HomeMy WebLinkAbout1991-3384 Vacating ORDINANCE NO.
3384
0
AN ORDINANCE vacating alley right -of -way located in the block
bounded by South 10th Avenue, South llth Avenue,
West Walnut Street, and West Chestnut Avenue;
approving the proposal to construct a medical
office building, and approving an administrative
adjustment allowing lot coverage of 90 percent
with impervious surfaces, subject to all of the
conditions in the Hearing Examiner's Recommenda-
tion.
WHEREAS, St. Elizabeth Medical Center has filed a peti-
tion with the City Clerk requesting vacation of the
north /south alley located in the block bounded by South 10th
Avenue, South llth Avenue, West Walnut Street, and West Chest-
nut Avenue; and
WHEREAS, said petition was signed by the owners of more
than two thirds of the property abutting upon the part of such
alley sought to be vacated; and
WHEREAS, St. Elizabeth Medical Center further has re-
11/ quested approval to construct a medical office building of
approximately 32,500 feet along with an administrative adjust-
ment allowing lot coverage of 90 percent with impervious
surfaces, and
WHEREAS, after due and legal notice pursuant to RCW
Chapter 35.79, after a public hearing by the Hearing Examiner,
and after a public hearing by the City Council of the City of
Yakima, the City Council finds it is in the best interest of
the City that said petition to vacate said alley right -of -way
be granted, that said proposal to construct a medical office
building and approve an administrative adjustment should be
approved, subject to all of the conditions contained in the
Hearing Examiner's Recommendation found in Examiner No.
I91- 18 -27, City No. UAZO CL(3) #6 -91 and R/W VAC #3 -91, a copy
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t
[,i
of which is attached` hereto as Exhibit A and incorporated by
reference herein; now, therefore,
BE IT ORDAINED BY THE CITY OF YAKIMA:
Section 1. The Hearing Examiner's recommendation to
vacate a north /south alley located in the block bounded by
South 10th Avenue, South 11th Avenue, West Walnut Street, and
West Chestnut Avenue, is hereby affirmed, and said strip of
public alley right -of -way, as legally described below, shall
be vacated when the conditions set forth in Section 2 below
have been fully satisfied, to-wit.
That part of Block 392, Capitol
Addition to North Yakima, as re-
corded in Volume "A" of Plats, page
29, records of Yakima County, Wash-
ington, described as follows:
Beginning at the Northwest corner of
Lot 1 of said Block 392; thence
Southwesterly to the Northeast
corner of Lot 16 of said Block 392;
thence Southeasterly to the South-
east corner of Lot 9 of said Block
392; thence Northeasterly to the
Southwest corner of Lot 8 of said
Block 392, thence Northwesterly to
the point of beginning. (Yakima
County, State of Washington)
Section 2. This vacation is expressly made subject to
the following conditions:
1. Payment of Eighteen Thousand Dollars ($18,000.00) in
compensation to the City of Yakima by St. Eliza-
beth's Medical Center, before or contemporaneous
with execution by the City Council or an ordinance
vacating the alley right -of -way.
2. Relocation by the hospital, at its expense, of any
utilities located within the existing alley. The
City shall retain a 20 foot wide utility easement,
in the location of the existing alley. The easement
shall be prepared and recorded by the City.
3. The hospital shall obtain written permission from
any utility purveyor utilizing the easement prior to
any construction over the easement. Copies of the
agreements shall be provided to the City. Any
relocation of utilities in order to accommodate
construction shall be completed to City specifica-
tions at hospital expense with a new easement for
the relocated utility.
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O Section 3. The Hearing Examiner's Recommendation to
approve the proposal to construct a medical office building
with approximately 32,500 square feet is affirmed and ap-
proved, subject to the following conditions-
1. A final detailed site plan, for the properties that
are the subject of this application, which includes
the items shown on the original site plan, the
additions or modifications required by the City
Council, and demonstrating compliance with the Urban
Area Zoning Ordinance, shall be submitted to the
Planning Department prior to issuance of a certifi-
cate of zoning review or building permit, pursuant
to YMC 15.12.050. The plan is to include land-
scaping detail, signage, lighting, defined loading
and trash receptacle area, and pavement markings.
2. Provide a minimum total of at least 694 off - street
parking spaces serving both the hospital and the
medical office building, with 561 spaces allocated
to the hospital and 133 spaces allocated to the MOB.
The spaces shall be located as close as reasonably
practical to both facilities respectively.
3. Construct commercial driveway approaches for all new
curbcuts to both ends of the alley serving Lot G,
and the south ends of alleys accessing Lots C and G,
• unless the hospital decides to provide sole direct
access to these lots from the adjoining public
streets, in which case commercial driveway ap-
proaches will still be required.
4. The parking lot designs for Lots C and G shall
include measures to discourage traffic from entering
from or exiting to the north, perhaps with signs
and /or raised islands.
5. The curbcut on 11th accessing the parking lot imme-
diately north of the MOB requires a City Approach
Permit and a commercial driveway approach.
6. All parking lots shall be illuminated pursuant to
current City standards, with lights shaded to avoid
residential properties.
7. A new street light shall be installed on the south-
west corner of 10th Avenue and West Chestnut in
original tower.
8. A drainage plan prepared by a professional engineer
dealing with on -site storm waters must be submitted
to and approved by the City prior to construction.
Drywells must include oil and grease separators in
compliance with customary City standards.
9. The hospital shall construct a sidewalk on the north
side of Chestnut Avenue, between 9th Avenue and the
alley to the west, to match existing sidewalks.
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10. All landscaping shall be irrigated. References to
Standard A landscaping refer to a three foot plant-
111
ing strip rather than the normal ten foot wide
strip. Standard A and a low fence shall be utilized
on the entire MOB block (including former Lot 1).
Lot G1 (former Lot 2) shall utilize Standard C on
the north and south sides, and Standard A on the
east side. Lot C2 and C3 (former Lot 3) shall
utilize Standard A on all three sides, not including
the alley side.
