Overlay Districts, Aesthetics & Beautification

I. Introduction

This past December Orion Construction came before the Planning Commission with a request for a restaurant use at 7559 36^th Ave. In the course of that application, areas of potential incompatibility, though allowed, were identified. It appeared that in some cases the zoning ordinances did not directly address issues such as architecture, signage and certain uses that were not “harmonious and compatible” with the surrounding area. Overlay Districts were discussed as an option in controlling potentially inconsistent development in close proximity to residential developments. At that time commissioners agreed that further discussions were warranted and more information needed.

In an effort to initiate that process this document was developed as a starting point for further discussions on the use, necessity and functionality of Overlay Districts. In addition, this discussion should also serve as an opportunity to discuss other beautification and aesthetic improvements that may not be addressed by Overlay Districts, but need attention nonetheless.

II. What are Overlay Districts? How do they work?

Background

The zoning overlay district is a special type of zoning district. Overlay zoning districts are tools for dealing with special situations or accomplishing specific goals. These districts can be placed 'over' the base zoning for an area to either alter some of the regulations or to add additional ones. The underlying zoning does not change, but the overlay district will generally add another 'layer' of regulations on top of that already in place for the underlying zoning district. Overlay districts are used when a community wishes to regulate properties based on a certain characteristic. Instead of changing the provisions of the base zoning district, which would affect all parcels in that zoning designation, an overlay district is created which contains special provisions only applicable to those parcels that are identified as being within the overlay.

Overlay districts, just like conventional districts, generally consist of written text defining the regulations pertaining to the district, as well as a district with mapped boundaries, defining which properties belong in the district. The mapped boundaries of the overlay district do not necessarily coincide with other zoning district boundaries and may not even follow parcel boundaries. For example, it is common for natural features (such as streams, lakes, etc.) to define the spatial limits of the overlay district.

In other cases, it is possible to create a 'floating' overlay district. A floating overlay does not have specific boundaries, but comes into effect any time that a certain set of requirements are met. As an example, a community may designate an overlay district that affects all properties which are over a certain size and within a certain distance from specific amenity, such as a bus stop. In this case, if the property were to be developed or re-developed, the requirements of the overlay district would need to be met, along with all requirements in the underlying zoning district as well.

Examples

Common uses for overlay districts are to enact regulations dealing with wetlands, floodplains, historic structures, transportation corridors, or airports. For example, a community may enact a floodplain overlay district which regulates how properties located in the floodplain can be used. The underlying zoning (such as commercial or residential) does not change, but any development of the property must meet the requirements of the floodplain district as well as the underlying zoning district. Other uses are to maintain the integrity of historic areas, to preserve view, to restrict public uses or to limit building heights in certain parts of a community (such as near an airport).

These districts can also be creatively used to be less restrictive than the base zoning district. One example of this is a parking overlay district, which may provide for relaxed parking standards for certain properties, such as those in a downtown area.

Guidelines

Some things to keep in mind when implementing an overlay district are:

• Make sure that the overlay district is consistent with the goals and objectives of the Master Plan, and that the written regulations of the district are specific and speak to the stated intent and purpose.
• The boundaries of the overlay district should be as simple and understandable as possible and should be tied to the specifics of the area to be regulated (for example, a floodplain overlay district should be tied to the boundaries of the regulated floodplain).

III. What are the primary reasons for Overlay Districts in Georgetown Township?

For the purposes of this discussion, “compatible and harmonious” aesthetics (i.e. signage, architecture and landscaping) has been identified as the primary reason for the creation of Overlay Districts. That’s not to say that these are the only areas of regulation. There are surely many more and thus the need for further discussion and input from all planning commissioners. For example:

• Could Overlay Districts be used to control certain types of development near residential neighborhoods or schools?
• Could Overlay Districts be used to further develop and encourage a walkable “downtown” area and create an architectural “Main Street?”
• Could Overlay Districts be employed to encourage the burying of overhead wires, and use of specific types of street lighting, traffic lights and sidewalks?

These are just some of many questions to be asked in exploring the use of Overlay Districts.

The planner’s comments, findings and recommendations regarding the Orion Construction request for 36^th and Baldwin offered some unique insight into the potential items to be covered by an Overlay District. In the following excerpt the planner advocates many requirements that could be part of an Overlay District in that area and in others.

