HomeMy WebLinkAboutSP201900004 Staff Report 2019-08-09ALBEMARLE COUNTY PLANNING
STAFF REPORT SUMMARY
Proposal: SP201900004 Virginia Institute of
Staff: Mariah Gleason, Senior Planner
Autism Adult Service Center
Planning Commission Public Hearing:
Board of Supervisors Hearing:
August 20, 2019
October 2, 2019
Owner: Senior Center, Incorporated
Applicant: Lori H. Schweller, Williams Mullen
Acreage: 1.71 acres
Special Use Permit for:
Request to allow private school uses in accordance
with Sections 18-22.2.2(6) and 18-18.2.2(5) of the
Zoning ordinance. Proposed office uses are allowed
B Ri ht b Section 18-22.2.1 b 1 .
TMP: 061W00200002A1
By -right use: C-1 Commercial — retail sales and
Location: 491 Hillsdale Dr, Charlottesville, VA
service; residential by special use permit (15 units/
22901
acre
Magisterial District: Rio
Conditions: Yes EC: No
Proposal: The Virginia Institute of Autism (VIA) is
Requested # of Dwelling Units: None
requesting to use an existing building on a 1.71 ac
lot for office and private school uses, for the
purpose of an Adult Service Center program. The
program would be a year-round, day program
serving approximately 52 adult participants and 69
staff members. No building expansion is proposed.
Some on -site parking may be converted to open
space.
DA: X RA:
Comp. Plan Designation:
Institutional — civic uses, parks, recreational
facilities, and similar uses on County -owned
property.
Character of Property: The subject property is a
Use of Surrounding Properties: The property lies
corner lot at the intersection of Hillsdale Drive and
in an area where zoning transition from commercial
Greenbrier Drive. The parcel consists of one two-
to residential districts. Parcels to the north and east
story building which faces a large parking area.
of the property offer medical care services, while
The rear of the building faces the traffic
parcels south of the property offer office uses. To
intersection and contains an outdoor, manicured
the east of the property lie two planned unit
sitting garden and green space. The eastern edge
developments, Branchlands Retirement Village and
of the property abuts a stream with a primitive
Brookmill, that are buffered from the subject parcel
recreational trail.
by a heavily vegetated stream.
Factors Favorable:
Factors Unfavorable:
1. The proposal provides specialized support,
1. Simulated auto -turn analysis for the full -
education, and training opportunities for
sized buses entering and exiting the site
adults in the community with autism
demonstrates that buses executing right
spectrum disorder.
turn movements out of the site will
2. Community members in attendance at the
temporarily occupy a portion of the
community meeting generally agreed that
dedicated left turn lane of opposing traffic.
this was an excellent location for VIA.
RECOMMENDATION:
Special Use Permit: Staff recommends approval of SP201900004, Virginia Institute of Autism Adult
Service Center, with changes and conditions.
STAFF PERSON: Mariah Gleason, Senior Planner
PLANNING COMMISSION: August 20, 2019
BOARD OF SUPERVISORS: October 2, 2019
SP201900004: Virginia Institute of Autism Adult Service Center
PETITION:
PROJECT: SP201900004 Virginia Institute of Autism Adult Service Center
MAGISTERIAL DISTRICT: Rio
TAX MAP/PARCEL(S): 061 WO-02-00-002A1
LOCATION: 491 Hillsdale Dr, Charlottesville, VA 22901
PROPOSAL: The Virginia Institute of Autism is requesting to use an existing building on a 1.71ac lot for
office and private school uses, for the purpose of an Adult Service Center program. The program would
be a year-round, day program serving approximately 52 adult participants and 69 staff members. No
building expansion is proposed. Some on -site parking may be converted to open space.
PETITION: Sections 18-22.2.2(6) and 18-18.2.2(5) allow private school uses by Special Use Permit.
Section 18-22.2.1(b)(1) allow office uses By Right.
