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January 5, 2015

City of Boise Planning and Development Services


P.O. Box 500
Boise, ID 83701-0500
VIA EMAIL
RE:

CPA14-00004 ST. LUKES MASTER PLAN

The Idaho Transportation Department (ITD) has reviewed the referenced comprehensive plan amendment
application for the St. Lukes Master Plan located near the intersection of Ave. B and Warm Springs Ave. in
Boise, Idaho north of Hwy 20/26. ITD has the following comments:
1. ITD has no objection to this application and requires no mitigation. The project does not require
access to the State Highway System.
2. Boise City is reminded that any additional development results in additional vehicle trips. The
roadway system has limited capacity. Any additional vehicle trips increase congestion and travel
delay.
If you have any questions, you may contact Shona Tonkin at 334-8341 or me at 332-7191.
Sincerely,

James K. Morrison
Development Services Manager
jim.morrison@itd.idaho.gov

December 1, 2014
Jeff Hull, AIA, Director, Architecture and Construction
St. Lukes Regional Medical Center
190 East Bannock Street
Boise, Idaho 83712
Dear Mr. Hull,
The City of Boise has reviewed the Draft St. Lukes Master Plan and would like to offer
the following comments and suggestions regarding various aspects of the contents.
The comments are organized by general topic with each section beginning with a
summary list of bullet points followed by a more detailed written explanation. We have
also included as an attachment all of the letters of comment we have received to date
from interested parties. With this transmittal, we acknowledge that the initial 45-day
review period has expired. We will be happy to answer any questions you may have as
you consider this information in preparation of your final draft
Study Area/Master Plan Boundary/Land Uses

Study area boundaries should be consistent across all topic areas


A Master Plan boundary should be established up front in the document
All St. Lukes properties should be accounted for in the plan

There are a number of maps in the document that depict various facilities owned and
operated by St. Lukes. The maps have several different boundaries and it is unclear
exactly which are the boundaries of the Master Plan itself. Some maps depict St. Lukes
facilities and ownerships south of Main Street, east of 3rd Street and north of Fort
Street. Yet other maps that depict topics including the parking analysis (page 25) and
the long term planned distribution of uses (page 27) do not include all of those outlying
facilities. It would be helpful if a map that showed the actual Master Plan boundary
was included up front. We would also like all St. Lukes facilities and ownerships to be
accounted for in some way in the Master Plan. Even if land owned by St. Lukes may
not be proposed for medical related uses, it would be helpful to know the hospitals
plan for the disposition of those properties. Specifically, the Plan should discuss the
various properties east of Avenue B, the parking lot on the west side of 2nd Street, the
properties on 3rd Street north of State Street, and the Elks Rehabilitation Hospital on
Fort which we understand is now managed or owned by St. Lukes.

Page 2 of 7
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Traffic Impact Study/ Roadways and Intersections

TIS summary should include ADT not just peak hour trips
Describe all proposed intersection improvements and timeline for construction of each
Include CIP Plus intersection designs where known
Show Fort/Avenue B Roundabout in Master Plan illustrations
Provide modeling and feasibility assessment for Avenue B lane reduction concept

