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Redevelopment Area Plan for the Northwest Triangle

December 12, 2005

CITY OF YORK John S. Brenner, Mayor

CITY OF YORK PLANNING COMMISSION

Genevieve Ray, Chair H. Michael Buckingham, Vice Chair

David McIlnay, Secretary Carol Hill Evans Michael Johnson

Matthew Sommer

CITY OF YORK DEPARTMENT OF COMMUNITY DEVELOPMENT

C. Kim Bracey, Director Jessica A. Martin, Planner

David Blechertas, Zoning Officer

PLAN COMPILED BY Jessica A. Martin, City Planner

& Campbell Trade Group, Inc.

MAPS AND GIS ANALYSIS BY

Jessica A. Martin, Planner

CONCEPT DRAWINGS BY HDR

LSC Design, Inc. Murphy & Dittenhafer, Inc.

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INTRODUCTION The Redevelopment Area of the Northwest Triangle was approved by the City of York Planning Commission at their regularly scheduled meeting on July, 18, 2005. The Redevelopment Area covers more than 45 acres approximately 3 blocks from the city center of York. The Triangle encompasses an underutilized, largely heavy industrial zoning district within a Rail Corridor. The Northwest Triangle Project comprises about half of the redevelopment area. This Redevelopment Plan is for the portion of the Redevelopment Area which is West of North George Street. The boundaries are as follows:

BEGINNING at a point on the west bank of the Codorus Creek extending east along the south side of West Philadelphia Street approximately 1,290 feet; extending north approximately 310 feet along the east side of Cherry Lane to the north side of West Gas Avenue; extending west along the north side of West Gas Avenue approximately 128 feet to the east side of Cherry Lane; extending north along the east side of Cherry Lane approximately 713 feet to the south side of West North Street; extending east along the south side of West North Street to the east side of North George Street; extending north along the east side of North George Street to the north side of Hamilton Avenue; extending west along the north side of Hamilton Avenue to the east side of Snyder Place; extending north along the east side of Snyder Place approximately 107 feet to the north side of Lowell Place; extending west along the north side of Lowell Place approximately 204 feet to the eastern lot line of parcel 13-440-4-4; extending south along parcel 13-440-4-4 approximately 75 feet to the southern lot line of parcel 13-440-4-4; extending west along the southern lot line of parcel 13-440-4-4 approximately 67 feet to the west side of Cherry Lane; extending south along the west side of Cherry Lane approximately 160 feet to the north side of Hamilton Avenue; extending southwest along the north side of Hamilton Avenue approximately 258 feet to the west side of North Beaver Street; extending south along the west side of North Beaver Street approximately 253 feet to the north side of the Army Corp of Engineers’ easement along the north bank of the Codorus Creek; extending south along the north side of the Army Corp of Engineers’ easement along the north bank of the Codorus Creek approximately 1,800 feet to the north side of West Philadelphia Street.

Please see the attached map for a graphic of the boundary delineation. The impetus for this redevelopment area plan is an ongoing economic development effort by the City of York Redevelopment Authority (RDA). In coordination with this planning effort the RDA has been working with local and state public officials on redevelopment throughout the area. A team of City staff and consultants is looking at transportation concerns, and development issues including the viability of commercial, industrial, and residential uses. Along with the City of York Redevelopment Authority and the City of York Department of Community Development, the team includes the consulting firms of Campbell Trade Group, Inc., HDR, LSC Design Inc., and Murphy & Dittenhafer, Inc. The team’s initial redevelopment schemes and redesign suggestions are referenced in the

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Plan, namely in the illustrative site plan section. The consultant studies are ongoing and final recommendations are not available at this time. The immediate purpose of the redevelopment area plan is to provide a framework for redevelopment efforts and to make the area eligible for publicly assisted acquisition of commercial and residential properties. Properties would be acquired, assembled and conveyed by the City of York Redevelopment Authority (RDA). Although specific sites have been referenced in detail the intention of this redevelopment area plan is to encourage commercial investment, improved pedestrian, vehicular and rail circulation, and general revitalization applicable throughout the entire area. SUMMARY OF BLIGHT CERTIFICATION The Northwest Triangle Redevelopment Area was certified as blighted by the Planning Commission on July 18, 2005. According to the blight certification, designation for redevelopment is warranted by the determination that blight is found due to the existence of economically or socially undesirable land use. The Redevelopment Blight Certification is attached for your reference. OBJECTIVES The general goals of this Redevelopment Area Plan are to (1) provide a framework for redevelopment proposals. Clear land use policies and development priorities will permit the full potential of the study area to be realized, and; (2) enable publicly-assisted acquisition in support of community and economic development projects. The plan has two specific objectives:

