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Council Provided Information - 2/21/2023CITY COUNCIL OF SALT LAKE CITY 451 SOUTH STATE STREET, ROOM 304 P.O. BOX 145476, SALT LAKE CITY, UTAH 84114-5476 SLCCOUNCIL.COM TEL 801-535-7600 FAX 801-535-7651 COUNCIL STAFF REPORT CITY COUNCIL of SALT LAKE CITY TO:City Council Members FROM:Brian Fullmer Policy Analyst DATE:February 21, 2023 RE: Rocky Mountain Power Zoning Map Amendment 1219, 1223, 1275, and 1407 West North Temple PLNPCM2022-00450 PUBLIC HEARING UPDATE Three people spoke at the public hearing, all expressing support for the proposed rezone. A suggestion for a master plan was made to provide a broader vision for the area. A commenter stated a grocery store is needed in the neighborhood. The Council closed the public hearing and deferred action to a future meeting. The following information was provided for the February 7, 2023 Council briefing. It is included again for background purposes. BRIEFING UPDATE At the January 17, 2023 briefing, Council Members discussed how the proposed buildings will interface with the Jordan River, which is seen as a significant amenity. The petitioner plans to enhance the riverfront with placement of the headquarters building and include ground floor activation. They envision this as a area for Rocky Mountain Power employees and the broader community to enjoy. Questions were raised about the parking garage and surrounding residential units. Plans are for the parking garage and residential units wrapping the garage to be constructed during the first phase, though interior finishes may not be completed until a future phase. Item Schedule: Briefing: January 17, 2023 Set Date: January 17, 2023 Public Hearing: February 7, 2023 Potential Action: February 21, 2023 Page | 2 Community engagement for the project was discussed. The petitioner noted a community meeting held in December 2022, and January stakeholder meetings. This engagement plan is anticipated to continue through future phases of the project. Council Members expressed support for keeping the steam stacks on the property. The petitioner said plans are to keep the stacks. The following information was provided for the January 17, 2023 Council briefing. It is included again for background purposes. The Council will be briefed about a proposal to amend the zoning map for the parcel at 1223 West North Temple and portions of parcels at 1219, 1275, and 1407 West North Temple from their current M-1 (Light Manufacturing) and TSA-SP-C (Transit Station Area Special Purpose Area Core) zoning districts to TSA- UC-C (Transit Station Area Urban Center Core) zoning district. Rocky Mountain Power owns the parcels which total approximately 5.5 acres of the company’s roughly 100-acre site bordered by North Temple, South Temple, Redwood Road, and the Jordan River as shown in the image below. The request’s stated purpose is to accommodate construction of a new headquarters office building, and potentially additional development on remaining land. The redevelopment of the full site will require additional rezoning actions by the Council in future years. According to the petitioner, the TSA-UC-C zone was specifically requested to allow an additional 15 feet in height (90 feet total) than is available with the TSA-SP-C zone’s 75-foot height limit. This would allow the new building to be constructed on a smaller footprint, leaving more land available for future development. The proposed rezone being considered is the first step to facilitate Rocky Mountain Power’s redevelopment of the larger site into the “Power District Campus” mixed-use development. Rocky Mountain Power is working on a master development plan for its larger site but stated there is an immediate need to replace its current headquarters office which is near the end of its useful life. The petitioner stated their request for TSA-UC-C zoning on the subject parcels is not indicative of its intentions for the entire 100-acre site. Appropriate zoning for future phases of development would be evaluated on a case-by-case basis. This proposal was reviewed by the Planning Commission at its September 28, 2022 meeting and a public hearing was held, at which two people spoke. Comments were generally supportive of the proposal. The Commission closed the hearing and voted unanimously to forward a positive recommendation to the City Council. Page | 3 Area zoning map with the subject parcels outlined in yellow Image courtesy Salt Lake City Planning Division Goal of the briefing: Review the proposed zoning and future land use map amendments, determine if the Council supports moving forward with the proposal. POLICY QUESTIONS 1. Some of the subject parcels would be “split zoned” (multiple zoning designations on a parcel) if the proposed zoning map amendment is adopted. The Council may wish to ask the petitioner if the master development plan contemplates eliminating split zoning of parcels. 