Warren G. Magnuson Park
Sand Point Historic District

SAND POINT HISTORIC DISTRICT - REALIZING THE VISION

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PROJECT UPDATE

Seattle Parks and Recreation thanks all those who attended one or more of the open houses held in November 2007 to discuss the proposals for improving buildings at Magnuson Park.

A total of 296 people signed in at the three open houses, and more than 100 submitted written comments. More than 70 people submitted e-mails. Parks has provided all of those comments and e-mails to the City Council for their consideration as they review the proposals this Spring.

As was highlighted at the open houses, the next steps include the Seattle City Council review of the following:

• An ordinance adopting a concession agreement for Civic Light Opera improvements to the Magnuson Community Center Theater
• An ordinance adopting a concession agreement for Seattle Court Sports Unlimited construction and operation of the Sand Point Tennis Center
• An ordinance adopting an agreement for the Building 11 LLC improvements and operation of Building 11
• An ordinance adopting a concession agreement with Arena Sports for improvements to Building 27 and operation of an indoor recreation center
• A resolution supporting Cascade Bicycle Club improvements to Building 18 and its development as the NW Center for Cycling
• An ordinance adopting the Sand Point Overlay District Land Use Code Amendments

A VIEW BACK

In the mid-1970s, the Sand Point peninsula began its evolution from a large U.S. Navy airport into a regional public park. On the eastern part of the peninsula the removal of airport runways and the construction of rolling hills, athletic fields, picnic areas, and restrooms marked the beginnings of Warren G. Magnuson Park. Support buildings from the airport remained in the western part of the peninsula and functioned as Naval Station Puget Sound until the mid-1990s. At that time the station was closed and the land transferred to the City of Seattle and the University of Washington. The addition of these lands provided an opportunity for creating a regional park that now provides diverse open spaces and reused unique historic buildings. A goal for Parks and surrounding communities was to unite these two pieces of the park - a large open space recovering from decades of military use; and to create a campus that included houses, warehouses, and aircraft hangars. While many details evolved over time, the core community vision remained constant - to make Magnuson Park into a great urban park that is home to organizations providing recreation, arts, and cultural programming. This vision is best stated by the citizens' group, the Sand Point Advisory Committee:

"The Sand Point Peninsula, long a home to the U.S. military, is being developed to serve a new mission -- becoming a vibrant public resource and activity center for the Puget Sound region. The new Magnuson Park is a community coming alive with creative opportunities for all. Magnuson Park will feature an exciting mix of innovative activities, blending arts, education, recreation, environmental restoration and residential living. The site will provide opportunities to people from throughout the region for passive reflection in a beautifully restored natural environment and unique historic setting. As it evolves over time, Magnuson Park will continue to enrich our lives and inspire our imaginations." (Sand Point Advisory Committee, 1998).

By the time the Navy closed the station and transferred properties, maintenance had already been deferred for many years. Since 1999, Parks has focused funding on upgrading outdated utility systems, developing traditional park facilities such as a children's playground, community center, community garden, an off-leash area, and providing minor building maintenance. Most of this work was done on the site of Navy-era buildings located in the Sand Point Historic District. For example, a former recreation center and a Navy jail (commonly known as the brig) were renovated and now operate as the Magnuson Community Center. Building 30, a former aircraft hangar and office building, received a new roof and earthquake protection upgrades. Now it is home to non-profit organizations and provides a venue for large special events. To date, these improvements and others total more than $8 million invested by the City. Additional funding from both the University of Washington and the Sand Point Community Housing Association made possible the renovation of buildings for educational uses and the provision of housing for homeless individuals and families.

Much of the City funding to date has been used to plan or construct projects in the park's open spaces. Instead of manmade features left by the Navy, many parts of the shoreline now have beaches that are better for both fish and people. Where 30 years ago runways existed and five years ago Scotch broom thrived, there is now a community garden and children's playground, and a nationally recognized off-leash area. In 2008, work is expected to begin in the center of the park on restoring wetlands and habitats and constructing new athletic fields. These projects and others represent more than $13 million in City funding.

