Level III: Old City Garage & Apartments
12-B-24-DT
Approve Subject To Conditions
Recommendation
Staff recommends approval of Certificate 12-B-24-DT, subject to the following conditions: 1) applicants to provide further information regarding siding or transparency on ground-level waste and utility area; 2) parking garage screening to be located on north and west elevations; 3) final site plan and parking garage to meet City Engineering standards; 4) final elevation drawings to meet relevant standards of City Zoning code, including Article 5.4; 5) signage to return to the DRB as a separate application.Applicant Request
Level III: New primary structure- SUMMARY: Proposed new, six-story, mixed-use building (five stories of residential apartments above one story of commercial/retail use) and proposed six-story board-formed concrete structured parking garage. The mixed-use building fronts E. Jackson Ave, measuring 206'-4" wide by 38'-5" deep, with side entries fronting Morgan Street. The parking garage is located to the rear (north) of the parcel, measuring 206'-4" wide by 122' deep.
- SITE LAYOUT AND ACCESS: On Jackson Avenue, the garage is accessed via a two-lane parking garage entry in the second bay of the façade, and a two-lane garage entry on the Morgan Street elevation on the rightmost bay (towards the north). There are two pedestrian entries to the ground-level retail space on the Jackson Avenue elevation, a second retail access on the Morgan Street elevation, a resident lobby entrance on the Morgan Street elevation, and a secondary access to the parking garage on the rear elevation.
- DESIGN ELEMENTS: the mixed-use massing fronting E. Jackson Avenue is clad in brown brick veneer on the first four stories, with aluminum ribbed panel siding on the upper two stories. A vertical massing of dark gray fiber cement or metal panels extends from the ground floor to the roofline on the central bay. Two 2- or 3-story bays of recessed balconies are located on the façade's upper levels. The ground level features multiple bays of full-light storefront windows with full-light storefront entry systems to both retail spaces.
- On the Morgan Street elevation, the mixed-use building's design elements wrap around for four bays followed by a concrete massing serving as the parking garage stairwell. On the ground level, there are two bays of full-light storefront entries followed by a storefront system for the resident lobby, and the second parking garage entry. The garage is screened by perforated ribbed copper screening on the upper levels; the screening extends to the rear (north) elevation for one bay, then the north elevation is exposed formed concrete.
- The west elevation features the exposed formed concrete garage and stairwell massing, followed by the brick veneer and metal paneling of the mixed-use building towards the street.
- Mechanical, electrical, and waste functions are located on the southwest corner of the building.
Property Notes / Work to be Completed
- 1. SITE: the building is proposed for two rectangular parcels which have served as surface parking lots or storage since at least the 1950s. The properties are zoned DK-W (Warehouse district, "characterized by a mix of retail and warehouse/industrial uses in historically significant structures," with "standards intended to reinforce the existing built character of the subdistrict"). The block is characterized by 2- to 3-story brick masonry buildings which belong to the Southern Terminal and Warehouse Historic District. Two masonry buildings have been demolished in the last five years, creating gaps in the block, but the subject parcel has been vacant for decades. The parcels are outside of, but close to, the National Register Historic District.
- 2. PARKING: the application includes a six-story structured parking garage, with access off Jackson Avenue and Morgan Street. Guidelines recommend "consolidating curb-cuts and locating driveways near mid-block, when necessary," and prioritizing pedestrian safety. The project will replace the existing curb cut to the surface parking lot on Jackson Avenue, with an additional along Morgan Street. Additional information may be required by City Engineering related to any potential sight distance issues for cars exiting the garage and pedestrian safety measures on the sidewalk crossings.
- Guidelines recommend locating parking garages under structures, or providing for retail, residential, or office uses that line the garage, and avoiding parking garages that contain blank walls. The Morgan Street elevation has been revised since the DRB workshop to incorporate additional storefront space and the apartment lobby on the ground floor, along with screening on the Morgan Street elevation.
- 3. MASSING AND SCALE: guidelines recommend maintaining a pedestrian-scaled environment from block to block, along with dividing buildings into "modules" similar in scale to traditional downtown buildings with a recognizable base, middle, and top. The massing fronting Jackson Avenue is taller than the 1- and 2-story buildings to the west, but could act as a transition to the taller buildings associated with the stadium development on the other side of James White Parkway. The top, middle, and bottom is achieved via a series of storefront entries at ground level, a brick-clad middle, and the top two stories clad in metal siding with a parapet.