We are aware that ACHD has accepted the traffic impact study. The TIS included detailed data
regarding the surrounding roadway network and how the expansion of the St. Lukes campus will
impact roadways over the next 20 years, with an emphasis on peak hour data. It would be helpful for
some readers if average daily trip generation could also be included in the data. We suggest that the
traffic impact summary could provide the total number of trips that will be generated by the
development and include a simple map diagram showing what the existing counts are and what the
future projected counts will be on all of the surrounding roadway segments and intersections. This
information would paint a very simple and accurate picture for everyone that is interested in this
areas future growth.
The traffic impact study notes that there are a number of intersections and roadway segments that will
operate at a poor level of service in 2024 and 2035 (the majority of them will be LOS F). Many of these
intersections and roadways are not programmed in ACHDs Capital Improvements Plan for improvement.
The study has identified the improvements that should be made to mitigate the impacts of the proposed
development but has not proposed a timeline for these improvements to occur. Typically the City and
ACHD require that mitigation occur with (or before) the development to ensure the infrastructure can
accommodate the proposed development. It would be very helpful to provide a detailed summary with
key findings and recommendations that identifies each intersection and roadway that will require
mitigation with a proposed timeline as to when the improvements will occur. The Master Plan should
depict the CIP Plus intersection designs to the extent that they are currently known and understood.
The traffic impact study indicates that the closure of Jefferson Street will require pedestrians and bicyclists
to divert from their normal travel routes (primarily Jefferson Street) and suggests they will relocate to the
north to utilize State Street. While some will divert to the north, it is reasonable to expect an equal
number of individuals will divert to the south to utilize Bannock Street simply due to the fact that Bannock
Street has approximately 30% of the vehicular traffic that State Street does and provides continuous
bicycle facilities (lanes or sharrows) through the entire downtown core.
The Master Plan depicts a variety of possible intersection treatments, including roundabouts, at various
locations around the campus but stops short of actually incorporating those designs into the Plan. Boise
PDS believes that the feasibility of a roundabout at the intersection of Fort, Reserve and Avenue B is clear
enough that this should be included as a recommendation in the plan, and the maps associated with the
overall campus land use plan and road network should depict the roundabout.
The possibility of reducing Avenue B to three lanes has been suggested by some members of the public
and City Council as a tradeoff for closure of Jefferson Street. The idea is that reducing the roadway to
three lanes will allow room within the right-of-way for wider bicycle and pedestrian facilities along both

Page 3 of 7
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sides of Avenue B, will reduce traffic volumes on Avenue B by causing some through trips to divert to other
streets in order to avoid congestion, and will result in a narrower and easier to cross street section for
bikes and pedestrians. However, this concept has not been modeled to the level of detail that will allow an
accurate understanding of how reduction of capacity on Avenue B will redistribute trips onto other local
roads in the vicinity and what the impact to those roads will be. In anticipation that there will continue to
be questions about this possibility, Boise PDS is suggesting that St. Lukes consider conducting the
necessary traffic modeling analysis to answer the questions about lane reduction impact and feasibility. If
the modeling shows that the road can be reduced without creating undue impact on surrounding
roadways, planned bicycle facilities or St. Lukes operational needs, then St. Lukes should consider making
such a recommendation in the Master Plan, along with showing concepts for how the affected
intersections and bike lanes would be designed.
Bicycle Facilities

Explain why Cycle Track concept was dropped


Show more design detail for bike/ped facilities, particularly at problematic intersections such as
1st/State and Main/Idaho/Ave. B
Show plan for improved bike/ped access through Bannock Street
Upgrade pedestrian crossing on Main to Pedestrian Hybrid Beacons

A key challenge of the Master Plan involves how to replace the function that Jefferson serves today (and
would potentially serve at a higher level in the future) for bikes and pedestrians, if Jefferson is removed
from the system. The future role of Jefferson is significant due to the fact that the current plan of record
for downtown bicycle routes (the Downtown Boise Implementation Plan DBIP) identifies Jefferson as the
key east-west facility. Early conversations with St. Lukes included the concept of a cycle track around the
hospital that would collect cyclists from Jefferson and give them a safe and relatively high speed route
around the hospital with connections to other bike routes and destinations on all sides of the campus.
While the cycle track concept is briefly discussed, it is not addressed in any level of detail and appears to
no longer be a recommendation in the plan. Instead, the current recommendation is for a system of
shared lanes, striped on-street bike lanes and sidewalks to accommodate the current and future bicycle
and pedestrian demand, with an emphasis on State, Main and Idaho Streets handling the majority of eastwest bike traffic, and bike lanes on Avenue B moving bikes north and south.
A 10-foot multi-use sidewalk is proposed along the perimeter of the site on Broadway Avenue, Fort Street
and State Street in lieu of what had previously been suggested as a true cycle track. Wider sidewalks and
pathways can provide a comfortable network for pedestrians but often times do not function well when
bicycles are introduced to the pathway. Multi-use pathways also provide unexpected conflict points for
drivers at street intersections, high volume driveways and terminus points. It is important to show how
the proposed pedestrian and bicycle facilities will accommodate the needs of the entire area and the
details on how these facilities will tie into the existing roadway, pedestrian and bicycle networks. Pages 28
through 32 depict these basic facilities and discuss in general terms some treatments such as bike boxes
that may be appropriate. However, the network is not planned or designed to the level of detail where
actual effectiveness can be determined.

