocates, and practices from other cities to derive implementation strategies. These support the City Council's intentions and underpin the Administration's priority interest in facilitating the development of affordable housing. The initial draft was shared with the Planning Commission, the City Council, the Historic Landmark Commission, and community groups. Their remarks were incorporated in the current document, which also contains action steps and time frames. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 3 of 14 The Salt Lake City Community Housing Plan represents this Administration's vision to create a wide variety of housing options that support neighborhood vitality. Primary Goals: tvAdo1/0 qI ° port n°hs�N�f�cr� During the first three months of our Administration, we completed the Salt Lake ,, ity Community Housing Plan. Up until this time, Salt Lake City had no adopted housing plan, in violation of state law. One of my top priorities is to support and implement the . ' housing policies and strategies identified in the Community Housing Plan. The plan provides a framework that covers a wide spectrum of opportunities, from renting to home homeownership for all income levels. Several of those strategies and goals are listed below: 1. Implement a Housing Trust Fund. The Housing Trust Fund Ordinance has been adopted and the members have been selected to serve on the Board. The Board will establish criteria and a process for reviewing applications for funding of housing projects. One of the goals of the Board will be to investigate possible ongoing funding sources for the Trust Fund. 2. Maximize the housing rehabilitation revolving loan fund by accessing all available funding sources, aggressively marketing the program and meeting the goals of rehabilitating 110 units and providing 30 homes for first time home buyers this fiscal year. 3. Help preserve the privately owned HUD assisted and/or insured multi- family housing units for low-income elderly and disabled residents. We will continue to support the efforts by the Utah HUD Tenants Association, local non-profits and the State to preserve HUD assisted and insured housing units. We sought $3 million in federal assistance this year, and although we worked hard to elicit the support of our congressional delegation, our proposed Housing Preservation Initiative did not receive funding this year. We will nevertheless resubmit this proposal to HUD and to our congressional delegation during next year's federal funding cycle. The Housing Trust Fund Board has identified the expiring contracts as a priority for funding. One project has received a$300,000 low interest loan, which assisted Utah Non- profit to refinance the project and maintain 100 units as affordable. The goal is to fund at least one preservation project a year. 4. Incorporate housing into all new and revised plans. We require that a housing element be included in all the updates of community and small area master plans, focusing on maintaining a balance of housing types and affordability throughout the community and identifying opportunities to increase that balance when possible. Housing elements have been included in the adopted Sugarhouse Master Plan and in the Central Community Master Plan currently under consideration. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 4 of 14 5. Investigate and support new construction technologies that provide more effective and energy efficient residential buildings. The Housing rehabilitation staff researches new technologies for rehabilitation and new construction technologies through web sites and written publications offered through NAHRO, HUD, environmental agencies and other professional groups. The research is on-going and has resulted in changes to our work descriptions. The items we have incorporated into our projects include low "E" glass on our window replacement projects, low flow showerheads, and programmable thermostats. This approach is consistent with the new Salt Lake City Green initiative, partrcularly the high performance building standards and recommendations that will be developed by the High Performance Building Task Force. Summary of Progress: During this Administration, we have invested $14 million in City funds to initiate some 1200 new housing units, of which 974 are affordable units. An additional 269 rehabilitation units are currently under consideration, and would require an investment of approximately$1.675 million in City funds. This compares very favorably with the record of the prior Administration. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 5 of 14 Part III: A Plan for Creating Housing Opportunities Around the Library Block _ I. Introduction Creating housing opportunities in Salt Lake City is a high priority for this Administration. Creating those opportunities downtown, however, provides even greater benefits to the City. By providing residents with the opportunity to live in a compact, vibrant, and economically diversified downtown, Salt Lake City can help to curb sprawl, reduce air pollution, reduce residents' living expenses, and revitalize our downtown area with the constant activity of residents. The library I hick provides a unique opportunity to entice more residents to live in the downtown area. By using the library block to create a vital and much-needed open space amenity for east downtown, we can create a vibrant urban civic center that will allow peo le to live just steps from many of the destinations they visit on a daily or weekly basis. Although ownership of the land does offer the City an opportunity to actually require the construction of housing, I firmly believe that using the land for an amenity to attract housing will have a greater lasting impact by stimulating the housing market. If we construct 120 units of housing on the block, those units are likely to be the only ones that will come to this part of downtown, where we suffer from a severe shortage of green space. If, on the other hand, we use the land for an attractive green space area, and work to encourage housing in the surrounding neighborhood, we could see many times the number of housing units being built and occupied near the library, with an invigoration of the entire area. Therefore, I propose that we pursue a wide range of approaches to ensure the construction and occupancy of housing in the library vicinity. I outline those approaches below. By building a park that will make the entire library block an attractive center for civic activities, recreation, entertainment, and education, and by using a combination of zoning changes, incentives, marketing, and land acquisition on the surrounding blocks, I firmly believe we can ensure the development of a strong residential base over the yew to come. II. Existing Zoning Around the Library. The following discussion summarizes the existing regulations of zoning districts surrounding the Library Block(see attached map). With the exception of the PL Public Lands District and the CC Corridor Commercial District, the surrounding zoning districts allow for mixed-use development that includes residential uses. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 6 of 14 • R-MU Residential Mixed Use District Purpose: The purpose of the R-MU residential/mixed use district is to implement the objectives of the adopted East Downtown master plan through district regulations that reinforce the residential character of the area and encourage the urban neighborhoods containing supportive retail, service commercial, and small scale office uses. Multi-family uses: No minimum lot area or maximum residential density limitations. Building Height: • Non-residential buildings limited to three stories or 45 feet, whichever is less. • Buildings with a residential component allowed up to 75 feet as a permitted use. Building heights up to 125 feet may be allowed through the conditional use process. Non-Residential buildings: The floor area coverage for non-residential uses is limited to a maximum of three stories. Comment: The building height regulations and the floor area ratio limitation for non-residential buildings are intended to provide an incentive for housing development. By including housing, a developer is rewarded by the potential to add an additional 80 feet to the building height. The R-MU zoning in the East Downtown planning area has not been Aro entire y success in attracting mixe -use re i entia projects that take a van age t e i iona ui din height. Eventhough tha Tz_M J istrict a ows 75 to foot mixed- se ildin s,the provision to allow u to t ee stories of non-residential uses ha proven to e a disincentive for developers to provide houes. Apparently, deygLopers are able to generate a sufficient return on their investment solely from the commercial usee orthe p e y. • RO Residential/Office District Purpose: The RO residential/office district is intended to provide a suitable environment for existing and future mixed use areas consisting of multi-family dwellings and office use. Multi-family uses: No minimum lot area or maximum residential density limitations. Building Height: The lesser of 4 stories or 60 feet, except where abutting a district with a greater building height, the maximum building height of the RO district shall be the lesser of 6 stories or 90 feet. Office uses: 20,000 square foot minimum lot area. Maximum Building Coverage: The surface coverage of all buildings on a lot is limited to 60% of the lot area. Comment: The RO District encourages the preservation of existing residential development by requiring a minimum lot area of 20,000 square feet for new commercial construction. Hpwever, this district clots not rewire new development to include a residential component. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 7 of 14 If a developer can assemble 20,000 square feet or more of property, the RO District allows enough commercial density to provide a 1 sufficient investment return without adding a residential component. •�' /�',-= ' The PlanningCommission has recommended amendments to the RO :=• lam: �► District that would allow office uses in existing structures on lots less than 20,000 square feet. The proposed amendments would limit office uses to the first three stories of existing structures and would limit expansion of floor area to 50%of the original. • CC Corridor Commercial Purpose: The purpose of the CC Corridor Commercial District is to provide an environment for efficient and attractive automobile oriented commercial development along arterial and major collector streets. Multi-family uses: Residential uses allowed above and below first story commercial uses or on the first floor if not adjacent to the street frontage. Building Height: The lesser of 30 feet or 2 stories Comment: The Administration intends to replace the CC District along 400 South with a new Transit Corridor District that will allow greater building heights(up to 75 feet), encourage mixed-use development and restrict certain auto-intensive uses such as drive-through operations. The purpose of the TOD district will be to support the University light rail line and encourage the development of a broad mix of uses that can support a residential population. • D-1 Central Business District Purpose: The purpose of D-1 Central Business District is to foster an environment consistent with the area's function as the business, retail and cultural center of the community and the region. Inherent in this purpose is the need for careful review of proposed development in order to achieve established objectives for urban design, pedestrian amenities and land use control, particularly in relation to retail commercial uses. Multi-family uses: Permitted if above or below first story commercial uses and on the first floor if not adjacent to the street frontage. Multi-family allowed on the street frontage only through a conditional use process. Building Height: Corner properties require a minimum building height of 100 feet. A design review process is required to allow buildings higher than 375 feet. Comment: Although the D-1 District allows multi-family housing, there is no limit on the development of non-residential structures nor are there provisions to require a mix of uses. