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Prepared by: The Legislative Governmental Mall Commission - Phoenix, Arizona June 1997
Prepared by: The Legislative Governmental Mall Commission - Phoenix, Arizona June 1997
Capitol DistrictDevelopment Guidelines
LEGISLATIVE GOVERNMENTAL MALL COMMISSIONThe Governmental Mall Commission was established by the Legislature in 1985 in order to develop and maintain a
comprehensive long-range plan for the development of the Governmental Mall area. The Commission is composed ofrepresentatives from State, County and City government as well as from the general public.
Barry Starr, ChairmanThomas Knapp, Acting Chairman
Senator David PetersenDavid Richert
Polly RosenbaumSusanne Rothwell
Representative Tom Smith
Members:
Kent BosworthLeRoy Brady
John ClementsFrank Dubasik
Jill Herberg-Kusy
State of ArizonaDepartment of Administration
General Services Division
City of PhoenixPlanning Department
Maricopa CountyDepartment of Planning and Infrastructure Development
Prepared by:
ABLE OF CONTENTS
IST OF FIGURES
History of the PlanBoundariesPurpose of the PlanGoals and ObjectivesPlanning and Development ConceptsCurrent Land UseProposed Land UseCirculationBuilding Design GuidelinesDevelopment Review ProcessAmendment Procedure
Boundary MapExisting State BuildingsHistoric PropertiesLand Use PlanBuilding Setback PlanBuilding Height PlanPedestrian Walkways in Surface Parking
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1Capitol District Development Guidelines
Map 1 - Boundaries
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The Governmental Mall Urban Design Planwas subsequently adopted by the GovernmentalMall Commission in June of 1989. The plancontained guidelines for new developmentwhich assisted the Commission and City staffin reviewing development proposals in the area.
In 1995, State legislation made a major changein the boundaries of the Governmental Mall. Inearly 1996, the Commission took on the task ofrevising the urban design plan in order to: 1)coincide with the new boundaries, and 2) makethe plan easier for both the public and staff touse. The 1989 plan was the basis for thisrevised document.
History of Planning in the Area
The first major study of the Governmental Mallarea was undertaken in 1957. In 1967, theArizona Legislature created a coordinatingcommittee of representatives from the State,Federal, City and County governments toprepare plans for the governmental corridoralong Washington Street from the City-Countycomplex to the State Capitol. The State, Cityand County governments affirmed their supportfor a Governmental Mall plan and concept in1969.
Several early Governmental Mall plansconcentrated on: 1) lining the north side ofWashington Street and the south side ofJefferson Street with government buildings, and2) maintaining large tracts of open spacebetween the two streets creating an open malleast of the capitol building. (Hence the term,“Governmental Mall”.)
In 1985, the Legislature created theGovernmental Mall Commission comprised ofrepresentatives from all three jurisdictions aswell as the U.S. Congressional district. Asdirected by State law, this Commissionreviewed development plans and initiated anintensive planning effort for the area. TheCommission hired planning and transportationconsultants who developed plans with the helpof the community and City staff. An extensivepublic participation effort elicited the issues andconcerns of those living and working in thearea and transformed them into a set of goalsand objectives for future development.
Boundaries
The Governmental Mall is defined by State lawas the area between 7th and 19th Avenues, fromthe Harrison Street alignment on the south toVan Buren Street Street on the north includingthe lots on the north side of Van Buren Street.(See Map 1 - Boundaries)
2 Capitol District Development Guidelines
CC apitol DistrictDevelopment Guidelines
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Planning and DevelopmentConcepts
1. Major office and other people-intensiveuses should be located along theWashington/Jefferson corridor in order tofacilitate and focus pedestrian activity aswell as to improve transit opportunities.
2. Land uses in the area should becompatible. Future land uses should bedeveloped in a manner that has a positiveimpact on neighboring uses.
3. Landscaping and pedestrian access shouldbe coordinated in the entire area withparticular attention given to linking theseelements among adjacent buildings.
4. The visual focal point of the area shouldbe the State Capitol Building.
5. Open space in the area should bedesigned to preserve, enhance andincrease its use by the public.
6. The historic character and structures ofthe Woodland Historic District should bepreserved and enhanced throughrehabilitation and adaptive use.
