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05-0767 ApprovalSTAFF REPOR T City of Yelm Community Development Department Case Number: SPR-05-0767-YL Applicant: City of Yelm 105 Yelm Avenue West P.O. Box 479 Yelm, WA 98597 Property Owner: City of Yelm Agent: Stephanie Ray, Program/Project Manager City of Yelm 105 Yelm Avenue West P.O. Box 479 Yelm, WA 98597 Request: Construct a new Public Safety Building of approximately 12,000 square feet, to include the police and court functions of municipal government. Action: Approval of the Site Plan Review with conditions Findings of Fact Site Plan Review The City of Yelm proposes to construct a 12,000 square foot public safety building on property owned by the City in the Central Business District. The public Safety Building would house the Police Department and Municipal Court, and would include offices, conference rooms, an evidence storage room, interview rooms, a gun storage and cleaning room, a kitchen, a training room, and a courtroom. A Notice of Application was mailed to local and state agencies, and surrounding property owners on November 6, 2006. This notice was also emailed to interested parties who have requested to be on various email mailing lists for Planning Commission agendas and notice's of application. The City held an open house to introduce the public to the proposed Public Safety on November 29, 2006. Notice of the open house was also emailed to interested parties and was published in the Nisqually Valley News on November 10th and November 17th, 2006. Section 17.84.020 (C) Yelm Municipal Code allows the Site Plan Review Committee to approve a proposal when the site plan conforms to the standards, provisions and policies of the city as expressed in its various adopted plans and development regulations. Property Characteristics The property is located at 204 2nd Street, Yelm, WA 98597, is approximately 1.28 acres in area, and is identified by Assessor's tax parcel number 64420500100. The property is identified by the Yelm Comprehensive Plan Map as Central Business District (CBD) and is within the Old Town design guideline district. Public offices are an allowed use with the Central Business District zone. The properties to the north, west, and south are also designated as Central Business District. The property to the north and south contains offices and equipment buildings for Fairpoint Communications, the local telephone service provider. The property to the west contains three residential dwelling units, City Park, and the existing Police Station. The property to the east is zoned Low Density Residential (R-4) and is occupied by two residential dwelling units. This site contains the existing well field for the City's potable water system, including several wells, well houses, a water treatment facility, and the City's historic 50,000 gallon water tank. A portion of the property is also currently developed as a public parking lot off Washington Street. The City of Yelm will provide police protection, water and sewer service. Fire protection services are provided by The SE Thurston Fire/EMS District (Thurston County Fire Protection District #2). Concurrency Chapter 15.40 YMC requires the reviewing authority to determine that required urban infrastructure is available concurrent with development. Concurrency with sewer infrastructure is achieved pursuant to Section 15.40.020 (B)(1) YMC when the project is within an area approved for sewer pursuant to the adopted sewer comprehensive plan for the city and improvements necessary to provide city standard facilities and services are present to meet the needs of the proposed development. December 2006 Page 2 of 14 The sanitary sewer system has sufficient capacity to serve the proposed use and the City will be responsible for extending sewer lines to the site and constructing all sewer related requirements to the standards of the Yelm Development Guidelines. Concurrency with water infrastructure is achieved pursuant to Section 15.40.020 (B)(2) YMC when the project is within an area approved for municipal water service pursuant to the adopted water comprehensive plan for the city and improvements necessary to provide city standard facilities and services are present. The water system also has sufficient capacity to provide potable water to the proposed use and the City will be required to extend the existing water lines and connect to the system. The City will also be responsible for ensuring that the requirements of the adopted Fire Codes are met through the provision of adequate fire flow, or construction methods that reduce the required fire flow. Concurrency with transportation infrastructure is achieved pursuant to Section 15.40.020 (5)(c) YMC when the project: / Makes on-site and frontage improvements consistent with city standards and roads necessary to serve the proposed project consistent with safety and public interest; / Makes such off-site facility improvements, not listed on the capital facilities plan, as are necessary to meet city standards for the safe movement of traffic and pedestrians attributable to the project; / Makes a contribution to the facilities relating to capacity improvements identified in the adopted six-year traffic improvement program, in the form of a transportation facility charge. Pursuant to the Mitigated Determination of Non-significance, the City will be required to construct frontage improvements 2nd and McKenzie Streets, and full street improvements on 2nd between McKenzie and Washington as well as full travel lanes on McKenzie between 2nd and 3rd Concurrency with school infrastructure is achieved pursuant to 15.40.020 (B)(4) when the developer provides a letter from the local school