ZONING: C-1 Commercial — retail sales and service; residential by special use permit (15 units/ acre)
OVERLAY DISTRICT(S): Steep Slopes (Managed and Preserved), Flood Hazard Overlay, Airport
Impact Area
PROFFERS: No
COMPREHENSIVE PLAN: Institutional — civic uses, parks, recreational facilities, and similar uses on
County -owned property within Neighborhood 2 of the Places29 Master Plan.
CHARACTER OF SURROUNDING AREA:
The subject property is located at the corner of Hillsdale Drive and Greenbrier Drive [Attachment 1].
Traveling along Greenbrier Drive away from Route 29, this area transitions from commercial to
residential zoning. The subject property lies at the edge of the commercially -zoned area and is buffered
from residential uses by a highly vegetated stream. Businesses surrounding the subject property to the
north and west of the site are RoseWood Village Assisted Living and The Laurels of Charlottesville (a
skilled nursing and rehabilitation center), which are both separated from the site by the traffic
intersection. Sharing a parcel boundary to the south is an office building and, to the east of the
property, are two planned unit developments, Branchlands Retirement Village and Brookmill.
PLANNING AND ZONING HISTORY:
SDP199000078 The Senior Center at Pepsi Place — Final site plan
• Letter of Revision #1 (2005) — Approved the addition of a garden shed located adjacent to the
building on the southeast corner.
DETAILS OF THE PROPOSAL:
The applicant, Virginia Institute of Autism (VIA), is requesting a special use permit to allow private
school uses on an existing C-1 Commercial property. The property currently serves as The Center,
formerly known as The Senior Center, which has been operating at this location since 1991. However,
with The Center's upcoming move to a new location along Belvedere Avenue, VIA is proposing to use
the existing building for a new Adult Service Center Program. VIA is also hoping to use a portion of the
building as their company's headquarters. As office uses are allowed by -right in this zoning district, a
special use permit is not required to allow these uses.
The proposed Adult Service Center Program will act as a year-round, comprehensive day program, to
support adults with autism spectrum disorder. The program will provide vocational training to enhance
participants' ability to obtain gainful employment, train participants in the skills necessary to live more
independently, and include social, cultural, and recreational opportunities to help participants better
integrate into the larger Charlottesville community.
The program hopes to serve approximately 52 adult participants and be staffed by 69 personnel,
including 13 administrative staff members. Participants in this program will be ages 18 and older in the
first three to five years and, after five years, VIA envisions that this location will only serve participants
ages 22 and older. Another location is being planned to serve individuals between the ages of 18 and
22 in the future.
While the applicant will be occupying the existing building on -site, the conceptual plan shows some
changes to the area surrounding the building, including a new garden area, relocation of parking
islands and curb within the main parking area to accommodate buses, enclosing outdoor recreation
areas in the rear and sides of the building with a new fence, and a potential future conversion of the
parking lot area on the eastern side of the building to a new outdoor passive recreation area
[Attachment 2].
COMMUNITY MEETING:
The applicant conducted the required community meeting with the Places29 - Hydraulic Community
Advisory Committee on Monday, June 17t". Overall, there was general agreement from those in
attendance that this is an excellent location for VIA.
Additional questions and discussion included:
• The applicant answered questions about what autism is, emphasizing that it is a spectrum
disorder.
• Attendees discussed the on -going, supportive relationship between Albemarle County Schools
and VIA.
o VIA is able to provide a continuation of care after individuals with autism exit or age out
of the school system.
• Several attendees also voiced support for the organization's ability to draw families to the area
because of the quality of support systems and programs they provide.
• Attendees wondered if additional signage would be provided at the traffic intersection for the
safety of program participants.
o The applicant reiterated that the program would serve adult participants who would
generally be aware of traffic safety. Also, the applicant plans to install a fence around the
building's outdoor recreation spaces as a safety measure to separate recreation areas
from the traffic intersection.
