WEST TEMPLE GATEWAY & GRANARY DISTRICT REDEVELOPMENT STRATEGY EXECUTIVE SUMMARY

June7,2011

NationalDevelopmentCouncil/LMN/Waronzof/CharlierAssociates

BACKGROUND TheRedevelopmentAgencyofSaltLakeCity(RDA)contractedwiththeNationalDevelopment Council(NDC)toassisttheRDAincraftingaredevelopmentstrategyforRDAownedproperties andtheCityownedformerfleetfacilities(theFleetBlock)intheWestTempleGatewayand GranaryDistrictProjectAreas.NDCbroughttogetherabroaderteamwithexpertiseinregional economics,developmentfinance,designandtransportation.Theteamconsistedof: WaronzofAssociatesRegionalEconomicsandDevelopmentFinance LMNArchitectsSitePlanning,TODandUrbanDesign CharlierAssociatesTransportation/TODPlanning TheconsultantteamcreatedthreedocumentsforguidingRDAeffortsinbothProjectAreas: 1. WestTempleGateway&GranaryDistrictRedevelopmentGuide Providesanoverarchingvisionforredevelopmentandaddresseslanduse,multimodal transportation connections, redevelopment timeframes, zoning suggestions, and recommendationsforstrategicactionsonthepartoftheRDA. 2. WestTempleGateway&GranaryDistrictDesignGuidelines Provide design guidance for redevelopment efforts in both Project Areas, as well as specific recommendations for RDAowned property. The document also provides a streettypologyformajorandminorstreetdevelopment. 3. WestTempleGateway&GranaryDistrictPropertyApproach ProvidessitespecificdesignandredevelopmentoptionsforfourRDAownedproperties within the West Temple Gateway Project Area and for the Fleet Block, a large city owned property in the Granary District Project Area previously used for fleet storage andmaintenance.

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ThestudyteamcompiledabroadlistofpublicgoalsfortheRedevelopmentStrategyfromthe city master plans and the RDA project area goals which encouraged a transition of land uses frompreviousindustrialandheavycommercialusestoamixeduseresidentialcommunity.
Pedestrian Ge environment n Mixed Use Development Public recreation & open space

Streets, streetscape, traffic & circulation

obj Colle ect ive ctive g s fo o r ou als & rS tud y

Public services education, public safety Quality of living

Are a...

Transitoriented

Support for new & existing businesses Strong & attractive neighborhoods

Keyfindingsinclude: Giventhecurrentmarketconditions(below),RDApropertyredevelopmentshouldstart with smaller parcels near the TRAX station and develop them as soon as possible in order to create development momentum for the Project Areas. Smaller infill projects focused on housing, but including flex space for future commercial use are financially feasibleatthistime. As the market improves, redevelopment of properties along 300 West (including the Fleet Block) will be more successful. This timing will allow for development of higher densitiesandmorecommercialspace. The Project Areas lack the amenities and public services needed to attract desired privateinvestmentandmaynotbesufficienttoretainthecurrentlevelofinvestment andhomeownership. TheRDAshouldseektoattractemployerstotheareathatcanbenefitfromaclosein downtowncommunityandsupportfurthercommercialandresidentialdevelopmentin theStudyArea. The assets within the Project Areas include the singlefamily home population, as it is the main stabilizing factor right now, as well as large lots, including the Fleet Block, whichcanattractmajoremployers.

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BecauseofthesurplusofD2zonedpropertyintheWestTempleGatewayProjectArea (WTG), perception of property values by owners is unrealistically inflated causing propertytositundevelopedlonger. AlthoughtheD2zoneallowsbuildingupto65feet,thecompactableclaysandbuilding coderequirementsofsteelframingatthatheightincreasedevelopmentcostsbeyond whatthecurrentmarketcanafford. Theidentityprovidedbythesinglefamilyhomesshouldbeemphasizedandenhanced. The design and architecture of much of the multifamily development does not contributetoawalkable,safeneighborhood. Thepoorplacementofparkingisnotconsistentwithapedestrianfriendlyenvironment thatisservedbyaneighborhoodlightrailstation.

ContextfortheRedevelopmentStrategybasedonmarketandeconomicanalysis: National residential and commercial real estate market conditions continue to experienceunprecedenteddisruptionanduncertainty. TheSaltLakeCityandUtahregionaleconomyisexpectedtoshowbetterthanaverage economicconditionsoverthenextthreeyears.Thisshouldspeedthelocalrecovery. Therecoveryintheregionaleconomyshouldleadtojobcreationandhousingmarket recoverythatmayhaveapositiveimpactupontheProjectAreas;theopportunitywill onlycomethroughaggressivemarketingand/orcapturingofthecomingdevelopment opportunitybyseveralstakeholders. The likely timing of the recovery in employment and residential and commercial propertymarketscreatesanopportunityfortheProjectAreas. In the long term, there appears to be adequate real estate and business investment capitalwithintheregiontomeetandexceedtheneedsoftheStudyArea. As a blighted neighborhood, the Project Areas undercompete and are largely disconnectedfromtheactivesubmarketswithintheregion,bothintermsofresidential housingandforcommercialproperties. KEYRECOMMENDATIONS Torespondtoinitialfindingsandfacilitateredevelopmentinthestudyareastoamixeduse residentialcommunity,theRedevelopmentStrategysuggeststhefollowing: AddressPublicServiceDeficits CreateaComprehensiveTransportation,Traffic,&CirculationPlan AbatementofIncompatibleLandUses