district that the school facilities impacted by the proposed development are present, or are on an approved and funded plan, to assure that facilities will be available to meet the needs and impacts of the proposed development. The proposed Public Safety Building will have no impact on the School system as it will not increase the number of students within the school district. Concurrency with Fire Protection is achieved pursuant to 15.40.020(6) when the developer makes a contribution to the fire protection facilities as identified in the most December 2006 Page 3 of 14 current version of the capital facilities plan adopted by the Yelm Fire District (SE Thurston Fire/EMS) and endorsed by resolution of the Yelm City Council. Afire impact fee will be accessed at the time of building permit issuance, based on the square footage of the building. State Environmental Policy Act The City's SEPA Responsible Official issued and published a Mitigated Determination of Non-Significance on December 1, 2006 based on WAC 197-11-158. The Mitigated DNS contained the following mitigation measures to address impacts to the transportation system and critical aquifer recharge area: 1. The following improvements to the transportation system shall be constructed by the project: / 2nd Street between McKenzie and Washington Streets shall be improved to a modified neighborhood collector standard to match the existing street sections to the north and south of the subject block, including sidewalks on both sides, a planter strip or street trees in grates, concrete curb and gutter, on-street parking, and two travel lanes. / McKenzie Street between 2nd and 3rd Streets shall be improved to a modified neighborhood collector standard including sidewalks, street trees in grates, and angle on-street parking in front of the project site, curb and gutter the full length of the block, and two travel lanes the full length of the block. / Traffic Facilities Charges shall be credited toward the off-site improvements constructed by the project. 2. No potential source of contamination shall be located within the 100 foot sanitary control area (SCA) pursuant to Section 246-290-135 WAC. All stormwater from impervious surfaces located within the SCA shall be collected and treated and infiltrated outside the SCA. All STEP tanks and sewer mains shall be located outside the SCA. Critical Areas There are no wetlands, fish and wildlife habitat areas, geologic hazard areas, or floodplains or high groundwater areas located on or near the subject property. The aquifer lying underneath the City of Yelm is a critical aquifer recharge area. Section 14.08.150 YMC establishes standards for development within a critical aquifer which require the treatment and infiltration of stormwater in a manner approved by the City of Yelm. The proposal is to treat all stormwater outside the 100 foot sanitary control area through aAqua-Swirl Concentrator from Aquashield, Inc. These treatment devices have been issued a General Use Level Designation from the Washington December 2006 Page 4 of 14 Department of Ecology for the pretreatment of stormwater, which is the appropriate level of treatment for impervious surfaces when the stormwater is being infiltrated back into the groundwater. These devices have also been approved for use in Yelm by the Yelm Community Development Department Development Review Engineer. Zoning Code Requirements The property is zoned Central Business District (CBD) which is codified at Chapter 17.24 YMC. The CBD district was created to providing an area for high intensity uses or mixtures of uses for general commercial, retail, service, and multi-dwelling activities. The purpose of the zone is to promote the special characteristics of the existing downtown Yelm area, to provide a pedestrian shopping atmosphere. The CBD district allows offices, private and government, as a permitted use subject to site plan review approval in accordance with Chapter 17.84 YMC. The maximum size of any single-story structure is 20,000 square feet and buildings must be located and designed so as to promote and enhance continuity with existing rights of way, streets, parks, sidewalks, and landscaping. The maximum building height is thirty-five (35) feet. Environmental Protection Standards The Zoning Code establishes environmental protection standards at Chapter 17.57 YMC which address: noise; emissions; aquifer, ground, and soil contamination; and storage. The maximum allowable noise levels as measured at the property line of noise- impacted uses or activities are those set forth in Chapter 173-60 WAC, titled "Maximum Environmental Noise Levels". Air pollution must be controlled by the operator and/or the proprietor of any land use or activity. The ambient air quality standards specified by the Olympic Region Clean Air Agency (ORCAA) apply to all air contaminants. Aquifer contamination is addressed through the requirement for the treatment and infiltration of stormwater on the subject site. December 2006 Page 5 of 14 Design Guidelines The property is identified by the Yelm Design Guidelines as an old town district, which establishes requirements for new development in relation to site planning, pedestrian access, vehicular access and parking, building design, and landscape design. Street Fronts (2"d, McKenzie, and Washington) The design guidelines require that development must define the street edge with building, landscaping, or other features, must provide direct access to the building from the frontage, and provide treatment to spatially define the street edge when parking is adjacent to street frontages. The building is located adjacent to the street frontages of 2nd and McKenzie and a pedestrian oriented