Page 4 of 7
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For example, we would like to see more detail regarding the intersection design for State Street and 1st
Street. This is a critical intersection because it serves as a key entrance to the new hospital parking garage
yet will also be traversed by cyclists as the northern alternative to the closed Jefferson Street route. We
would like to see exactly how cyclists and pedestrians interact with automobiles at this intersection in
terms of signalization, signage and lane delineation. How would the multi-use sidewalk versus a true cycle
track work on this street?
It is also unclear how an east-bound cyclist on Main Street gets onto the bike lane or wide sidewalk on
Avenue B around the campus in order to access Jefferson or Bannock Streets east of Avenue B. One
suggestion would be to consider a new bike lane in place of the micro path between Main and Idaho that
would lead to Bannock Street on the east side of the MSTI building. Throughout the planning area, the
Master Plan should detail how cyclists actually make connections through intersections. This may also
entail planning for the feasibility of bike lanes on connecting streets that are outside the campus
boundary. The DBIP may be modified to shift bike lanes from Jefferson to these other streets if the
feasibility can be proven through this Master Plan.
Another item that should be detailed is how bicycle travel can be improved through the campus on
Bannock, as has been suggested by the City Council. A dimensioned plan should be provided that
delineates potential bike and pedestrian pathways through this portion of the campus, as well as means of
minimizing conflicts. It may be necessary to provide a different outdoor plaza area for some of the current
users to free up space for cyclists and pedestrians to move through the corridor. In addition, completion
of a previously planned pedestrian bridge from the existing 1st Street parking garage to the main Hospital
building may also help minimize ground level conflicts during shift changes. Bike lane striping on the
Bannock service drive out to Avenue B may also be desirable as would a signalized cross-walk on Avenue B
at Bannock.
We recommend that the Master Plan team consider upgrading to coordinated Pedestrian Hybrid Beacons
(PHBs) at the pedestrian crossings to the garage on the south side of Main Street. It will also be important
include interim bicycle and pedestrian designs that can be installed in the short term while the longer term
CIP Plus final roadway and intersection improvements are still in the process of being funded prior to
construction.
Transit

Prepare a future bus transit plan and/or statement of intent


Account for possible Circulator route on Idaho and Main

The Master Plan includes a map and description of existing transit routes and stops but does not include
any planning for future transit facilities. The Plan should express both a philosophy for future transit
service as well as a conceptual future transit plan based on the proposed distribution of uses and proposed
circulation system. Also, the Downtown Circulator is exploring a route to St. Lukes on Main and Idaho.
The Master Plan should discuss potential interface between St. Lukes facilities and a Circulator along that
route.

Page 5 of 7
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Parking Facilities

Explore shared parking garage with Elks


What is the long term future of the surface parking lots on 2nd Street and on the south side of Main
Street?

We learned through the Fort Boise Study initiated by PDS that the Elks Rehabilitation Hospital may
eventually need more parking supply. It was suggested that perhaps St. Lukes and the Elks could share a
common parking facility located near Fort Street. The Master Plan does not address this possibility. Could
the new garage on 1st street possibly fulfill this role? Also, what is the future of existing surface lots within
the study area; specifically the lots on 2nd Street and Main Street? Could these lots eventually be
converted to other uses?
Historic Resources

Discuss historic structure relocation sites and strategies

We believe that the issue of historic resources is significant enough that it warrants its own section in the
Master Plan rather than just inclusion in the appendix. The Master Plan should identify significant historic
buildings and discuss the possibilities for relocation of the most significant buildings to another location,
possible reuse of structures and partnerships.
Building Design Standards

Limit building design strategies to historic Boise campus examples rather than suburban examples
Augment Sustainability section with additional ideas related to storm water, landscaping, etc.

The Master Plan tells the story of St. Lukes and how it has expanded locally as well as into surrounding
communities. The original Boise campus has established a strong historical context of architectural styling.
As such, the Master Plan should advocate building design standards that derive from the Boise campus
rather than from surrounding campuses where facilities are more suburban instead of urban in nature and
dont have the history of the existing facility.
For example, the Magic Valley Medical Center uses a much deeper and consistent EIFS cornice band on its
facility than the Boise facility. Integrating this into the downtown campus would be inappropriate other
than for use as an accent to highlight a section of the building (See images on page 41 showing examples
of appropriate locations for additional cornice depth in Boise). We would suggest the removal of the
images on page 41 of the Meridian and Magic Valley facilities for the above mentioned reason.
We believe sandstone is used on the Boise campus as an accent material and should be listed as an
appropriate material for new construction as well.
Page 39 discusses entrances and states that the entrances are protected from the elements however the
images shown minimally recess the entry doors and would not effectively protect pedestrians from the
weather. More effective images showing the weather protections provided would be appropriate.