7. The concentration of homeless serviceswithin the area should be reduced.
Purpose of the DevelopmentGuidelines
Goals and Objectives
Present the expectations of theGovernmental Mall Commission inreviewing future developmentproposals.
Establish criteria for review andapproval of development proposals.
1. Establish an orderly, planned environmentfor the area.
2. Provide for a diversity of development.
3. Plan and design an environment that willdiscourage crime, provide alternativelocation(s) for the homeless outside thearea, and discourage land uses andconditions which cause high noise levels oremit noxious odors.
4. Make the area more attractive and pleasantfor residents, workers and visitors.
5. Improve the economic vitality of the areaby making the area more interesting anddynamic.
Capitol District Development Guidelines
4 Capitol District Development Guidelines
Current Land Use
The State of Arizona Capitol complexdominates the Governmental Mall. Land useswithin the Governmental Mall are varied andinclude: offices, parking, commercial,industrial, warehouse, museums, open space,residential, and social services. Vacant lots andabandoned structures are also scatteredthroughout the area.
The Mall begins at Seventh Avenue,immediately west of the downtown PhoenixCity and Maricopa County governmentcomplexes. Industrial land uses are generallylocated near the Southern Pacific Railroadalong the southern boundary of the Mall. Westof the Mall is a residential area (west of 19thAvenue). The northern boundary of the mall iscomposed of commercial development alongVan Buren Street Street, and the UniversityPark residential neighborhood.
The State Capitol complex contains over fortybuildings that house 8,500 employees. Themajority of State office buildings are located inthe area around the Capitol Building andWesley Bolin Plaza. In addition, State officebuildings are located along Washington andJefferson Streets from 15th Avenue east to 11thAvenue.
Private office space can be found directlyacross 18th Avenue from the Executive Towerand in several dispersed locations. There arealso three credit unions, which primarily serveState employees.
The State has constructed two major buildingssince the completion of the 1989 GovernmentalMall Urban Design Plan. The Courts Building
Office Buildings
(See Map 2 - Existing State Facilities)
at 15th Avenue and Washington added 70,000square feet and the DES building at 18thAvenue and Jefferson added 48,000 square feet.The State also converted the Shriner’s Hall at15th Avenue and Washington into the Minesand Mineral Museum.
Most of the State buildings are served by off-street, surface parking. The State owns about35 parking lots and three parking garages.There are over 8,500 spaces available in thesefacilities.
The majority of commercial uses are locatedalong Van Buren Street west of 15th Avenue.These uses include restaurants, fast foodoutlets, used car dealers, a convenience store, alaundromat, an auto repair shop, a medicalclinic, and a bank. Additional commercial usesare also located in the area east of 13th Avenueand south of Jefferson Street.
The area south of Jefferson Street and east of
Parking
Commercial
Industrial and Warehouses
13th Avenue contains most of the existing lightindustrial uses. These include a machine shop,a wood turning plant, a brake supply shop, alumber and building supply wholesale yard, anda bus repair facility. This area also contains thesocial service agencies that provide food andtemporary shelter.
The State has numerous support facilitiesincluding warehouses and two motor poolfacilities, located south of Jackson Streetbetween 15th and 19th Avenues.
The majority of the open space in theGovernmental Mall is owned and maintainedby the State. The Capitol grounds, WesleyBolin Plaza and the Carnegie Library groundsare the primary open spaces. Woodland andUniversity are two parks maintained by theCity. Woodland Park is a narrow linear spacelocated between 10th and 15th Avenues on thesouth side of Van Buren Street. University Parkabuts the northern edge of Van Buren Streetbetween 10th and 12th Avenues.
Open Space
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Map 2 - Existing State Facilities
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1 - State Capital West Wing2 - Capital Bldg. (1918-38 Addn.)3 - Capital Museum4 - Senate Bldg.5 - House of Representitives6 - Wesley Bolin Memorial Park7 - Risk Management, DOA8 - Arizona Power Authority9 - Health Services Bldg.