ADJUSTING OUR SIGHTS

In 2004, the Mayor asked Parks staff to identify new strategies for funding reuse of buildings in the historic district. With the exception of Building 30 and development of the Magnuson Community Center, only minor maintenance was done on other buildings. As a result of this review, staff identified the following constraints to making traditional improvements:

• Buildings are underused and require an estimated $42.7 million (2003 dollars) to renovate to a basic useable condition; tenants could make further "finishing" improvements.
• Of 11 City-owned buildings in the historic district, nine contribute to the district's significance; Federal historic and recreation covenants place limits on improvements and uses.
• Relative costs of renovating historic structures are difficult to recoup when limited to providing traditional park and recreation programming.

Property covenants are not unusual in Federal land transfers. The historic preservation covenant requires the City "to make every effort to retain and reuse, to the extent practicable, the historic structures" consistent with their potential registration as a National Historic District. The recreation covenant requires that the property "shall be used and maintained for public park and recreation purposes in perpetuity".

SEEKING PROPOSALS

Based on input from the Mayor and other City departments, Parks issued three separate Requests for Proposals (RFPs) during 2005. Brochures were sent to recreation, arts, and cultural organizations in the Portland, Seattle, and Vancouver metro areas. To attract interest in the real estate industry, Parks placed advertisements in the Puget Sound Business Journal and the National Real Estate Investor.

The primary goal was to find entities interested in developing indoor recreation facilities and programs such as performing arts, indoor soccer, hockey, basketball, rock climbing, tennis, cycling or other programs serving a public need. RFPs were issued for development of the theater in the Magnuson Community Center, a multi-purpose indoor recreation center, a tennis center, a health and fitness facility, or a facility for other indoor recreation activities. Buildings 2, 11, 18, 27, and portions of the Community Center (the theater and a previously un-renovated section) were listed as potential locations for facilities.

The intent of the RFP processes was to:

1. Identify service providers who offer public park and recreation programs which would also achieve the Magnuson Park vision.
2. Preserve the integrity of the Historic District.
3. Relieve the city of the financial liability for building redevelopment and maintenance.
4. Identify development partners with the expertise and financial capability to improve facilities.

Parks received no proposals for Building 2, the undeveloped portion of Building 47, or a tennis center. Subsequent to the RFP process, a proposal was submitted for an indoor tennis center.

After each RFP round, submittals were reviewed by teams composed of City staff. The proposals were rated according to how they met the City goals. This resulted in the approval of four proposals as listed below:

1. Arena Sports proposes an indoor recreation facility in Building 27.
2. Building 11 LLC proposes a recreation oriented mixed use development in Building 11.
3. Civic Light Opera proposes to develop and manage the theater in the Magnuson Community Center.
4. Cascade Bicycle Club proposes the Northwest Center for cycling in Building 18.

DETAILS

Arena Sports proposes a multi-use indoor recreation facility in Building 27. This building is currently vacant but hosts periodic special events that require large open floor areas. Arena Sports' proposal includes indoor soccer, basketball, and baseball, a health and fitness club, and limited food service. The estimated building renovation cost is $6.8 million. Arena Sports would then operate programs as a concessionaire under a long term lease (proposed 30 years). Arena Sports would make additional investments as necessary to complete improvements in the various recreation amenities. Programs currently operated by Arena Sports in Building 2 would be relocated to the renovated Building 27.
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Building 11 LLC proposes a recreation-oriented mixed use development in Building 11. This building currently houses tenants including artists and non-motorized boating programs. Their proposal includes a tenant mix of existing sailing and kayaking programs, a day care center, restaurant(s), and other as yet unidentified recreation oriented tenants. Restaurants would be designed and managed to serve visitors at the park or other activities and not intended to be a stand-alone destination. The estimated renovation costs are $7.7 million. This group would privately finance the entire project and would not use the building, land, or improvements to secure a private loan. In exchange for a long term agreement, the group would renovate and manage the building. Over an approximately 20 year period, the group could offset a fair market rental rate against their total renovation costs. No city funds are expected to be used for the capital improvements.
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Civic Light Opera (CLO) proposes to develop and manage the theater in the Magnuson Community Center. The theater is currently used by CLO and other theater organizations but is a substandard facility. Parks is currently considering a long term lease under which CLO would invest $3 to $5 million over a 10 year period. Their goal is to create a state-of-the-art, live performance theater. CLO would raise funds and construct capital improvements in phases. Parks anticipates that no city funds would be used for the capital improvements. CLO will be required to accommodate a level of public programming accommodating other theater groups and which supports the youth theater programs operated by the community center.
» view full proposal  (14M)
» view site map, photos and description  