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page8of14 • D-2 Downtown Support Commercial District Purpose: The purpose of the D-2 Downtown Support Commercial District is to accommodate commercial uses and associated activities that relate to and support the D-1 zone but do not require a location within the D- 1 Zone. Development within the D-2 District is also less intensive than that of the D-1 zone. Multi-family uses: Permitted if above or below first story commercial uses and on the first floor if not adjacent to the street frontage. Multi-family allowed on the street frontage only through a conditional use process. Building Height: 65 feet as a permitted use, up to 120 feet as a conditional use. Comment: Although residential development is allowed in the D-2,the main purpose of this district is to provide supporting commercial development near the CBD. sing has not been an emphasis of new development in the D-2 District. • D-3 Downtown Warehouse/Residential District Purpose: The purpose of the D-3 Downtown Warehouse/Residential District is to provide for the reuse of existing warehouse buildings for multi- family residential use while also allowing for continued warehouse use within the District. The reuse of existing buildings and the construction of new buildings are to be accomplished as mixed-use developments containing retail uses on the lower floors and multi- family dwellings on the upper floors. Multi-family uses: Mixed-use buildings with commercial/office uses above the second floor shall incorporate residential uses(dwellings, B &B, hotel) in an amount equal to at least 50% of the total building floor area. Building Height: 75 feet. Up to 90 feet may be approved through a conditional use process if at least 50% of the floor area is dedicated to residential use. Controls Over Mixed-use: Commercial and office uses are permitted as the sole use only in buildings up to two-stories in height. In three-story or taller buildings, commercial and office uses may be allowed as the sole occupants through a conditional use process if the applicant demonstrates the proposed location is not suitable for multi-family development. Comment: The D-3 District includes language that strongly encourages the mix of commercial and office uses with resisential dwellings but there is not an absolute re uir nt to force the mix of uses. Because of the num er of multiple story warehouses and the mixed-use controls contained in the D-3 regulations, a number of mixed-use projects exist. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 9 of 14 III. Opportunities for Stimulating Housing Investment A. Library Block Investments Examples across the country confirm that, when done properly, investments such as the open space being proposed consistently attract housing and other types of development. Below are listed some relevant examples. Commons Park. Denver Colorado Commons Park was an idea for about 10 years before serious planning began. Proponents built broad public support for the plan and the real estate industry did not believe it until the City closed on purchase of the land. Within a month of closing, the first parcels adjoining the park land started changing hands. The first 340-unit rental building was under construction before parkland demolition was done. The park opened last year and by Christmas of this year there will be 1340 units built, with 500 more under construction. There are now roughly 700 people occupying the park edges, with about 500 units finishing(and sold)by year-end. Almost none of the surrounding housing has been subsidized by the government. The park was built and the market almost immediately responded with the construction of nearly two thousand residential units. Centennial Park. Atlanta, Georgia The area in which Centennial Park is now situated, as well as the surrounding blocks, was a deteriorated and dangerous section of Atlanta two years prior to the 1996 Summer Olympic Games. The City of Atlanta aggressively negotiated for the purchase of several dozen parcels and condemned several additional parcels, in order to build the greatest existing legacy of the Atlanta Summer Games. Today, three huge housing projects are under construction adjacent to Centennial Park. The consensus among Atlantans seems to be that none of that housing would have even been considered had it not been for the creation of Centennial Park. City of Cuernavaca Park. Denver, Colorado The City of Cuernavaca Park in downtown Denver was designed and completed in 1995. The adjoining derelict flour mill was bought by a developer during park construction. A new building was built later and there are now about 120 units occupied directly on the park, with 4 more buildings now in construction. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 10 of 14 Post Office Square. Boston, Massachusetts l!' Post Office Square in Boston is a small park at the edge of the financial district. It was finished in about 1990 and now all properties surrounding it have been renovated or replaced, including the Hotel Meridien. The"Pineapple Park." Charleston, South Carolina Charleston recently built a new urban park on the waterfront(locally known as 4.- the Pineapple Park). The edge facing the City has completely redeveloped and former Mayor Joe Riley claims this park was the trigger to major downtown reinvestment. Linear Park. Indianapolis, Indiana Indianapolis built a linear park leading to the White River. There is now substantial redevelopment of mixed use, with housing on the northwest, north and northeast sides. It is a dramatic success. Pioneer and Occidental Parks. Seattle,Washington Seattle developed Pioneer Park and Occidental Park in the mid-seventies. These were critical public investments that turned the newly named Pioneer Square Historic , , District into the successful mixed entertainment and residential district it has become. Lake Parks. Minneapolis,Minnesota Minneapolis reinvested dramatically in their chain of lakes along Lake Harriet (22 and Lake of the Isles with park treatments. These investments led to significant reinvestment in existing neighborhoods with emphasis on renovation. B. Current Housing Projects in the Works Near the Library The Planning Division is currently working with several developers interested in housing in the East Downtown area. One of these developers is exploring a mixed-use, mixed-income development two blocks north of Library Square. The Planning Division has been working closely , ram with the developer's principals and architect on creating a mix of housing types and commercial uses that will complement the city's goals in East Downtown. These include: Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 11 of 14 • A mix of housing types, including rental units, condominiums, town homes and live/work spaces; • A mix of commercial uses, including office and retail space; and • Amenities for other downtown residents and workers, including restaurants and entertainment establishments. _ The Planning DiN4sion understands that the developer will close on the property the week of December 3 2001 and hopes to announce a ground-breaking after the Olympics. The project's plans include 250 residential units, with both small- and medium-sized commercial units on the street level. Plans also include live/work units both on the street level and within other areas of the project. The highest profile project under study by the Planning Division is a 500-unit development on the block bounded by 300 and 400 South and 500 and 600 East. This transit-oriented development has been presented to the neighborhood community council on several occasions, and the council's observations and concerns have been incorporated into the current planning process. The developer's new architect has met with the Planning Division to discuss citywide housing goals, open space opportunities for residents, and density issues. The original architects conducted considerable scoping with the Planning Division on behalf of the developer. Several meetings were held to discuss mid-block connectivity, historic preservation of existing buildings, and mixed-use options for the neighborhood. The developer's local architects have considerable knowledge of and experience with city housing programs. A third developer has been working with the Planning Division and HAND to secure a site in the downtown area near a transit line for a 200-unit apartment complex. The Administration has been working to isolate some appropriate sites east of Library Square large enough to meet the developer's needs. To date, parcel assembly has not been possible, but the developer is aware of the resources the city can offer once a site is secured. A fourth site, a small infill opportunity, is being pursued on the block immediately south of Library Square. This site would accommodate only six to eight units, but was acquired by the developer specifically because of its location near Library Square. Sale of the parcel closed last week, and the Planning Division has arranged a meeting with the developer to discuss the site's attractiveness for housing development. C. Regulatory Changes Research done by the planning staff confirms the notion that zoning, by itse1tf, will not create more housing. Portland makes use of property tax abatements to encourage ' new housing. Sacramento uses funds generated from a business tax to encourage new housing. However, Utah state law may not allow these techniques to be used in Salt Lake City. Using financial incentives like those listed below may be helpful in encouraging new housing in the vicinity of the library block. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 12 of 14 The Planning staff is developing an overlay zoning district that could be placed in the vicinity of Library Square to require new development to include a housing Dl, il� component. Generally, the overlay would require that any new development consisting of IAJ . �pr more than 10,000 square feet would require that at least 50%of the square footage be U'� sr dedicated to housing units. The general area that is being considered for this overlay is Z al' ,�.�from 200 East to 700 East between 300 South and 500 South. While the boundaries and a- components are currently being reviewed and may change, the Administration will recommend this spring that the Council adopt an overlay to encourage housing around the library block. D. Incentives To augment the overlay zone, we recommend full use of various financial incentives to encourage housing development in this area. The available incentives include: • The City Housing Trust Fund is available to assist with developing affordable housing, generally through gap financing. The use of this fund does not require that all of the housing be affordable. Generally, the City encourages a mix of affordable and market rate housing. • The RDA provides low interest loans to assist developers to construct or renovate affordable housing units. • The Housing and Neighborhood Development Division(HAND) has a buy-down program to assist homebuyers to purchase market-rate units at a more affordable price. • HAND could be involved in developing a mixed-use demonstration project in the vicinity of the Library. • The City can offer assistance with assembling funds from a variety of sources, such as the Olene Walker Housing Trust fund, CDBG funds, and private donations. In his work at Artspace, Stephen Goldsmith has pioneered the creation of affordable housing developments in Salt Lake City by coordinating funds from a variety of sources. The City should consider undertaking similar efforts. �_ ___---- Z E. City-owned/controlled Land 4 . Just as the City's ownership of the library block affords us a great deal of control : over its destiny, we recommend that the City seek to foster housing around the library by acquiring land and using that ownership to encourage the type of housing development desired by the City. For example, a parcel recently sold immediately south of the library block on 500 South. This 0.25-acre parcel is currently zoned D-3, and was listed for $250,000, or approximately $23/square foot. When we identify available parcels in the # future,we will recommend that the City Council consider appropriating the funds to purchase the land, so we can start marketing it for housing. Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 13 of 14 We also propose to inventory the ownership of all land surrounding the library block, identifying sites that are available for sale or underutilized, and bringing the Council a list of proposed property acquisitions. — Finally, the Redevelopment Agency owns a parcel on 200 East,just north of the Chamber of Commerce Building. The RDA is currently marketing the parcel for housing, Ay_ and and is in discussions with an interested developer. If this developer does not choose to proceed, we will work with the RDA to enhance its marketing efforts for that parcel, and of examine other incentives, such as reduction of the sales price in exchange for high- quality, mixed-use retail and housing, and assistance with funding partnerships. Attachments: Master Plans Approved Since 1990 Housing Development or Rehabilitation—Corradini Administration— 1992-1999 Housing Development or Rehabilitation—Anderson Administration—2000-2001 Library Block Zoning Map • Memorandum to the City Council Master Planning,Housing Plans, and Housing Around the Library Block 12/6/01 page 14 of 14 I 6 _I LiL� _ 300 S g - , —I LIBRARY - 1 ! ___ . M--' '" - BLOCK I r _ ---1 ... _. _ ___L___I L._ ......1 1 , CC 400 $ CC•CORRIDOR COMMERCIAL C — D-1-CENTRAL BUSINESS DISTRICT D-2-DOWNTOWN SUPPORT Wi t 1 = D-3•DOWNTOWN/ WAREHOUSE RESIDENTIALANEeL/]ACED USE CO PL N RMI-35- ,Lm` ENSITY L. R RMP-45••MODERATE/ICON ��' 1. - DENSITY MULTIFAMU.Y 3 Ro-RESIDENTIAL/OFFICE ri W SR-3-SPECIAL DEVELOPMENT CO r O PATTERN RESIDENTIAL o- 500 s RO et I L — II -1 RO--- ' Soo y . pp§s g'00-1..:— Mra iri.:3z :o8occoS.�a.8S o N 7- jt_!__....... - d -45j Ilj ►. s 600 S Bah Lake City Planning Division I I I III I I I I I'" I I I I i I IIIHTUI I r Geographic Information Syrtem November 2000 III (T MA\I 2-o00 UTAH PRESS ASSOCIATION - Clipping Service - (801) 328-8678 TRIBUNE open Space New Salt Lake Library BlockPl an To Replace Boston architect Moshe Safdie has revised a master plan for the block east of City Hall.Safdie's proposal calls for open space rather than the offices,apartments an d shopssuggested by an earlier architect. • `Urban Room' ' .� � �_,' 4- � • NORTH W FOURTH SOUTH 4 'a■Continued from B-1 iv - _ ,0 •ter` s4.•. a.�_:• ./.4.-.-v., ��_ 0 CITY HALL "r p '� .ti_ \`.:19. : PLANNED -.tie above shops, restaurants and the- .o j. , N4. "`� , °,., OPEN SPACE i w aters would act as a"sieve"for the �", - ---IX-. 3 \ i'� .IN ' 4- green space, Franco says, feeding �...-v,it PLANNED • "'. ' ;% ek 1` 1' q :;,, ?1 , people into the park. "It creates LIBRARY - another place in Salt Lake City that r + +�,;: x.r;,_ will be activated,"he adds. = � i '`r ;r a !r.Tn if s •�=F-':' - `tit But FDA's Burke Cartwright is ' �```�` #` ' vv. ' "s w skeptical a park can do that. "I'm x•k ` i '"�'�''!' '1 afraid the block would be void of ,_x. Y' �,`. '' " EXISTING G : i4 A b+ the day-to-day life we experience in LIBRARY A,: •:. , , j,.1 ` T. ` ' an urban environment," he says. :,� `vl :'_'� = Ta_. , ;C '•, "The library becomes a monument FIFTH SO M _ building, an object that stands t:- la alone but is not fully integrated '' ' '"• — into the community." Sources:Salt Lake City,architect Moshe Safdie The Salt Lake Tribune So far, no one else is complain- ing about the change in plans.City leaders and library officials prefer It's just a different use of the Library officials presented not to call it a change;they call it a property." Safdie's concept at a public meet- "transition"or a"refinement." Library Board Chairman John ing last week. Now, it is up to Franco and city Library Direc- Becker is glad to see city leaders Anderson and City Council mem- tor Nancy Tessman insist EDA's talking about downtown open bers to decide what to do. master plan is the foundation of space again. The RDA chipped Councilman Roger Thompson, Safdie's proposal. A plaza and away at Gallivan Center, adding for one,never was inspired by the midblock pedestrian walkways hotels and parking lots and office original block master plan. still are there.A light-rail stop on buildings until nearly nothing re- "I was never a fan,frankly,"he 400 South is integral to the concept. sembling open space remained, says. "Maybe it was the way the But rather than building the Becker says.And Pioneer Park,the buildings were oriented,maybe it • apartments and offices and shops only large downtown park, is on was the housing component — I the Salt Lake City firm proposed the central business district's was skeptical that could work. for the library block,Safdie insists western edge. This park just seems a better fit." a two-block park (including the "This is a real opportunity for Cartwright is philosophical green space around the City- open space that plays beautifully about his work being mothballed. County Building to the west)could off the architecture and position- He figured some change was inev- energize developers to fill the sur- ing of the new library,"he says. itable once plans for the new li • - rounding blocks with those uses. Anderson agrees. "We lost the brary were drawn up. "What EDA did was good, con- chance for open space at the Galli- "This isn't unusual," he says. sidering the mayor of the mo- van Center by filling it with build- "It's the nature of the beast. As ment,"Tessman says."Most of the ings," he says. "Putting buildings more information becomes avail- principles in that master plan are on the eastern half of this block able,things change.Plans are not/ still there. It's not a real change. would destroy it." static." , • S.L Mayor, Council Poised to Scrap Library Block Plan for Open Space ��•a BY REBECCA WALSH place for concerts,plays,personal reading Last year,city leaders still planned to review EDA's block proposal. THE SALT LAKE TRIBUNE f and family picnics,"Anderson says."Ev- follow that document — at least in Meantime,Anderson was elected.He erybody coming to Salt Lake City will concept. and Safdie got together for dinner one What a difference a year—a new Salt visit this block." And they did:Residents voted to raise night last winter and sketched an Lake City mayor and an internationally In 1998, the Salt Lake City firm Ed- property taxes.The courts are in rubble. alternative. prominent architect—makes. wards & Daniels Architects (EDA) un- Construction of an ethereal,$60 million Safdie's draft is different from Edwards Despite spending$231,570 for a master veiled a much-anticipated proposal for the library is scheduled to start this fall. &Daniels'.He proposes an amphitheater, plan of the block east of City Hall and block.It suggested leaving the existing But the rest of the expensive guidebook reading garden and children's play area. years of work on the project,city leaders Main Library alone. Crews would tear for the MHJ block has been abandoned. The configuration of Safdie's triangular are poised to scrap the document. down two courts buildings and the Met- City Council members put off adopting library at the corner of 400 South and 200 That's because Mayor Rocky Anderson ropolitan Hall of Justice(MHJ).If voters the plan until Safdie had drafted his Ii- East would not change. and library architect Moshe Safdie say approved,a new library would be built on brary designs.Then,acting as the Rede- Safdie's partner,Isaac Franco.calls it a they have a better idea for the block:open the northwest corner.Apartments,shops velopment Agency board, they scraped "mini-Central Park."The new library's space. and offices would form the eastern edge of together$30,000 and library officials si- sweeping glass wall with reading rooms "We're going to design this in such a a central plaza:The plan called it an"Ur- phoned some money from the new build- wa:-that it will be a wonderful gatherir ban Room." ing's budget to pay Boston-be d Safdie to See OPEk.BPACE,Page f-5 n B A 7 z 0 Attachment No. 4 Planning Commission Minutes: June 4, 1998 PUBLIC HEARING - The Planning Commission will receive public comment and consider making recommendations to the City Council on the Metropolitan Hall of Justice Block Plan (200 East to 300 East and 400 South to 500 South) presented by Burke Cartwright of Edwards and Daniels Architects (EDA). Mr. Bill Wright gave a brief background by stating that the City has hired Edwards and Daniels Architects, among other consultants,to do a planning study and outline options for the Metropolitan Hall of Justice Block(Block 37)to review a wide variety of cultural and institutional uses. Mr. Burke Cartwright, of Edwards and Daniels Architects, stated that Salt Lake City has the unique opportunity to re-design an entire City block in the urban core of the Downtown area. Several factors (i.e. the relocation of the majority of the judicial functions to the new courts complex, the consolidation of compatible government offices and the new public library project)are contributing to the project's momentum. Mr. Cartwright then stated that there will also be a very strong educational and cultural component to the block which will contribute in a meaningful way. Several educational and cultural groups have expressed interest to be located on the block. The groups include,but are not limited to,the Children's Museum,the Circle of Wellness for the Native Americans and the Tonga community. Ms. Stefanie McCarthy, of Edwards and Daniels Architects, briefed the Planning Commission on the specific Block Plan which incorporates the City's two primary objectives;to consolidate City offices and make them more accessible or "user friendly"to the public. In keeping with these goals is the overall 1995 Downtown Plan goal of a 24 hour City and providing a mix of housing and retail for all areas of Downtown. Ms. McCarthy used presentation boards to identify the locations of the mixed retail and housing uses being proposed for the block. Ms. Funk asked about the plans for parking. Mr. Cartwright stated that all parking on the block will be below grade and that the intent is to not have an excessive amount of stalls. Ms. McCarthy stated that there will be one stall per housing unit above grade. Mr. McRea asked how many units of housing are being proposed. Ms. McCarthy stated that there will be three acres used for housing units and there is currently 25 units per acre being proposed. The units could increase to up to 40 units per acre if the height of the housing structure along 300 East is increased. Mr. Wright stated that the City has some significant housing policy's about providing mixed income housing. If the policy stays in effect over the time period that the Block Plan is developing,there will be a strong emphasis for mixed income housing which includes 20%subsidized and 80%market. A discussion between the Planning Commission members, Mr. Cartwright and Ms. McCarthy followed regarding the access to the plaza and the proposed layout of the buildings. Mr. Smith opened the hearing to the public and asked if anyone wished to address the Planning Commission. Ms. Lois Brown, a member of the Central City Neighborhood Council, spoke in favor of the Block Plan but wanted to mention that since the plan is conceptual she will be following the progress and giving her input as necessary. Mr. Smith noted that the Central City Neighborhood Council submitted a letter stating that they voted in favor of the Block Plan as it was presented to them. (A copy of the letter is filed with the minutes.) Senator Pete Suazo stated that he is supportive of the development of Block 37 mainly because he is pleased that the Children's Museum is considering to move there. Mr. Suazo also addressed the — Planning Commission in reference to the Circle of Wellness, a facility that will centralize services for the urban Indian. He was pleased to read in the newspaper that the Circle of Wellness might find its home in this urban setting along the transportation corridor where people can access it. Mr. Suazo stated that the Circle of Wellness has will include the following three components: 1) displaying their culture and their language through accurate representation, 2) social services, and 3) a business and entrepreneurial component where native businessmen and arts and crafts people could display and sale their wares. Forrest Cuch, Director of the Division of Indian Affairs for the State of Utah, spoke concerning the cultural importance by stating that the Circle of Wellness facility will enhance the tourism industry. With the upcoming 2002 Winter Olympic Games, it is vital that the indigenous cultures and the other diverse cultures be featured in Salt Lake City, doing this will enhance new developments and it will give the people the kind of attention and recognition that is desired. Ms. Grace Sperry, a property owner near Block 37, stated that she was in favor of the development of the block including the new library and the Circle of Wellness facility. Ms. Sperry spoke against the building layout and the proposed residential properties on the block. Ms. Nancy Tessman, Director of the Library System, spoke in favor of