Level III: Hill And Locust
4-D-24-DT
Approve Subject To Conditions
APPROVE Certificate 4-D-24-DT, subject to the following conditions: 1) Final site plan, pedestrian improvements, and parking garage to meet City Engineering standards;2) Final landscaping plan to meet standards of City zoning code;3) Any mechanical equipment or service utilities not shown on plans to be placed on secondary elevations and receive screening as necessary;4) Signage to return to DRB as a separate application;5) Final material specifications for parking garage screening to be submitted to staff for review and approval.
Recommendation
Staff recommends approval of Certificate 4-D-24-DT, subject to the following conditions:1) Final site plan, pedestrian improvements, and parking garage to meet City Engineering standards;
2) Final landscaping plan to meet standards of City zoning code;
3) Any mechanical equipment or service utilities not shown on plans to be placed on secondary elevations and receive screening as necessary;
4) Signage to return to DRB as a separate application;
5) Final material specifications for parking garage screening to be submitted to staff for review.
Applicant Request
Level III: New primary structure- SUMMARY: Proposed new 18-story residential construction (9-14 stories of residential apartments above 5 stories of structured parking on the rear massing). The building is proposed for an L-shaped site at the intersections of W. Hill Ave., Locust Street, and Front Ave., located immediately north of Neyland Drive and the river. The site is significantly sloped towards the south and the river. The building is L-shaped, with a 6-story massing fronting W. Hill. Ave and extending south along Locust Street, and the larger massing facing Front Ave.
- SITE LAYOUT AND ACCESS: The primary access point to the garage extends from W. Hill Ave via a two-way drive accessing the parking garage, along with ride-share spots, and short term spaces. A secondary access point is located to the west/southwest side of the garage, which will extend north off Front Ave and turn right into the parking garage. The primary pedestrian access fronts Hill Avenue at the northeast corner of the building.
- DESIGN ELEMENTS:
- The 7-story massing fronting Hill Avenue is clad in brick veneer, featuring vertical metal accents. As the building extends south along Locust Street, a central section (increasing in number of stories at grade, due to the slope) is clad in vertical-ribbed, prefinished metal panels. A flat-roof metal canopy extends around the first story at the corner of Hill Ave and Locust Street. On this section, the windows are evenly spaced and symmetrically arranged single-light storefront systems. Five full-light entry systems are spaced along the Locust Street elevation.
- The massing towards the river features a cast-in-place concrete parking garage clad in metal vertical fin screening. The residential section above the garage is C-shaped, surrounding an amenity level with a pool immediately above the garage, fronting the river. The residential section is proposed to be clad in hard-coat stucco and features single-light storefront windows, aluminum and glass balconies on all elevations.
- Floor plans show the mechanical, electrical, service, and trash functions located at the southwest corner.
Property Notes / Work to be Completed
- 1. SITE: the building is proposed for a series of adjacent vacant parcels, which have historically been cleared and used as occasional surface parking. Part of the building (the Hill Avenue massing) is zoned DK-G (Grid subdistrict), while the south massing is zoned DK-B (Boulevard subdistrict). The block on W. Hill Avenue contains an eclectic mix of significant historic houses, historic multi-family structures, and a contemporary multi-family building. The site is on the edge of downtown, fronting Neyland Drive and the riverfront, with the Maplehurst neighborhood to the west and the City-County Building to the east. The architectural context is varied in time period, detail, and scale.
- 2. PARKING: the application includes a 5-story structured parking garage, with access off Front Avenue and W. Hill Avenue. The primary garage access point is located on W. Hill Avenue, and will feature two separated lanes for vehicle ingress and egress. The revised application includes a secondary access point off Front Ave. The parking garage generate an increase in vehicle traffic for W. Hill Avenue and Front Ave. Guidelines recommend "consolidating curb-cuts and locating driveways near mid-block, when necessary," and prioritizing pedestrian safety. The access point on Hill Ave does meet the guidelines (consolidating the driveways into one curb cut) but additional information may be necessary for permitting related to mitigation of any potential sight distance issues for cars exiting the garage, pedestrian safety measures on the sidewalk on Hill Avenue, and any necessary safety measures for cars using Front Ave to access Locust or Neyland Drive. The final site plan and garage should meet City Engineering standards.