sidewalk between 8 and 12 feet in width with street trees in tree grates will define the street edge. The building entrance has direct access to the public sidewalk, through a pedestrian oriented plaza greater than 500 square feet in area. Seating, decorative walls, and pedestrian lighting will all be provided along the street frontages or in the plaza area. The property also fronts on Washington Street, which will be improved to a commercial collector standard along the property frontage. The entrance to a City-owned parking lot that also serves Fairpoint Communications located north of Washington and the entrance to the proposed Public Safety Building parking lot are along Washington Street. Side and Rear Yards The design guidelines indicate that service areas and outdoor storage be located away from neighboring properties to reduce conflicts, and require screening of refuse containers located behind the building. The refuse container is proposed to be large enough to accommodate a dumpster and recycle bin, and will be screened with an enclosure of a material and design compatible with the overall architectural theme and at least six feet in height. The sally port and police service entrance will be located between the new Public Safety Building and the existing improvements at the downtown well field, which includes several outbuildings and a 50,000 gallon elevated water tank. The sally port and the existing buildings provide screening for the service area of the Public Safety Building. December 2006 Page 6 of 14 Pedestrian Circulation The following elements must be provided as part of the site plan for new developments: / All pedestrian paths must comply with the ADA. / Adequate lighting must be provided for pedestrian access. / Walkways should be integrated with the required parking lot landscaping. / Provide pathways through parking lots / Integrate transit stops into the planning of site improvements / Provide weather protection such as a canopy to create a covered pedestrian open space. / Provide at least 200 square feet of landscaping at or near the entry. / Provide pedestrian facilities such as benches, kiosks, or bicycle racks. / Provide pedestrian scaled lighting. / Provide adjacent window displays. / Provide artwork or special pedestrian scaled signs. The building will provide assessable paths of travel and pedestrian oriented streets including street lighting and pedestrian lighting. Pathways are provided through the parking lot and from the on-street parking on McKenzie. Building Design and Details To encourage buildings that are comfortable at a human scale, at least three of the following features must be incorporated into the building design: / Balconies in upper stories / Bay windows / Pedestrian oriented space / Individual windows / Gable or hipped roof / Porch or covered entry / Spatially defining building elements that define an occupied space / Upper story setbacks / Composing smaller building elements near the entry or pedestrian oriented street fronts To ensure new development is compatible with Yelm's architectural size and character, at least two of the following features must be incorporated into the building design: / Upper story setback / Horizontal building modulation / Modulated roof line / Building articulation December 2006 Page 7 of 14 To encourage unique identifiable architectural features at intersections, at least one of the following features must be included on a facade facing a public street: / Decorated roofline / Decorative treatment of windows and doors / Decorative railings, grill work, or landscape guards / Landscape trellises / Decorative light fixtures / Decorative building materials (masonry, wood details or patterns) Metal roofing must be of high quality with a standing seam and cannot be brightly colored. Blank walls must be treated with trellis and plantings, landscaping beds or other methods. The building will provide pedestrian oriented spaces, individual windows along both street frontages, will be located at the corner of 2nd and McKenzie and define the street corner as well as define with the building the pedestrian plaza at the entrance on McKenzie, and will have several building elements near the entrance and plaza. The building is both modulated and articulated horizontally, with several breaks in the McKenzie Street frontage leading to the pedestrian plaza and has a modulated roof line. The roof line is decorated with architectural details, old style street and pedestrian light poles will be used and the building materials will be patterned. Refuse The City of Yelm Development Guidelines, Design Guidelines, and Municipal Code provide guidance for refuse storage and screening. Refuse areas are required to be accessible by LeMay, screened with a material and design compatible with the overall architectural theme of the associated structure, at least as high as the refuse container, and must be at least six-feet in height with a gate enclosure. No refuse container is allowed between a public street and the front of a building. Refuse collection areas must be designed to contain all refuse generated on site and deposited between collections, and refuse should not be visible from outside the refuse enclosure. The proposed location of the screened refuse container in the northeast corner of the parking lot along Washington Street meets the design standards. December 2006 Page 8 of 14 Transportation Yelm is a small compact community most directly affected by two state highways, SR 510 and SR 507, which bisect the community. These state routes are used by local residents for transportation throughout the City, for access to commercial and residential areas throughout the community