AGENDA #8
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Process for Developing a Design Workshop and Request for Proposals for Developing Town-Owned Downtown Parcels
DATE: October 10, 2001
This memorandum reviews goals for downtown development, proposes a process for conducting a Design Workshop, and suggests consideration of a Request for Proposals for Town Parking Lots 2 and 5. These suggestions are offered as requested by the Town Council at its August 29, 2001 work session. The process would be based on goals adopted by the Council and include the following steps:
· Contract for development of a visual modeling instrument
· Prepare and host a Design Workshop
· Develop and issue a Request for Proposals
Resolution A would re-affirm Council goals for downtown.
Resolution B would authorize a process as outlined in this memorandum for developing the Design Workshop and Request for Proposals.
The Council goal of encouraging new residential, office and retail development downtown, particularly on West Rosemary Street, dates to at least 1999 when the Downtown Small Area Plan, adopted in March 2000, was in draft form. This also was a Council goal established at the January 2000 Council retreat. Studies by a consultant hired by the Town, the University and UNC HealthCare examined several development options for Town- and University-owned properties in the downtown.
At a Council work session on April 30, 2001, UniDev, L.L.C., presented the results of the studies, which included a market feasibility analysis for developing subsidized housing units -–to be available to only Town, University or UNC HealthCare employees – as well as office and commercial space and parking.
On July 2, 2001, the Town Council reviewed a Planning staff report analyzing policy issues related to UniDev’s report. The Council scheduled an August 29 work session to review and discuss options. The report suggested as a possible next step that the Town prepare a Master Development Plan to help the Town, the University and UNC HealthCare reach a decision on the project.
At the August 29 work session, the Council indicated support for a process as outlined by Planning Director Roger Waldon in his memorandum of August 21, 2001 (please see Attachment 1). The memorandum suggested that the Council first adopt a statement of primary goals for downtown development, and then pursue the following steps:
· Secure direction from the University on the employer-employee concept.
· Commission the preparation of a visual modeling instrument.
· Convene a two- to three-day planning workshop that, using the modeling instrument, would address issues such as height and floor area ratio restrictions for downtown in general. The workshop also would articulate design and use objectives for Parking Lot 2 and Parking Lot 5.
· Issue a Request for Proposals for Town-owned lots, seeking private developers to partner with the Town for development of these sites.
Council discussions at the work session indicated reluctance to hire a consultant to develop a comprehensive master plan, because of the detail in which downtown has been studied in the past, and the potential high cost and lengthy process that would likely be involved. In an August 13, 2001 letter, Peter Batchelor of the N.C. State School of Design estimated the cost of a master plan to be between $50,000 and $100,000, and to take at least three months to complete following the selection of a consultant.
The Council requested a report providing options for developing a Design Workshop, followed by a Request for Proposals, including a schedule for the process and proposals for public involvement.
The attached resolution would establish a statement of Council goals to serve as the framework for the creation of a visual modeling instrument, input at the Design Workshop and the development of the Request for Proposals. We recommend that the goals statement be short and focused.
The list of goals in the resolution is suggested as a starting point for Council discussion. The list is based on the goals suggested in the August 21 memorandum (Attachment 1), which were derived from previous Council policy statements on downtown development, including the Downtown Small Area Plan.
The list includes goals relating to the provision of downtown housing and public parking, the development of Parking Lots 2 and 5 and other “opportunity areas,” and the enhancement of public spaces.
We propose a three-step process following the adoption of a statement of Council goals.
1. Commission a Visual Modeling Instrument
A key component leading to the Design Workshop would be the development of a visual modeling instrument to depict existing conditions and potential development scenarios for the downtown study area. Options include the construction of a physical model or the use of software applications. We believe this step could cost from $10,000 to $25,000, depending on the approach, and be pursued via a physical model or computer-generated model.
Physical Model
The use of a physical model would provide a three-dimensional environment that could be manipulated manually – by adding buildings, street trees, etc. – to demonstrate potential development scenarios. The model could be placed in a highly visible location, such as Town Hall or the Library, for viewing by the public before and after the Design Workshop.
However there are limitations. The model likely would be costly to construct and take considerable time to create.