11. All alleys not vacated shall be resurfaced and
suitable for commercial traffic.
12. Speed limit and caution signage shall be erected on
Chestnut and 10th Avenues, as determined by the
City.
13. All expenses for implementation of these conditions
shall be borne by the applicant.
Section 4. The Hearing Examiner's Recommendation to
approve an administrative adjustment allowing lot coverage of
90 percent with impervious surfaces, with the remainder to be
landscaped, applicable to all hospital property identified in
the June 1991 site plan is hereby affirmed and approved.
Section 5. The Yakima City Council hereby adopts find-
ings, conclusions, and recommendations pertaining to this
vacation, office building proposal, and administrative adjust-
ment and contained in the Hearing Examiner's Recommendation,
City No. UAZO CL(3) #6 -91 and R/W VAC #3 -91, Examiner No. 191-
18-27, a true copy of which is attached hereto as Exhibit A
and incorporated by reference herein.
Section 6. The City Clerk is hereby authorized and di-
rected to file a certified copy of this ordinance with the
Clerk of the Yakima County Board of County Commissioners and
the Yakima County Auditor.
Section 7. This ordinance shall be in full force and
effect 30 days after its passage, approval, and publication as
provided by law and by the City Charter, and this decision
shall be final and conclusive unless within 30 days from the
date of final action by the City Council an agreed party
obtains an appropriate Writ of Judicial Review from the Yakima
County Superior Court for the purpose of review of the action
taken.
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PASSED BY THE CITY COUNCIL, signed and approved this
• /3 day of , 1991.
Mayor
ATTEST:
A --0- - ) G of c_
City Clerk
Publication Date: O /�G/1`./
Effective Date / /s`, -9/
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Master Application by )
)
ST. ELIZABETH ) EXAMINER'S RECOMMENDATION
MEDICAL CENTER )
City No. UAZO CL(3) #6 -91
for Alley Vacation and ) and R/W VAC #3 -91
Class 3 Review of ) Examiner No. I91 -18 -27
Medical Office Building. )
The Examiner conducted a public hearing on June 19, 1991. The
staff report presented by Mr. Larry Lehman recommended approval of
the vacation of the alley right -of -way, and approval of the medical
office building subject to providing 671 off - street parking spaces
for both the hospital and the office building. Attorney James
Carmody represented the hospital. Sister Karen Dufault, architect
Tom Gross, and traffic consultant Claudia Scrivenich testified in
support of the proposal. Barbara Harris, an owner of property in
the neighborhood, testified that she could support the project only
if adequate parking was provided. The Examiner inspected the
property both before and after the hearing.
The record in this matter consists of the packet provided by
the Planning Department to the Examiner, the testimony and
documents received at the hearing, as well as the following
documents:
1. Letter from Attorney Carmody dated July 8, 1991, together
with attached parking studies for St. Mary Medical
Center, Mercy General Hospital, and St. Alphonsus
Hospital.
2. Undated letter from Paul and Barbara Harris received by
the Examiner July 8, 1991.
3. Draft Environmental Impact Statement for Yakima Valley
Memorial Hospital dated June 6, 1988.
The Memorial Hospital Environmental Impact Statement was
referred to briefly during the hearing itself with respect to
Memorial's utilization of a 2.4 parking spaces per bed ratio. The
Examiner agreed to accept the additional documents from Attorney
® EXAMINER'S RECOMMENDATION - 1
HEAR EXAMINER
FOR THE
CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
EXHIBIT A YAKIM 9 98907
(
H (50091 ) 248-0 248-0700 6
Carmody and Mrs. Harris, after the hearing, because of a desire to
comprehensively analyze the parking situation for purposes of •
review by the City Council. Both the hospital and Mrs. Harris
should have an opportunity to address the Council, if they wish, to
respond to this supplementation of the record.
SUMMARY OF RECOMMENDATION. The Examiner recommends approval
of the alley right -of -way vacation, subject to payment of
$18,000.00 compensation to the City.
The Examiner further recommends approval of the medical office
building subject to receipt of a revised site plan reflecting an
administrative adjustment allowing 90 percent lot coverage and
requiring additional parking.
Five hundred sixty -one spaces are required for the hospital,
and 133 additional spaces are required for the medical office
building, for a total of 694 spaces. This compares to the 607
spaces proposed by the applicant, leaving a deficit of 87 spaces.
Five hundred sixty -one spaces for the hospital treats the 511
spaces pre - existing all hospital expansion activities as sufficient
for the hospital, and adds the additional 50 spaces required for
the tower expansion. At the time of tower expansion approval in
1990, the hospital was adding a total of 107 spaces, and the
surplus of those spaces over the 50 additional are permitted for
use by the medical office building. The hospital is not required
to move any of the currently approximately 349 cars parking on the
street in the vicinity of the hospital to hospital parking lots.
The current site plan reflects 607 spaces. It is unclear,
with lot restriping and adjustments of lot coverage, how many
additional spaces can be picked up. In the event additional
property is required for parking, the review of that particular
property as a parking lot would be subject to the normal review
provisions of the zoning ordinance.
From the view of the site, the matters contained in the
official record, including the staff report, a review of both the
EXAMINER'S RECOMMENDATION - 2
HEARING EXAMINER
FOR THE
CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
• Yakima Urban Area Comprehensive Plan and the Yakima Urban Area
Zoning Ordinance, and from evidence received at the hearing, the
Examiner makes the following:
FINDINGS
1. Applicant. St. Elizabeth Medical Center.
2. Location. Vicinity of the southeast corner of South llth
and Walnut Avenues.
3. Application. Master application for vacation of alley
right -of -way and Class 3 review of medical office building as a use
ancillary to the hospital.
4. Proposed Use. Medical office building and parking.
5. Current Zoning and Land Use. The St. Elizabeth Medical
Center properties involved in this proposal, including parking, are
located between Walnut and Yakima Avenues, and 8th and llth
Avenues. They are zoned Professional Business (B -1). Land uses in
the immediate vicinity of the Medical Center include single - family
homes, apartments, nursing homes, funeral homes, churches, and
411 Adjacent Adjacent properties have the following characteristics:
Lot B & Site of Hospital
(between 8th & 10th Aves. & Walnut & Chestnut Aves.)