as well as serving regional traffic. The updated Transportation element of the Yelm Comprehensive Plan identifies a number of improvements designed to avoid the need to significantly widen existing streets, and particularly Yelm Avenue. New development impacts the transportation system in Yelm and, unless the improvements identified in the transportation plan are constructed, the City would need to require developers to pay the cost of internal street widening. The City has adopted a Transportation Facility Charge (TFC) of $750.00 per pm peak trip. The concurrency chapter of the Municipal Code provides a default table that is used to determine new peak PM trips generated by a proposed use. Because the project is constructing off-site improvements not indicated as being necessary for the safe movement of traffic or to mitigate impacts attributable to the new facility, the required TFC's have been credited to this improvement through the Mitigated Determination of Non-significance. Frontage improvements shall be consistent with Yelm's Development Guidelines. The property fronts on three streets, 2nd, McKenzie, and Washington Streets. 2nd and McKenzie will be improved to a modified neighborhood collector standard while the Washington Street frontage is already improved. 2nd Street will be designed to a modified Commercial Collector standard and will be fully improved between McKenzie and Washington Streets in order to match existing improvements to the north and south. The modified standard will include two drive lanes, on-street parallel parking on both sides, and a `pedestrian oriented' sidewalk wider than typical with street trees in tree grates on both sides. McKenzie Street will be designed to a modified Commercial Collector standard to incorporate angle parking consistent with the old town theme along the property frontage. The modified standard will include a pedestrian oriented sidewalk on the project (north) side, with street trees and grates, angle parking on the project side, two drive lanes, and an existing sidewalk on the south side. Street Lighting Adequate street lighting is necessary to provide safety to pedestrians, vehicles, and homeowners. Street lighting is reviewed at the time of civil plan review in order to assure adequate lighting. The project will provide both pedestrian and street lighting along both 2nd and McKenzie Streets with poles and light heads that match the old town December 2006 Page 9 of 14 design guidelines and are similar to the antique poles on Yelm Avenue in the old town district. Stormwater Quality and Quantity Impervious surfaces create stormwater runoff which, when uncontrolled and untreated can create health, safety, and environmental hazards. The City of Yelm has adopted the 1992 Department of Ecology Stormwater Manual, which requires all development to treat and control stormwater when over 5,000 square feet of impervious surface is created. The applicant has submitted a preliminary stormwater report which includes a conceptual design for the treatment and infiltration of the stormwater. The Community Development Department has reviewed this report and find that stormwater from the site can be managed appropriately through the conceptual plan. Civil plan review will include a final stormwater plan consistent with the preliminary plan. The City has submitted a preliminary stormwater report which includes a conceptual design for the treatment and infiltration of stormwater. The proposed stormwater treatment system utilizes various models of the Aqua-Swirl Concentrator from AquaShield, Inc. These treatment devices have been issued a General Use Level Designation from the Washington Department of Ecology for the pretreatment of stormwater, which is the appropriate level of treatment for impervious surfaces when the stormwater is being infiltrated back into the groundwater. These devices have also been approved for use in Yelm by the Yelm Community Development Department Development Review Engineer. Stormwater facilities require continued maintenance to ensure they remain in proper working condition. Water Supply The City's Water Comprehensive Plan identifies the property as being within the water service area. There are existing water mains located in 2nd Street. The City of Yelm is dedicated to providing the best quality water possible to its consumers. Section 246-290-490, WAC, requires that the City take measures to ensure that contamination does not occur as a result of cross contamination. An irrigation meter shall be installed for the purpose of irrigation. A backflow prevention device is required for all landscape irrigation connections between the irrigation system and the water meter. December 2006 Page 10 of 14 Sewer System The proposed site is currently located the City of Yelm's STEP sewer system service area. Connection to City sewer service is required. There is an existing sewer main located in 2nd Street. Parking The City of Yelm Development Guidelines, Design Guidelines, and Municipal Code address parking regulations from many aspects, including, but not limited to the design of lots, the number of stalls required, pedestrian pathways within lots, and safety. The requirements of off-street parking and loading facilities and their design shall be regarded as the minimum; however, the owner, developer or operator of the premises for which the parking facilities are intended shall be responsible for providing adequate amounts and arrangement of space for the particular premises even though such space or its arrangement is in excess of the minimum set forth. Section 17.72.030(D) (2) YMC requires one (1) space for every 300 square feet of gross floor area for professional offices. The