- 4. PEDESTRIAN EXPERIENCE: guidelines encourage incorporating first-floor uses that are open to pedestrians and draw walk-in traffic. The project includes public spaces along E. Jackson Avenue, along with storefront systems and a lobby entry for the apartments along Morgan Street. Guidelines also recommend using building materials and entries at a human scale to create an engaging experience, avoiding blank walls along street-facing elevations, and using a "consistent rhythm of entrances and windows."
- The primary elevation on Jackson Avenue avoids blank walls via a series of storefront windows and entry systems. The leftmost bay appears to be enclosed with siding to screen the interior waste area. The enclosed section does not detract from the overall rhythm, but the Board may choose to discuss the non-transparent section.
- On Morgan Street, the elevation addresses the street via multiple bays of storefront windows and an addition section of storefront system windows adjacent to the resident lobby. The ground-level programming on Morgan Street has been increased since the workshop, though the stairwell bay does feature a large blank wall massing.
- 5. MATERIALS: guidelines recommend the use of building materials that "relate to the scale, durability, color, and texture of the predominate building materials in the area." The surrounding area is characterized largely by brick masonry structures. The proposed four stories of brick cladding aligns the proposed building with the context, using a lighter material for the two upper stories, which sufficiently reduces the visual effect of the additional height.
- In the opinion of staff, the proposed parking garage screening will complement the proposed building and the surrounding context. Due to the building's height, the railroad to the rear, and the adjoining vacant lot, the north and west elevations will be largely visible from the right-of-way. Incorporating screening on all elevations of the parking garage would greatly reduce the garage's visual effect.
- Guidelines note that all windows at the ground level should be clear glass. The waste and electrical/utility area on the building's southwest corner, including one bay fronting Jackson Avenue, may require opaque glass if the bay is open; the applicant should provide additional details on the leftmost bay.
- 6. MECHANICAL: the floor plans indicate mechanical and service utilities are located interior to the building, at the southwest corner along Jackson Avenue. The guidelines discourage locating units on primary facades, and recommend reducing visual impacts of trash storage and service areas by placing them at the rear of a building or off an alley, when possible. The applicant should provide further information regarding the placement of the service utilities at the front of the building. Due to the currently proposed siding enclosure, the service utilities would not be visible.
- 7. SIGNS: the signs depicted on the elevation drawings do not contain sufficient information for Board review at this time; a separate signage application should be submitted to the DRB for further review.
- 8. Drawings note that "all graphics are preliminary and the design is subject to change." Major modifications would require further design review by the DRB.
Applicable Guidelines
Downtown Design Guidelines
See Guidelines- A. Public Realm
- 1. Pedestrian and Bicycle Safety
- 1g. Consolidate curb-cuts and locate driveways near mid-block, when necessary; alley access should be provided for service and parking, if feasible.
- 3. Parking Facilities
- 3a. Create parking garages that do not contain blank walls. Allow for future commercial uses that may not be feasible at the time of construction.
- 3b. Locate parking garages under structures, or provide for retail, residential or office uses that line the garage. Corner locations are preferable for commercial uses.
- 3g. Access to parking garages should not limit options for future development of contiguous or adjoining space, especially on corners.
- 4. Downtown Beautification
- 4a. Foster downtown beautification with landscaping and plantings, public art, and public open space.
- 4c. Plant street trees where possible. Choose tree planting locations that will not significantly alter the setting of or harm the materials of historic buildings.
- B. Private Realm
- 1. Building Mass, Scale and Form
- 1a. Maintain a pedestrian-scaled environment from block to block.
- 1b. Foster air circulation and sunlight penetration around new buildings. Buildings may be designed with open space, as allowed under existing DK zoning; or buildings may be 'stepped back' on upper floors with lower floors meeting the sidewalk edge.
- 1c. Use building materials, cornice lines, signs, and awnings of a human scale in order to reduce the mass of buildings as experienced at the street level.
- 1d. Divide larger buildings into 'modules' that are similar in scale to traditional downtown buildings. Buildings should be designed with a recognizable base, middle, and top on all exposed elevations.