Location Zoning Existing Use
North (across Chestnut) R -3 Multi- Family
B -1 Hospital Parking
South (across Walnut) R -3 Single /Multi - Family &
Commercial
East (across 8th Ave.) R -3 Multi - Family Apartments
East (immediately adjacent) R -3 Single- Family Homes
West (across 10th Ave.) B -1 Hospital Parking
Lot F & Site of Proposed Medical Office Building
(between 10th & llth Aves. & between Chestnut & Walnut Aves.)
Location Zoning Existing Use
North (across Chestnut) B -1 Single - Family Residential
South (across Walnut) B -1 Single - Family /Nursing Home
East (across 9th Ave.) B -1 Hospital
West (across 10th Ave.) B -1 Single /Multi - Family, Church
& Professional Offices
EXAMINER'S RECOMMENDATION - 3
HEARING EXAMINER
FOR THE
Cr Y AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
Lot G (12 & 14 80. 10th Ave.)
Location Zoning Existing Use
North B -1 Multi- Family
South B -1 Single - Family
East (across 10th Ave.) B -1 Multi- Family & Hospital
Parking
West B -1 Single - Family
Lot C (12 & 14 So. 9th Ave.)
Location Zoning Exiting Use
North B -1 Funeral Home Parking
South B -1 Hospital
East (across 9th Ave.) R -3 Multi- Family & Nursing Home
West B -1 Hospital Parking &
Professional Offices
6. Project Description. The hospital wants to vacate the
north /south alley located in the block bounded by South 10th, South
llth, West Walnut, and Chestnut Avenues. Within that block they
want to build a 22,500 square foot two story medical office
building, plus an 10,000 square foot basement (per June 19 site •
plan). They also plan to expand two existing parking lots, and
redesign other existing parking to serve parking needs for both the
hospital and the medical office building (MOB herein).
The office building would have approximately 12,000 square
feet of office space on the first floor, approximately 10,500
square feet on the second floor, and approximately 10,000 square
feet of storage in the basement. (See "St. Elizabeth Medical
Office Building Project, May 1991" report prepared by CH2M Hill,
p.l. (1991 Report herein) and June 19, 1991 Site Plan.) Based upon
this report, the hospital plans to allocate 128 parking spaces to
the office building and 479 to the hospital, for a total of 607.
(1991 Report, supplemental narrative to application, p.3.)
The latest detailed site plan is dated June 19, 1991. It
shows 607 parking spaces, as does the prior site plan dated May 3,
1991. The difference between the two plans is that the latter
shows a driveway on llth Avenue, north of the MOB, providing
EXAMINER'S RECOMMENDATION - 4
HEARING EXAMINER
FOR THE
CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248-0706
• additional access to that parking lot.
Additional parking is obtained by expanding the parking
previously approved in 1990 for the hospital's tower or north wing
expansion. A house has been removed north of the proposed office
building, on the south part of what is now designated Lot F4. In
addition, a house will be removed at the southeast corner of what
is designated Lot Cl, directly north of the hospital. In addition,
ten foot wide parking stalls located in existing lots will be
restriped to nine feet, consistent with zoning ordinance width
requirements, creating additional spaces.
This recommendation deals first with the relatively
straightforward alley vacation, and then with the building and
parking issues.
VACATION OF ALLEY RIGHT -OF -WAY
7. Legal Description.
That part of Block 392, Capitol Addition to North Yakima,
as recorded in Volume "A" of Plats, page 29, records of
. Yakima County, Washington, described as follows:
Beginning at the Northwest corner of Lot 1 of said Block
392; thence Southwesterly to the Northeast corner of Lot
16 of said Block 392; thence Southeasterly to the
Southeast corner of Lot 9 of said Block 392; thence
Northeasterly to the Southwest corner of Lot 8 of said
Block 392; thence Northwesterly to the point of
beginning. (Yakima County, State of Washington)
8. Public Use of the Right-of-Way. The right -of -way is
currently developed with a paved asphalt surface. Public use of
the alley is primarily for access to Medical Center parking. A
number of underground and overhead utilities are located in the
right -of -way.
9. Criteria for Right -of -Way Vacation. City policy
identifies five criteria for consideration:
9.1 Public Benefit. All land on this block is owned by
the Medical Center. The alley is a barrier to efficient
utilization of the land. There is no public benefit in keeping the
alley.
• EXAMINER'S RECOMMENDATION - 5
HEARING EXAMINER
FOR THE
CRY AND COUNTY OF YAKIMA
POST OFFICE 80X 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
9.2 Denial of Access. Vacating the right -of -way does
not deny access to any property in the block.
9.3 Consistency with Transportation Plans. The Six -Year
Transportation Improvement Plan does not reflect any improvements
to the alley, nor street improvement projects for adjacent streets.
Vacation is consistent with City plans and policies.
9.4 Consistency with Existing and Anticipated
Development and Zoning. This area is zoned B -1 and generally
developed as a medical office area. The proposed redevelopment of
this block is consistent with the intent of this zone and the
actual development of the area. Vacation of the right -of -way
contributes to redevelopment of the property.
9.5 Relocation of Utilities. Existing public and
franchised utilities within the alley include sanitary sewer line,
irrigation line, and natural gas line. The proposed building will
be built over a portion of the alley, and all utilities will be
relocated with appropriate easements at the expense of the
hospital.
10. Compensation. The hospital hired appraiser Jim Haney to •
appraise the alley. He came up with an uncontested value of
$36,000.00. City Resolution No. D -5630 is consistent with state
law and requires compensation to the City at one -half the appraised
value, or in this instance $18,000.00. Compensation should be paid
prior to or contemporaneous with adoption by the City Council of an
ordinance vacating the alley.
11. Traffic Study. A traffic study was prepared by the
applicant at the request of the City, and with respect to the alley
vacation indicates that there are no problems with traffic or
circulation resulting from the vacation.