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Though mentioned in the document and shown in images on page 40, the recessing of the windows from
the face of the brick to provide shadow lines and break up the building faade is very important and should
be highlighted and strongly encouraged in the text. The adjacent photo shows relief of the columns at the
lower levels where detailing can be seen by the pedestrian. This too should be emphasized to show the
quality and detailing that is part of the St. Lukes Boise campus history and should be carried on to future
buildings.
On page 40 under the heading of Flat Roofs and Parapets, it states there is usually a turn-down vertical
leg at the building corners. To ensure that anyone working on this project in the future is clear on the
meaning of this feature, it would be helpful to call it out more clearly through one of the images on page
41 either through discussion in the caption and/or an additional line drawing emphasizing the feature.
The mechanical grilles section should also discuss the appropriate location for the placement of the grilles.
The two images provided are excellent and show the grilles and mechanical equipment should be located
well above and way from the pedestrian spaces. This will all for comfort of the pedestrians while walking
along the buildings.
The canopy discussion on page 42 is interesting. The Boise facility uses canopies that are integrated into
the architecture and stretch out over the entry ways where the Magic Valley facility uses the stand alone
canopy for patient drop-off. Maintaining consistency with the Boise facility would be more appropriate
than introducing another element from a suburban facility.
The ornamental section shows two towers. The ornamental metal work is probably not on the Boise
campus whereas the image on the right hand side of page 42 is clearly a Boise example as it uses the brick,
cut away corners, reveals in the brick work with emphasis on proportions and the little bit of lighter color
material at the corner to emphasize the vertical. This should be continued on the Boise campus without
the integration of the metal ornamentation.
Other Issues/Questions

What is the long-term operating plan for Life Flite? How can noise impacts be minimized?
What is the plan for public art?
The short sustainability section could be expanded to include best practices related to landscaping,
stormwater treatment and other measures.
On Page 28, it would be helpful to pull the map legend off the map in order to show what happens east
of Avenue B.
Does the Master Plan contemplate expanding the implementing Health Services zoning district to any
other properties and/or are any amendments to the HS district standards needed?

There are a variety of questions and suggestions that do not fit neatly into broader categories. This is just a
listing of several thoughts that came to mind as PDS reviewed this Master Plan.

Page 7 of 7
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Public Comments Received
To date, PDS has received 35 written e-mails from the public, all of which are attached to this letter. All of
the comments discuss the proposed vacation of Jefferson Street. Some of the letters suggest that the
street should remain open by bridging it with the building, while other letters suggest that the hospital
expansion should occur to the south or east. None of the letters support closure of the street. The overriding sentiment expressed is that safe and convenient bicycle and pedestrian routes through the campus
are needed.
Other comments have mentioned concern about expansion of the Life Flite operation with increased noise
impacts on the East End, concern about encroachment of employee parking in the East End, concern about
how bicycles and pedestrians would maneuver through or cross a proposed roundabout on Fort Street,
and suggestions that St. Lukes should expand their Meridian facility rather than the Boise facility. One
commenter asked for an origin-destination study to show where their employees come from.
We will continue to forward public and agency comments to you as we receive them. Thank you for the
opportunity to comment on this initial draft.
Sincerely,

Hal Simmons
Planning Division Director
Attachments:
1. Index of Public Comments Received as of December 1, 2014
2. Public Comments Received as of December 1, 2014

Legal Notice of Public Hearing


Legal notice is hereby given that the BOISE CITY PLANNING & ZONING
COMMISSION will hold a public hearing on FEBRUARY 9, 2015 at 6:00 P.M. in
the BOISE CITY HALL COUNCIL CHAMBERS, 3RD FLOOR to hear the item(s)
described below. You are invited to attend the hearing and offer your comments
for consideration. Written testimony should be submitted at least 5 days prior to
the hearing. Your testimony should identify the file number.