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ImproveNeighborhoodIdentityEnhancelocalSingleFamilyResidentialCommunity AdjustZoningandSeekanOverlayZonefortheFleetBlock IncreaseCoordinationwithStateEconomicDevelopmentActivitiesandFocuson EmploymentCreationwithintheStudyArea EmphasizePrivateInvestmentinPropertyDevelopment SupportPreDevelopmentActivitiesbythePrivateSector AggressivelyPromoteRedevelopmentintheStudyArea LeveragetheAvailableTaxIncrementandUseCDBGResourcesandFederalTaxCredits toAssistRedevelopment

SPECIFICACTIONSTOBETAKEN ZONINGCHANGES Height Only three buildings have been built at or near 65 in height. Height, along with density, driveslandprices.Inthestudyarea,landpricesmaybeanimpedimenttoredevelopment as financial expectations cannot be achieved with marketrate development. While not suggestingareductionofheightsintheWestTempleGatewayarea,aheightincreaseisnot warranted. SFResidential Thereisaninternalsinglefamilycommunity(WashingtonandJeffersonStreetareas)which hasseenreinvestmentandprovidesauniquecloseinresidentialopportunityfordowntown SaltLakeCity.Howeveritiscurrentlynonconformingunderexistingzoning. Inorderto assist this redevelopment type and encourage further residential diversity the Strategy recommends a change in zoning to allow singlefamily development in various forms, including Accessory Dwelling Units and Cottage Housing. Provide technical assistance for certain property development activities. Establish and maintain activitities and programs thatdefinetheareaasaneighborhoodwithaspecificidentity. IncompatibleUses Asapreviousindustrialandheavycommercialarea,thereremainlandusesthatare incompatiblewithamixeduseresidentialcommunity.Previoususesalsoleave environmentallysuspectproperties.TheStrategyrecommendsthatzoningbeamended(or

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anoverlaybeestablished)toprohibitincompatibleuses.Designguidelinesshould additionallybeadoptedtoensurebettercompatibilityofdevelopmentsandlandusesalong withheavycommercialuses.Programsshouldbedevelopedthatassistsmallbusiness ownersandpropertyownerswithsiteimprovementsorfaadeimprovementstomeet designguidelinerequirementsandtoadaptolderbuildingsforreuse. DESIGNGUIDELINES SpecificDesignGuidelineshavebeendevelopedandprovidedirectionon: StreetStandardsAtypologyofstreetswithinthestudyareaandstreetcrosssection designswhichfacilitymovementthroughthearea,withinthearea,adjacent development,andbalancemultimodalusageofstreetrightsofway. SiteDesignDirectsplacementofbuildings,andparkinglocationandscreening. BuildingDesignEstablishesgroundfloordetailing,walltreatment,andtransparency. SignDesignConsistentsignageplacement. RDAPROPERTYRECOMMENDATIONS The consultant team evaluated four (4) RDAowned parcels within the West Temple GatewayandtheFleetBlockintheGranaryDistrict.Thepropertieswereselectedinorder to give the RDA a range of redevelopment options as well as strategies that could be appliedtoothersimilarpropertiesownedbytheRDAelsewhereinbothstudyareas. OpportunitySite#1

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OpportunitySite1islocatedatthecornerof900SouthandJefferson.Whilelocatedalong 900South,thesitedoesnthavesignificantcommercialpotentialandtherecommendation is to develop a dense singlefamily rowhouse/townhouse development containing approximately 6 new units. It is recommended, though, as an example of denser single familydevelopmentthatwillbefinanciallyviableforthedeveloperasthelocalresidential marketimproves. OpportunitySite#2

OpportunitySite#2isatthecornerof900Southand200West.Itscloseproximitytoalight rail stop and location at the corner of two key streets would support a mixeduse development. The site is a prototype for development that achieves the public and local communitysgoalsforamixeduseresidentialcommunity.Thedesignincludes3,400SFof groundfloorcommercialspacewith20residentialunits.Theprojectisfinanciallyfeasible and would only require assistance from the RDA for the purchase of the land by the developer.