10 - Joint Legislative Budget Office11 - Revenue Bldg.12 - 1688 Office Bldg.13 - 1624 Office Bldg.14 - 1616 Office Bldg.15 - Health Laboratory16 - Data Center
17 - 1512 Bldg.18 - 1400 Bldg.19 - 1300 Bldg.20 - Corporation Commission21 - Evans House Office22 - Industrial Commission Bldg.23 - Carnegie Library24 - Law Bldg.25 - Capital Center Bldg.26 - State Courts Bldg.27 - Education Bldg.28 - Corrections Bldg.29 - 1645 Office Bldg.30 - 1717 DES31 - 1720 DES32 - 1789 DES
33 - Motor Vehicle Bldg.34 - State Personnel Bldg.35 - 1840 Maintenance Bldg.36 - General Services Admin. Bldg.37 - ADOT Materials Lab38 - ADOT Admin. Bldg.39 - ADOT Purchasing Bldg.40 - ADOT Engineering Bldg.
41 - ADOT General Operations42 - Surplus Property Facilities43 - Motor Pool Facilities
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Capitol District Development Guidelines
ResidentialMost residential land use within theGovernmental Mall is concentrated in theWoodland Historic District, in the area boundedby Van Buren Street on the north, Adams Streeton the south, 9th Avenue on the east and 16thAvenue on the west. This area is expected toremain as mixed use residential andcommercial.
Museums and Historic PropertiesThe State Capitol Building and the WesleyBolin Memorial Plaza serve as the centerpieceof the State Capitol Complex. TheGovernmental Mall also contains the Mines andMinerals Museum and the Hall of Fame(Carnegie Library). These facilities,particularly the Capitol Museum, attract largenumbers of school groups.
Several historic cemeteries, Old City Cemetery,Rosedale and Porter, are located betweenJefferson and Harrison Streets from 15th to13th Avenues. The City of Phoenix hasrelocated the historic Smurthwaite House tothis area. (See Map 3 - Historic Properties)
Map 3 - Historic Properties
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1 - Arizona State Capitol Building and Museum2 - Arizona State Office Building/Capitol Annex3 - El Zaribah Shrine/Mines and Minerals Resources Building4 - Woodland Historic District5 - J.M. Evans House6 - Grace Court School7 - Carnegie Library and Arizona
Hall of Fame Museum8 - West End Hotel9 - Phoenix Pioneer Military and
Memorial Park10 - Smurthwaite House
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6 Capitol District Development Guidelines
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Isolated residential uses are scattered in the areasouth of Jefferson Street and east of 12thAvenue. Central Arizona Shelter Services(CASS), located at 12th Avenue and MadisonStreet, shelters up to 400 homeless people eachnight. Other social services and eating facilitiesserving needy and homeless people are locatedin the area.
Proposed Land Use
Map 4 - Land Use Plan is a general plan of theuses proposed for the area.
Currently, State office buildings and Statefacilities associated with the Capitol are thepredominant land use in the Governmental
Office
Mall. The State also maintains various supportservices such as parking, motor pools andmaintenance facilities. The State owns vacantand underdeveloped land in the area which isplanned for future expansion. Office buildingsmay be constructed on this land as fundingbecomes available to the State. Consequently,State facilities will continue to be the majorland use in the area and that role is expected toexpand in the future.
Map 4 - Land Use PlanProposed Uses*Other uses may be permitted per City of Phoenix zoning
Residential/Commercial
Commercial/Industrial
Office
Open Space
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Capitol District Development Guidelines
The State of Arizona Department ofAdministration has developed a list of fivebuilding sites that are planned in theGovernmental Mall. The timing of theconstruction of any of these buildings isdependent upon legislative approval for thefunding. Each building would include aparking structure. Size of the buildings areexpected to range between 72,000 and 340,000square feet.
The five planned sites are:
Private development is also appropriate in thearea. New private development should alsofollow the guidelines provided in this documentto ensure quality and consistency as well as topromote improved pedestrian access,convenience, comfort and safety.