the Block Plan and she feels that its completion will become a highlight for the Downtown area. Ms.Tessman then stated that she likes the idea of a mixed use block, including housing, because she feels that the mixed use will give the block more life. Mr. Jeff Edwards, Chairman of the Board of Trustees of the Children's Museum of Utah, stated that he supports the Block Plan and he is pleased that the Children's Museum will be included in the proposed plans for Block 37. He then stated that he feels that moving the Children's Museum to a central location will serve more of the population. He also feels that the library on the same block is a very compatible use to the museum. Upon receiving no further requests to address the Planning Commission, Mr. Smith closed the hearing to the public and opened it for Planning Commission discussion. Ms. Funk stated that she feels that it is critically important that the City not give up potential office space that they will need for future development. Ms. Funk then stated that she supports residential use for the block that will support mixed income levels as well as a mixed range of people. Mr. Wright stated that the Planning Staff prefers to have a higher number of density and a higher number of uses which will be more consistent with the transit oriented development that will be available. Motion for the Metropolitan Hall of Justice Block Plan: Ms. Funk moved to forward a favorable recommendation to the City Council for the conceptual Metropolitan Hall of Justice Block Plan for Block 37. Ms. Funk further moved that the Planning Commission highly supports the residential mixed use component. Mr. McRea seconded the motion. Ms. Short, Mr. McRea, Ms. Funk, Mr. Manger, Mr. Fife and Mr. Steed voted "Aye". Mr. Iker, Ms. Barrows and Ms. Kirk were not present. Mr. Smith, as Chair,did not vote. The motion passed. MEMORANDUM DATE: February 16, 1999 TO: City Council Members FROM: Russell Weeks,Anne Gerber,Janice Jardine RE: Discussion: Master Plan for Metropolitan Hall of Justice CC: Cindy Gust-Jenson,Roger Black, Stuart Reid,Nancy Tessman This memorandum is a companion piece to the cover letters from Management Services Director Roger Black and Community&Economic Development Director Stuart Reid about the master plan to the Metropolitan Hall of Justice Block. The cover letters contain responses to questions raised by the City Council and Council staff during a briefing last fall on the master plan. CHRONOLOGY • June 1998—Planning Commission holds public hearing on master plan and adopts motion to forward a favorable recommendation to City Council. Motion includes favoring a residential mixed-use component on Metropolitan Hall of Justice Block. • September 3, 1998—Administration briefs City Council on master plan for block. • October-November 1998—Architect and Administration responds to questions raised by City Council and Council staff. • November 1998—Salt Lake City residents approve issuance of up to$84 million in general obligation bonds to build new main library and prepare block for future construction. • January-February 1999—Salt Lake City Library System Board of Directors review architectural firms seeking to design new main library. Final selection of architectural firm scheduled for April 1999. FINANCING Breakdown of the$84 million dollar bond approved by the voters: Main Library Building $52,742,566 Includes construction,design and engineering fees, furniture,fixtures and equipment,and administration and escalation of costs to anticipated construction date of 2000. 1 Branch Expansion Projects: $ 1,950,000 Includes expansion of Sprague Branch Library in 1999 and expansion of Anderson-Foothill Branch Library in 1999/2000. Subtotal Library Buildings $54,692,566 Demolition of Buildings $ 2,500,000 Boiler Replacement $ 2,000,000 Parking Garage $12,200,000 Plaza Area $ 2,200,000 Design Fees/Contingencies $ 6,800,000 Underwriters Charges, Bond Issuance costs,etc. $ 3,000,000 Total $83,392,566(Bond not to exceed$84,000,000) MASTER PLAN INTEGRATION The master plan documents say it conforms with the East Downtown Neighborhood Plan adopted in the late-1980s or early 1990s and with the Central Community Master Plan Update, which still is undergoing revision by the planning staff. Both plans contain goals of stopping"erosion of the residential character of the East Downtown Neighborhood,"and making the East Downtown a transitional area between residential areas and the Central Business District. The master plan also views the Metropolitan Hall of Justice Block as finishing a three- block sequence of institutional uses that will help define the southern edge of the Central Business District. The sequence includes the Scott M. Matheson Courts Building,the City and County Building,and the Metropolitan Hall of Justice Block. In addition,the Hardy Holzman Pfeiffer&Associates study A Vision for Arts&Culture in Salt Lake City describes a new main library and the block on which it sits as on of the major pieces of the City's "cultural necklace." MASTER PLAN • The master plan is essentially the same as presented last fall. • The master plan is considered a template to developing the block in the next 10 to 20 years. • The appendix to the master plan supercedes the 1994 Facilities Master Plan that was the impetus for the City's purchase of property on 600 South Street. • Although the plan proposes a new City office building,the cost of the new office building was not included in last year's bond election. 2 • Demolition of the building housing the existing Salt Lake County Jail and the County's emergency operations center depends on when the two facilities can be moved. According to the master plan,the City has established a target date of late 2001 for the County to move the two facilities. A spokesperson for the Salt Lake County Commission said the new County Jail is scheduled to open Sept. 1.However, it is likely that only two of the jail's four"pods" (wings)will open then. The opening of the two remaining wings probably will be determined in budget discussions starting in November. The new emergency operations center is under design, and the County plans to break ground on the facility midsummer. The existing emergency operations center will be the last facility to leave the MHJ block,the spokesperson said. • The planned increase in property taxes by the Salt Lake City Library System is contemplated in part to pay to maintain the new main library. It is probable that the City will have to pay to maintain the public plaza when it is built. • It is Council staff understanding that one or two of the architectural firms competing to become the architect of the new main library would like to explore potential alternatives to the master plan in the exact siting of the new library on the northwest corner. It is staff understanding that the firms agree with the northwest corner site but would like to explore the placement of the new building on the corner and its relationship to the plaza. 3 Attachment No. 5 Public Hearing - Metropolitan Hall of Justice Block (a.k.a. Library Square) - The Planning Commission will receive public comment and consider making recommendations to the City Council on a revised Metropolitan Hall of Justice/Library Block Plan (200 East to 300 East and 400 South to 500 South) presented by the Salt Lake City Library Staff and project architects. Mr. Joel Paterson presented the staff report. Salt Lake City has been considering redev loping the library block for a number of years. In the mid-1990s a local architectural firm, EDA was hired to develop a block plan and in 1998 a successful bond election was held. The proceeds from that bond are being used to finance the construction of a new library. As a result Moshe Safdie &Associate Architects was hired to design the library and explore different variations of the EDA plan that was developed for the block. Since they have been brought on board, they have attended various public meetings, open houses, and workshops. Since that time there have been several variations for the development of the block. Mr. Paterson continued by stating that last fall some concepts were developed involving mixed-use development on the eastern portion of the block which included office space and residential uses. However, Mayor Anderson has brought in a new vision for the eastern portion of this block, and Mr. Moshe Safdie and his team have developed an open-space concept to go along with the library. Mr. Paterson asked that the Planning Commission forward a positive recommendation to the City Council to hold public hearings and adopt the block plan for this block and asked if there were any questions. Mr. Paterson then turned the time to Mr. Safdie and his team to go through the details with the group. In addition to Mr. Safdie, Mr. Steve Crane of Valentiner Crane Architects was in attendance. Mr. Safdie displayed a model of the current plan for the library block. He began his presentation by explaining that the project started with the master plan that had been adopted. They then began working on the design combining housing, office space and possibly a hotel. A number of schemes were developed with the objective being that the area would not only house the library but serve as a major public meeting place, both indoor and outdoor. Some months ago in brainstorming sessions with the Mayor and others, it was decided to go back to first principles. How would one make this block the most effective and have a public gathering place which would become the focal point in terms of the full life of the City? Certain elements needed to be considered. In addition to shops, an auditorium, and library, it would be nice to have a small cinema complex. It's important to put the existing library to good use to complement the activities. As a result of these sessions, it was concluded that the entire block should be an actively programmed open space plus the facilities which are already programmed and to combine it with the City and County Building with its open space to make a two-block park. The scheme that is currently being proposed shows the entire block as a series of open spaces in addition to the library, the existing library, piazza, cinema, etc. The eastern side is designed as an active part of the picture. Mr. Safdie pointed out that in building the complex, different grades will be dealt with. The grades build up gently towards a level one floor above the street level so that as you walk up you are looking down through the open part of the wall into a public piazza lined with shops, cinema, theaters, etc. The other corner gently terraces upward with an area for playgrounds, picnic area, and reading 22 garden. The curved wall is designed as a climbable wall that can be ascended to reach the roof of the library that will also be a public park. Part of it is open to the library where patrons can come out of the library and sit outside. It would also serve as a place for receptions and other functions. This plan provides for a very urban, active piazza with a reflecting pool, a fountain, cafes, shops and, hopefully, a major restaurant a various public groups seeking to utilize the existing library. Ms. Short asked for an explanation of the shops. Mr. Safdie explained that the initial program included the accommodation of the kind of retail cafes that would be compatible with the library. He said he thinks this was partially inspired by the library at Vancouver where an urban room was created which housed a book shop, three or four levels of cafes and fast food, has a bank machine, and a post office. This provides services for not only library patrons but people planning on meetings at library square. Mr. Safdie explained that the shops are quite shallow, being only 15 feet deep. They have brought people in to share ideas concerning the kind of retail shops that would be appropriate for a complex of this kind. He added that the retail and entertainment are important to give the complex the kind of life it should have. Mr. Daniels asked about ADA issues with the project. Mr. Safdie responded that all ADA requirements have been addressed in spirit and by letter of the law. There is one element of the plan which is complex as far as ADA is concerned, and that is the climbable wall. Public access has been provided to the roof by elevators. However, the climbable wall itself will be restricted to those who are able to climb the wall. Throughout the remainder of the building and the plaza there are ramps and elevators