- 3. MASSING AND SCALE: guidelines state "building form should be consistent with the character of downtown as an urban environment and should reinforce the pedestrian activity at street level." Previous submissions separated the building into two large massings, one fronting Hill Avenue and running south along Locust Street, and one U-shaped massing fronting the river. Revisions for the June meeting incorporate variations in height, including new penthouse levels, to vertically break the large massing into what resembles five separate adjoining buildings. The stepbacks required by the zoning code (incorporated along Henley Street, Front Ave, and Locust Street) further contribute to this effect. The massing alongside Henley Street has been reduced in height.
- Viewing the massings horizontally, the south elevation was previously divided into two large sections of the parking garage and the residential massing. The parking garage has received substantial revisions since the initial application; revisions submitted for June incorporate vertical metal fins as screening for the parking garage. The vertical fins obscure the parking garage and are divided into two two-story sections, which further reduces the visual scale of the garage.
- The guidelines recommend dividing buildings into "modules" similar in scale to traditional downtown buildings with a recognizable base, middle, and top. The north massing fronting Hill Ave is similar in scale to adjacent buildings and other historic buildings downtown, using a largely transparent ground level separated from the residential upper levels. The incorporation of recessed penthouse levels serve to further divide the massings on the north, east, and south elevations into top, middle, and bottom sections.
- At previous meetings, the Board has extensively discussed the scale of the building's south massing in relation to the context of the area. The Boulevard District guidelines recommend "building forms that are complimentary to the mass of adjacent buildings." The building section along Hill Avenue is generally compatible in scale with the adjacent building, measuring one story taller. The buildings along Hill Avenue steps from six stories, to three stories, to two stories, to 1.5 stories. The broader context is varied in scale, including taller historic structures, surface parking lots, the Bank of America building, and the City-County Building. In the opinion of staff, the revised proposal is compatible with the context.
- 4. PEDESTRIAN EXPERIENCE: guidelines encourage maintaining a pedestrian-scaled environment from block to block, and encourage incorporating first-floor uses that are open to pedestrians and draw walk-in traffic. The project includes one café space on the first story of the Hill Avenue massing; there are no other public areas on the Locust St or Front Ave elevations. Revised drawings responding to the zoning code have incorporated five storefront entries along Locust Street. Guidelines also recommend using building materials and entries at a human scale to create an engaging pedestrian experience, avoiding blank walls along street-facing elevations, and using a "consistent rhythm of entrances and windows."
- At the April meeting, the Board discussed potential additional pedestrian engagement on the building's south elevation (facing Front Avenue). The DK Design Standards in the zoning code require a minimum transparency of 30%, measured between 2' and 10' in height, on ground floor front facades. For the May meeting, the applicant incorporated an additional open level of parking along Front Avenue to open to the street and meet transparency requirements. Revisions for the June meeting show the rightmost (southeast) section of the ground level along Front Avenue incorporating a series of storefront windows enclosing interior amenity space.
- The June revisions include additional landscaping detail, street trees, sidewalks, and information on a proposed crosswalk along Locust Street, along with a proposed multi-use path to connect to the existing pedestrian bridge. Coordination with the City of Knoxville will be necessary for additional off-site pedestrian improvements.
- 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 by a wide array of exterior materials, including contemporary and historic brick masonry, stucco, and wood siding, along with contemporary office buildings and parking structures. Overall, the proposed hard-coat stucco as a primary exterior material is compatible with the context. The massings on Locust St. and Hill are broken up via different siding, with brick veneer fronting Hill Avenue. The parking garage design has been further revised to include vertical metal fins as screening, along with vertical concrete columns and a section of storefront glass.
- 6. MECHANICAL: the floor plans indicate mechanical and service utilities to be located on secondary elevations. Any rooftop mechanical fixtures not depicted on plans or elevations should be set back from the roof edge and receive screening to meet the City zoning code.
- 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.
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.
- The Boulevard District:
- 2a. Design building entrances to be clearly oriented to the street.
- 2b. Encourage building forms that are complimentary to the mass of adjacent buildings.
- 2c. Design building elevations to compliment the buildings along the side or back streets when buildings are to face more than one street.
- 2d. Screen service facilities or incorporate them into the design of new buildings so that they are not obtrusive.
Meeting Date
June 20, 2024
Hill and Locust
W. Hill Ave.
DK (Downtown Knoxville)
Applicant
Brock Hudgins Architects Ben Hudgins
Owner Hill & Locust Partners, GP