Cascade Bicycle Club proposes the Northwest Center for Cycling in Building 18. This building is currently vacant. The proposal is to develop a facility that would house their offices as well as those of other bicycle oriented organizations. It would also house a small coffee shop, classrooms, a bike repair workshop, and a training center for cyclists. The estimated renovation cost is $3 million. Cascade Bicycle Club will complete a fund raising feasibility study to assess how much capital money could be raised. When this study is completed. the City will consider the amount of their contribution to improvement costs.
» view full proposal  (14M)
» view site map, photos and description  

Sand Point Arts and Cultural Exchange (SPACE) prepared an outline proposing the improvements in the 21,000 square foot west wing of Building 30. This wing is currently vacant. SPACE is working with a coalition of artists to secure commitment from future tenants and outlining a financing and management plan. Opportunities for public interaction will be provided regular gallery openings, studio open houses, and artist-offered classes. The inclusion of artist studios would maintain the balance between arts and recreation envisioned for Magnuson Park.
» view site map, photos and description  

Sand Point Tennis Center. Parks received no proposals for the full development of the tennis center as proposed by the citizen-led Sand Point Tennis Association. This 14-court project had an estimated cost of more than $11 million. In early 2006, Seattle Court Sports Unlimited presented a concept for developing 9-10 indoor and outdoor courts in an air-supported structure (bubble). A long term lease will be presented to the City Council in early 2008 which includes the construction of 6 indoor courts, 4 outdoor courts and improvements to Building 41 for locker rooms and a pro shop. The Concept Design for Magnuson Park, adopted in the late 1990's, includes development of a tennis center adjacent to the Magnuson Community Center.
» view site map, photos and description  

The Mountaineers. In 2005, a 30-year lease was approved by the City Council, and set the stage for improvements in Building 67 for The Mountaineers. This long established outdoor recreation club will occupy most of a former Navy motor pool garage, also known as Building 67. Terms of the agreement include a $1.7 million capital investment and the construction of a rock climbing plaza that will be open to the public to offset rent payments. Architectural design was completed in 2007 and occupancy is expected in late 2008.
» view site map, photos and description  

CURRENT DIRECTION

The week of March 17th, Mayor Greg Nickels sent to the City Council a legislation package that will renovate three buildings into spaces for arts and recreation and build a new tennis center. The legislation will tap up to $16.8 million in private investments to save a popular sailing program, renovate theater space for Civic Light Opera, create a new home for the Cascade Bicycle Club and provide space for an innovative green company, among other benefits.

Without partnerships with compatible organizations, the city faces a $50 million bill to upgrade all of the remaining buildings at the park to meet current building codes and keep them open for public use.

In 2005, the city sought proposals from private and nonprofit investors to finance the renovation of buildings in the park and to expand their uses. Today, it is considering four proposals from two nonprofits, Cascade Bicycle Club and Civic Light Opera, Seattle Court Sports Unlimited and a group that formed to renovate Building 11.
The package includes upgrades to three park buildings with a combined 130,000 square feet:

• Cascade Bicycle Club would invest $3 million to upgrade Building 18, which is currently vacant, to house the Northwest Center for Cycling. The facility would feature classrooms, a bike-repair workshop, a training center for cyclists and a small coffee shop. The building would also house the Cascade Bicycle Club and provide office space for other bicycle-oriented organizations.
  