• Eliminate the blighting influence of undesirable land uses by encouraging rehabilitation of vacant or underutilized properties,

• Encourage the investment and beautification of other properties throughout the area.

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EXISTING LAND USE The Triangle encompasses an underutilized, largely industrial district within a Rail Corridor. As stated in the Northwest Triangle Blight Certification:

“The current level of economic development within the Northwest Triangle is not consistent with the goals outlined by the City in its most recent comprehensive plan. Given its central location within the Rail Corridor, the Northwest Triangle was intended to be a center for significant economic activity, providing jobs and a robust tax base. According to the York City Strategic Comprehensive Plan (completed in 2000), the Rail Corridor was designed to “create better links between local and regional economic development efforts, [that] maximize the corridor’s economic potential and augment the city.” “High priority,” the plan continued ‘is given to expanding the local tax base and creating sustainable job opportunities for local residents.’”

A variety of uses currently exist within the Plan Area of the Northwest Triangle. Those uses include: Commercial Office Commercial Retail Commercial Service Commercial Wholesale Institutional Light Industrial Multi-Family Dwelling

Open Space/ Recreation Private Garage/lot Public Garage/lot Retail and Residential Service & Residential Unimproved Lot Utility

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EXISTING LAND USE MAP

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PROPOSED LAND USE Discussion and investigation into proposed uses at the Northwest triangle has been ongoing for several years. In late 2001 and early 2002 “charrettes” were conducted with local developers and businessmen. During the summer of 2005, the vision created from the charrettes was revisited with four local developers and combined with input gathered from inquiries about the project received by the City of York Redevelopment Authority. That process is the basis for identifying the proposed uses contemplated in this Redevelopment Area Plan as appropriate land uses in the Northwest Triangle:

Commercial Office Commercial Retail Commercial Service Commercial Wholesale Single Family Dwelling Business Incubator

Open Space/ Recreation Public Garage/lot Retail & Residential Service & Residential Office & Residential Low impact light industrial

This Plan seeks to identify compatible potential and probable land uses, but is not intended to identify specific land uses per parcel. A major aspect of the Plan is to create a large park like open space area that borders the Codorus Creek. Preserving this area allows public access all along the waterfront and will provide a buffer between development and any public improvements to the Creek that may occur in the future. This park like open space area will permit the expansion of the York County Heritage Rail Trail through the Northwest Triangle, an important feature identified in the interviews with developers. The Plan vision includes up to five new two to four story buildings suitable for Office/Commercial/Retail/Hospitality uses can be constructed. The following building footprint square footages relate to the areas noted on the illustrative site plan:

• Site 1 - ~12,000 sq. ft. • Site 2 - ~ 25,000 sq. ft. • Site 3 - ~ 15,000 sq. ft. • Site 4 - ~ 15,000 sq. ft. • Site 5 - ~ 6,500 sq. ft.

The Plan vision also identifies buildings in the Redevelopment Area that may be rehabilitated and used as Office/Commercial/Retail/Hospitality/Incubator:

• 6 buildings – ~195,000 sq. ft. total

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A major component of the Redevelopment Plan is the construction of up to 25 new residential units coupled with the rehabilitation of existing residential units and the rehabilitation of old industrial properties into residential units. The residential component envisions middle income housing with the possibility of first floor commercial space or professional office space. As shown on the illustrative site plan:

• New residential (25 units) with possible first level office/commercial – ~ 66,000 sq. ft. 3 stories

• Rehab residential (15 units) with possible first level office/commercial – ~ 44,000 sq. ft.