provided for access. Ms. McDonald inquired if the amphitheater being where it is will there be reflections off that wall? Mr. Safdie explained that the angle of the sun in the summer is such that it will not present a problem. Also he explained that the wall is designed so that sound will travel through it. He further explained that there are details which still have to be worked out. Ms. Funk asked if the wall would obstruct the view of the City and County Building? Mr. Safdie explained that there is a large 30-foot high opening that would provide visual access to the City and County Building. Mr. Jonas asked what purpose the building to the north of the existing library, as shown on the model, would serve? Mr. Safdie said without knowing what will take place as to future users, from the point of view of spatial definition of the public piazza, it would be good to provide space for other entities such as additional shops or perhaps a small museum. Mr. Crane apologized for not having more drawings available for this meeting, but another meeting was scheduled for this night, and the other drawings were taken there. He did explain there is a scale model on display at the library. Mr. Smith told the group he is missing the housing that was included in the original plan, but doesn't see any way to bring it back. However, he feels it is incumbent upon the City to deal with the loss of 23 housing. He pointed out that now people would have to drive their cars to get this beautiful park. He pointed out that in Vancouver hotels and offices were developed in the areas surround the new library. So there is potential for building housing is great. Planning mechanisms need to be put in place to guide the development. Mr. Safdie said rather than losing housing, the opportunity to develop housing around the perimeter is increased. Mr. Goldsmith added that there have been many conversations, not only with Mr. Safdie and his team, but with the Administration and many of the Planning staff who were dubious about getting rid of this mixed use on the eastern edge of the site. He said the Mayor is clearly committed to the opportunity for development of the surrounding blocks. Mr. Crane pointed out that rather than losing one street of housing that looks to a piazza, three streets of housing that look to a piazza and park are being gained. Mr. Smith stated he would really encourage a broader band of trees on 200 East. He said he may even go so far as to suggest there be only one lane of traffic in each direction on 200 East. Mr. Goldsmith suggested these ideas should be passed on directly to the City Council. Mr. Daniels inquired as to what the plan is for the existing library building. Mr. Safdie explained there is a proposal and several submissions have been received. Mr. Goldsmith said these are being handled by the RDA rather than the Planning Commission. Mr. Jonas asked how much parking will be available in the area. Mr. Safdie answered there will be parking beneath the building which will accommodate 700 cars. The parking area does not extend below the area where the trees are planted because the root system of the trees needs the area to expand. Mr. Daniels asked if there is parking provided for very large vehicles like buses. Mr. Safdie explained there is a small trucking dock. The parking is basically for cars. Mr. Daniels suggested this should be considered in order to accommodate the bus loads of children that come to the library. At a very minimum a drop-off place should be provided. Mr. Crane explained there is a book drop-off that would probably hold two buses which turns in off the back. The passengers could be dropped off there and the buses could exit from there. Mr. Smith asked that members of the public who would like to speak to please come forward. Cindy Cromer addressed the group and stated this is an exciting and interesting building. She asked how much of this block is going to be used in showcasing this building? What is the best use of this block to enhance this design? She stated there are some other things that should be looked at. Her concern focuses on spatial requirements of the City that need to be addressed. She pointed out that the City is currently paying rent in various buildings around town to house City Departments. Two that she mentioned are Transportation and Engineering. She pointed out that these two entities 24 are in different buildings with miserable parking, and it deters people who are trying to participate in City government from obtaining information. It also deters the City employees from communicating with each other, and she has abundant examples of employees failing to communicate with each other. She stated that within one week this summer, there were no less than five instances during which she told City employees and City representatives things that she thought they already knew. _ These people learned them from her. She feels the City is looking itself into leases to pay rent in other buildings indefinitely, and this is being done regardless of what the market conditions are. She continued by stating that in addition to the issues of rent and poor communications, there is the maintenance issue. Since there isn't money to maintain neighborhood parks, where is the money coming from to maintain this new park? Is this money coming the from the bond money which has been approved? Did she commit to maintain this park in perpetuity? She asked the Commission to think about these things. The last issue Ms. Cromer addressed is the number of open spaces we currently have downtown. She listed the LDS Church properties, Block 57, Washington Square, the Gateway, Pioneer Square, City Creek and Memory Grove. She said there also may be others, but these are the major ones she noted. It is her feeling that the City should look at how much open space we now have and how we are going to pay to maintain this new area. Can we afford this? She asked that the Commission think about these things. She continued by stating that the City really needs to look at the issue of departments being scattered all over the City. Mr. Smith closed the public hearing and asked for further comments from the Commission. Ms. Funk she has thought about some of the same concerns Ms. Cromer mentioned. She stated there is not question that this complex is a magnificent structure, but cost is a real concern for her. She wonders if this is the appropriate time to do this. Are we better served to spend money at Pioneer Park rather than develop this area? The Mayor has been concerned about too much retail space in the City, and now we are adding more retail. Mr. Jonas asked if the bond is adequate to cover these costs? Mr. Smith asked Ms. Tessman to come forward and address these issues. Ms. Tessman stated the costs related to the east side of the block are not included in the bond and never were anticipated to be included. Originally, it was known that once the demolition occurred, a certain investment would have to be put into completing the area to the east. There is about $1.2 million in the actual proposed budget that was intended towards what was originally a very simple plan of doing this. Want to make sure that there is a very thorough discussion as to whether or not that $1.2 million is better invested in moving the project forward rather than spending it to replace the excavation on the east side of the block. She continued by saying that from the beginning the Library and those responsible for the bond money wanted to make sure there was a thoughtful approach as to what the future development would be on the east side of the block. She said that when Mayor Anderson came into office, he felt the idea of.a green space should be more fully explored as an alternative to the original mixed-use proposal. However, there was never any intention that the bond money would include that part of the project. Se continued by saying they feel very comfortable that the budget they have is going to able to 25 • accomplish not only what was originally planned. Won't know what the actual contract is on the contract until closer to January or February. It is possible that if some of the budget estimates have been conservative, we may actually have some latitude within the bond to invest in what the City Council chooses to do. Hopeful there could be some investment from the bond beyond the $1.2 million, but she wanted to be very careful about that because the first priority is completing what was - originally committed to the public to do. She also pointed out that the RDA, in their last budget discussions, agreed that if the revenues associated with the RDA exceeded the anticipated revenues this year, the City Council, acting as the RDA, agreed they would devote at least $2 million of that additional revenue to support this project. Mr. Crane explained that the shops proposed for this development wouldn't really be competing with other downtown retail. They are just small shops such a deli, a copy center. This is actually an opportunity for mom and pop shops to come back. Ms. Tessman added that this space is also being looked at for community purposes. Actually, when these spaces are developed the Library will be asking for proposals from groups like literacy organizations. She reported she has been working with the Center for Peace and Justice. They have thought that some of the space in the wall might be comfortable for Community Councils. The Councils have asked at the Library to provide them with space in the current facility. So the space is not being looked at solely as shops but as what can be done to enhance the idea of community and community services here. Ms. Tessman pointed out that the building on the west side, as a function of the library project, has office space comprising about 8,000 sf of space that will be available for lease. This space was intended for future growth of the library, but it has already been mentioned to Salt Lake City Corporation that there might be office spaces in that facility that could create some of the proximities and relationships that would prove helpful. Ms. Short added she felt the amphitheater might lend itself to some donor who would like to put their name on it depending upon what kind of dollars we are talking about. Ms. Tessman answered that right now for what we are seeing, in very conceptual form, has been costed out at somewhere in the vicinity of$5 million. She stated that $1.2 is potentially there because of the bond budget, if the City Council, acting as the RDA, is realistic about potential revenues, there is potentially another $2 million. It is her feeling the as a construction project, the money is not too far away, but maintenance is a very important factor. This is not property the library would feel a responsibility to maintain. Mr. Goldsmith reported there have been conversations with the Mayor and Ms. Tessman regarding this being a joint venture opportunity with such groups as Red Butte Arboretum. This could become an ancillary facility for them. In addition there are other opportunities that can be explored. Ms. McDonald stated this a very attractive block and has the potential for a dynamic number of people to utilize this facility. However, how does this new center relate to Pioneer Park, Gateway, Gallivan Plaza and all of those areas fit into the overall vision of the City. What is the policy? Mr. Goldsmith replied that that is a very important question, and the Planning Department is going before the City Council on September 12, 2000, to ask that same question. He stated he has been asked about the Pioneer Park problem. The RDA Board has approved the acceptance of proposals for the park, yet the City Council has not approved the development. So the question remains, can we develop something on Pioneer Park and what are the design parameters, how much of the park 26 • can be used? Do you get rid of the entire green space? Where is public domain going to be? These are questions that have to be answered by the City Council. Mr. Jonas moved that in the matter of the Metropolitan Hall of Justice block, aka Library Square, than the Planning Commission recommend to the City Council, based on the findings of fact, a positive recommendation on the Plan that has been presented. Ms. Short seconded the motion. Mr. Daniels, Ms. Funk, Mr. Jonas, Ms. McDonald and Ms. Short voted "Aye." Mr. Smith, as Chair, did not vote. The motion passed. 