Software Applications
Computer applications such as Adobe PhotoShop, AutoCAD and 3D Studio enable a user to create and alter images of downtown street scenes and propose potential scenarios such as moving buildings to the sidewalk edge, varying building heights and architecture, creating public spaces, altering street widths, adding street trees, and removing power lines.
We gathered information on the use of computer software in downtown visioning projects in Cary and San Carlos, Calif. We will display images from these projects during tonight’s meeting.
Cary Town Center Area Plan
The Town of Cary contracted with the Design Research Lab at the N.C. School of Design to produce visual depictions of potential future development of the downtown as a tool to demonstrate the effect of concepts in the Town Center Area Plan, including increased densities, streetscape improvements, and the placement of buildings at the sidewalk edge.
The $9,500 contract included the production of eight sets of images depicting existing and potential future conditions at various Town Center locations. The Design Research Laboratory produced the images based on input from the Town on issues such as desired building height, types of buildings, setbacks and streetscape improvements. The Town provided data such as existing lot lines, topography and hydrology to enable the design team, which also shot some aerial photographs of the area. The team started by sketching preliminary site plans for development that met Town standards, including parking, floor area ratios, and densities. The design team then created computer-generated images of potential future conditions based on the site plans.
The project was completed by the beginning of June 2001, roughly five months after the contract was signed in January.
San Carlos, Calif.
A seven-month, $125,000 San Carlos, Calif., study that produced downtown urban design guidelines included the use of interactive 3D imaging provided by DesignVIS, a Lafayette, La., firm that subcontracted with the Town’s consultant. The program was posted on the Internet, enabling users to view 360-degree images of existing conditions and the proposed street environment – including building height and scale and streetscape improvements.
The cost of producing a 3D computer-generated model would depend on the size of the study area due to the number of buildings needed to document. Producing a model focusing on four to six blocks and creating associated Internet applications could cost $20,000 to $25,000, though the cost could be higher or lower depending on the scope of services.
We seek the Council’s guidance on whether or not a model is desired, and if so, whether a physical model or computer model is preferred. We would contact possible contractors and suggest a specific product at a subsequent meeting.
2. Prepare and Host a Design Workshop
A Design Workshop would be structured to address the following issues for a specific portion of downtown:
· The appropriate mix of uses for specific sites in the study area;
· The level of development intensity desirable at key locations;
· The amount of public and private parking at key locations;
· The inclusion of public spaces;
· A graphic depiction of the scale, height and mass of the existing buildings and desired built environment for key properties;
· Visualization of desired building mass, height and other design elements for other Downtown Small Area Plan “opportunity areas;”
· An analysis of implications related to the implementation of the workshop plans, including zoning restrictions, floor area ratio standards, and Capital Improvements Program expenditures.
The workshop would serve as the basis for developing a Request for Proposals to develop Parking Lots 2 and 5, and as encouragement for private development of other downtown sites.
We would hire a facilitator for the workshop, which would take place over two weekends. Community outreach efforts in the weeks prior to the workshop would seek to increase public participation with emphasis on the presentation of development scenarios portrayed in the visual model.
The workshop would include a presentation of the images generated with the visual modeling instrument in order to illustrate the effects of varying factors such as building height and scale and setbacks. We would anticipate that the workshop be similar to the approach used in the 1999 design workshop for Lot 5 where design professionals, such as area architect volunteers, help incorporate input from participants to develop preferred development scenarios. The participants would be asked to address the Council’s adopted goals. The details of each weekend’s events would be determined with the help of the facilitator.
We propose that the first weekend would provide for community input on the desired built environment for downtown, addressing issues such as scale, building mass, setbacks and public spaces including parks. The day’s events could include a walking tour of the study area. The second week would focus on soliciting community input on the future use of Lots 2 and 5, and other areas identified in the Downtown Small Area Plan as “opportunity areas.”
The Planning Department would develop a web site as a means to encourage public participation by providing background material, updates on the process, images and graphics depicting the study area, and opportunities for feedback from the public.
Taking the output from the workshop and public comment, the Planning staff would write a summary document for the Council.