12. Vacation Appropriate. Vacation of the right -of -way is
appropriate.
CLASS 3 REVIEW
13. Yakima Urban Area Comprehensive Plan. Hospitals and
their ancillary uses are necessary community support facilities.
EXAMINER'S RECOMMENDATION - 6
HEARING EXAMINER
FOR THE
CRY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248-0706
With appropriate measures they are compatible with the intent of
• both the B -1 and adjacent R -3 zones. With the exception of
specific concerns about parking, this proposal is consistent with
the intent and objectives of the Yakima Urban Area Comprehensive
Plan.
The plan recognizes that a number of characteristics influence
compatibility, including traffic and citizen preference. The
primary concern is parking adequacy, and that will be reviewed
below under the more detailed provisions of the zoning ordinance.
In all other respects this project is compatible with the area.
The street system is adequate, the building is of a size and design
consistent with surrounding land uses, and the project will be
attractively landscaped.
14. Yakima Urban Area Zoning Ordinance. Hospitals and their
related activities are treated as a Class 3 use in the zoning
ordinance and processed under YMC Ch.15.15. Generally Class 3 uses
are not permitted unless compatible with the intent and character
of the zoning district and the objectives and development criteria
of the comprehensive plan. YMC 15.04.020(3).
The primary impacts of this project are related to traffic and
parking. Accordingly, the City required and the hospital had CH2M
Hill prepare a traffic study which reviewed circulation patterns
and parking requirements. In summary, the road network is adequate
but parking is controversial.
14.1 Street Impacts. The hospital's transportation study
indicates there will be a total of 620 one -way trips generated each
day by the MOB. This will not have any significant impact upon
arterials, nor will the level of service at nearby intersections be
substantially affected. However, the southbound traffic on 8th
Avenue, going through the intersection of 8th and Walnut, will drop
from a Level of Service C to a Level of Service D in 1995, with the
MOB. All other levels of service will remain the same, and for the
most part are Level of Service A. The only intersection with real
problems is South 8th and Walnut, and it is typically the traffic
on 8th trying to get through the intersection, or turning left onto
EXAMINER'S RECOMMENDATION - 7
HEARING EXAMINER
FOR THE
CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
Walnut in either direction, east or west, that has problems.
Eighth Avenue does not have much through traffic, and if there are •
significant delays trying to turn left onto Walnut, motorists will
find alternate routes.
14.2 Pedestrians. Sidewalks are already installed on all
of the streets in the project vicinity, except on the north side of
Chestnut between 9th Avenue and the alley to the west. The site
plan shows the sidewalk in this location, and although the
applicant may not have intended to build a sidewalk there, one
should be required. There are high pedestrian levels around the
hospital and it is appropriate, in order to facilitate pedestrian
safety, particularly for those hospital - related people using on-
street parking, to require the sidewalk be built. The
specifications of the sidewalk should be consistent with the other
sidewalks on the block.
14.3 Transit. The site plan reflects an existing transit
'stop on West Walnut on the south side of the hospital. A bus
turnout is not indicated on the site plan, but if the City Transit
Department determines one is required in the future, the hospital •
should be required to deed additional right -of -way to the City,
without compensation, for the stop. This is appropriate in order
to mitigate the parking situation and encourage safe utilization of
public transit. Furthermore, this requirement is consistent with
Condition 3C of the north wing building expansion decision dated
November 15, 1990.
14.4 Parking History. The hospital is in a rapid
expansion phase. This current application for an office building
comes on the heels of the Examiner's approval of the hospital's
tower or north wing expansion. That 48,000 square foot addition to
the existing hospital was approved on a Class 3 review in two
decisions by the Examiner, dealing separately with parking and the
building expansion, dated November 6 and November 15, 1990,
Examiner Nos. I90 -1 -68 and I90 -1 -69.
Prior to the tower addition, the hospital had 511 parking
spaces. This is based upon the hospital's detailed site plan dated
EXAMINER'S RECOMMENDATION - 8
HEARING EXAMINER
FOR THE
CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
ti
September 10, 1990, corrected to reflect 54 rather than 36 spaces
•
for Lot B5 immediately in front and north of the hospital, and
adding 15 spaces in the work area behind the hospital, on its
southwest corner.
Although not adding beds, the tower expansion adds 48,000
square feet to the existing hospital. One of the floors will be
utilized for a maternity ward, with utilization of the other two
floors not yet determined. The tower project contemplates future
demolition of the old nursing school, St. Elizabeth's Hall, located
on the north side of the hospital. That building has 30,028 square
feet, roughly equivalent to two of the three 16,000 square foot
floors being added to the hospital.
The hospital, Planning Department, and Examiner concurred
that 50 additional parking spaces are appropriate and should be
required for the tower addition, although the hospital at that time
received approval for 127 new parking spaces. (St. Elizabeth
Medical Center Transportation Study, September 1990, by CH2M Hill,
p.19 re St. Elizabeth's Hall square footage, St. Elizabeth Medical
Center Examiner's Decision No. 190 -1 -68, dated November 6, 1990 re
approval of new parking spaces for tower addition.) That decision
reflects total new spaces of 127. Subsequent analysis of materials
provided by the hospital consultant and of the site plans indicates
that number was incorrect. The lot directly north of the hospital,
bounded by 9th and Chestnut, was characterized as Lot 3 during the
tower expansion, and is now shown as Lots C2 and C3. Prior to the
tower expansion there were 18 existing spaces there. As part of
the tower proposal that lot was improved to include 33, thus
providing 15 new spaces. Those existing 18 spaces were mistakenly
included in the proposal, and should be subtracted from the 127
approved. There were actually 109 new spaces provided under the
tower project.
To summarize, pre -tower expansion there were 511 spaces.
With the tower 109 spaces were added, for a total, after the tower,
of 620 spaces. This is consistent with the 1991 Report by CH2M
Hill, which concludes that there are 620 spaces after the tower or
• EXAMINER'S RECOMMENDATION - 9
HEARING EXAMINER
FOR THE
CRY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248 -0706
north wing expansion. (See 1991 Report, Transportation Study,
p.18.)