public safety building would require 40 spaces based on a 12,000 square foot building. The project will provide 28 off-site parking spaces and 15 angle parking spaces at the entrance to the building for a total of 43 spaces, including three ADA spaces, one of which is van-accessible. Fire Fire protection to the buildings must be provided per the International Fire Code. The specific requirements for installation of additional fire hydrants and fire lanes will be determined during civil plan review. The International Building Code (IBC) provides occupancy ratings for different types of uses. The fire coverage and sprinkler system for the proposed use must meet IBC requirements. The building is proposed to be protected by a sprinkler system and will also provide hydrant coverage and Fire Department access. December 2006 Page 11 of 14 Landscaping Landscaping and screening are necessary to provide screening between compatible and incompatible land uses, to safeguard privacy and to preserve the aesthetic assets of the City. Chapter 17.80 YMC requires all development to provide on site landscaping. Type I landscaping is intended to provide a very dense sight barrier and physical buffer to significantly separate conflicting uses and land use districts. A minimum of 15 feet of width shall be required when Type I landscaping design is utilized, although an 8 foot tall solid masonry fence is considered to be effectively screened. Type I landscaping is required along the eastern property line. Type III landscaping is intended to provide visual relief where clear sight is desired. This landscaping is utilized along pedestrian corridors and walks for separation of pedestrians from streets and parking areas. Type III landscaping is required as a part of frontage improvements. Type IV landscaping is intended to provide visual relief and shade in parking areas. The conceptual landscaping plan correctly identifies required landscaping elements and is generally consistent with the landscaping standards. Conclusions of Law A. The Site Plan Review Committee has jurisdiction to consider and decide the issues presented by this request. B. The applicant has established that the request for site plan review approval satisfies all criteria set forth in Section 17.84.020 (C) YMC, meets all requirements of the Central Business District (CBD) zoning classification and the Old Town design guideline requirements, and meets all other requirements of the Yelm Municipal Code. Therefore, the site plan should be approved subject to the following conditions: 1. The conditions of the Mitigated Determination of Nonsignificance are hereby referenced and considered conditions of this approval. 2. Street frontage improvements are required. Frontage improvements shall be consistent with the City of Yelm's Development Guidelines, as modified by this approval and the Mitigated Determination of Non-significance, including improvements to 2nd Street and McKenzie Streets. 3. This building and site shall be connected to City water service. All conditions for cross connection control as required in Section 246-290-490 WAC . December 2006 Page 12 of 14 4. This site shall be connected to City sewer service. 5. The applicant shall design and construct all stormwater facilities in accordance with the 1992 stormwater Manual, as adopted by the City of Yelm. Best Management Practices are required during construction. The stormwater plan shall meet the requirements of Section 14.08.120(G) YMC. 6. Parking shall be provided in accordance with Section 17.72.030(D)(2) YMC A minimum of 40 parking stalls, three being ADA accessible are required. Angled on-street parking along McKenzie Street will count towards required parking for this use. 7. Civil plans shall include fire protection elements as required by the International Fire Code, including fire access lanes, hydrant locations, and a Fire Department connection. Building plans shall include fire protection elements as required by the International Fire Code, including a sprinkler system and enunciator panel. 8. Civil plans shall include landscaping and irrigation plans. Landscaping shall include, at a minimum: / Type I landscaping along the eastern property line. / Type III landscaping is required with frontage improvements to 2nd McKenzie, and Washington Streets. / Type IV landscaping is required in all parking areas. 9. Refuse collection areas shall be designed to contain all refuse generated on site and deposited between collections. Deposited refuse shall not be visible from outside the refuse enclosure. Screening shall be of a material and design compatible with the overall architectural theme of the associated structure, shall be at least as high as the refuse container. C. The Site Plan is valid for eighteen (18) months from the date of this approval. The applicant may request asix-month extension on the approval, if the request is made in writing prior to the expiration date of this approval. If you need additional information or assistance, please contact the Community Development Department at (360) 458-3835. December 2006 Page 13 of 14 Decision The request for site plan review approval is hereby granted subject to the conditions contained in the conclusions above. APPR~is~~° day of~ecember, 2006. rant B k, `L~irec~or of Community Development S n Review Committee City of Yelm Appeal Site Plan Approval is a Type II Administrative land use approval. An appeal of this decision can be filed within 14 days from the date of this approval, pursuant to YMC, Chapter 15.49, Integrated Project Review Process. Any appeal must be in writing, contain specific factual objections, and include the appeal fee of $50.00. December 2006 Page 14 of 14