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HomeMy WebLinkAboutEX_31_J_Conditional_Use_Permit_Justification_240726_v1 STRIDEE Buss Rapidd Transit Southh Rentonn Transitt Centerr (SRTC)) Sitee Plann Review,, Conditionall Usee Permit,, Masterr Sitee Plann Review,, andd Lott Linee Adjustmentt Applicationn Attachmentt 77 Conditionall Usee Permitt Justificationn Julyy 20244 Preparedd byy thee Design Management Plan Sound Transit 1 South Renton Transit Center and Roadway Improvements Project Conditional Use Permit Justification The purpose of this document is to set forth procedures and criteria for reviewing Conditional Use Permit applications. Conditional Use Permits allow for review of certain uses with special characteristics that may not be appropriate within a zoning district but may be permitted subject to conditions and mitigation measures that protect public health, safety, and welfare and ensure compatibility with other uses in the district (Ord. 5965, 3-2-2020). 1. Consistency with plans and regulations: The proposed use shall be compatible with the general goals, objectives, policies, and standards of the Comprehensive Plan; the zoning regulations; and any other plans, programs, maps, or ordinances of the City. Consistency with the Renton Comprehensive Plan The site is zoned Commercial Arterial (CA), which allows the “transit center” use with an approved conditional use permit. In the Renton Comprehensive Plan, zoning regulations for the CA zone (Policy U- 17) is described as where a historical strip pattern dominates, characterized by large surface parking in front of buildings, long blocks oriented to automobiles, and an incomplete street grid” (City of Renton Comprehensive Plan). CA zoning should also be “located within one-quarter mile of transit, provide employment, and allow mixed-use development” (City of Renton Comprehensive Plan). In Renton Municipal Code (RMC) 4-2-020 (M) – COMMERCIAL ARTERIAL ZONE (CA), the purpose of the zone is to: “…evolve from “strip commercial” linear business districts to business areas characterized by enhanced site planning and pedestrian orientation, incorporating efficient parking lot design, coordinated access, amenities and boulevard treatment with greater densities. The CA Zone provides for a wide variety of retail sales, services, and other commercial activities along high-volume traffic corridors. Residential uses may be integrated into the zone through mixed-use buildings. The zone includes the designated Automall District.” This project complements CA zoning, in that it will evolve the use of the existing “strip commercial” environment to provide access to transit and welcome non-motorized modes by providing a transit center. The new bus bays will allow for an expanded transit service, which fosters employment opportunities, and increases commercial foot traffic in the area. The transit center also has the potential to attract transit-oriented developments in the vicinity, which would increase mixed-use buildings in the future. There are numerous goals and policies within the City of Renton Comprehensive Plan’s Transportation Element that are applicable to the project such as: Goal T-D: Reduce the number of trips made via single occupant vehicle. Policy T-1: Develop a connected network of transportation facilities where public streets are planned, designed, constructed, and maintained for safe convenient travel of all users – motor vehicle drivers as well as, pedestrians, bicyclists, and transit riders of all ages and abilities. 2 Policy T-18: Increase the person-carrying capacity of the Renton arterial system by encouraging modes that allow more people per vehicle and by discouraging single occupancy vehicle usage. Policy T-24: Enhance pedestrian and bicycle movement and safety by: 1) Providing adequate separation between non-motorized and motorized traffic; 2) Separating foot and bicycle traffic when possible, but giving preference to foot traffic when necessary; 3) Improving arterial intersection crossings for non-motorized users; 4) Minimizing obstructions and conflicts that restrict the movement of non-motorized users; and 5) Providing convenient access to all transit stops and transit centers. Policy T-25: Develop and designate appropriate pedestrian and bicycle commuter routes along minor arterial and collector arterial corridors. Policy T-26: Ensure provision of safe and convenient storage and parking facilities for bicyclists. Policy T-30: Work to improve the frequency and reliability of transit serving Renton’s Downtown and promote the Downtown Transit Center as part of a regional high capacity transit system. Policy T-31: Increase transit service and access in commercial and mixed use corridors and nodes. Policy T-32: Coordinate transit, bike, and pedestrian planning efforts and evaluate opportunities to leverage investments for the benefit of more users. Policy T-35: Allow park-and-ride facilities in appropriate locations subject to design considerations. Policy T-36: Invest in connection of non-motorized facilities across Renton. Provide improvements at intersections to improve safety and comfort of pedestrians and bicyclists. Policy T-37: Support transit agencies’ investment in transit service to Renton neighborhoods within and beyond Downtown. Policy T-39: Provide multimodal transportation improvements that support land use plans and are compatible with surrounding land uses. Policy T-41: Plan for land use densities and mixed-use development patterns that encourage walking, biking, and transit use in designated areas. Compliance with the Trails and