Many of these spaces are not yet available because of
ongoing construction. The tower decisions did not determine the
adequacy of then existing hospital parking.
14.5 MOB Parking. As proposed, the office building will
have 22,500 square feet of office and 10,000 square feet of storage
space. It displaces approximately 91 parking spaces (1991 Report,
Transportation Study, p.28.)
The new site plan adds 41 spaces, and restriping adds 37
spaces. These are reflected in the total of 607 spaces shown on
the June 19, 1991, site plan (620 - 91 + 41 + 37 = 607).
The zoning ordinance requires one space for each 200
square feet of medical office space, plus one space for each 500
square feet of storage space. (YMC Ch.15.06, Table 6 -1.) Without
making adjustments for stairwells, elevators, restrooms, and
mechanical space, which do not generate a parking requirement, the
zoning ordinance requires 113 spaces for the offices, and 20 spaces
for the storage area, for a total of 133 (22,500 square feet •
divided by 200 and 10,000 square feet divided by 500). Mr.
Lehman's staff report calculated 120 spaces were required, based on
somewhat different figures. At that time he was working with
20,800 square feet of office space and 8,000 square feet of
storage. The hospital consultant calculated 125 spaces, using
30,500 gross square feet and 4.11 spaces per 1,000 square feet,
based upon the Institute of Transportation Engineers Parking
Generation, 2nd Edition. (1991 Report, Transportation Study,
p.25.)
Parking Generation at p.102 indicates that 4.11 spaces
are the average per 1,000 gross square feet of building area.
There is no indication of adjustments for storage or mechanical
areas. Gross square footage (GSF)is not defined in the book, and
presumably applies to the entire building. By comparison, gross
leasable area is defined, referring to that area actually leased to
the tenant, but is not used in calculating parking in this
EXAMINER'S RECOMMENDATION - 10 •
HEARING EXAMINER
FOR THE
CT' AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 913907
(509) 248 -0706
instance.
Utilizing 4.11 spaces per 1,000 gross square feet, a
32,500 square foot building requires 134 spaces. This is
consistent with our ordinance, which requires 133 spaces (prior to
deduction for mechanical space, etc).
Given the correlation between the two alternative
calculation approaches, and acknowledging the validity of the
comment in the ITE book that parking rates for medical office
buildings reflect higher parking usage than general offices
(Parking Generation, p.101), 133 spaces should be required. In the
event the building is a different size, the City's parking formula
should be used, without regard to the deduction for mechanical
space, etc.
14.6 Hospital Parking. Different approaches to the
parking yield different results. A comparison of these follow, and
conclude in a determination of required parking.
UAZO Analysis. This 214 bed hospital under the
zoning ordinance is required to have 1.5 parking spaces per bed.
• The tower addition is not' adding any beds at all, since the new
beds in the maternity ward will be moved from elsewhere in the
hospital. Under this analysis, the hospital would require 321
parking spaces and the new office building an additional 133, for
a total of 454 spaces. Before the hospital even added the tower
addition, it had 511 spaces, so arguably there was no need for
additional parking for either the tower or the MOB.
The inadequacy of the existing ordinance is
demonstrated by the hospital's own actions in adding parking in
conjunction with their tower expansion. Furthermore, St.
Elizabeth's actions are consistent with those of Yakima Valley
Memorial Hospital, which has substantially more parking than
required by the ordinance, which they added to accommodate their
recent expansion.
St. Elizabeth's Medical Center Analysis. Based upon
two afternoon surveys performed in 1990, the hospital has
calculated parking demand. It is based on an assumption that
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parking lots are at capacity when 90 percent of the spaces are
used. The remaining spaces are necessary for efficient utilization •
of the lot. The hospital analysis does not consider on- street
parking to be a problem, and consequently disregards the number of
cars on the street. According to the hospital, 36 jobs are being
moved off -site, thus arguably reducing the number of spaces
required. Their approach concludes that 386 spaces are required
for the existing hospital, plus 50 for the tower expansion, minus
36 for the departments moved off -site, for total hospital spaces
required of 400. (1991 Report, Transportation Study, p.26,
together with June 17, 1991, Memorandum to Larry Lehman from
Claudia Scrivenich of CH2M Hill, pp.3 -6, Section 4.)
If an additional 133 are added for the MOB, 533
total spaces are required, and they plan to have 607.
Little weight is placed on the evidence that 36 jobs
are being moved off -site, thus reducing hospital parking need. The
need for parking is a function of both the building size and the
actual number of people within the building. Staffing levels can
be expected to fluctuate, but parking lots have to be sized with •
some reference to building size. The building space will be
utilized for something, and in the long run it will probably
include people.
As part of the hospital's demand analysis Attorney
Carmody, on July 8, 1991, provided to the Examiner additional
information. This is contained in a four page letter together with
three similar parking studies based on demand analysis formats.
The letter indicates there are 314 day shift
employees, prior to relocation of 36 employees, bringing the total
on -site in the future to 278. Furthermore, the construction
project results in the loss of 25 spaces together with about 30
more spaces in the area being utilized by construction employees.
Mr. Carmody also included information concerning
Medicare standards requiring, when no other standards apply, one
space for each day shift staff member and employee, plus one space
for each patient bed. Based on 278 employees and 214 beds, 492
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• spaces would be required. This is almost 25 percent more than the
400 calculated by CH2M Hill.
The demand studies provided by Mr. Carmody typically
included fairly detailed survey information concerning the number
of employees on -site during various shifts, the number of out-
patients, the number of visitors, volunteers, and doctors. All
three studies included this information, and typically factored in
growth and employee activity.