CPA14-00004 / St. Lukes Health System/ St. Lukes Master Plan


Comprehensive Plan amendment to adopt by reference an update to the St.
Lukes Master Plan. A copy of the final draft master plan and supporting
documents is available on the Citys website at the following location:
http://pds.cityofboise.org/planning/st-lukes-master-plan/

Legal Notice of Public Hearing


Legal notice is hereby given that the BOISE CITY PLANNING & ZONING
COMMISSION will hold a public hearing on FEBRUARY 9, 2015 at 6:00 P.M. in
the BOISE CITY HALL COUNCIL CHAMBERS, 3RD FLOOR to hear the item(s)
described below. You are invited to attend the hearing and offer your comments
for consideration. Written testimony should be submitted at least 5 days prior to
the hearing. Your testimony should identify the file number.

CPA14-00004 / St. Lukes Health System/ St. Lukes Master Plan


Comprehensive Plan amendment to adopt by reference an update to the St.
Lukes Master Plan. A copy of the final draft master plan and supporting
documents is available on the Citys website at the following location:
http://pds.cityofboise.org/planning/st-lukes-master-plan/

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Any questions regarding this item


should be directed to
HAL SIMMONS at 384-3830 or at
hsimmons@cityofboise.org.

* The hearing begins promptly at 6:00 P.M. Items scheduled for hearing may be approved on a CONSENT AGENDA if there is no one present to express opposition at
6:00. Also, items may be heard in any order - not necessarily that listed on the agenda.

** If you have any questions or comments about traffic/transportation issues, you may call the Ada County Highway District at 387-6100.

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Any questions regarding this item


should be directed to
HAL SIMMONS at 384-3830 or at
hsimmons@cityofboise.org.

* The hearing begins promptly at 6:00 P.M. Items scheduled for hearing may be approved on a CONSENT AGENDA if there is no one present to express opposition at
6:00. Also, items may be heard in any order - not necessarily that listed on the agenda.

** If you have any questions or comments about traffic/transportation issues, you may call the Ada County Highway District at 387-6100.

POSTING LOCATIONS

NORTH

SITE POSTINGS-JANUARY 9, 2015

TYPICAL SITE POSTING

Planning Division Transmittal-St. Lukes Master Plan


File Number:

CPA14-00004

X-Ref:
Address:

ST. LUKE'S DOWNTOWN

Applicant:

ST. LUKE'S

Hearing Date:

FEBRUARY 9, 2015

Hearing Body:

Planning and Zoning Commission

Transmittal Date:

12/30/14

Submit comments at least 10 Calendar Days prior to the hearing date listed above so your comments can be
included in the project report. For Administrative Levels & Final Subdivision Plats, please comment within 7
Calendar Days of the transmittal date.

If responding by e-mail, please send comments to PDSTransmittals@cityofboise.org and put the file number in the
subject line.

Paper copies are available on request. Please call 384-3830 and have the file number available. If you encounter
problems with the electronic transmittals or want to provide feedback, please call 384-3830.

Boise City

Federal

Neighborhood Associations

Police

BLM

Barber Valley

Fire-Romeo Gervais

Fish & Wildlife Service

Boise Heights

Public Works

EPA

Borah

Public Works-Subs
Public Works-Solid Waste
Public Works-April Wing
Public Works-Jason Taylor

Army Corp of Engineers

Central Foothills

Schools
Boise School District

Central Rim

Meridian School District

Collister

Public Works-Jim Wyllie


Parks-Cheyne Weston
Forestry
City Clerk-Susan Churchman
Airport

Central Bench

Depot Bench

Sewer Districts
West Boise Sewer

Utilities

Downtown
East End
Glenwood Rim

Idaho Power

Highlands

Library-Kevin Booe

Century Link

Hillcrest

DFA-James Thomas

United Water

Lusk District

Parking Control

Chevron Pipeline

Maple Grove Franklin

Legal

Capitol Water Corporation

Morris Hill

PDS- Subs group

Cable One

PDS-GAP PlannerPDS-Building Dept


PDS-Noticing Copy

Intermountain Gas

Irrigation Districts

North End
North West
Pierce Park

Nampa & Meridian

Pioneer

New York Irrigation

Quail Ridge

ACHD

Boise City Canal

South Boise Village

Commissioners

Boise Valley

South East

Sheriff Dispatch

South Boise Water Co.