Bicycle Master Plan SRTC and Roadway Improvements additionally helps the City of Renton meet the goals described in the City of Renton Trails and Bicycle Master Plan. The Trails and Bicycle Master Plan lays out the planning and goals for the City to guide its Trails and Bicycles system between 2019 and 2025 and identifies bicycling and pedestrian travel as an overall benefit to City residents and also as an increase to economic value within the City of Renton. SRTC will complement this Plan by increasing connectivity for bicycle and pedestrian travel to Bus Rapid Transit (BRT) as SRTC is located adjacent to proposed shared-use path routes on SW 7th Street and Hardie Avenue SW. SRTC will also provide safe and convenient storage and parking for non-motorized users, contributing to the goals and objectives of the Plan. 3 Selected goals and objectives that SRTC contributes to in the Trails and Bicycles Master Plan: • Goal A: Improving Safety o Objective A.4: Provide safe and convenient storage and parking facilities for non- motorized users. o Objective A.5: Promote design and maintenance practices that deter crime including appropriate visibility and comfort through lighting, proper placement of plantings, access control, and other techniques. • Goal B: Creating an accessible and connected system o Objective B.7: Coordinate with citywide planning efforts • Goal D: Achieving Equity o Objective D.5: Plan for land use densities and mixed-use development patterns that encourage walking, hiking, biking and other non-motorized uses and connectivity. o Objective D.6: Implement a multimodal level of service that maximizes mobility. • Goal E: Enhancing the economy and community o Objective E.1: Support and promote a non-motorized transportation culture to attract more businesses and residents. o Objective E.2: Leverage Renton’s position at the convergence of regional trails to promote the economic vitality of the city. o Objective E.4: Implement improvements to promote Renton as a walkable community. o Objective E.5: Provide secure bicycle parking at community destinations and incentivize provision of bicycle facilities in private development. Compliance with the Rainier/Grady Junction Transit Oriented Development (TOD) Subarea Plan The City of Renton Rainier/Grady Junction TOD Subarea Plan provides a vision and strategies to guide the future growth of Sound Transit’s expanded BRT line and SRTC. SRTC contributes to the four goals identified in the Subarea Plan: 1. Align with Overall Vision for Renton: Align with overall vision for Renton’s City Center area and support the unique role of the subarea in ways that are complementary to Downtown, the larger City Center area, and Renton as a whole. 2. Transition to Multimodal Center: Transition the area into a pedestrian-oriented district with a multi-modal center and strong pedestrian connections. 3. Create a Livable Neighborhood: Create a livable, distinct neighborhood that is active 18 hours a day, complements Downtown, and gracefully integrates with neighboring areas. 4. Catalyze Desired Changes: Leverage the recent and planned public investment in the area for the private investment to follow. SRTC demonstrates compliance with Goals 1 through 4 by supporting economic growth and multi-modal transportation within the City Center area, relocating the transit center to a more beneficial location of service to users, and creating the space for future TOD development. 2. Appropriate Location: The proposed location shall not result in the detrimental overconcentration of a particular use within the City or within the immediate area of the proposed use. The proposed location shall be suited for the proposed use. 4 The code does not define “detrimental,” “overconcentration,” or “immediate area.” When applying the ordinary accepted meaning of these terms,1 the proposal does not result in a “detrimental overconcentration” of transit facility uses within the City or within the “immediate area” of the proposed use. Within the City of Renton, there is only one existing transit center, located 1 mile away from this project, which is insufficient to serve the needs for future residents; per the City of Renton 2014 Comprehensive Plan, existing transportation facilities are reaching the end of their design life and a demand for alternatives to single-occupancy vehicles. The proposed SRTC would be unique to the area, would connect to the South Renton park-and-ride immediately to the east and to key bus corridors in the City Center area, and does not result in the detrimental overconcentration of a particular use. The SRTC addresses the gaps (and lack of concentration) of public transportation in the area. Additionally, in 2021, the City of Renton adopted the Rainier/Grady Junction TOD Subarea Plan to guide future development in the area and the expansion of BRT by Sound Transit. This plan describes the goals of the Rainier/Grady Junction TOD Subarea in transitioning into a district with enhanced multimodal access and pedestrian-oriented streets. The SRTC contributes to these goals by increasing the accessibility of transit to users and increasing the quality of service to the region. 