27 Library Square Salt Lake City, Utah DRAFT FOR REVIEW Acknowledgements Mayor's Office Ross C.Anderson, Mayor Jay Magure, Chief of Staff D.J. Baxter, Senior Advisor City Council Carlton Christensen, District One Van Blair Turner, District Two K. Eric Jergensen, District Three Nancy Saxton, District Four Jill Remington Love, District Five David L. Buhler, District Six Dale Lambert, District Seven Russell Weeks, Policy Analyst Library Staff Nancy Tessman, Director Anne Menzies, Capital Improvements Manager Chip Ward,Assistant Director Deeda Seed,Administrative Assistant Planning Department Stephen Goldsmith, Director Parks Department Rick Graham, Director Val Pope, Division Manager Arts and Cultural Groups Joe Andrade, Director, Utah Science Center Leslie G. Kelen, Director, Center for Documentary Arts Kent Miles, Director of Photography, Center for Documentary Arts Elaine S. Harding, Director, Global Artways Sheila Yorkin, Gallivan Center Julie Brown, Gallivan Center Lisa Sewell, Utah Arts Festival Robyn Nelson, Utah Arts Festival Nancy Boskoff, Salt Lake City Arts Council Consultants Mark Johnson, Civitas Inc. Jamie Maslyn, Civitas Inc. Moshe Safdie, Moshe Safdie and Associates Isaac Franco, Moshe Safdie and Associates Steve Crane, VCBO Architects Nathan Leavitt, VCBO Architects Library Square Salt Lake City, Utah DRAFT FOR REVIEW Contents Summary Significance of the Open Space Public Benefits The Context City-Wide Issues Downtown Issues Neighborhood Issues Goals Open Space Activities Next Steps Process Budget Neighborhood Planning Effort Appendix I: Public Process Library Square Salt Lake City, Utah DRAFT FOR REVIEW Summary Significance of Library Square Open Space Block 37 has evolved significantly since its condition two years ago. Previously the location for the county jail, Hall of Justice and courthouses, as well as the Central Library, Block 37's configuration and uses depressed the neighborhood and offered little public benefit(aside from it's functional use), to the greater city. Since its conception by architect Moshe Safdie, the new Central Library spurred an optimistic new vision. Block 37, referred to now as Library Square, will be more than a traditional library. Its design will serve as a vibrant year-round civic gathering place-with an active public plaza, strong relationship to the historic City and County building, architectural gestures to the mountains, and grand interior gathering spaces with supporting shops and cafes to serve library and block patrons. Now well under construction, the implementation of that vision is near. Recently, plans for the reuse of the existing library have been finalized.Three diverse and successful cultural and educational groups and several smaller community groups will be housed here, in a renovated facility, becoming the new "Center for Science, Art and Culture": • Utah Science Center, which will create a hub of intellectual activity directed toward innovative communication and the direct experience of science and technology. • Global Artways, which provides high quality arts experiences to the youth and families of Salt Lake City in music, dance, literature, visual art, theatre, and film. • Center for Documentary Arts,which will tell the story of Utah and the region through photography, writing, music,dance, oral history and filmmaking. • Community Groups, such as La Alianza Latina Para el Progreso, Ariyang Korean Dance School,Artistic Resources for Teachers and Students, Centro de Familia de Utah. Community Cable TV, Coordination of Chinese American Groups, Delta Sigma Theta Sorority, Eastern Arts Coalition, FACES of the Pacific, International Children's Choir, Salt Lake Ethnic Arts Council, Salt Lake Symphony, Utah Flute Association, and the Utah Hispanic American Festival. The East Side of Library Block has been the unresolved piece of the plan. Before planning began for the new library, a Master Plan Draft called for municipal offices and housing.That plan was never adopted however, and later the idea of leaving it as open space came forward. Library Square emerged as a place to become the central public realm, or public gathering and cultural space for the entire city of Salt Lake.With this vision, the entire concept of the role and programming for the block began to evolve.A mixture of active plaza, passive open space, outdoor performance space, theater Library Square Salt Lake City, Utah DRAFT FOR REVIEW and cultural facilities began to take shape as a place to engage the public in the same diversity and richness of Salt Lake City. With this vision, the idea of building additional public facilities on the block came into question—what is best, more space for office and living, or more space for people and culture?Many saw this idea as the solution to a missing piece of Salt Lake's civic realm and an outstanding message to the citizenry. Library Square and Washington Square together could become the symbolic centerpiece of the city—a Common Ground. Library Square could also demonstrate the city's commitment to refocus its neighborhood revitalization efforts to the central city and the long-forgotten needs of the adjacent community. Public Benefits Common Ground The combination of the public institutions of the City and County building, new Central Library and the new Center for Science, Art and Culture offers an unprecedented opportunity for Salt Lake City, to provide a focus that connects people to the spirit of the city. The 2002 Olympics have demonstrated that Salt Lake is indeed a world-class city, and while temporary structures provided much of the focus for ceremony and gathering during that time, Salt Lake needs a permanent, generously sized place for year-round large and small gatherings. Unlike a neighborhood park, Library Square's cultural, educational and open space uses will appeal to a broad range of residents, valley-wide. Neighborhood Context The redevelopment of this area of the central city is of the utmost benefit for Salt Lake City. The central neighborhoods on the east side of downtown Salt Lake are dramatically under-built. Vast areas of open land and surface parking characterize the area, with an ever-diminishing supply of decent, affordable housing. Current zoning and land values encourage the razing of homes for low- rise offices,which further diminish land values while consuming large areas to meet parking demand. Yet the new light rail provides high quality transit access throughout the area. Meanwhile, the effects of sprawl on the valley are obvious- diminished air quality, increased strain on transportation systems, diluted quality of life downtown by'thinning'the energy of the city, and consumption of open land, much of which is agricultural or habitat for native animals. Clearly, the current effort for the Central Community Plan is a critical step toward revising policies to reverse these trends. Benefit to the Neighborhood The public investment in Library Square through the creation of a civic center is a strong message to private developers and property owners: Salt Lake City is committed to a positive future in the city center. Combined with completion of the Central Community Plan and subsequent policy and zoning changes that create incentives for infill, mixed-use redevelopment, there is a strong likelihood that a forty-year trend of decline will be reversed. The positive redevelopment impact of a well-designed, active, diverse public space will be significant. To create these benefits requires one more element however.The entirety of Library Square must be public—shared common ground, available to the full diversity of people that make up a uniquely diverse culture of multiple ethnic and Library Square Salt Lake City. Utah DRAFT FOR REVIEW social communities. No part of Library Square can become"turf"for any one, or any group. If this were to happen, the essence of the space as Salt Lake's embodiment of democratic ideals will be lost. Library Square Salt Lake City, Utah DRAFT FOR REVIEW The Context • Library Square's potential contribution exists on many levels-citywide, downtown, and neighborhood. These levels are not isolated from each other, however. It is important to analyze fundamental issues at each scale to assure that the needs at a particular scale are not compromised.A recent example of this concept is light rail,which could spur more transit-oriented development at a neighborhood level. At a citywide level, light rail has made it easier for people in outlying areas to shop, eat and work downtown. It may cause more businesses to relocate to downtown, affecting the way people commute and air quality. Citywide Issues The Common Ground The 2002 Olympics is the most significant public event held in Salt Lake City. Along with the sporting venues,temporary areas for ceremony and public gathering were constructed for the surge of visitors. Once the visitors left, however, the need for the civic space remains. Gallivan Center and the State Fair grounds,the primary places for state and city arts and cultural festivals and music events, are overused, inadequately sized, or have poor relationship to downtown.The adjacency of Library Square to Washington Square creates an opportunity to link the two spaces to support major festivals where daily visitation reaches 40,000. More importantly, though, is the lack of a primary civic and cultural `center'to the diverse citizenry of Salt Lake Valley. Library Square introduces a new concept of common ground to Salt Lake City.This concept is rooted in principles from ancient Greece,where the physical adjacencies of politics, education, science, and arts demonstrated the value of knowledge, democracy and culture in society. The combination of having the center of politics and the center of knowledge makes a unique place for public discourse and exchange.The common ground becomes a symbol of the spirit of the city, reflected in a full range of events:art exhibits, demonstrations, performances,gatherings, and quiet retreat. This idea has been translated into current culture in most major cities. For example, at Denver's Civic Center, the City and County Building, State Capitol, Central Library, and Art Museum's 'front yard"is a 7 acre open space.The uses in this open space are diverse in type and scale:the interfaith memorial service for Columbine High School was here, as was the Broncos Superbowl Championship,which drew about 600,000 people. It's an eclectic mix:arts, book fairs,winter festivals, veteran's parades, and political. It's the heart of Colorado, and the heart the city. Library Square is poised to be this place in Utah: a true civic center. It brings together the core elements of community culture—politics and governance, education and knowledge, science and the arts. Opportunities for this conjuncture are few; the unique assemblage of uses with open space should be noted. • The Historic City and County Building and Washington Square- evokes a sense of permanence and stability.The recent restoration Library Square Salt Lake City, Utah DRAFT FOR REVIEW of this building is commendable and should be maximized for public viewing.Washington Square's adjacency can be combined with Library Square for the city' largest civic and cultural events. • The new Central Library-its world-class architecture and commitment to becoming a place maker redefines what a library means to the community. • The existing Central Library-home to Global Artways, the Utah Science Center, and the Center for Documentary Arts-with its rotating shows, films, and events give people additional incentives to revisit Library Square on a regular basis, and expands its uses into evening hours. • 4-acre open space-a much-needed place of quiet retreat in the city. It will be flexible enough for four-season use in outdoor education, poetry readings, music events, cultural gatherings, and larger regional festivals. • Mix of uses-the dynamics of the above create a virtually limitless potential for daytime and nighttime activities, providing a sense of security and sociability. • Commitment by the Library Staff, New Tenants, and City to regulate scheduled events.These groups know that effective management can circumvent overuse and ensure their periodic needs for a quiet open space. • Lack of private buildings on site-the privatization of open space can lead to regulation of activity types and restrictions on expression. Moreover it can change the perception of public realm. Block 57 in downtown Salt Lake is a good example of this. Gallivan Center's role shifted when the Marriott Hotel opened:from a downtown gathering spot to the private yard for the