Retail and other commercial uses should beencouraged to expand their role in the area,particularly since these uses are needed tosupport the many office workers in theGovernmental Mall and residents in
Between Washington Street and Adamsand between 12th and 10th Avenue
Between Washington and Jefferson andbetween 18th and 19th Avenues
Between Washington Street andJefferson Street east of 10th Avenue
Commercial/Office
Between Washington Street andAdams Street to the west of the Minesand Minerals Museum (15th Avenue)
The northeast corner of Adams Streetand 17th Avenue
surrounding neighborhoods. Generally, retailuses that have traffic impacts should be locatedon major streets such as Van Buren Street.
Locating retail and other support services onthe ground floor of parking garages and otherbuildings improves the pedestrian environmentand should be encouraged.
Industrial zoning and various commercial andindustrial uses currently exist in the areagenerally south of Madison Street. Within thislimited area, industrial development willcontinue to be an important component. Futureindustrial development should be compatiblewith the nearby offices, and include featureswhich support the objective of establishing apleasant pedestrian environment.
The restoration and revitalization of theWoodland Historic District to a mix ofcommercial and residential uses should bepromoted. To the extent possible, the existinghistoric houses in the area should berehabilitated. Within the limits of City zoningregulations, these buildings may be used as
Commercial/Industrial
Residential/Commercial
offices while maintaining the generallyresidential character of the area. A zoningoverlay may also be put in place to allowcarefully controlled commercial activitieswhich will enhance the distinctive urbancharacter of this historic neighborhood.
Open space should continue to be an importantcomponent of the Governmental Mall. WesleyBolin Plaza and the Capitol Building groundsshould remain the focal point for the area.Woodland Park, University Park, and CarnegieLibrary should be preserved as open space andefforts should continue to make them accessibleto the public without creating negative impactson surrounding residents and businesses. Newdevelopment should incorporate landscapedareas and open space for its own users andprovide pedestrian pathways which link withadjacent sites to create an integrated pedestriannetwork.
Larger setbacks along the major east-westroutes where pedestrian activity is encouragedshould be provided as indicated on
.
Open Space
Map 5 -Building Setback Plan
8 Capitol District Development Guidelines
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Circulation
Interstate Freeways
Streets
The Governmental Mall is located in proximityto two interstate highways. The east/west I-10inner-loop is located to the north of theGovernmental Mall and the north/south I-17Black Canyon Freeway is located to the west.Access to the area is provided by several majorand minor streets.
Washington Street provides one way accesswestbound from downtown Phoenix. Thisstreet flows directly into Adams Street west of15th Avenue. Adams Street provides theprincipal westbound access to the I-17 freeway.Jefferson Street is the major eastbound one-waystreet that provides access from the I-17freeway through the Mall to downtown. Thesemajor multi-lane, one way streets supportthrough traffic in the mall, and allow relativelyeasy automobile access into the Mall area.Current traffic signalization supports the rapideast/west movement of motor vehicles.However, this street pattern also createsconstraints to north/south pedestrian activity.
Access into the Governmental Mall from theI-10 inner-loop is provided by 7th Avenue onthe east end of the Mall and 19th Avenue on thewest. Seventeenth and 15th Avenues bisect themall. Both of these streets provide two lanes oftraffic in both the north and south directions.
The eastern half of the Governmental Mall hasnumerous small blocks bounded by minorstreets from 7th Avenue to 15th Avenue. Thisstreet pattern has remained virtually the samesince the 1950s, and existing infrastructure istied to this block and street pattern. Thesefactors have inhibited the development of larger
office and commercial structures. The streetpattern is also an impediment to continuouspedestrian activity. Numerous intersectionslead to many pedestrian and motor vehicleconflicts.
Railroad rights-of-way, which define thesouthern and partial western boundaries of theGovernmental Mall, significantly influenceland use and circulation in the area. The maineast/west line of the Southern Pacific Railroadparallels the Harrison Street alignment. Thisline inhibits interaction with land uses south ofthe mall. A north/south branch line, whichconnects the Santa Fe to the Southern Pacific,parallels 19th Avenue.