3. Effect on Adjacent Properties: The proposed use at the proposed location shall not result in substantial or undue adverse effects on adjacent property. The CUP Approval criterion #3 asks about effects on “adjacent” properties. The code defines “adjacent” as “lots allocated across a street, railroad, or right-of-way, except limited access roads.”2 The code defines “street frontage” to include public or private right of way. In contrast, the code defines “abutting” as “lots” sharing one or more property lines or easements…” This response addresses both “adjacent” and “abutting” properties. The proposed SRTC will not generally result in substantial or undue adverse effects on the adjacent property because the SRTC and local roadways are designated “Commercial-Mixed Use” in the Comprehensive Plan. Adjacent properties and their current land uses in the Rainier/Grady Subarea Plan include Commercial, Car Dealership, and Public Facilities, Services, and Utilities. Adjacent properties to the SRTC site are zoned as CA. The current zoning of the SRTC site is CA. Rainier Avenue S (SR 167) is within Washington State Department of Transportation (WSDOT) ROW. SRTC substantively meets City of Renton Municipal Code in the CA zone. During construction, some properties adjacent to project components may be affected by temporary construction easements; however, existing land uses on these properties would remain. Other than these temporary uses during construction and the property being purchased for the SRTC, no other uses of land on adjacent properties would be altered by the project. Sound Transit has prepared a State Environmental Policy Act (SEPA) environmental checklist for the I-405 BRT project; based on the 1 RMC 4-5-060.A.3 (providing that Webster’s Third International Dictionary of the English Language, Unabridged, latest edition “shall be considered as providing ordinary accepted meanings” for undefined terms). 2 RMC 4-11-010. 5 checklist, technical reports and other information, Sound Transit has determined that the I-405 BRT project does not have a probable significant adverse impact on the environment. A Determination of Nonsignificance (DNS) was issued on September 30, 2020. Once the project is constructed, land uses adjacent to all of the project components would benefit from access to the BRT service that would provide increased regional mobility and improved transit speed and reliability. Neighboring properties are identified as auto showrooms and lots. The South Renton Park and Ride is to the east of the SRTC site, which integrates well with the project. Overall, properties to the immediate north, south, east, and west of the project also fall within the CA zone, which makes it compatible with surrounding uses. There are also currently no sensitive receptors such as residential homes, churches, schools, or recreational areas located immediately adjacent to the site. Below is a summary of current available transportation in the SRTC area and adjacent properties; there will not be substantive transportation impacts to these transportation routes as a result of SRTC: Current Transportation • North and west: Transportation (roadways)and commercial (auto dealerships and large-scale retail) • East: Transportation (roadways and existing park-and-ride lot) • South: Transportation (roadways) • [To comply with the code, the application materials should specifically identify the uses on the other side of the roadways] 4. Compatibility: The proposed use shall be compatible with the scale and character of the neighborhood. The code defines “neighborhood” as “a sub-area of the City in which the residents share a common identify focused on a school, park, community business center or other feature.”3 The code does not define “resident.” Webster’s Dictionary defines “resident” as “living in a place for some time.” This approval criterion is likely inapplicable as the use is not located within a “neighborhood” where residents live. If this criterion is applicable, the existing scale and character of the “neighborhood” could be described as commercial arterial. The proposed SRTC contributes to and is a key element of the City’s 2021 Rainier/Grady Junction TOD Subarea Plan and the City’s 2021-2026 Transportation Improvement Program (TIP). TIP #20-45, BRT Improvements would ensure speed and reliability of the BRT system into and out of the SRTC. The Subarea Plan aims to provide “[…] a vision and strategies to guide future growth and achieve a holistic, people-oriented neighborhood around Sound Transit's planned BRT line and transit center at the intersection of Rainier Ave S and S Grady Way.” The Subarea Plan strategies create a framework to facilitate mixed-use development, maximize multimodal transportation options, improve pedestrian connectivity, and integrate the subarea with adjacent areas by establishing a distinct neighborhood from Downtown but that is consistent with the goals of the City Center Community Plan. The Subarea Plan also identifies key opportunities associated with the proposed SRTC and increased levels of activity in the area that include establishment and support of a thriving business district, 3 RMC 4-11-140 (defining neighborhood). 