Other communities also have problems getting their
zoning ordinance to match the reality of hospital parking
requirements. For example, the parking study for St. Mary Medical
Center, apparently located in or near Long Beach, California,
reflects that the zoning requirements for a hospital and medical
offices of the size involved required 1,398 spaces. By comparison,
the hospital was planning on providing 2,239 parking spaces. (See
St. Mary Medical Center Parking Study, June, 1981, pp.49 -50.) ITE
indicates that the data for hospitals:
. . . suggests a need for additional data to aid in
• drawing accurate conclusions. Future data should reflect
the number of total beds, occupied beds, and doctors and
employees on site at the time of the survey.
(Parking Generation, p.95.)
These are the sorts of data that were included in
the St. Mary Parking Study referred to above and not included in
the CH2M Hill study, and were referenced by the Examiner in the
tower expansion decision dated November 15, 1990, which states:
Future parking needs for hospitals and their related
support facilities, including office buildings, should
consider including information concerning the number of
employees and any independent medical staff in the
building during various shifts, the number of patients in
the building on both a bed basis and outpatient basis,
and the number of people in the building for meetings,
seminars, and training. There is a tendency for
hospitals to provide office space for physicians who are
also on staff with the hospital. To the extent that
doctors such as psychiatrists are also seeing private
patients in the facility, the hospital takes on the
aspects of a medical office. Much of this information
should be available in- house. Information from other
•
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hospitals would also be helpful, comparing their
available parking with their size in terms of these •
various criteria, but perhaps most simply expressed as
square footage and number of beds.
(Examiner No. I90 -1 -69, p.6.)
On- Street Parking. St. Elizabeth's demand analysis
also reviews on- street parking supply and demand. Streets around
the hospital were surveyed and cars counted during peak parking
demand in the afternoon. This included 8th, 9th, 10th, and llth
Avenues, and Chestnut and Walnut Avenues. Utilization of available
on- street parking ranged from a low of 13 percent to a high of 89
percent. No effort was made to identify what portion of the cars
were attributable to hospital activities. (See 1991 Report,
Transportation Study, p.14, Figure 6.)
One of the neighborhood complaints is that too many
hospital related cars are parking on the streets. It is impossible
on the available evidence to determine the exact number. However,
a review of the information indicates that streets more distant
from the hospital have significantly less on- street parking. The •
total number of cars parked on the streets reflected in Figure 6 is
349. For analysis purposes, the streets with parking utilizing 40
percent or more of the on- street capacity total 226 cars. Assuming
that half of those cars are related to the hospital, it appears
that approximately 113 cars are parking on the streets rather than
in hospital parking lots. It is reasonable to conclude that these
cars are related to the hospital given the lack of other competing
commercial enterprises generating significant parking requirements
in the immediate area. Accordingly, 113 cars parked on- street are
treated as attributable to the hospital.
CH2M Hill, however, does not attribute any of the
cars to the hospital because on- street utilization is generally
less than 75 percent of the available spaces.
In terms of neighborhood compatibility, however, one
of the most significant impacts this hospital has is on the
availability of street parking for other users of the neighborhood,
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• both residential and business.
The hospital recognizes a desire to reduce the
demand for on- street parking. As the consultant points out:
The purpose of the new spaces [for the tower addition]
was to meet the requirement for 50 additional spaces, to
replace spaces temporarily lost during the north wing
expansion construction, and to reduce the demand for on-
street parking.
(1991 Report, Transportation Study, p.18.)
ITE Analysis. ITE has a chart for hospitals,
similar to medical office buildings, showing that the average
parking rate is 1.79 spaces per bed. (Parking Generation, p.96.)
On that basis a 214 bed hospital requires 383 parking spaces.
Since the 45,000 square foot addition to the hospital does not add
any beds, there would be no reason under this approach to require
more parking. With 133 spaces required by ITE for the office
building, the total number of spaces required would be 516 also,
well under the 607 proposed.
Memorial Hospital Analysis. In 1988 Yakima Valley
Memorial Hospital prepared an environmental impact statement for a
37,000 square foot addition to house the psychiatric department,
while adding additional parking. The second phase dealing with
outpatient surgery involved an additional 4,700 square feet. They
were a 226 bed hospital with 549 off - street parking spaces prior to
expansion. TRANSPO, a traffic engineering consultant, estimated
Memorial's pre- expansion parking demand at 2.4 spaces per bed, or
540 parking spaces, based on data gathered at 15 general hospitals,
citing Parking for Institutions and Special Events, Edward M.
Whitlock, P.E., ENO Foundation for Transportation, Inc., Westport,
Connecticut, 1982. The 2.4 space to licensed bed ratio was at the
high end of the data range, which was from 1.6 to 2.4 spaces per
bed, and reflected a high outpatient activity level and a low
degree of ride sharing by employees. (Memorial Draft EIS dated
June 6, 1988, Appendix A, p.9.)
Based upon the 1982 paper relied upon by TRANSPO in
• preparing Memorial Hospital's environmental impact statement, a
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YAKIMA. WASHINGTON 98907
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paper which explicitly recognizes the newer trend in hospital
utilization and which is nevertheless nine years old, an •
appropriate number for hospitals is 2.4 spaces per bed. With 214
beds, St. Elizabeth's would be expected to have 514 spaces. On
that same analysis however, one could argue that the hospital
should have been able to add the tower addition without adding
additional spaces, since no more beds were involved. Even if that
were the case, 514 spaces for the hospital plus 133 spaces for the
MOB totals 647, 40 more than on the proposed site plan.
Memorial's expansion request, which was approved,
resulted in 775 parking spaces for 226 beds, or 3.4 spaces per bed.
This was the end result after adding 41,700 square feet to the
existing facility without changing the number of licensed beds.
The additional parking was as proposed by Memorial, based on their
determination of what they needed to adequately serve their
facility (Examiner's Decision I90 -1 -73, dated December 10, 1990,
p.5). The number of spaces was deemed adequate by the Planning
Department and not subject to significant criticism from the
neighborhood. Empirical observation suggests that parking is still •
tight at Memorial.
Required Parking. The existing Urban Area Zoning
Ordinance does not adequately deal with hospital parking
requirements. With changes in both insurance reimbursement
requirements and in the delivery of health care services generally,
there is a significantly increased emphasis on outpatient,
emergency room, and educational activities, none of which bear any
clear rational relationship to the number of beds in a hospital but
nevertheless generate parking requirements.