3. Develop and Issue a Request for Proposals
After Council consideration of materials from the Design Workshop and following Council guidance, staff would write a Request for Proposals for Parking Lots 2 and 5. It would be issued following Council approval. The Request for Proposals would reflect the Council’s desired plan for the two sites, specifying Council objectives for parking, public space, mix of uses, building scale, building height, setbacks, building materials, pedestrian and bike improvements, and other issues.
We estimate the project would cost $30,000 to $40,000, including contracts for producing a visual modeling instrument and hiring a workshop facilitator, workshop materials, purchasing software for graphics, and advertising for the workshop. We recommend that the funding for the project come from a transfer from fund balance.
SCHEDULE
October 10, 2001 Council adopts goals for the Design Workshop and Request for Proposals; and
Council adopts resolution to develop a Request for Proposals for Parking Lot 2 and Parking Lot 5
November 2001 Adopt budget amendment; commission a visual modeling instrument; contract with a workshop facilitator
December 2001 – Plan Design Workshop
February 2002
April 2002 Design Workshop (two weekends)
April – May 2002 Prepare written report
May 2002 Council considers report and authorizes preparation of Request for Proposals
June 2002 Council authorize issuance of Request for Proposals
RECOMMENDATION
We recommend the Council adopt the attached Resolutions A and B approving a statement of Council goals, and approving the process for developing a Design Workshop and Request for Proposals. Resolution B includes pursuing a specific proposal for Council’s consideration regarding a visual modeling instrument.
ATTACHMENTS
RESOLUTION A
A RESOLUTION ADOPTING GOALS FOR A DOWNTOWN DESIGN WORKSHOP (2001-10-10/R-8a)
WHEREAS, the Town Council has adopted a Downtown Small Area Plan as a component of the Town’s Comprehensive Plan identifying opportunity areas for downtown development; and has adopted a Comprehensive Plan with a strategy of developing employer-employee housing in the downtown;
WHEREAS, the Town Council has received a report from UniDev, L.L.C., consultants, and considered options for proceeding with a proposal to undertake employer-employee housing at selected locations in downtown;
WHEREAS, the Council desires to establish goals that will serve as the framework for community input at a Design Workshop to articulate design and use objectives for Parking Lots 2 and 5, and other potential locations identified as Opportunity Areas in the Downtown Small Area Plan;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council hereby adopts the following goals for this process:
· Increase the supply of downtown housing, at a range of prices;
· Identify appropriate sites for construction of an employer-employee housing development, office and retail space;
· Promote a higher/better use of Town-owned parcels now used for Parking Lots 2, 3 and 5, and UNC-owned parcels identified in the employer-employee housing concept;
· Provide sufficient downtown public parking;
· Stress the preservation of buildings identified in Preservation Areas in the Downtown Small Area Plan;
· Promote the redevelopment of selected privately owned parcels/areas included in the “opportunity areas” identified in the Downtown Small Area Plan;
· Identify the desired location of a downtown grocery integrated within a mixed-use development; and
· Enhance and expand public spaces, open spaces, and bicycle and pedestrian connections downtown.
This the 10th day of October, 2001.
RESOLUTION B
A RESOLUTION IMPLEMENTING A PROCESS FOR DEVELOPING A DOWNTOWN DESIGN WORKSHOP AND REQUEST FOR PROPOSALS (2001-10-10/R-8b)
WHEREAS, the Chapel Hill Town Council adopted a Downtown Small Area Plan on March 27, 2000; and
WHEREAS, the Downtown Small Area Plan identifies opportunity areas for development in downtown and recommends the Town develop a computer-aided visualization of the downtown area “for examining downtown issues, opportunities, problems and possibilities;” and
WHEREAS, the Town Council has received a report from UniDev, L.L.C. consultants and concerning a proposal to develop affordable housing, offices and retail on publicly-owned parcels downtown; and
WHEREAS, before moving forward on developing Town-owned properties downtown, the Council desires more input on design and use objectives such as provision of parking, appropriate mix of uses, public space, and building scale and height;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council authorizes proceeding with implementation of the process outlined in the October 10, 2001, memorandum for developing a Design Workshop and Request for Proposals.
BE IT FURTHER RESOLVED that the Council authorizes the Manager to pursue developing a specific proposal for Council’s consideration regarding a visual modeling instrument, including potential vendors, cost, and specific locations.
This the 10th day of October, 2001.