The Governmental Mall is served by local andexpress bus service by Valley Metro. Local busroutes include service along Washington Streetand Jefferson Streets, 7th, 15th, and 19thAvenues. These routes provide service to andfrom the downtown bus terminal which allowsconnections with other bus routes. Numerousexpress busses operate to and from the Capitolduring the morning and evening rush hours. Adowntown shuttle also serves the Mall from11:00 a.m. to 2:00 p.m.
The Maricopa Association of Government’sRegional Bikeway system traverses theGovernmental Mall. A designated bikewayruns along the Washington Street/Adams Streetcorridor and along Jefferson Street.
Railroads
Transit
Bikeways
Capitol District Development Guidelines
10 Capitol District Development Guidelines
Building Design Guidelines
The purpose of these building design guidelinesis to encourage quality and consistency and notto impose a requirement for a specificarchitectural style for the Governmental Mall.The guidelines emphasize the need forimproved pedestrian access, convenience,comfort and safety.
The guidelines are divided into the followingcategories: All Uses (excluding residential),Office/Commercial, Industrial, ParkingStructures, Surface Parking, and Signs.
1. All development in the area should, at theminimum, meet City of Phoenixdevelopment standards. CertainGovernmental Mall design standards mayexceed City requirements. The morerestrictive standard will govern.
2. City of Phoenix setbacks and heightlimits will be required except in thoseareas indicated in
and.
3. Architecturally and historicallysignificant buildings, structures, anddistricts should be preserved andenhanced to promote a link to the past.
4. For safety and comfort of the pedestrian,sidewalks should be separated fromtraffic by an 8 foot width. This 8 footbuffer may include landscaping, a bicyclelane and/or on street parking.
All Uses (excluding residential)
Map 5 - BuildingSetback Plan Map 6 - BuildingHeight Plan
5. New or replacement sidewalks should bea minimum of 6 feet wide; new orreplacement sidewalks on WashingtonStreet and Jefferson Streets, and onAdams Street west of 15th Avenue shouldbe a minimum of 8 feet wide.
6. Exterior building colors may be reviewedand approved at the discretion of theCommission.
7. Mechanical and service yards should bescreened from public view and away fromupper floor window view. All walls andopaque gates should match thearchitectural character of the project.
8. Roof mounted mechanical equipmentshould be screened from ground levelview and from the view of existing orplanned higher buildings with parapets.Sight line studies relative to this issueshould be included in the schematicdesign package.
9. Loading docks should be located to faceaway from public streets or open spacesand should be screened from view fromstreets and pedestrian areas.
Map 5 - Building Setback Plan
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Office/Commercial1. Buildings should be designed so that the
primary entrances are easily identifiableand provide access to major pedestrianways and parking. Main building entriesshould be clearly defined through the useof special architectural features.
2. The exterior ground floor architecturaltreatment should relate to pedestrian scaleand the adjoining streetscapedevelopment where applicable.
3. The use of arcades, awnings, and other
shade features is encouraged near streetsand other pedestrian ways.
4. Major buildings should incorporate retailuses such as shops and restaurants intothe ground floor.
5. Building elevations should emphasizeshade and shadow, discouraging a flatfacade and glass curtain wallconstruction.
6. Building surfaces should have relief orpattern.
Industrial Uses1. All industrial uses must be conducted
entirely within enclosed structures.
2. Fences or walls should be wrought iron,or decorative block wall, or acombination of the two. Fences or wallsshall be placed behind a landscaped area.(Landscaped area shall be adjacent to andvisible from the street.)
SignsSigns should assist a visitor in identifyingbuildings, building complexes and majortenants. The address and name or function ofthe building should be easily visible from theadjacent roadway.
Capitol District Development Guidelines
Map 6 - Building Height Plan
2 Story maximum
4 Story maximum
6 Story maximum
8 Story maximum
Exception
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12 Capitol District Development Guidelines
Parking Structures1. Parking structures should incorporate
retail and office uses into the ground flooralong pedestrian corridors.
2. Parking structure facades should matchthe architectural materials, forms anddetails of the principal correspondingbuilding or buildings.
3. Minimize the number of entrances andexits to and from parking structures alongWashington Street and Jefferson Street.
Surface Parking1. Surface parking should be screened by
low decorative walls, trees, andlandscaping which may include berming.A minimum landscaped separation of 5feet is required between surface parkingand sidewalks.