Stewart Gulch

Development Services-Mark Perfect

S. Boise Mutual Irrigation Co.

Sunrise Rim

Assessors Office-Dale Ann Barton

Bureau of Reclamation

Sunset

COMPASS-Carl Miller

Board of Control

SW Ada County Alliance

COMPASS-Eric Adolfson

Drainage District #

Veterans Park

Parks & Waterways-Pat Beale

Other

Vista

Ada County

Idaho State

Warm Springs Mesa

Miscellaneous

Transportation District III

Boise Postmaster

Division of Public Works

CCDC

Dept. of Water Resources

CDHD

Historical Society

Union Pacific Railroad

Fish & Game (Region III)

City of Garden City

Dept. of Lands

City of Meridian

Dept. of Parks & Recreation


DEQ

West Cloverdale
West Downtown
West Valley

City of Eagle
Harris Ranch Wildlife Mitigation
Valley Reg. Transit-Mary Barker
Other

West Bench

DBA

Winstead Park

December 30, 2014


Re: Request for Comment-CPA14-00004 (St. Lukes Master Plan)
To Whom It May Concern:
You are receiving this correspondence due to your role as a representative of a
neighborhood association, position with a public agency, or potential interest in planning
efforts associated with the St. Lukes Campus.
As you may be aware, St. Lukes has been working on an update to their master plan. This
document is adopted by reference in the Boise City Comprehensive Plan (Blueprint Boise),
and as a result, the changes require a Comprehensive Plan Amendment. This application
was submitted to Boise City on October 17, 2014 and underwent an initial 45-day public
review process. The draft master plan was modified by St. Lukes in response to comments
and a final draft plan has now been submitted for additional public review and public
hearing. A copy of the final revised draft master plan and supporting documents is available
on the Citys website at the following location:
http://pds.cityofboise.org/planning/st-lukes-master-plan/
This application has been scheduled for a public hearing by the Planning and Zoning
Commission on February 9, 2015.
Comments and questions should be directed to Hal Simmons at (208) 384-3830 or
Hsimmons@cityofbouse.org. Comments on the plan should be submitted no later
than 5:00 p.m. on January 30, 2015.
Sincerely,

Hal Simmons
Planning Director
Boise City Planning and Development Services

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Legend

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975

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121
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1305

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89
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1

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908

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5

700

NE

70
0

sR

690

N Mountain Cove Rd

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70
70 5 750
2

620

316

700

St

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2

8t

82
6

750

80 8
5 16

NC

CPA14-00004

500

408

! !

23
0

60
2

62
2

908 !

!! !
!!
!
!

800

!!

65
0

December 31, 2014

Jeff Hull
St. Lukes Health System
190 E. Bannock St.
Boise, ID 83712
hullj@slhs.org
(sent via email)
Re:

CPA14-00004 / 190 E. Bannock St.

Dear Mr. Hull:


Your application has been scheduled to be heard before the Boise City Planning and
Zoning Commission on Monday, February 9, 2015, at 6:00 P.M., Boise City Hall
Council Chambers on the third floor of City Hall. It will be necessary for you or your
designated representative to attend. Agency comments on your application will be
uploaded to PDS Online as they become available.
A project report will be ready for your review at PDS Online five (5) working days prior
to the hearing date at: www.cityofboise.org/pds/
The Ada County Highway District may also conduct public meetings regarding the
application. If you have questions about the traffic that this development may generate
or the impact of that traffic on streets in the area, please contact the Ada County
Highway District at (208) 387-6170. In order to expedite your request, please have
ready the file number indicated on this notice.
If you have any questions, please contact Hal Simmons in this department at
(208) 384-3853.
Sincerely,

Cody Riddle
Manager, Current Planning
Boise City Planning and Development Services
CR/wm
cc:
Gary Sorensen / Hummel Architects, PLLC / gsorensen@hummelarch.com (sent via email)
East End Neighborhood Association / Attn: Bob Bennett / boisecook@yahoo.com (sent via email)
North End Neighborhood Association / Attn: Derek Hurd / dhurd@gravitaslc.com (sent via email)
Downtown Boise Neighborhood Association / Attn: Tami Chafin / tamichafin@gmail.com (sent via email)

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