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OpportunitySite#3

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Opportunity Site #3 lies at the corner of 800 South and 300 West and is diagonal to the FleetBlock.LocatedatthecorneroftwomajorcrossstreetsandtheFleetBlock,Site#3 hasasignificantopportunitytoshapethedesignofthisintersection.Theteamevaluated multiple mixeduse development options with commercial, office and residential uses. Acquisitionofthecornersitewasalsoevaluated.Intheend,developmentdensitiesdidnot increase due to acquisition of the corner parcel. However, its acquisition by the RDA is recommendedastheparcelwouldenhancesitedevelopmentbyprovidingopenspaceat thecornerthatcouldcomplementdevelopmentacrosstheintersectionontheFleetBlock and allow for a better overall design of the intersection. Commercial development is currentlyfeasiblewhilemixedusedevelopmentwithresidentialunitsislessfeasibleatthis time. However, as redevelopment occurs in the study area and residential conditions improve especially as later phase development of the Fleet Block occurs, it is expected thatthesitecanbefeasiblydeveloped. OpportunitySite#5

OpportunitySite#5containsthreesinglefamilylots.Sincethepropertiesstretchbetween 200WestandJeffersonStreettheyprovidetheabilitytocreateanewmidblockconnection to the light rail station on 200 West. The use that best complements this neighborhood amenity is housing and in this scenario attached singlefamily development would be encouragedalongwiththepedestrianconnection.Qualitydesignwillbeessentialinorder toaccommodateresidentialneedswithinthepedestriancorridorandcontributetoasafe neighborhoodamenity.Thehousingdevelopmentisfinanciallyfeasiblebutnotsufficientto alsofundthepedestrianwalkway.

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FleetBlockOpportunitySite#4 TheFleetBlockhousedSaltLakeCitysvehiclefleetandservicingfunctions.Theyhavebeen relocated and the site is going through an environmental remediation phase. The size of the parcel provides a significant opportunity to shape future development in the Granary District and provide needed economic and community services for both Project Areas. It also has challenges in size that require the construction of internal and crossproperty streets.

TheStrategylookedatseveralusestobephasedonthesite.Theinitialrecommendationis tousealargeportionofthesite(25%)toprovideamajoropenspaceforthedevelopment andthesurroundingcommunityandrecommendscollaborationwiththeprivateownerof the southwest corner parcel to allow for fullblock development. Mixed use residential communities require open spaces and the Fleet Block provides the best opportunity to meetthatneedimmediately.Thedecisiontodeveloptheopenspacealsosendsastrong signal to the marketplace regarding the Citys goals and commitment to the broader redevelopment strategy. The consultant team also recommends that a street be constructedtobisecttheblocknorth/southandeast/west.Theconstructionofthestreets near midblock create meaningful redevelopment sites for future development, a large quadrant for open space, and minimize traffic disruption from the sites development at intersectionson800Southand900South.TheStrategyrecommendsaligningfuturetrolley servicealong400Westwitheastwestserviceremainingon900South.

NationalDevelopmentCouncil/LMN/Waronzof/CharlierAssociates

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Intermsofdevelopment,thesizeoftheFleetBlockparcelwilllikelyrequirea515year developmenttimeframe.Itdoesprovideauniqueeconomicdevelopmentopportunityfor the RDA to attracta major employer desiringa closein location, butpreferring a campus rather than highrise building. Initial development programs accommodate a range of commercial, office, and residential developments that can be developed in multiple buildings. They would likely be phased as the market improves. Sites A, C, and D have sufficient land area to accommodate parking needs in a single level belowground. Developmentfeasibilityshowstheabilitytoabsorbstructurecostsintheprojectsfinancing and their sequencing is encouraged to allow for those development efficiencies and minimizesurfaceparking. Inthenearterm,itisrecommendedthataninterimusebecreatedintheexistingbuilding onParcelA.Anincubator,artistfacility,orotherinterimuseallowsthesitetobeactivated quicklyatminimalexpense.Incombinationwithdevelopmentoftheopenspaceproposed for Parcel B, the two actions will confirm the Citys commitment to the areas redevelopmentandspurmarketinterest.Laterdevelopmentwilldependonthemarket,a potential recruitment opportunity for a large tenant, and increased development in the areaduetoRDAdevelopmentandprivateinvestment. RDAPolicyStatement On June 7, 2011, the RDA Board of Directors approved the West Temple Gateway and GranaryDistrictRedevelopmentStrategy(theStrategy).Aspartoftheirapprovalofthe

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Strategy,theRDABoardincludedpolicystatementstoguidehowstaffusestheStrategyto encouragefutureredevelopment.TheRDABoardspolicystatementsareasfollows: Theintegrityofexistingsinglefamilyhomegroupingsshouldbepreserved. Deference should be given to singlefamily character where it exists, but higher densitydevelopmentshouldbeallowedwhereappropriate. ThelandusedensityonEastMontroseAvenue,aswellasinteriors(notcorners)of Washington St., 200 West, and Jefferson St., north of 900 South, should be low (singlefamilyattachedanddetached). The land use density south of 900 South and east of 300 West should be medium/moderatewithlowbuildingheightsofuptothreestories.

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NationalDevelopmentCouncil/LMN/Waronzof/CharlierAssociates