- 1e. Avoid blank walls along street-facing elevations.
- 2. Building Location
- 2a. Set buildings back five feet in order to provide wider sidewalk space when new construction in non-historic areas is to be more than half the length of the block.
- 2b. Consider using landscape elements to define the sidewalk edge where a building is to be set back from the sidewalk.
- 2d. Limit grade separations above or below the sidewalk, generally no more than 3 feet. Allow for clear sightlines into and out of buildings and plazas.
- 2e. Design private plazas to be pedestrian-friendly. Provide human-scale amenities and include landscaping.
- 3. Building Materials
- 3a. Use complimentary materials and elements, especially next to historic buildings.
- 4. Architectural Character
- 4a. Encourage first floor uses that draw walk-in traffic; businesses that do not require pedestrian traffic should be located on other floors.
- 4b. Enhance pedestrian interest in commercial and office buildings by creating a largely transparent and consistent rhythm of entrances and windows.
- 4c. Scale first floor signs to pedestrians.
- 4d. Differentiate the architectural features of ground floors from upper floors with traditional considerations such as show-windows, transoms, friezes, and sign boards.
- 4e. Design top floors to enhance the skyline of the block through cornices and details that are harmonious with adjacent architecture. 4f. Encourage the use of 'green roofs' and other sustainable practices, while minimizing the visual impact from the street.
- 5. Ground Floor Doors and Windows
- 5a. Use consistent rhythm of openings, windows, doorways, and entries.
- 5b. Orient primary front entrances to the main street; secondary entrances should be clearly defined and oriented to streets or alleys, as appropriate.
- 5c. Design entrances according to the proportions of the building's height and width.
- 5d. Consider corner entrances at the ends of blocks.
- 5e. All windows at the pedestrian level should be clear
- 5f. Recess ground floor window frames and doors from the exterior building face to provide depth to the facade.
- 6. Residential Buildings
- 6a. Elevate the first floor of townhouses and apartment buildings so that pedestrians cannot look directly into the residence from the sidewalk level.
- 6b. Design entrances to residential buildings so that access is separated from pedestrian flow on the sidewalk.
- 6c. Encourage the development of mixed-use buildings with apartments over lower story commercial uses.
- 7. Mechanical Equipment and Service Utilities
- 7a. Minimize the visual impact of mechanical equipment through screens or recessed/ low-profile equipment.
- 7b. Do not locate units on a primary façade.
- 7c. Screen rooftop vents, heating/ cooling units and related utilities with parapet walls or other screens. Consider sound-buffering of the units as part of the design.
- 7d. Locate utility connections and service boxes on secondary walls.
- 7e. Reduce the visual impacts of trash storage and service areas by locating them at the rear of a building or off an alley, when possible.
- 7f. Screen dumpsters from view.
- 7g. Locate satellite dishes out of public view, where possible.
- 7h. Allow solar panels and other technological advances on rooftops and other unobtrusive locations. Solar panels should not be considered on the elevations of historic buildings.
- New Construction Within or Adjacent to An Historic District or Building
- 10a. Maintain the setback of adjacent historic buildings. The height of the lower stories should be similar to adjacent historic buildings. Upper floors may be 'stepped back' behind the front facade.
- 10b. Duplicate the horizontal floor divisions of existing buildings.
- 10c. Design windows to be of similar proportions to the adjacent historic building windows.
- 10d. Use ornamental stone, brick work, and trim appropriate to the style of the infill building.
- 10e. Recognize the belt courses, strong courses, cornices, and other elements of adjacent buildings.
- 10f. Incorporate storefronts that complement the openness, bulkheads, and transoms of historic buildings.
- Jackson Avenue area from Gay Street east to Hall of Fame Drive:
- This area is composed of masonry buildings ranging in height from one to five stories, with varying street frontages, giving a physical manifestation of the warehousing character that developed in this section of Knoxville. There are a number of vacant parcels in this section, as well, and redevelopment should recognize the masonry, storefront windows, and varying setbacks and ages of construction that make the area unique.
Old City Garage & Apartments
207 E. Jackson Ave.
DK-W (Downtown Knoxville, Warehouse)
Applicant / Owner