“The proposed building location is located at the required setback lines, with parking located to the west. This type of design may have a greater negative impact on the adjacent residential areas due to the lighting, noise and associated activity that vehicles generate. In addition, although much of the properties adjacent to the intersection are vacant, a development trend has been established along 36^th Avenue by the church and fire station to locate parking in front of the building. As a result, staff proposes that the building be located on the west portion of the property but meet the required twenty-five (25’) foot setback and greenbelt requirement (see attached conceptual rendering). Evergreen trees at heights between six and 12 feet should be provided within the greenbelt area, and staggered in height and location to provide a natural, dense screen appearance. The Zoning Board of Appeals would need to consider varying the standards of Chapter 24(m) under a separate application, which requires a commercial building to be located a minimum fifty (50) feet to a Residential District boundary.

Parking should be located to the east of the building. Trees should be planted on each end of the parking lot, and row of dense hedge plantings should be located immediately to the east of the parking lot within the landscape setback area to screen the parking from the roadways.

Storefronts should be located on the east side of the building and face the parking lot. A sidewalk with a width of fifteen (15) feet should be provided next to the storefronts to stimulate pedestrian activity. Landscape plantings could be located within the sidewalk area with benches to provide a suitable outdoor environment. Dependant on the restaurant location, an outdoor seating area could be provided to the north of the building next to the access drive. A sidewalk should be provided along 36^th Avenue to provide safe alternative mode travel. The sidewalk should connect to a walkway that extends into the site on the north side of the driveway. A striped pedestrian crossing should be provided on the pavement between the end of the extended sidewalk and the building. Bike racks should be provided at multiple locations near the building.

Because of the proximity to residential areas, the building should be designed to include a hip roof with gables. Bay windows or similar traits should be included along the storefront facades to simulate a residential-style. The west side of the building should include breaks in the massing through the use of materials or false window treatments. Building colors and materials should compliment the colors and materials of the existing area. The building height should be in character with the height of surrounding buildings.”

Signage to appropriate scale, residential-style doors, raised planting areas

“The dumpster location should be located as far as possible from the residential district, and fully screened with materials consistent with the building. The transformer should also be fully screened and located on the southeast side of the building. Minimal site lighting should be used, with appropriate fixtures that direct illumination down and prevent visual glare. Signage should meet the requirements of Chapter 25, with tenant signs consistent in material and design.

The main objective of such a design is to create an environment that blends with the existing adjacent residential development, and considers the mass and scale of development within the area. This can be accomplished through the use of appropriate building materials, rooftop design, and residential-style features (bay windows, shutters, doors, etc.) Sidewalks, landscape plantings, bike racks and outdoor seating areas are needed to promote pedestrian activity and facilitate safe access to the site by school attendees (given the proximity of the public school campus to the north), nearby residents, and general public. The buildings, site designs and treatments featured below show how such a development can be accomplished.”

In the course of this discussion it is also possible that we ask Overlay Districts to do too much. If discussion leads to the possibility of creating, one, very large Overlay District to control a single developmental component, such as signage, consideration should be given to reviewing and possibly initiating an ordinance change instead.

For your consideration:

Sec. 25.6 Signs Permitted

(A) Residential Districts

(4) ON-SITE SIGN, for principal uses other than dwellings, not exceeding thirty-two (32) square feet in area. Such sign may be a wall sign or a freestanding sign mounted directly on the ground and its height shall not exceed four (4) feet above mean grade, not located nearer to the front lot line than one-half (1/2) the required front yard setback nor located in the required side yard. No freestanding sign shall exceed a height of twenty-five (25) feet nor have a clear space of less than eight (8) feet from the ground to the bottom of the sign.

(B) Neighborhood, Community and Office Service Districts. The following types of signs are permitted:

(1) Same as for Single and Two Family Districts, except as otherwise stated in this Section, excluding on-site signs.

(2) FREESTANDING GROUND MOUNTED SIGN, one (1) freestanding sign mounted directly on the ground with a height not to exceed six (6) feet above mean grade per business or business center, as applicable. Such sign if mounted on a pole shall not extend over the road right-of-way nor shall it extend over the distance from which a required setback shall be measured as required in Chapter 24(b) (revised 1-24-05) and shall not exceed twenty-five (25) feet in height nor seventy-five (75) sixty (60) square feet in area per side. provided a business center sign may be permitted up to one hundred (100) square feet in area per side. Such sign shall have a clear space of at least eight (8) feet from the ground to the bottom of the sign. If mounted on the ground, such sign shall not exceed four (4) feet in height as measured from the mean grade nor fifty (50) square feet per side, provided that Such sign shall be set back from the road right-of-way and the distance from which a required setback shall be measured as required in Chapter 24(b) (revised 1-24-05) a minimum distance of fifteen (15) feet and shall not, as determined by the Zoning Administrator, obstruct the view of traffic entering or traveling upon the street or pedestrian traffic traveling upon the sidewalk.