Hotel. Gateway,the newest addition to downtown, is also privately owned and regulated. • Quality of places and spaces.The best examples of civic open spaces are designed for adaptation, resiliency, multiple scales, and quality for generations of use.The new library's plaza, under construction now,was based on this concept.The East Side should develop in the same spirit. • Library Square Salt Lake City, Utah DRAFT FOR REVIEW The Context Downtown Issues Open Space Wherever cities create or protect green space, people gather and savor the retreat from the inherent stress of city life.With the intense growth of metropolitan Salt Lake City, the idea of Library Square as an oasis in the city' has successful precedence. It is similar to the visionary foresight that New York, Boston, or Portland's city officials committed to when they set aside open lands in the heart of their cities for the public benefit. In Salt Lake,where wider-than- typical streets create a vastness of hard surfaces, vegetation allows a cool release from the built environment. The success of downtown open spaces depend on a few conditions: • An active and purposeful destination. As stated before, the uses on the block are dynamic public amenities and will provide additional reasons to return. But the block's perimeter retail, cafes, and services further broaden the visibility and use and provide a unique market niche for redevelopment. • Unique uses within the neighborhood open space types. Washington Square Park, Liberty Park, and Richmond Park are in the vicinity of the new Library, but have a neighborhood character to them, and are not a great benefit to downtown users. Development of the open space at Library Square will consider the activities provided by these parks and the needs by citywide, neighborhood, and new library/cultural center users. • Design details and gestures that combine a"green retreat"with urban sensibilities. The Open Space should maximize four-season use through its orientation and plantings. Materials should be durable and high quality. Details should rely on grand gestures rather than fussy, high maintenance solutions. • Accessibility to maximize the population base to which it serves. The cities above also demonstrate a transit system that connects with their open space system. Library Square is already integrated into the network of public transit, allowing for frequent, spontaneous trips by many users-teens, retirees, and downtown professionals- not just those who access Library Square by car. Minutes from Gateway or the University on the new light rail line, it's also within walking distance from Downtown. A Downtown Renaissance Downtowns are experiencing a renaissance nationwide. Aging baby boomer population are selling their larger homes and moving downtown for an active, lower maintenance lifestyle. Many younger adults are staying single longer and, combined with higher income levels, have the choice to buy a loft or condo instead of renting. People like the idea of working and living close to entertainment, restaurants, cultural amenities and other people, which suburban lifestyles often do not provide. Mass transit systems serve the daily commuter — Library Square Salt Lake City, Utah DRAFT FOR REVIEW needs, lessening the reliance on automobiles and reducing the impact of parking lots on the urban pattern. While the need for single-family homes in particular still grows along the Wasatch Front, Salt Lake City is becoming a more diversified community, where different market niches can provide housing types for an expanding market. Nationwide trends see a rebirth of downtown for residential and office use. Unfortunately, Salt Lake City has not. In fact, a recent report stated that in the last 10 years, Salt Lake City was one of 10 metropolitan cities which experienced an increase in office vacancy in its downtown. Similarly, every city in the survey except Salt Lake City gained residents in the central business district. The recent Salt Lake City administration has demonstrated its commitment to spearheading the Downtown Renaissance: • The City has called attention to the tangential but parallel issues of affordability, diversity of housing types, historic preservation and enhancement,and design quality. • Various policies and plans are now in place and are the first steps in attracting the developer looking for a secure investment in an emerging market type. • With the addition of light rail and existing mass transit systems, the convenience and flexibility of downtown living will attract a diverse population base in the central core. Library Square Salt Lake City, Utah DRAFT FOR REVIEW The Context Neighborhood Issues Housing The neighborhood around Library Square was not always so neglected.Ten acres in size, each block was divided into eight 1.25-acre tracts,which gave enough space for a family to have a home, generously sized garden and room for a few livestock. As agriculture moved to the periphery of the city and urbanization evolved, bungalow style homes and larger apartment buildings emerged on these blocks. Mid-block alleys divided up the large blocks into more manageable development parcels. Like many cities across the West in the 50's through 70's, Salt Lake City felt the effects of the mass migration from the Midwest and East. Suburban style developments,with the promises of affordable home ownership and roomy lot sizes, drew the population from the urban core to the fringes.With it came offices, retail and service developments to support the new market base. In order to compete with the suburbs, shifts in policy and planning attempted to draw some of that market support back to downtown. Several smaller parcels were aggregated into larger parcels.Office buildings based on a suburban style were built on these parcels-buildings that were not oriented to the street or neighborhood, had innocuous facades, had large surface parking lots, and used poor quality building materials. Today, one sees the result of this decades-long condition. Some blocks still have mid-block alleys with quaint housing, but oftentimes this is backed up upon large parking lots, which serve the office buildings nearby.This general mismatch of the uses and poor quality of the newer developments contributes to the lack of new investment in housing here: it is not a stable investment. The City has recently made notable efforts to alter this condition.Still, more needs to be done to demonstrate to the development community that this is a great place to develop new, quality housing for a diverse population. Components to reinvestment include: • New uses at Library Square The former uses at Block 37,jails and courts, represented the worst aspects of our society. Undoubtedly, this contributed to the years of neglect and poor land values of this neighborhood. But the conditions have been drastically changed.With its sweeping Crescent Wall, Urban Room and public plaza,the new Central Library will represent growth and optimism. It will be a dynamic"place to be"along with providing traditional library uses.The existing public library will the house three cultural/science institutions: Global Artways, Utah Science Center and Center for Documentary Arts.These groups will reflect the inherent yearning for people to connect with other people, new and old cultures and the mysteries of our world.The resulting synergy of these uses on this block is unprecedented in Salt Lake City, and will have a positive impact on image of the adjacent neighborhood. • Open Space as a catalyst for redevelopment Library Square Salt Lake City, Utah DRAFT FOR REVIEW As people have become disappointed with the myth of suburbia and businesses rely less on industrial centers, quality of life is the paradigm for economic growth. Open space, public transportation,friendly neighborhoods, and a variety of restaurants and retail shops all contribute to a rich quality of life. Open space is perhaps the most important component to the quality of life. It has been proven in many cities that public investment in open space stimulates private reinvestment into an adjacent neighborhood. One example is Denver, in an area near downtown where warehouses and railyards once dominated.The newly opened Commons Park now has over 2000 residential units under construction or recently completed. Examples such as this can be sited all over the country, and research confirms it. For instance, in a recent study of six urban open spaces, researchers found: • Development of an urban open space induces new development and/or improvement of existing properties. • Lease/rental rates for units immediately facing an urban open space command higher rates. Urban open space, when combined with public policy reinforcing affordability, provides incentive for developers to provide housing of many types. • Introduction of an open space into an urban setting stimulates overall leasing activity. • Development of an urban open space can also increase general citizen awareness and use of a previously neglected area. • Planning Strategies for the Neighborhood The neighborhood surrounding the library needs more than open space to improve its character and create housing opportunities. Achieving real change requires a multi-faceted Neighborhood Plan that creates a vision to the neighborhood and development community. Unlike planning efforts undertaken in the past,this plan would look at a much smaller area surrounding the library-perhaps roughly 200 East to 700 East&200 South and 600 South. Like most planning efforts, creating the vision and the Neighborhood Plan is a lengthy and detailed process. In it, the neighborhood district would be defined and a zoning overlay placed.Within the overlay, policies,tools, and incentives would guide future neighborhood redevelopment. Potential stipulations of the neighborhood plan may be: 1. Halting the demolition of historic buildings to office buildings 2. Placing a premium on preservation of housing through incentive program (such as parking reductions) 3. Providing incentives for buildings that have housing with commercial/retail uses 4. Providing public investment into the neighborhood (such as Library Square open space and housing funds) 5. Setting up a design review board • Library Square Salt Lake City, Utah DRAFT FOR REVIEW 6. Creating an Urban Design Plan for the neighborhood. In it, the Urban Design Plan would: a. Provide Detailed, Neighborhood-Scaled Analysis: • Define the boundary of the neighborhood • Do a thoughtful analysis about how the neighborhood has developed into its current condition. • Summarize the character and condition of streets, sub areas, and land uses-both good and bad. b. Define Standards of Quality-use the best neighborhood standards as guidelines for reinvestment • Provide illustrations and guidelines for streetscapes, including the interrelationships of new developments with old development • Use illustrations to suggest materials, proportions, and scale of new development and reuse c. Suggest Opportunities • Provide plan views of typical conditions with suggested redevelopment patterns and opportunities • Suggest what type of development should occur to maintain the best condition of sub areas and development potential of other areas. • Library Square Salt Lake City, Utah DRAFT FOR REVIEW Goals Library Square is a rare place where the best of civic life is showcased and a commitment to the neighborhood and downtown is demonstrated. The new Library and tenants are significant, prominent additions to the civic realm. Its adjacency to the City and County Building and Washington Square reinforces its meaning to the citizens. Moreover, public uses on the block assure that no one group makes it their turf. Library Square's form celebrates the richness of cities. Currently dispersed civic events can be visible at one core space. Its size and configuration make is highly adaptable, whereby small spaces can be combined with others so its use can be changed almost on a daily basis.When combined with Washington Square, it can support the city's largest civic and cultural gatherings. It's designed to be comfortable, handsome and refined so that it's a nice place to be when alone, but durably crafted to support thousands The Goals During the public participation portion of this process,the consultants interviewed many neighbors, business owners, key constituents and decision-makers about their vision for the East Side of Library Square. The following goals, summarized from those discussions, are the statements of