The inadequacy of the zoning ordinance was
recognized in the Examiner's tower decisions, which approved an
addition to the hospital which did not involve increasing the
number of beds. Nevertheless, 50 new parking spaces were required
to accommodate the maternity ward. The reality is that 48,000
square feet of new hospital space is being added, with the
potential future demolition of 30,000 square feet represented by
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• the old nursing school. Assuming demolition, about 18,000 square
feet of net new space is being added by the tower expansion. It is
ludicrous to assume that even though no new beds are being added to
the hospital that the added space will not generate additional
parking demands. Assuming for the sake of analysis that the new
space should perhaps have been treated as equivalent to medical
office space, using the ITE numbers of 4.11 spaces per 1,000 gross
square feet, an additional 74 new parking spaces could have been
required.
Despite persistent neighborhood concerns about
excessive on- street parking with the existing facility, the
Examiner approved adding 48,000 square feet with only an additional
50 parking spaces, without requiring that the old nursing school be
torn down. Assuming that St. Elizabeth's Hall will in due course
be removed, it is still clear that the hospital received the
benefit of every doubt concerning its tower expansion application.
Physical inspection of St. Elizabeth's hospital
parking lots four times this spring, on weekdays, approximately
10:30 to 11 a.m. and 2:30 to 3 p.m., indicate that the highest
parking occupancy appears to be in the morning rather than the
afternoon, and that in the mornings on- street parking is utilizing
nearly every available space on Chestnut Avenue between 9th and
llth, together with substantial utilization of the remainder of
Chestnut between 8th and 9th, and South 8th Avenue between Chestnut
and Walnut. This occurs at a time of substantial construction
activity, but once the tower expansion is complete, it is
reasonable to assume that activities in those spaces will generate
parking which displaces the current construction related activity.
The aerial photographs, however, submitted by the hospital showing
morning and afternoon photos for both June 6 and June 10, 1991,
indicate that morning and afternoon lot usage is fairly evenly
balanced. Any valid survey would have to be based on considerably
more observations.
Realizing that a proposed medical office building
was on the horizon, this Examiner stated in the north wing building
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expansion decision:
The parking demand for any medical office
building will be analyzed independently of hospital
required parking, at the time of the application for the
building itself. It is highly likely that any new
medical office building will have to provide its own
parking without taking advantage of existing hospital -
related parking. It is also probable that the high end
of any applicable parking requirement will be applied to
the office building.
City No. UAZO CL(3) #18 -90, Examiner No. 190 -1 -69, dated
November 15, 1990, p.6.
As a point of departure for analyzing future parking
requirements for the hospital and related buildings, this Examiner
finds that the 511 spaces pre- existing the tower expansion were
adequate for the medical center as it then existed, with no surplus
spaces. An additional 50 spaces are required for the tower
expansion, with the MOB now generating a requirement of 133
additional spaces. Accordingly, the total parking required for the
complex is 694 spaces. Six hundred seven are reflected on the
June 19, 1991, site plan, leaving a deficit of 87 spaces. •
This finding is based on a balancing of the various
analytic approaches described above. The demand approach utilized
by the hospital is based upon a 214 bed facility operating on an
average daily census of 115 beds, substantially less than maximum
capacity but apparently in line with hospitals of its size.
In the event St. Elizabeth's succeeds with its
maternity program, it is reasonable to expect that substantially
more people will be utilizing the hospital for other purposes in
addition to maternity, and that overall bed occupancy will
increase. To design a parking lot based on assumptions concerning
a facility operating at 54 percent of its bed capacity overlooks
the significant adverse impact on the neighborhood of existing on-
street and probable future overflow parking when hospital
utilization increases. Furthermore, the demand study does not
factor in any potential increase in employment due to growth of the
hospital or an increase in bed utilization.
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Finding that the 511 pre- expansion spaces were
adequate for the medical center as it then existed is based upon a
number of factors. The hospital had existed for a number of years
in that physical configuration and parking lot size, representing
an apparent equilibrium of supply and demand. In addition, 511
spaces is very similar to the 2.4 spaces per bed formula utilized
by Memorial Hospital in analyzing its parking requirements prior to
its recent building expansion. (2.4 spaces x 214 beds = 514
spaces.) Utilizing the 2.4 factor provides parity between the two
hospitals, with the factor itself recognizing the increased trend
in out - patient activity in hospitals. Even though this factor is
utilized, however, it disregards the fact that there are presumably
a significant number of hospital related cars parking on the
street, easily more than 100 during peak parking demand. Those
cars will presumably remain on the streets, because utilization of
this factor basically preserves the status quo. Adding 50 spaces
for the tower expansion probably understates the actual parking
demand created by adding at least 18,000 square feet to the
a hospital. Under these circumstances it is reasonable to require
that the existing parking for the medical center, including the
tower, not be allowed to subsidize the parking required for the new
office building.
The parking required for the hospital (not including
the MOB), 561 spaces, works out to 2.6 spaces per bed. By
comparison, the final ratio for Memorial Hospital is 3.4,
indicating that Memorial is either substantially overparked, or St.
Elizabeth's is still underparked. Only time will tell.
14.7 Lot Coverage. In the tower decision the hospital
requested and received approval for an administrative adjustment
allowing up to 90 percent lot coverage with impermeable surfaces,
rather than the 80 percent required by the ordinance. Although not
requested in this application, continuation of that approval is
appropriate.
Apparently the June 19 site plan reflects up to 80
percent lot coverage, and also reflects the restriped parking lots,
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from ten feet to nine feet, generating additional parking. A new •
site plan, however, will have to be prepared in order to determine
to what extent the additional spaces required by this decision can
be picked up through the lot coverage adjustment and restriping.
In the event additional land is required for parking
facilities, that land will be subject to the normal review
requirements of the zoning ordinance.