  
• Building 11 LLC, formed to renovate Building 11 in the northwest corner of the park, proposes a $7 million upgrade for a recreation-oriented mixed-use development. The building would continue to house Sail Sand Point, a nonprofit small boat program serving primarily youth. It would also include other recreation and fitness organizations, artist studios and two local restaurants - Kidd Valley and Ivar's. The restaurants would mainly serve park users, as they would be in the interior of the park. MicroPlanet Inc., a research firm that develops innovative energy conservation technology, will remain in the building, echoing Seattle Parks and Recreation's commitment to environmental stewardship.
  
  
• Civic Light Opera would invest up to $5 million to revamp and run a theater at the north end of the Magnuson Community Center. Civic Light Opera and other theater organizations currently use the space, but the facility needs substantial upgrades. In exchange for a long-term lease, Civic Light Opera would raise funds and improve the theater in phases. Other theater groups could use the space, which would continue to serve youth theater programs operated by the community center.
  
  
• Seattle Court Sports Unlimited proposes to spend $1.8 million to build a new indoor-outdoor tennis center with six courts in an air-supported structure, or bubble, and four outdoor courts. The group will also renovate Building 41, currently used for Parks fields crews, into locker rooms and pro shop.

POTENTIAL ISSUES

Parks understands that each of the proposals presents opportunities and challenges. There are a number of likely issues associated with the proposals and Parks is interested in hearing from the community on these and other potential issues.

• Traffic: Traffic analyses completed in 1996 and 2001 showed that the number of vehicle trips in and out of the park would not have significant impacts on the local streets and intersections. Traffic analyses from 2001 were updated in 2006 based on the number of square feet proposed for each building. The number of trips made by vehicles in and out of the park will decrease. This is primarily attributed to lesser or no development in Building 2.
• Parking: A quantitative parking study was completed in 2001 and identified more than 2,580 spaces located throughout the Sand Point Overlay District – the zoning district that governs land use. Per overlay district provisions, required parking for activities may be located anywhere in the district. Analysis of parking demand relative to proposed uses ranges between 1,400 to 1,600. This results in a surplus of at least 980 spaces.
• Noise: When neighborhood noise has been an issue, it was primarily the result of amplified sound from large special events. As Building 27 transforms into an indoor sports facility it is anticipated that event related noise will decrease significantly. Special events will continue to be held in Building 30 and outdoor locations on the eastern side of the historic district where noise has not been an issue.
• Lighting: It is anticipated that there will be minimal impacts from site lighting. During a utility system improvement project (1999) new light poles were installed throughout the historic district. Additional street light and pedestrian light poles were kept in reserve, ready for installation as buildings were redeveloped. In land use code amendments Seattle Parks is proposing that lighted signs be permitted. These would be larger than ones currently found in the district and would only be lighted from a fixture pointed toward a sign.
• Urban Wildlife: Many wildlife species tolerant of human activities are found within Magnuson Park, particularly in the park's eastern open spaces. However, some species even find habitat opportunities within the historic district and its buildings. From April to October each year, cliff swallows nest in the upper door tracks of Building 27. Swallows are protected by Federal law since they are a migratory species, so they may not be disturbed when nesting. Throughout North America this species has adapted itself to use structures such as bridges. Parks will work with architects to find building design elements that meet both the needs of indoor recreation and the swallows' seasonal visits.
• Signage: Larger and front-lighted signage is proposed for buildings in the historic district. As activity in the park has increased, so has the need for clearly directing visitors to their desired destinations. Evidence of this need is in the number of temporary looking signs placed at main entrances into the park. A signage and wayfinding master plan, completed in 2004, defines signage types, sizes, colors, fabrication details, and sign locations. Sign dimensions from this plan and will be incorporated into land use code amendments proposed for the Sand Point Overlay District.
• Commercial Activities: Recreational interests change over time. Twenty years ago rock climbing walls, inline hockey, and indoor soccer arenas were novelties. Many parks departments throughout the country provide these and other facilities for their citizens. However, Seattle Parks does not have the funding to build every desired recreational facility, but can leverage funding through public-private partnerships. Parks is faced with over $42 million in renovation costs for just the basic needs in the former Navy buildings. Parks does not have the financial resources to address that level of financial need without assistance. The proposal by Arena Sports, for example, permits Parks to provide new recreation activities that would not otherwise occur. The primary purpose for all activities is to serve or provide a desired amenity for visitors to the park.
• Lost Opportunities for Other Activities: Buildings in the historic district provide unique sized spaces for activities that range from indoor sports to community events. After gaining ownership, Parks encouraged use of the larger buildings by programming special events. While events bring people to the historic district and generate direct revenue for Magnuson Park, they do not generate sufficient revenue for long-term building preservation and do not maximize general public access to the facilities. An activity offered daily. such as indoor recreation, will provide year-round, long-term access to the facilities by the general public.