In order to provide sufficient parking for the envisioned uses, a combination of on-street, on-site, and structured parking is necessary. Therefore, another component of the Plan is structured parking. The combination of on-street, on-site, and structured parking may result in the creation of up to 1080 new parking spaces. On-site, or at least near vicinity on-grade parking should be used to satisfy the residential parking requirements. Potential location of parking structures is shown on the illustrative site plan. The potential configuration and capacity of those structures are as follows: New Structured Parking Total Spaces Levels Deck 1 390 3 Deck 2 180 3 Total Structured Parking Spaces 570

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ILLUSTRATIVE SITE PLAN

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In order to accomplish the proposed development, acquisition of some properties may be necessary. Although the acquisition may occur in phases, i.e. phase I for infrastructure development, and phase II for construction and rehabilitation, this Plan incorporates all possible property acquisitions envisioned at this time. The properties that may possibly be acquired to implement this Plan are:

POSSIBLE PROPERTY ACQUISITION AND CURRENT USE LIST Ohio Blenders – Commercial business

• 260 N. Beaver St. (Block 46, Parcel 6) • 132-152 Pershing Ave. (Block 46, Parcel 7) • N. Beaver St. (Block 46, Parcel 1.A and 1.B) • N. Pershing Ave. (Block 49, Parcel 13)

Pullman Apt. Ltd. – Vacant lot

• W. North St. (Block 43, Parcel 5)

York Rail, Inc. – Commercial business – grain transloading facility • 326-350 N. George St. (Block 43, Parcel 2) • N. George St. (Block 43, Parcel 6) • N. Beaver St. (Block 47, Parcel 1)

Thomas Somerville– Commercial business – wholesale & distribution

• 320 N. George St. (Block 43, Parcel 1 and 4) • 320 N. George St. Rear (Block 43, Parcel 3)

Keystone Color Works – Commercial business – warehousing & distribution

• 109 W. Gay Ave. (Block 46, Parcel 9) • 151 W. Gay Ave. (Block 46, Parcel 8) – vacant lot

William Kraft – Commercial business – auto repair shop

• 208 – 236 N. Beaver St. (Block 46, Parcel 5)

James Hoffer (B & C Fasteners) – Commercial business – wholesale, retail & distribution

• 146-150 N. Beaver St. (Block 45, Parcel 11)

Space Leasing - parking lot & corner garage • W. Gas Alley (Block 45, Parcel 13)

D & K Rodes – Residential – Tennant occupied

• W. Gay Ave. (Block 46, Parcel 5.A) – vacant lot behind homes • 200 N. Beaver St. (Block 46, Parcel 1)

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• 202 N. Beaver St. (Block 46, Parcel 2) • 204 N. Beaver St. (Block 46, Parcel 3)

Craig Kauffman – Residential – Owner occupied

• 208 N. Beaver St. (Block 46, Parcel 4) York Union Rescue, Inc. – Community Service - Youth Center

• 55 W. Philadelphia St. & N. Beaver St. (Block 41, Parcel 12)

POSSIBLE PROPERTY ACQUISITION MAP

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PROPOSED ZONING CHANGES The current zoning in the Redevelopment Area is a mix of Heavy Industrial, Commercial Waterfront, Central Business District and Open Space. Most properties fall within an “Enterprise Development Area (EDA) District,” an overlay district that affects permitted land uses and loosens restrictions to encourage commercial and industrial development. Changes Needed to Meet Redevelopment Goals Changes in zoning and in the City’s Comprehensive Plan are recommended to achieve the Northwest Triangle’s ambitious redevelopment goals and to support and protect the public and private investments anticipated there. The future vision: The redevelopment goal for the Northwest Triangle is a lively mix of retail, office, residential, entertainment and recreational activities in an urban park setting that lies between the Central Business District and the Codorus Creek. In addition, a limited range of light industrial uses that under certain circumstances, might be compatible with the vibrant mixed-use, pedestrian-friendly nature of the district. The existing underlying zoning falls short of the redevelopment goals in the following ways:

• Heavy Industrial zoning is an inappropriate match for the future vision

• Commercial Waterfront is more consistent with the redevelopment goals, but CW limits height at 45 feet for all uses except hotels; and does not permit 100% lot coverage. The presence of rail lines through the site, combined with the desire to include generous green space along the Codorus Creek and flanking the Heritage Rail Trail, will result in small, irregular parcels and a desire on developers’ parts to erect taller buildings with greater ground coverage than is now permitted.

