4-D-22-DT

Level III: Caldonia Pass - 200 Block Of Gay Street

Approve Subject To Conditions

APPROVE Certificate 4-D-22-DT, subject to the following conditions:1) Final site plan, including alley access, to meet City Engineering standards;2) Landscaping plan to be provided during permitting, meeting relevant standards of City zoning code and design guidelines;3) Canopy on Gay Street elevation of east building to meet relevant standards of City zoning code (10.3.F); 4) Signage to return to Design Review Board as a separate application;5) Final project to comply with TIF and/or all other applicable redevelopment agreements with the City of Knoxville.

Case File

Recommendation

Staff recommends approval of Certificate 4-D-22-DT, subject to the following conditions:
1) Final site plan, including alley access, to meet City Engineering standards;
2) Landscaping plan to be provided during permitting, meeting relevant standards of City zoning code and design guidelines;
3) Canopy on Gay Street elevation of east building to meet relevant standards of City zoning code (10.3.F);
4) Signage to return to Design Review Board as a separate application;
5) Final project to comply with TIF and/or all other applicable redevelopment agreements with the City of Knoxville.

Applicant Request

Level III: New construction

- SUMMARY: New construction project on a surface parking lot occupying the north side of the 200 block of Gay Street. The site measures approximately 180' wide along Gay Street, 150' along the north property line on W. Vine Avenue, and 150' along the south property line adjacent to Summit Hill Drive. The rear property line is adjacent to an alley, followed by the multi-story Crown Plaza Hotel.
- The project involves the construction of two buildings aligned horizontally along the lot, one fronting Gay Street (east) and one recessed along the rear (west) side of the property. The front (east) building is three stories tall, features two stories of commercial/retail and one third-story residential floor. The rear (west) building is seven stories tall, with one ground level of retail and six residential levels above. There is a shared courtyard between the two buildings, which will be accessible from the second story of the east building and the first story of the west building.
- SITE LAYOUT AND ACCESS: The east building is accessible via multiple pedestrian entries to the first story on Gay Street, multiple entrances to second-story retail off the courtyard, and via a public exterior stair along Vine Avenue. The courtyard is accessible via an exterior staircase to the south (off Summit Hill Drive) and one at the northeast corner of the east building. The west (rear) building features multiple pedestrian entries to the ground-floor retail space from the courtyard. The residential lobby is accessible via two sets of concrete steps off the south (Summit Hill Drive) elevation. A trash truck entrance is located on the rear of the west building, accessible off the alley.
- DESIGN ELEMENTS: EAST BUILDING
- The three-story, flat-roof building is clad in brick veneer, with metal panel elements in the central bays and along the third story. The design features horizontal bands of brick veneer, some with details of alternate coursing and patterned protruding bricks, between three stories of single-light storefront systems and aluminum-clad wood windows on the upper residential level. On the façade (east), six third-story window bays feature projecting balconies with perforated metal guardrails. Additional brick-clad vertical bands provide locations for signage between the retail bays. A flat, painted steel canopy extends across the central bays on the ground level. On the south (Summit Hill Drive) elevation, three stories of storefront glazing and brick veneer siding are topped by decorative metal panels along the roofline. This elevation provides space for the building name sign. The courtyard elevation continues the overall materials, with five storefronts for the second-story retail. The Vine Avenue (north) elevation features an exterior staircase accessing the courtyard from the lowest level, brick veneer siding, and storefront windows.
- DESIGN ELEMENTS: WEST BUILDING
- The seven-story, flat-roof building features two stories of brick veneer siding on the central massing, with additional exterior cladding materials of fiber cement panels decorative metal panels. On the façade (east elevation), the design features single-light aluminum-clad windows and five stories of balconies with glass guardrails. The leftmost and rightmost bays feature large swaths of full-height window systems, which wrap around the side elevations. On the north and south elevations, materials include fiber cement panels, brick veneer, metal panels, and storefront systems on the ground level. The alley elevation is primarily clad in fiber cement panels with irregularly spaced rectangular windows.
- Additional features include an outdoor courtyard at the southeast corner of the building (along Summit Hill Drive); landscaping planters at multiple locations, including the central courtyard; and flat-roof awnings extending over retail entrances.
- Mechanical equipment will be located on the rooftop of the east building, recessed from the roofline and clad in metal screening; and off the alley on the west building.