ANALYSIS OF THE SPECIAL USE PERMIT REQUEST:
Section 33.39(B) states that the Commission, in making its recommendation, shall consider the
same factors found in Section 33.40 (B):
1. No substantial detriment. Whether the proposed special use will be a substantial detriment
to adjacent parcels.
In evaluating whether the proposed special use will be a detriment to adjacent properties, the type
and intensity of new use are considered, as well as comments and concerns of neighboring
properties.
The special use proposed on the property will functionally be very similar to the current use of the
site by The Center, formerly known as The Senior Center. The proposed new use will offer
education, training, and social/cultural/recreational opportunities to adult program participants.
While the applicant is proposing to occupy the existing building, the conceptual plan demonstrates
some changes to the area around the building. One of which is the potential future conversion of
the parking area on the eastern side of the building to a new passive outdoor recreation area. Staff
finds this potential conversion to be an improvement to the existing, impervious nature of the lot,
however, this area lies within a water protection ordinance buffer, commonly referred to as the 100ft
stream buffer area, and adjacent to preserved steep slopes. Therefore, to ensure no substantial
detriment to the stream is created if/when this area is converted to recreation space, Staff offers the
following condition:
• Prior to converting a portion of the parking area to outdoor recreation space, provide silt
fencing along the top of preserved steep slopes.
The proposed private school use will require less on -site parking than is currently available. The
subject property currently offers 106 parking spaces, however, the parking requirement to support
expected proposed uses — private school and office — is 80 parking spaces, as determined by
Zoning Staff. This includes 69 parking spaces for VIA staff members and 11 parking spaces which
will be open to visitors. No parking need is anticipated for program participants as none of the
participants drive independently. This reduced parking need is also expected to reduce the number
of daily vehicular trips to and around the property.
To accommodate participant travel to the subject property, VIA anticipates participants will use
public transportation (CAT stops for routes 7 and 12 are located along Hillsdale Drive, adjacent to
or across from the property), Jaunt buses, cabs, or be dropped off and picked up by family vehicles.
VIA also expects four full-sized buses to provide drop off and pick up services for participants
between the ages of 18 and 22. These buses will access the site twice a day, once in the morning
around 8:45am and once in the afternoon around 2:45pm.
Simulated auto -turn analysis for the full-sized buses entering and exiting the site revealed that
buses executing right turn movements out of the site will temporarily cross into the dedicated left
turn lane of opposing traffic [Attachment 2, Sheet C2.0]. This potential traffic conflict was found to
be inadvisable by VDOT, particularly since the buses are expected to provide drop off and pick up
services regularly. Thus, it was recommended by the VDOT staff reviewer that the applicant explore
alternative options.
Based on these findings, Staff proposes the following changes be made to the conceptual plan so
that the proposed use will not be a detriment to adjacent property:
• The applicant will work with VDOT to make sure VDOT concerns, regarding the ingress and
egress of buses providing regular drop off and pick up services to the site, are addressed.
2. Character of the nearby area is unchanged. Whether the character of the adjacent parcels
and the nearby area will be changed by the proposed special use.
The proposed special use on the subject property is consistent with the existing character of the
area, in that it will provide medical services and office uses. Also, VIA's proposal for the Autism
Service Center suggests a repertoire of support, education, and recreational programming that is
similar in nature to what is currently offered by The Center.
3. Harmony. Whether the proposed special use will be in harmony with the purpose and intent
of this chapter,
The purpose and intent of the C1-Commerical zoning district is to permit retail, service, and public
use establishments to support urban areas, communities, and villages. Located at the edge of
commercial and residential areas, the special use permit request for a private school in this area is
in harmony with the intent of this zoning district as well as the transition between these zoning
classifications — commercial and residential.
with the uses permitted by right in the district,
The addition of a private school in this district will not restrict the current uses or other by -right uses
available on this, or adjacent properties.
with the regulations provided in Section 5 as applicable,
No supplementary regulations apply for this use.
and with the public health, safety, and general welfare.