6 creation of multimodal, mixed-use corridor streets, and strengthening of the area’s role as a regional jobs center. Sound Transit’s proposed SRTC and BRT projects are an essential part of the Subarea Plan in increasing multi-modal transportation, increasing activity in the area of Rainier/Grady junction, and increasing the connectivity of the Rainier/Grady junction and downtown Renton area. The SRTC substantively meets development standards for CA zone regulating bulk and scale; properties in the area are also in the CA zone, contributing to the cohesion of the SRTC in the CA zone. The immediate neighborhood surrounding the project site is rather industrial/commercial in nature with auto dealerships, large surface parking lots and big box retail. Some residential development is present approximately 0.50 miles away. The buildings are typically single/double story. The façade of the buildings is typically simple in nature, with a single-color scheme, along with big signage providing visibility to cars passing on the street. The addition of the project as a transit center would fit in with the scale and character of the area well. This is because transit centers often have single story operational facilities, bus bays with a cohesive color scheme, and require large surface lots to operate – all of which does not deviate from the existing neighborhood character and scale. Additionally, the Subarea Plan identifies an increase in residential and mixed-use development due to the SRTC and describes how the SRTC adheres to and enhances the land use strategy for the Rainier/Grady junction and TOD. The SRTC additionally complies with RMC commercial zoning development standards (RMC 4-2-120A) for minimum and maximum setbacks and conditions for modifications (See Attachment 5 Project Narrative and Code Review, Tables 4-1 and 4-2). The transit center also complies with RMC critical area regulations (RMC 4-3-050) for surface water by constructing a system of stormwater collection pipes and catch basins along Lake Avenue S and on the transit center site to collect stormwater and convey it to the detention system on-site, located north of S Grady Way and west of the driveway from S Grady Way. Along the site’s frontage along S Grady Way, a ditch will be constructed that will convey stormwater to the same detention system. The detention system will include vegetated bioretention facilities that will detain and filter the stormwater before conveying it off-site to the City of Renton’s existing piped storm drainage and conveyance systems (See Attachment 5 Project Narrative and Code Review, Table 4-4). Additionally, transportation facilities currently exist in the commercial center and contribute to the current and future character of the neighborhood. Immediately adjacent to the east of the proposed SRTC site, there is an existing South Renton Park-and-Ride that is owned by WSDOT and served by transit, currently Sound Transit Routes 560 and 566 and King County Metro buses, including RapidRide F Line and routes 101, 102, 148, 153, 167, and 169. 5. Parking: Adequate parking is, or will be made, available. The proposal provides adequate parking as demonstrated in the Traffic Impacts Assessment and Addendum (Attachment 36a though 36c). While Renton’s Development Regulations do not include a specific number of parking spaces for transit centers, the southwest corner of the site will be a 158-stall surface parking lot for transit center users. 6. Traffic: The use shall ensure safe movement for vehicles and pedestrians and shall mitigate potential effects on the surrounding area. The proposal ensures safe movement for vehicles and pedestrians and mitigates potential effects on the surrounding areas. 7 During Construction: No full street closures are planned during construction. To minimize the disruption to the traveling public, lane closures for construction staging activity may be limited to nighttime, weekend, and off-peak travel hours. Traffic control plans and detours for vehicular, transit, or nonmotorized traffic could also be required. Any necessary transit detours would be coordinated with the transit agencies. Potential construction during evening/nighttime hours would likely require lighting (including flashing lights) and would be required for the safety of construction workers and the traveling public. After Construction (Pedestrians/Bicyclists): Existing, new, and reconstructed sidewalks would provide safe movement of pedestrians and cyclists in and out of the SRTC. Pedestrian access to the transit center site would be from the existing and reconstructed sidewalks along Rainier Avenue S and S Grady Way. A new sidewalk would be constructed along the eastern side of the transit center, along the frontage of Lake Avenue S. Pedestrian sidewalks would also be constructed within the transit center site along the north and south sides of the bus loop, from Rainier Avenue S, and crosswalks will be provided between the sidewalks and walkways to the transit center islands Lights would also be used to illuminate the site following Crime Prevention through Environmental Design standards to help create a safer environment. To create safer access for cyclists, the S Grady Way existing sidewalk will be converted into a shared-use path, and a second shared-use path will be constructed along the north property line. A cycle track will be constructed along Lake Avenue S to connect this new shared-use path with an existing cycle track on Shattuck Avenue S. Bicycle racks and lockers will be provided along Rainier Avenue S. After Construction (Vehicles): Project-related changes to Rainier Avenue S would have a positive influence on overall safety in the station area. The implementation of a new traffic signal at the intersection of Rainier Avenue S and Hardie Avenue SW would add greater access control to the corridor and effectively manage turning movements into and out of the SRTC. This signal would also benefit pedestrians as four new crosswalks would be provided at this location, thus facilitating critical access opportunities (especially across Rainier Avenue S) for transit center patrons. Signal timing improvements would be made to all signals along Rainier Avenue S, including adding traffic signal priority to the traffic signal owned by the City at the intersection of S Grady Way and southbound SR 167. 