2. The Council may wish to ask the petitioner about their public engagement relating to plans for redevelopment of the larger 100-acre site, what areas were included in the engagement plan, and plans for feedback. ADDITIONAL INFORMATION The Council is only being asked to consider rezoning the property. No formal site plan has been submitted to the City nor is it within the scope of the Council’s authority to review the plans. Because zoning of a property can outlast the life of a building, any rezoning application should be considered on the merits of changing the zoning of that property, not simply based on a potential project. KEY CONSIDERATIONS Planning staff identified five key considerations related to the proposal which are found on pages 3-8 of the Planning Commission staff report and summarized below. For the complete analysis, please see the staff report. Consideration 1-Compliance with City Goals, Policies and Plans The North Temple Boulevard Plan (2010) is the most recently adopted plan for this area. Rocky Mountain Power’s property is discussed in the Fairpark Station Area Plan and Cornell Station Area Plan sections of the North Temple Plan. When the Plan was created redevelopment of the Rocky Mountain property was Page | 4 not anticipated, and development pressures were much different than today. As a result, the Plan did not discuss potential changes to the property’s use. Planning staff found proposed changes on the subject properties are not in conflict with general principles found in the North Temple Boulevard Plan. As noted above, the proposed zoning map amendments are limited to a small area of the overall Rocky Mountain Power property at this location. A master development plan for the larger property is being developed by Rocky Mountain Power in conjunction with the Planning Department and RDA to guide future development. Opportunities for additional public input and City Council review will be included when processing the larger plan. Based on recent information, staff anticipates this larger plan and rezone request could come to the Council by the fall of this year. Planning staff also found the proposal is supported by general guiding principles found in the City’s general planning document, Plan Salt Lake (2015). It would provide employment opportunities at a location served by light rail. In addition, based on recent conversations with Rocky Mountain Power, it appears the master development plan for the larger Rocky Mountain Power campus would help create a walkable neighborhood with commercial services and housing options. Staff will confirm this once a final application for the larger development is officially submitted to the City. Consideration 2-Neighborhood Compatibility & Anticipated Impacts Planning staff found the proposed zoning map amendment would not have any negative impacts on the area. They also found potential benefits the zoning change could bring which include: •A new office building will result in better activation of the Jordan River Corridor where it abuts the subject parcels. •Development along the Jordan River will provide more “eyes on the trail” potentially increasing safety in this area. •Facilitate a transition away from industrial uses in the area. •Location of employment near mass transit, and eventually add density to the area. Consideration 3-Riparian Corridor Considerations The site’s eastern side is within the riparian corridor overlay, which applies to either current or proposed zoning districts. It does not prohibit development but provides a process that ensures development is compatible with the riparian corridor. The overlay purpose statement is included in chapter 21A.34.130 of Salt Lake City Code, which states in part: “The purpose of the RCO riparian corridor overlay district is to minimize erosion and stabilize stream banks, improve water quality, preserve fish and wildlife habitat, moderate stream temperatures, reduce potential for flood damage, as well as preserve the natural aesthetic value of streams and wetland areas of the city.” Consideration 4-Consideration of Alternate Zoning Districts Planning staff reviewed the requested zoning map amendments within the context of Rocky Mountain Power’s stated objective of redeveloping the larger site into its “Power District Campus.” Current M-1 and TSA-SP-C zoning would allow development of a new office building but would not allow the desired height. TSA-UC-C zoning would allow a taller building to be constructed on a smaller footprint, resulting in more land area available for adjacent development. Planning found the differences between current TSA-SP-C and the proposed TSA-UC-C zoning to be negligible in context of the site. Forms of TSA zoning is in place on this section of North Temple, which Page | 5 Planning believes to be appropriate as the Fairpark and Cornell TRAX stations are nearby. Planning staff did not recommend alternate zoning districts for the subject properties. Consideration 5-Public Input and Concerns The subject parcels are located within the Poplar Grove Community Council’s boundaries and within 600 feet of Jordan Meadows and Fairpark Community Councils’ boundaries. Planning sent notice of the proposed rezone to chairs of these three community councils. Notice of the proposal was also sent to property owners and residents within 300 feet of the properties informing them of the proposed rezone. Planning did not receive any comments from neighboring property owners. The Fairpark Community Council Chair sent a letter (found in Attachment F, page 23, of the Planning Commission staff report) expressing general support for the proposal, but shared concerns about the lack of required parking. They acknowledged an opportunity to provide input as designs are presented. The community council voted in support of the proposed rezone. ZONING COMPARISON M-1 and TSA-SP-C vs. Proposed TSA-UC-C The following table is found on pages 18-19 of the Planning Commission staff report. It is included here for convenience. Parameter M-1 Zone (Existing) TSA-SP-C (Existing) TSA-UC-C (Proposed) Allowed Uses General industrial and heavy commercial uses. Food production (commercial scale), offices, impound lots, utilities include sewage treatment plants and electrical generations, warehouse uses, freight terminal, trucking uses and repair. Dwelling uses prohibited. Uses allowed in the TSA-SP-C zone that are not allowed in the TSA-UC-C zone include a community correctional