• Commercial Waterfront does not require parking -- an issue that might be

resolved by construction of parking structures, however, parking structures are not a permitted use in the CW zoning district. Parking requirements may encourage developers’ financial help in meeting the parking demand.

EDA Overlay It would appear at first glance that the presence of the Economic Development Area (EDA) District solves most of the zoning problems earlier noted. The overlay is extraordinarily permissive in allowing a wide range of uses, and in waiving restrictions including lot area and width, building size, lot coverage and

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impervious surface. It does allow housing -- a desired use in the Northwest Triangle -- by Special Exception when authorized by the Zoning Hearing Board. The Planning Commission recommends, however, that this permissive zoning tool not be relied upon as the “answer” to underlying zoning that is either fundamentally inappropriate (Heavy Industry) or would require modification (Commercial Waterfront) to meet the area’s redevelopment goals. The reasons are three:

• Although the EDA overlay would permit uses envisioned in the Northwest

Triangle Plan, it also permits uses that are antithetical to, or unsupportive of, the desired uses. Heavy Industrial uses such as equipment rental, contractor’s offices and outdoor storage, mini-warehousing or self-storage facilities, motor vehicle or repair service stations and transfer, storage and delivery truck terminals and would all be permitted as-of-right, as would many undesirable Light Industrial uses (e.g. warehousing and distribution, including wholesale businesses, and the sale, rental and repair of vehicles.). The only protection would be for the Redevelopment Authority to acquire all properties in the Redevelopment Area.

• Second, the EDA is only an overlay zone, so certain of the underlying zone’s

provisions apply. • Finally, as noted earlier, the EDA was created for another purpose. It would be

better public policy to use or create a zoning category that exemplifies the redevelopment goals rather than retain an EDA created to encourage the very uses that are being acquired and phased out of the Northwest Triangle.

Comprehensive Plan Changes The area’s Redevelopment goals are not particularly consistent with the City’s Comprehensive Plan, where the future land use map envisions continued industrial use in much of the Northwest Triangle, and includes industry recruitment and marketing as a goal. At the same time, the Comp Plan makes clear the need for a thorough assessment of market economics, growth trends and feasibility of offices, businesses, manufacturing and industry in the rail corridor. The Northwest Triangle and Arch Street areas should be high on the list for Comprehensive Plan updating as that work proceeds in 2006.

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Recommendation Zoning changes cannot be made in an instant, nor should they be undertaken without a thorough evaluation of whether they are appropriate or whether changes made to facilitate desired development in one area might work against the goals of another similarly-zoned area elsewhere in the City. Nor do the zoning changes have to be in place for the Redevelopment Plan and Proposals to be adopted. Work should nonetheless be undertaken early in 2006 to: 1) Update the City’s Comprehensive Plan sections that deal with the Northwest Triangle Redevelopment Area, to assure that they are consistent with current thinking about desired uses. 2) Explore whether the existing Zoning Code’s use categories can be adapted, applied and perhaps slightly modified to make an appropriate “fit” for the Northwest Triangle Redevelopment Area goals, or whether the Zoning Code should be amended to incorporate an entirely new category. 3) Explore the circumstances under which Light Industrial uses might be compatible with the desired mix of predominant uses in the Northwest Triangle. Establish means by which building placement and site design, landscaping, screening, fencing, and other factors could help make a light industry a friendly neighbor and contributor to a vibrant pedestrian-friendly district. 4) At such time as the appropriate changes are made to the Zoning Code and/or Map, the Zoning Map should be amended to remove the EDA overlay district from the Northwest Triangle Redevelopment Area. 5) Incorporate into new or revised zoning the results of an examination of the need for developers to provide parking or to help pay for parking developed by others. 6) Explore tools and incentives that might be built into the Code for site management and building design that takes into account the eventual likelihood of Codorus flooding (e.g. increase the width of the mandatory open space edge in Commercial Waterfront zones, encourage use of permeable paving throughout the district and the City). While the Planning Commission and its staff can begin these tasks, it is likely that professional help will be needed to do a thorough and thoughtful job.