intent and 'rules of the road'that guided the site design of the open space, and will be adhered to as it becomes a reality. Library Square should be configured to support stabilization and revitalization opportunities in the neighborhood. The shape and form of Library Square should be designed to support the livability of the neighborhood surrounding it.The edges of the open space should integrate into the neighborhood pattern and character. Library Square should support the goals of the Central Community Master Plan. The 2001 Draft Master Plan was developed with an extensive agency, neighborhood, and business community involvement.The intentions of the plan will serve as a guiding force for the development of this open space. Library Square should serve local neighborhood,downtown,and citywide users. The open space should serve as the primary local neighborhood amenity.The open space should also serve as an important daily-use open space for downtown Salt Lake City.At a valley-wide level,this space should emphasize the symbolic civic realm-supporting major civic and cultural events. Library Square should be configured to support revitalization opportunities in the neighborhood. The shape and form of Library Square should be designed to support the livability of the neighborhood surrounding it.The edges of the open space should integrate into the neighborhood pattern and character. Library Square Salt Lake City, Utah DRAFT FOR REVIEW Library Square should be a multiple use facility that meets the multi- purpose and multi-cultural aspects of the city. The program for the open space should balance the needs of neighborhood, downtown, and regional users. Program should support use by a diversity of users and activities for year-round use. Library Square should complement the new Central Library and new cultural group tenants at existing library. The ability of the tenants to program educational and cultural activities at Library Square is an unprecedented opportunity that should be maximized.This will assure a lively, active open space and invite the public to return to Library Square frequently. Library Square should support access by all modes of transit. The configuration of Library Square should be pedestrian friendly and supportive of the multi-modal transportation system in place. Futur Library Square detail design should emerge from an inclusive public process. The city should maintain a public process to refine the final program and design of the park. Library Square should provide a sense of security. Mid-block and corner routes into the open space will make Library Square highly accessible for free movement throughout the space. Lighting should be designed to promote sense of security at many levels, for both comfort and visibility. • Library Square Salt Lake City, Utah DRAFT FOR REVIEW Library Square Activities During the interviews of neighbors, tenants, and constituents, a more specific vision about Library Square began to develop. By basis of comparison to other venues and open spaces in Salt Lake City, people discussed what did and didn't work at those places, and what Library Square could be. Some topics were particularly important to note: • Programmed Activities.The new library and"Center for Science, Art, and Culture"tenants are excellent resources for providing, coordinating, managing and scheduling programmed events in conjunction with the city and arts organizations. This management coordination is critical to assure that the open space is not over programmed, so that the open space can still be a place of quiet retreat. Non-programmed Activities. The open space is to be used by the citizenry,and should be open-ended enough so that people are free to create and stage their own activities:a political rally, morning tai-chi classes, or family picnics. This requires a space that is adaptable in materials and form Day-by-day Activities. Library Square also serves as the neighborhood open space. Here neighbors can walk the dog and kids can meet and play. Amenities. Furnishings such as tables and chairs, trash receptacles, water fountains, etc, must be well designed, well considered and durable.Access to public restrooms in one or more public buildings should be apart of the plan,with portable restrooms provided for larger events. • Who uses this open space? Senior citizens, women with children, and teens are most likely to be the repeat, daily or weekly users of this space. Special consideration was addressed to their needs so for better integration in the design and programming of Library Square. Activity List The list of activities, categorized by particular place, in the Concept Plan Illustration describes the general character of activities that emerged from the interviews. It is not an exhaustive list of all activities that can be provided for here, but represents a breadth of scale and scope which people wanted to see occur. Library Square Salt Lake City, Utah DRAFT FOR REVIEW Next Steps Process With the construction of the new central library well underway, the process for further development of the east side of Library Square should proceed into the next level of detailed design. This will allow more specific resolution of program and design details as well as detailed budget development. The timing is important because$1.2 million in Library Bond funds could potentially be realized for the open space on the East Side. The design process should continue with interagency and public collaboration and is anticipated to include: • Development of design details and refinements • Detailed resolution of event programs in collaboration with all potential user groups • Refinement of materials • Presentation to neighborhood and public groups as refinements take place • Budget development and refinement • City Council and agency staff reviews • Final phasing, budgeting and schedule definition • Construction documents Budg t Costs Project Construction and Fees Estimate $5.0 - 5.5 million Funds Library Bond Funding $1.2 million Funding need $ 3.8-4.2 million Neighborhood Planning Effort Developing Library Square as a true civic and cultural center is a very important step in the stabilization and revitalization of Salt Lake's central neighborhoods. The combination of public investment in the Library, public and private investment in the proposed mix of cultural facilities and the development of active public space can be the catalyst needed. More work is needed in the neighborhood to capitalize on the city investment, however.The Central Area Community Plan is an important beginning. Transit- oriented zoning has been proposed along the 400 South corridor, however an intermediate planning step may be a benefit to make such zone changes appropriate and effective. This effort may include an area roughly from State Street to 700 East, and from 200 South to 600 South or slightly larger. Library Square Salt Lake City, Utah DRAFT FOR REVIEW This is a neighborhood that has suffered from significant policy and economic impacts over many years. The existing zoning and land values have tended to cause a dramatic replacement of once affordable homes and apartments into office, institutional and retail uses. Instead of a dense, mixed-use corridor that could benefit from light rail, the 400 South corridor has become strip retail oriented to the car. As a result the quality of the neighborhood has diminished steadily and in many locations residential is almost extinguished. Neighbors are forced out due to property sale, land value, or simple unwillingness to tolerate the situation. Steps should be taken to turn the neighborhood around.The neighborhood meetings held during this planning process have shown a group of residents that truly and deeply care about the future, but who are also frustrated with the lack of policy focus and change to support their needs. Even though this administration has begun an active focus on stabilization and revitalization, it will take time and effort to turn the tide firmly toward the positive. This effort will require leadership from within the administration and from within the community. Turning a neighborhood around requires a number of elements. Policies and zoning need to shift to make appropriate, mixed use or residential development profitable for small infill projects that do not over-scale existing buildings. Developers need to become aware of the opportunities. Property owners that have held land for development need certainty regarding land use and value. Neighbors need certainty that these shifts will be a benefit and not a scheme for gentrification. These shifts can only result from a concerted and consistent effort to create a shared vision of stabilization and revitalization.To accomplish this requires an ongoing planning effort focused on creating a Small Area plan.The Small Area Plan should be developed in a process that involves neighbors and city staff in jointly identifying the threats and opportunities that are present, the hopes and fears of the residents and property owners, and the policy objectives of the administration and council. Working in an iterative planning process, the Small Area Plan might include the following: • Land use objectives and plan • Transportation objectives and plan • Schools and community facilities • Public realm, pedestrian areas and open space • Urban design character, street by street • Transit-oriented development objectives • Infill development objectives • Neighborhood and historic preservation objectives • Policy recommendations • Zoning recommendations • Potential development design guidelines The Small Area Plan is an important tool that will build community support for appropriate policy and zoning change. In other communities this type of effort has proven to be the foundation of real neighborhood change.The process of building a neighborhood plan is cumbersome, but through it the real balance of community opinion is learned, while the leadership and momentum emerges. Library Square Salt Lake City, Utah _ DRAFT FOR REVIEW Together, these factors create the conditions needed for success in changing policies and in attracting the right new investments that will bring the plan into reality. Library Square Salt Lake City, Utah DRAFT FOR REVIEW Appendix I: Public Process New Building Outreach April 27, 2000 Public Meeting: Architects discussing building and east side of block plan May 3, 2000 Central City Community Council Greater Avenues Community Council August 19, 2000 Farmer's Market August 24, 2000 Fair Park Community Council August 25, 2000 Hispanic Festival August 26, 2000 Chapman Street Fair September 6, 2000 Sugar House Community Council September 9, 2000 9th and 9th Street Fair September 13, 2000 Liberty Wells Community Council September 16, 2000 Avenues Street Fair September 20, 2000 Rio Grande Community Council Indian Hills Community Council September 23, 2000 Great Salt Lake Book Fair September 26, 2000 Yalecrest Community Council September 27, 2000 Poplar Grove Community Council October 11, 2000 Jordan Meadows Community Council East Central Community Council October 18, 2000 Capitol Hill Community Council November 1, 2000 Rose Park Community Council December 3, 2000 Hanukkah Festival at JCC December 6, 2000 People's Freeway Community Council March 7, 2001 Public Presentation: Landscape City Council Presentation: Landscape City Staff Presentation: Landscape June 12, 2001 Jordan Meadows Community Council June 16, 2001 Asian Pacific Festival June 28, 2001 Fair Park Community Council July 7, 2001 Slavic Festival August 11, 2001 Chapman Street Fair August 24, 2001 Celtic Festival Sept. 8, 2001 9th and 9th Street Fair Oct. 25, 2001 Downtown Alliance Breakfast Nov. 18, 2001 Hanukkah Bazaar Nov. 19, 2001 P.E.O. Meeting Library Square Salt Lake City, Utah DRAFT FOR REVIEW New Building/East Side of Block 37 Public Meetings August 5, 1999 Public Invited to Meet with Architects for New Main Library Project February 12, 2000 Salt Lake City Unveils Moshe Safdie's Design for New Main Public Library April 27, 2000 Public Invited to Meet with Library and Landscape Architects May 31, 2000 Public Open House Planned to Discuss Development Options for East Side of New Library Block March 7, 2001 Landscape Proposal for New Main Library Public Plaza and Roof Garden Focus of Open House December 17, 2001 Public Meeting Planned to Discuss Development Options for East Side of New Library Block January 15, 2002 Public Meeting Planned to Discuss Development Options for East Side of New Library Block