facility, convention center, exhibition hall, outdoor flea market, industrial assembly, light manufacturing and a solar array. Uses in TSA-SP-C and TSA-UC-C are very similar and include taverns, art galleries, clinics and offices, a wide variety of residential uses with the exception of single-family detached dwellings, food processing. Motels, retail goods and stores, theaters, and schools. Maximum Building Height 65-feet except distillation columns which may be up to 120 feet. Maximum of 75- feet and minimum of 25-feet Maximum of 90- feet and minimum of 40-feet Front/Corner/Side/Rear Yard Setbacks Front and corner side yards: 15 feet Interior side and rear yard: None Front/Corner Side Yard Setback Minimum: None For properties that are adjacent to the Jordan River, the building setback from the Jordan River shall be fifty feet (50'), measured from the annual high-water level. For buildings over fifty feet (50') in height, the Same requirement in TSA-UC-C zone Page | 6 setback shall increase one foot (1') for every foot in height over fifty feet (50') up to a maximum of seventy-five feet (75'). Portions of buildings over fifty feet (50') in height may be stepped back to comply with this standard. Required Build to Line Not applicable At least 50% of the street facing building facade shall be within 5-feet of the front or corner side property line. Same requirement in TSA-UC-C zone Buffer Yard Required if abutting residential Landscaped yard requirements. Not applicable. 7 feet if abutting residential. Not applicable. 7 feet if abutting residential. Lot Size Minimum 10,000 SF 2,500 SF 2,500 SF Minimum Lot Width 80 feet 40 feet 40 feet Landscaped Yards Required 15-foot front and corner side yards must be maintained as landscape yards. All areas not occupied by buildings, plazas, terraces, patios, parking areas, or other similar feature shall be landscaped. All areas not occupied by buildings, plazas, terraces, patios, parking areas, or other similar feature shall be landscaped. Off-street Parking & Loading (21A.44.030) Varies depending on use. No spaces required for any uses in Core area. No spaces required for any uses in Core area. General Design Standards: • Ground floor uses • Percentage glass • Building materials • Entrance Requirements • Balconies • Open space requirements No general design standards other than exterior and parking lot lighting requirements. Ground floor uses required • 60% of ground floor facing façade must be glass • 90% of any ground floor building facade must be clad in high quality, durable, materials • 60% of upper floors must be clad in durable materials. • Specific entrance requirements • Maximum length of blank walls Same requirement in TSA-UC-C ANALYSIS OF FACTORS Attachment E (pages 20-21) of the Planning Commission staff report outlines zoning map amendment standards Page | 7 that should be considered as the Council reviews this proposal. The standards and findings are summarized below. Please see the Planning Commission staff report for additional information. Factor Finding Whether a proposed map amendment is consistent with the purposes, goals, objectives, and policies of the city as stated through its various adopted planning documents. Complies Whether a proposed map amendment furthers the specific purpose statements of the zoning ordinance. Complies The extent to which a proposed map amendment will affect adjacent properties Complies Whether a proposed map amendment is consistent with the purposes and provisions of any applicable overlay zoning districts which may impose additional standards. Complies 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, stormwater drainage systems, water supplies, and wastewater and refuse collection. Complies CITY DEPARTMENT REVIEW Attachment G (pages 24-25) of the Planning Commission staff report includes City department review comments on the proposed zoning map amendment. Transportation, Public Utilities, the Fire Department and Airport had comments related to future development of the site but did not object to the proposed rezone. Some of their comments related to parking, fire hydrants, fire access roads, and other parcels on the larger Rocky Mountain Power site potentially requiring an aviation easement. These would all be addressed as the larger site is developed. Other departments did not provide comments. For the complete narrative, please see the Planning Commission staff report. PROJECT CHRONOLOGY • May 5, 2022-Petition for zoning map amendment received by Planning Division. • May 24, 2022- Petition assigned to David Gellner, Senior Planner • July 15, 2022-Information about petitions sent to Poplar Grove, Jordan Meadows, and Faipark Community Councils o 45-day recognized organization input and comment period begins. Online open house period begins. o Early notification sent to property owners and residents within 300 feet of the project site providing information about the proposal and how to give public input. Page | 8 • August 30, 2o22-45-day public comment period for recognized organizations ended. • September 15, 2022-Public notice posted on City and State websites and sent via the Planning listserv for the September 28, 2022 Planning Commission meeting. o Public hearing notice mailed. o Public hearing notice posted on properties. • September 28, 2022-Planning Commission public hearing. The Planning Commission voted unanimously in favor of forwarding a positive recommendation to the City Council for the proposed zoning map amendment. • October 17, 2022-Ordinance requested from Attorney’s Office. • October 17, 2022-Planning received signed ordinance from the Attorney’s Office. • December 1, 2022-Transmittal received in City Council Office.