15. Environmental Review. Street vacations are categorically
exempt from SEPA review. YMC Ch.6.88 and WAC 197- 11- 800(2)(h).
The City of Yakima issued a Determination of Non - significance
relative to the Class 3 review on June 4, 1991.
16. Public Notice. Notice of the public hearing for Class 3
review and alley vacation was provided in the following manner:
June 7, 1990 - Legal ad published in newspaper.
June 7, 1990 - Mailing of notice to owners within 300 feet.
May 31, 1990 - Posting of property.
Notice of this hearing, pertaining to the vacation of right -
of -way, was accomplished in the following manner.
May 21, 1991 - Resolution D -5922 adopted to set public hearing. •
May 22, 1991 - Posting, in three public places.
May 31, 1991 - Posting of property.
From the foregoing Findings, the Examiner makes the following:
CONCLUSIONS
1. The Examiner has jurisdiction.
2. All notice provisions have been complied with.
3. Vacation of this right -of -way is consistent with
RCW Ch.35.79 and Yakima City Ordinance No. D -5630. No public
purpose is served by retaining the right -of -way.
4. Subject to providing additional parking, the application
for a MOB complies with the objectives of the Urban Area
Comprehensive Plan, the intent of the B -1 zoning district, and the
provisions of the Urban Area Zoning Ordinance.
Based upon the foregoing Findings and Conclusions, the
Examiner submits to the Yakima City Council the following:
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POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248-0706
® ALLEY RIGHT -OF -WAY RECOMMENDATION
Approve vacating the alley right -of -way described as:
That part of Block 392, Capitol Addition to
North Yakima, as recorded in Volume "A" of
Plats, page 29, records of Yakima County,
Washington, described as follows: Beginning at
the Northwest corner of Lot 1 of said Block
392; thence Southwesterly to the Northeast
corner of Lot 16 of said Block 392; thence
Southeasterly to the Southeast corner of Lot 9
of said Block 392; thence Northeasterly to the
Southwest corner of Lot 8 of said Block 392;
thence Northwesterly to the point of
beginning. (Yakima County, State of
Washington)
subject to the following conditions:
1. Payment of Eighteen Thousand Dollars ($18,000.00) in
compensation to the City of Yakima by St. Elizabeth's Medical
Center, before or contemporaneous with execution by the City
Council of an ordinance vacating the alley right -of -way.
2. Relocation by the hospital, at its expense, of any
utilities located within the existing alley. The City shall retain
a 20 foot wide utility easement, in the location of the existing
alley. The easement shall be prepared and recorded by the City.
3. The hospital shall obtain written permission from any
utility purveyor utilizing the easement prior to any construction
over the easement. Copies of the agreements shall be provided to
the City. Any relocation of utilities in order to accommodate
construction shall be completed to City specifications at hospital
expense with a new easement for the relocated utility.
MEDICAL OFFICE BUILDING RECOMMENDATION
Approve the proposal to construct a medical office building of
approximately 32,500 square feet, subject to the following
conditions:
1. A final detailed site plan, for the properties that are
the subject of this application, which includes the items shown on
the original site plan, the additions or modifications required by
All
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the City Council, and demonstrating compliance with the Urban Area •
Zoning Ordinance, shall be submitted to the Planning Department
prior to issuance of a certificate of zoning review or building
permit, pursuant to YMC 15.12.050. The plan is to include
landscaping detail, signage, lighting, defined loading and trash
receptacle area and pavement markings.
2. Provide a minimum total of at lease 694 off - street
parking spaces serving both the hospital and the medical office
building, with 561 spaces allocated to the hospital and 133 spaces
allocated to the MOB. The spaces shall be located as close as
reasonably practical to both facilities respectively.
3. Construct commercial driveway approaches for all new
curbcuts to both ends of the alley serving Lot G, and the south
ends of alleys accessing Lots C and G, unless the hospital decides
to provide sole direct access to these lots from the adjoining
public streets, in which case commercial driveway approaches will
still be required.
4. The parking lot designs for Lots C and G shall include
measures to discourage traffic from entering from or exiting to the
north, perhaps with signs and /or raised islands.
5. The curbcut on llth accessing the parking lot immediately
north of the MOB requires a City Approach Permit and a commercial
driveway approach.
6. All parking lots shall be illuminated pursuant to current
City standards, with lights shaded to avoid residential properties.
7. A new street light shall be installed on the southwest
corner of 10th Avenue and West Chestnut in original tower.
8. A drainage plan prepared by a professional engineer
dealing with on -site storm waters must be submitted to and approved
by the City prior to construction. Drywells must include oil and
grease separators in compliance with customary City standards.
9. The hospital shall construct a sidewalk on the north side
of Chestnut Avenue, between 9th Avenue and the alley to the west,
to match existing sidewalks.
10. All landscaping shall be irrigated. References to
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Standard A landscaping refer to a three foot planting strip rather
than the normal ten foot wide strip. Standard A and a low fence
shall be utilized on the entire MOB block (including former Lot 1) .
Lot G1 (former Lot 2) shall utilize Standard C on the north and
south sides, and Standard A on the east side. Lot C2 and C3
(former Lot 3) shall utilize Standard A on all three sides, not
including the alley side.
11. All alleys not vacated shall be resurfaced and suitable
for commercial traffic.
12. Speed limit and caution signage shall be erected on
Chestnut and 10th Avenues, as determined by the City.
13. All expenses for implementation of these conditions shall
be borne by the applicant.
[These conditions incorporate the prior conditions for tower
parking lot approval.]
LOT COVERAGE ADMINISTRATIVE ADJUSTMENT RECOMMENDATION
Approve an administrative adjustment allowing lot coverage of
90 percent with impervious surfaces, with the remainder to be
Aft
landscaped. This adjustment applies to all hospital property
identified in the June 19, 1991, site plan.
DATED this 10th day of July, 1991.
V a4 4
PHILIP A. LAMB
Hearing Examiner
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CITY AND COUNTY OF YAKIMA
POST OFFICE BOX 4
YAKIMA. WASHINGTON 98907
(509) 248-0706