7. Noise, Light, and Glare: Potential noise, light and glare impacts from the proposed use shall be evaluated and mitigated. The 2020 Bus Rapid Transit I-405 Corridor Noise and Vibration Technical Memorandum provides an assessment of the potential noise and vibration of the I-405 BRT project, including the SRTC, on existing noise-sensitive land uses. Prior to construction, the contractor would develop a Noise Control Plan demonstrating how the local noise limits can be achieved. Construction equipment will generate noise during the day and night. None of the noises generated on the completed facility will exceed the City of Renton’s maximum permissible sound level for the site’s zoning or that of nearby receiving sites. The project will adhere to maximum environmental noise level regulations in RMC 8-7-2, which adopts WAC 173-60-020, 173-60-040, 173-60-050, and 173-60-090. If construction noise is anticipated to exceed the maximum environmental noise levels per the WAC 173-60, Sound Transit will apply for a noise variance to per RMC 8-7-8. During operations, typical noise from buses entering and leaving the transit center or traveling in the bus-only lanes would include noise from tires, propulsion motors, and other auxiliary equipment on the vehicles, which is predicted to be a 24-hour day/night level (Ldn) of 57 dBA at 1 S Grady Way, the nearest noise-sensitive receiver. This is well below the existing measured noise level of an Ldn of 72 dBA 8 and would not exceed the Federal Transportation Administration Ldn noise impact criteria (66 dBA for a moderate impact and 72 dBA for a severe impact). Roadway improvements at the SRTC would not increase capacity or substantially change the vertical or horizontal roadway alignment. The improvements would result in minimal to no change to overall traffic volumes on the roadway; therefore, no change to the overall traffic noise levels is expected. Luminaires will provide lighting throughout the site with 25-foot mounting heights, which will be installed according to guidelines in RMC 4-4-075. There would be a slight increase in visible artificial lighting where lights would be used to safely illuminate the walkways and parking areas; the transit center island; and the potentially illuminated BRT-branded pylon. Lights would also be used to illuminate the site following Crime Prevention Through Environmental Design standards to help create a safer environment. This increased lighting would occur in low levels of natural light and in the evening and night but would not be expected to noticeably increase lighting levels in the surrounding area. These lighting levels would comply with the requirements of ST’s Design Criteria Manual, which includes a requirement to eliminate light trespass onto nearby windows and adjacent properties. In addition, the project would comply with ST’s Design Criteria Manual requirement to provide street and highway lighting that conforms to the criteria and standards of the city. Lights used for potential night-time construction would be directed inward toward the sites and away from adjacent uses, including residential areas. Several design features and actions would be incorporated into the design of each project component, including the following: • Direct lighting for the surface parking, bus loop, and pedestrian walkways downward to avoid light spilling into adjacent areas and shield exterior lighting to ensure that light sources do not shine directly toward off-site areas. • Use materials with low sheen and non-reflective treatments. • Where applicable, add small trees, shrubs, and other vegetation to provide a visual screen for adjacent neighbors. • Since there would be no adverse light or glare impacts from construction or operation of the project components, no mitigation measures are proposed. 8. Landscaping: Landscaping shall be provided in all areas not occupied by buildings, paving, or critical areas. Additional landscaping may be required to buffer adjacent properties from potentially adverse effects of the proposed use. The proposal includes general and detailed landscaping plans as set forth in RMC 4-4-070 and 4-8-120. Per the attached Landscape Plans, any area not occupied by buildings, paving, critical area, or restricted via easement would be landscaped. Per the SEPA environmental checklist and Determination of Nonsignificance (DNS) for the Project, no adverse effects of the use on adjacent properties would occur; therefore, additional landscape buffering for adjacent properties is not proposed beyond the landscaping requirements set forth in RMC 4-2-120A and 4-4-070 for the CA zoning designation. 9. Specific Requirements for Kennels and Pet Day Cares: In addition to the criteria above, the following criteria shall also be considered for kennel and pet day care applications: N/A. This project will not provide Kennel or pet day care housing or facilities. 9 10. Specific Requirements for Secure Community Transition Facilities (SCTF), Crisis Diversion Facilities (CDF) and Crisis Diversion Interim Service Facilities (CDIS): In addition to the criteria in subsections D1 through D8 of this Section, the following criteria shall be considered for secure community transition facilities, crisis diversion facilities, and interim service facilities: N/A. This project will not provide SCTF facilities to the public. 11. Specific Requirements for Live-Work Units: In addition to the criteria in subsections D1 through D8 of this Section and the development standards of the zone where the unit(s) is proposed, the following criteria shall be considered: N/A. This project will not provide live-work units.