IMPLEMENTATION ACTIONS 2007 - 2009

• Safety Improvements in Building 30. To maintain the hangar in Building 30 as a venue for special events, a number of safety improvements are required by the Fire Department and the Department of Planning and Development (DPD). In fall 2006, pedestrian doors will be installed in existing hangar doors, and a fire sprinkler system is included in Seattle Parks asset management plan for 2007.
• Land Use Code Amendments. The Sand Point Overlay District permits additional land uses beyond those found in the two base zones; Single Family 7200 and Lowrise 3.
  
  Parks is requesting amendments that will support building redevelopment in the historic district by permitting additional principal land uses, mechanical equipment on rooftops, signs similar in size and placement to neighborhood business districts, the reconstruction of buildings on existing footprints, and expanding the boundaries of the Overlay District to include Building 27. The land use code permits uses that are either principal, or stand alone, and those that are accessory to a principal use. The amendment is proposing the inclusion of eight principal land uses: Animal health services; Dry boat storage, limited to storage of non-motorized, hand-launchable boats such as kayaks, canoes and sail boats; Motion picture theater not to exceed 500 seats within building 47; Offices, limited to 144,000 total square feet in the entire subarea; Performing arts theater; Pet grooming services; Restaurant, limited to no greater than 2,000 square feet per establishment; and Retail sales and services, general, accessory to other uses within the district, limited to 6,000 square feet per establishment. Single family zoning limits the height of structures to 35 feet, but in the historic district many buildings are 50-60 feet tall. To meet current building codes it is likely that larger heating and ventilation systems and, in some cases, elevators will be required. Both things require rooftop mechanical equipment which currently would not be permitted without obtaining a conditional use permit. This will allow certain types of rooftop structures to be added to existing non-residential historic buildings to extend up to 15 feet above the finished roof grade. Replacement of historic structures with new structures if they are built on the footprint of the historic structures they replace. Spaces between structures would continue to be maintained in open space use. Allow one new indoor and outdoor tennis structure, up to 45' in height, outside the footprint of a historic structure. Signs are tightly regulated in the Single Family zone and basically only permit address signs that are small. The historic district encompasses almost 100 acres and it can be difficult for visitors to see where programs are offered. Standards are proposed that will permit signs as large as 48 square feet on the walls of major buildings and individual signs for business establishments. Only external lighting fixtures may be pointed toward signs to light them. All signs would need to be consistent with The Signage & Wayfinding Master Plan for Warren G. Magnuson Park (2004) and the Sand Point Historic Properties Reuse and Protection Plan.
  » detailed comparison of existing and proposed code sections 

Table 2: Comparison of Proposed Sign Code To Existing Code Provisions

• Sand Point Way Access. To provide better traffic access to The Mountaineers clubhouse and Buildings 11 and 27, Parks is proposing re-establishment of a former driveway to the south of the NOAA Access Road. Staff are in discussions with the Seattle Department of Transportation.
• Shoreline Management Permits. Portions of buildings 11 and 27 are located within a Shoreline Management District. Washington State Department of Ecology and City DPD regulations regulate land uses within 200 feet of the Lake Washington shoreline. Parks will assist development partners in obtaining conditional use and/or variance permits.

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