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MAP OF EXISTING ZONING

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PROPOSED RAIL, STREET, AND PEDESTRIAN TRAFFIC CHANGES To make redevelopment in the area feasible, relocation of the rail lines traversing the area is necessary. The reconfiguration of the rail lines is the controlling factor in identifying areas for proposed development or redevelopment. The consulting firm of HDR was commissioned by the City of York Redevelopment Authority to investigate and recommend a reconfiguration of the rail lines in the area that would be acceptable to the York Railway and conducive to the economic redevelopment of the area. HDR has determined that the track relocation for proposed redevelopment within the Northwest Triangle is feasible. However, the implications of the proposed construction to York Railway operations can be considerable. According to the HDR study “…plans for redevelopment within the Northwest Triangle present challenges for both safety and rail operations. York Railway does not encourage placing pedestrian traffic in close proximity to operating tracks, but might find the proposed changes acceptable if special provisions were made to separate pedestrian and railroad traffic and provides limit access points by use of barriers. Such provisions may include pedestrian bridges/overpass (preferred), pedestrian crossings with gates, fencing, or trees and shrubs. In addition, lighting and signs may be added for safety and security… The concept alignment … was designed to provide the maximum land mass possible without rehabilitating or reconstructing Bridge No. 15.60 (TPT) (the northern bridge). This configuration also requires a new connection between the W(estern) M(aryland) Mainline and the Norfolk Southern connection. This track alignment would remove portions of the WM Mainline and therefore provide land along the Codorus Creek waterfront within the NWT. This alternate would eliminate three grade-crossings on Beaver Street near Codorus Creek, which would improve safety for the traveling public.” Final details and engineering of the rail re-alignment, grade-crossings and pedestrian crossing are yet to be completed. The Plan calls for the connection of West North Street and North Pershing Avenue to create vehicular and pedestrian to and through the NWT. The extension and connection of the streets should include on street parking, city sidewalks, and appropriate trees and other landscaping. Sidewalks and landscaping on the waterfront side of the street connection should provide the transition from the developed area into the park setting. To enhance the residential and commercial cluster at North Beaver and West Gay Avenue, consideration should be given to the restriction of vehicular traffic and the encouragement of pedestrian traffic.

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PROPOSED RAIL REALIGNMENT This design provides land for redevelopment along the Codorus Creek waterfront. This would require track relocation, bridge modification and removing existing facilities.

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RELOCATION This Plan does not anticipate a need to relocate any families as the existing residential properties are planned to remain residential. Friendly discussions are occurring with the current property owners regarding possible acquisition of those residential properties. It is expected that if the properties are acquired, it will be through friendly negotiations. However, if other means of acquisition are employed, the relocation will be accomplished in accordance with the terms and conditions of the applicable State regulations for re-location of families. ESTIMATED COSTS OF REDEVELOPMENT The estimated costs for property acquisition, demolition and/or site cleanup, environmental cleanup, rail line engineering designs, rail line relocation, infrastructure including roads, curbs, sidewalks, etc. is approximately $ 7,500,000.00. Estimated redevelopment costs will be determined as development plans become better defined. PROPOSED STANDARDS AND CONTROLS Standards and controls for uses, density, land coverage, building area, parking and off-street loading will be established by the City of York Zoning Ordinance of 1995. All impacts of redevelopment on the surrounding community will be minimized through development controls regulating site design, building materials and landscaping. These controls will be established by the RDA, and reviewed and approved by the Planning Commission. The Pennsylvania Urban Redevelopment Law of 1945, as amended, and the United States Housing Act of 1949, as amended, regulate redevelopment and urban renewal in the City of York. Redevelopment in the Northwest Triangle Redevelopment Area will be in conformity with the provisions of this Redevelopment Area Plan, and will comply with the Codified Ordinances of the City of York. All plans and proposals prepared by the RDA will be subject to the recommendations of the Planning Commission and the approval of the City Council.