Property Notes / Work to be Completed

- 1. The property occupies a rare vacant lot (currently a surface parking area) on Gay Street, in the Downtown Grid subdistrict. The surrounding area is characterized by historic commercial development on the Gay Street blocks south of the subject property and along the 100 block of Gay Street. Immediately surrounding the property is the Country Music Park to the east, Summit Hill Drive to the south and northeast, and the multi-story Crown Plaza Hotel to the immediate west. The site slopes gently downward from the rear (west). Both buildings are accessible via multiple pedestrian entryways on Gay Street, along Summit Hill and Vine Avenue, and off the central courtyard.
- 2. The east building will continue the overall streetscape pattern of Gay Street, removing a void in favor of a mixed-use building set along the front property line. The proposed buildings meet the guidelines' recommendations for creating pedestrian-scale buildings at street level, especially for the three-story building fronting Gay Street. Both designs incorporate building materials, signs, awnings, and transparency "to reduce the mass of buildings as experienced at the street level." While the west (rear) building is taller in height than other buildings fronting Gay Street, it will serve as a transition toward the existing Crown Plaza Hotel to the west, the TVA buildings to the northwest, and the proposed multi-story Capitol Lofts project moving east/uphill on Vine Avenue.
- 3. Both designs successfully incorporate a recognizable base, middle, and top, and the overall scale of the larger building is broken up with horizontal and vertical material changes and projecting bays. Both buildings avoid blank walls along street-facing elevations, incorporating sufficient transparency on all elevations. The rear (west) elevation of the west building does demonstrate limited transparency; however, it fronts an alley and the central massing will be minimally visible from the public right-of-way.
- 4. The proposed materials relate to the "durability, color, and texture" of the predominate building materials in the area. Historic commercial buildings along Gay Street were typically constructed of masonry, and both buildings incorporate masonry veneer of different patterns and finishes to contribute visual interest.
- 5. The buildings are "visually interesting to invite exploration by pedestrians." The multiple commercial spaces on both buildings' lower levels facilitates a consistent rhythm of storefront windows and entries. The entrances are proportionate to the buildings' heights and widths, both on the elevation fronting Gay Street and those fronting the central courtyard. In general, the designs meet the guidelines for "architectural character."
- 6. On the east building, the mechanical equipment is located on the rooftop, recessed from the façade line and screened. On the west building, service utilities are located to the rear of the development and accessible from the alley.
- 7. An additional landscaping plan may be required during permitting, which should meet the intent of the design guidelines and City zoning standards. The signage package is intended to be submitted to the DRB for further review at a later date.

Applicable Guidelines

Downtown Design Guidelines

- B. Private Realm
- 1. Building Mass, Scale, and Form
- Building form should be consistent with the character of downtown as an urban setting and should reinforce the pedestrian activity at the street level. Creating pedestrian-scale buildings, especially at street level, can reduce the perceived mass of buildings. Historically, building technology limited height and subsequently created pedestrian-scaled buildings typically less than 10 stories. Building technology no longer limits the height of buildings, however, there is still a need for buildings that respond to pedestrians. The use of 'human-scale' design elements is necessary to accomplish this. Human-scale design elements are details and shapes that are sized to be proportional to the human body, such as upper-story setbacks, covered entries, and window size and placement.
- 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 large 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
- It is important to establish a strong relationship among buildings, sidewalks, and streets. This is typically accomplished through consistent setbacks that locate buildings on the same line.
- 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.
- 2c. Maintain sight lines to historic buildings that were originally located in an open setting, providing setbacks for new buildings next to historic structures in order to preserve views.
- 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.
- 3. Building Materials
- New building materials should relate to the scale, durability, color, and texture of the predominate building materials in the area.
- 3a. Use complimentary materials and elements, especially next to historic buildings.
- 4. Architectural Character
- Buildings should be visually interesting to invite exploration by pedestrians. A building should express human scale through materials and forms that were seen traditionally. This is important because buildings are experienced at close proximity by the pedestrian.
- 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
- Entrances and ground floor windows should foster pedestrian comfort, safety, and orientation. Not every building downtown needs to have the same window or entry designs; however, repeating the pattern of historic openings helps to reinforce the character of downtown, differentiating it from suburban areas.
- 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.
- 5f. Recess ground floor window frames and doors from the exterior building face to provide depth to the façade.
- 6. Residential Buildings
- Solely residential buildings, such as townhouses and apartment buildings, are rare in downtown Knoxville. Privacy and safety are concerns with residential units that meet the sidewalk. Mixed use buildings, with apartments above shops or offices, can avoid these challenges and add to downtown vitality.
- 6a. Elevate the first floor of townhouses and apartment buildings so that pedestrians cannot look directly into the residence from the street 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 as part of the design.
- 7d. Locate utility connections and service boxes on secondary walls.
- 7f. Screen dumpsters from view.