2. Surface parking lots should include treesto provide an attractive landscape andshade for the pedestrian.
3. Provide parking lot street lighting at aminimum of one foot candle.
4. If separate from streets or parking lots,walkways should be illuminated at aminimum of two foot candles.
5. Pedestrian walkways should be providedin surface parking as shown in theillustration to the right.
Building Building
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PARKINGPERPENDICULAR TO SIDEWALK
If parking rows are perpendicular to the building entrance,provide one walkway per four rows of parked vehicles.
PARKINGPARALLEL TO SIDEWALK
If parking rows are parallel to the building entrance,provide one walkway every ten spaces.
10 Spaces
2 TO 4 ROWSOF PARKING
PEDESTRIANSIGNAGE
Pedestrian Walkways
13Capitol District Development Guidelines
Phoenix Development ServicesDepartment with his request for projectreview which will allow the project toresume the normal City review processfor building permit approval.
Amendment Procedure
This document may be amended upon approvalof the Governmental Mall Commission. Anyperson may request a change by submitting theproposed amendment in writing to theCommission. Members of the Commissionmay also propose changes during Commissionmeetings. The proposed amendment will beforwarded to the following agencies for theirreview and comment:
Arizona Department of Administration,General Services Division
City of Phoenix Planning Department
Maricopa County Office of Planning &Infrastructure Development
These offices will be given at least 30 days toreview the proposal and submit comments tothe Commission. After it is submitted, theproposed amendment will be listed on the nextavailable agenda of the Commission and maybe discussed by the Commission at thatmeeting. Action on the request (approval andadoption, modification and adoption, or denial)may take place no sooner than the followingmeeting of the Commission. The public andany interested parties are encouraged to attendand provide their views and opinions during thepublic meetings.
The review process includes the followingsteps:
1. The developer/owner should contact staffof the Governmental Mall Commission tobe placed on the next available meetingagenda.
2. Building plans should be prepared inaccordance with the Capitol DistrictDevelopment Guidelines as well as Cityof Phoenix building and zoningregulations.
3. The developer/owner should attend thescheduled Commission meeting duringwhich he or she will explain the project tothe Commission (displaying relevant siteplans and/or renderings, etc.) and answerany questions from the Commission.
4. The Commission may recommendapproval, approval with somemodification(s) of the plan, or denial.The Commission may also ask for moreinformation and hear the request again ata later meeting.
5. If the Commission makes a determinationto approve the request, minutes of themeeting and a copy of a written approvalform shall be provided to thedeveloper/owner.
6. The developer/owner shall submit a copyof the written approval form to the City of
(The developer/owner shouldcontact the Governmental MallCommission as soon as possible in thisprocess to avoid undue delay. TheCommission generally meets monthly, butat times has met on an irregularschedule.)
Development Review Process
The major objective of the Commission is toimprove the overall environment of theGovernmental Mall by improving the qualityand compatibility of future development.Legislation was approved that gave theCommission the authority to review andapprove proposed development prior to theissuance of building permits. In practice, thismeans that those who propose to developbuildings in the area that are valued over acertain amount are required to submit theirplans to the Commission for review.Commission members use the goals, objectivesand design guidelines included in the CapitolDistrict Design Guidelines to evaluate theproject and make a decision which is forwardedto the City.
State Law requires the Governmental MallCommission to “review and approve ordisapprove...requests for permission to developstructures or sites or award constructioncontracts for new buildings or improvementswithin the Governmental Mall.” This meansthat, before the City can approve a buildingpermit for new development in the area, theGovernmental Mall Commission must reviewand approve it. By policy, small projects with avalue of less than $25,000 are not formallyreviewed by the Commission.
Developers/owners wishing to construct aproject with a value greater than $25,000,should contact City staff in the Planning orDevelopment Services Department todetermine the current contact person for settingthe Governmental Mall Commission’s agenda.
How a Project is Reviewed
Governmental Mall Commission
Liaison:
Robyn Hillyard Senate Research Analyst Government Committee [email protected] 602-926-3110 (direct) 602-926-3171 (main)