(3) If a ground mounted sign obstructs the view, or creates an otherwise unsafe situation for traffic entering or traveling upon the street, or pedestrian traffic traveling upon the sidewalk, as determined by the Zoning Administrator, one (1) freestanding sign is permitted per business or business center, as applicable. Such sign if mounted on a pole shall not extend over the road right-of-way nor shall it extend over the distance from which a required setback shall be measured as required in Chapter 24(b) and not exceed twenty (20) feet in height nor fifty (50) square feet in area per side. Such sign shall have a clear space of at least eight (8) feet from the ground to the bottom of the sign.

C) Highway Service and Industrial Districts. No signs shall be located nearer the front lot line or side lot line than one-half (1/2) times the required yard setback. The following types of signs are permitted:

(1) Same as for Neighborhood or Community Service Districts.

(2) BILLBOARDS, where the erection or maintenance of the same will not unreasonably affect the proper use of adjoining property, billboards will be allowed in (HS) Highway Service and (I) Industrial Zones. They shall be located at least 200 feet from a freeway right-of-way line or distance are required in Chapter 24(b) (revised 1-24-05), and 100 feet from any other street or railroad right-of-way line. A billboard shall not be located closer than one mile (5,280 feet) from another billboard on either side of a public right-of-way.

IV. Where could, or should, Overlay Districts be applied in Georgetown Township?

This is probably the single most important question in this process. The need for input from experienced commissioners is paramount in working to identify the areas of potential incompatibility with regards to signage, architecture and landscaping. Here are just a few areas for discussion:

• 36^th Avenue and Baldwin
• Bauer and 48^th Avenue
• Cottonwood and Bauer
• 8^th Avenue & 44^th Street
• Cottonwood from Chicago Drive to Port Sheldon (Behind Target and the USPS)
• 18^th and Chicago Drive
• Chicago Drive (in it’s entirety?)

V. What about areas that Overlay Districts can’t help?

Overlay Districts can’t do everything. In researching this discussion other areas of beautification and aesthetic improvement came to light. In the segment titled “Aesthetics and under the subheading of “Image” the Chicago Drive Corridor Study (Nov. 1996) points to two major issues that, ten years later have yet to be addressed.

A. The study states the following with regard to Chicago Drive as a boulevard:

“Normally, a boulevard creates a positive visual impression. The East Beltline and 44^th Streets are examples. However, this is not the case with Chicago Drive. The positive impact of the boulevard is lost. Attention is drawn away from the median; cross-overs are not apparent; and the edge is poorly defined. The street looks tired and dated. There is no consistent, harmonious image.”

Can we as a commission work towards solving this problem? The issue of funding will always be an impediment, but if we continue to keep this issue on the backburner until there are “sufficient funds” it will never happen. There will always be ice arenas to build, highways to be connected and bridges to construct.

B. The study states the following with regards to entry points to the Township:

“Entry points into the Township are poorly defined. On the west, there is no distinction between the Georgetown and Hudsonville line. On the east, the I-196 off ramp, railroad crossing, traffic weaving motion, and continual turning movements create severe congestion, confusion and a poor introduction to Georgetown. Existing vacancies add to the negative impression.”

How long will we allow people to entering our township get “a poor introduction to Georgetown?” There is a lot to be proud of here and it is through answering this question that this commission could initiate a new pride in our own “front yard.” For better or worse, Chicago Drive is our front yard.

VI. What are neighboring Townships and Cities doing?

We need only look next door, or down the road for great examples of Overlay Districts and Ordinances that have succeeded in improving a Township or City’s aesthetics. These improvements increase property values, attract businesses and ultimately grow the tax base. Our Township has huge, unrealized potential when it comes to aesthetics. The goal in improving aesthetics is not to create government regulation that is so burdensome it drives business away or frustrates current business owners; on the contrary. Improvements with regard to signage, landscaping, architecture and so much more, only work to make our community more competitive, more desirable and more representative of the quality of its citizens and businesses that dwell with in it.

Grandville’s Rivertown Parkway is a great success story with regards to a beautiful boulevard, ground based signage and proper planning. The East Beltline Boulevard, from I-96 to Burton was recently landscaped, also offering a great example in beautification. 28^th St in Wyoming near Roger’s plaza has had a face lift with trees, sidewalks and old fashioned street lights. Allendale has installed the old fashioned street lights, for a successful Main Street feel. North Monroe in the heart of Grand Rapids is a city boulevard with beautiful landscaping and a lot of flowers, making it a great downtown comeback story. Downtown Holland’s Main Street feel continues to draw new businesses and new customers with it’s Main Street appeal. And finally, Grand Haven recently succeeded in employing Overlay Districts forcing Wal-Mart to create a visually appealing store.

The next step in this part of the process is to further investigate these success stories, possibly inviting those who have been through the process to come to Georgetown and share their experiences.