VIA's proposal for a private school use on this property will offer opportunities for adults with autism
spectrum disorder in the community to enhance vocational skills to obtain gainful employment,
practice skills needed to live more independently, and better integrate into the larger Charlottesville
community. This program can be seen as promoting public health, safety, and general welfare of
the community.
As is typical with private school uses, Staff offers the following conditions to ensure the proposed
use will not have any detrimental impacts to public health, safety, or general welfare:
• Maximum enrollment shall be 65 participants.
• Normal hours of operation for the center shall be from 7:30am to 6:OOpm, Monday through
Friday, with occasional evening and weekend activities.
Note: Traffic and parking related impacts were previously discussed under factor 1 above.
4. Consistency with the Comprehensive Plan. Whether the proposed special use will be
consistent with the Comprehensive Plan.
The Places29 Master Plan, revised in 2015, designates this property as "Institutional" which allows
for civic uses, parks, recreational facilities, and similar uses on County -owned property. With the
upcoming move of The Center, which has existed here since 1991, to a new location along
Belvedere Boulevard, the civic uses currently offered here may not be as prevalent or publicly -
accessible as they have been previously. However, the proposal by VIA for an Adult Service Center
Program offers very a similar new use of the existing building and parcel — support, education, and
recreation opportunities for adult participants in the program. Therefore, the proposed use is
consistent with the practiced intent of this designation.
SUMMARY:
Staff finds the following factors favorable to this request:
1. The proposal provides specialized support, education, and training opportunities for adults in the
community with autism spectrum disorder.
2. Community members in attendance at the community meeting generally agreed that this was an
excellent location for VIA.
Staff finds the following factor(s) unfavorable to this request:
1. Simulated auto -turn analysis for the full-sized buses entering and exiting the site demonstrates
that buses executing right turn movements out of the site will temporarily occupy a portion of the
dedicated left turn lane of opposing traffic.
RECOMMENDED ACTION:
Based on the findings described in this report and factors identified as favorable, staff recommends
approval of special use permit application SP201800004 with the changes outlined below and
following conditions.
Changes
• The applicant will work with VDOT to make sure VDOT concerns, regarding the ingress and
egress of buses providing regular drop off and pick up services to the site, are addressed.
Conditions
1. Development of the use shall be in general accord with the conceptual plan titled "Virginia
Institute of Autism" prepared by Timmons Group, with the latest revision date of 07/15/2019, as
determined by the Director of Planning and the Zoning Administrator. To be in general accord
with the Conceptual Plan, development shall reflect the following major elements within the
development essential to the design of the development:
• Location of potential future outdoor recreation area as shown on the plan.
Minor modifications to the plan which do not conflict with the elements above may be made to
ensure compliance with the Zoning Ordinance.
2. Maximum enrollment shall be 65 participants.
3. Normal hours of operation for the center shall be from 7:30am to 6:00pm, Monday through
Friday, with occasional evening and weekend activities.
4. Prior to converting a portion of the parking area to outdoor recreation space, provide silt fencing
along the top of preserved steep slopes.
POSSIBLE PLANNING COMMISSION MOTION - SP201900004:
A. Should the Planning Commission choose to recommend approval of this special use permit
Move to recommend approval of SP201900004, Virginia Institute of Autism Adult Service Center,
with the changes and conditions as recommended by staff.
B. Should the Planning Commission choose to recommend denial of this special use permit:
Move to recommend denial of SP201900004, Virginia Institute of Autism Adult Service
Center. Should a commissioner motion to recommend denial, he or she should state the
reason(s) for recommending denial.
ATTACHMENTS
Attachment 1 — Vicinity Map
Attachment 2 — Conceptual Plan, last revised on July 15, 2019
Attachment 3 — Applicant Justification for Special Use Permit
Any determination of topography or contours, or any depiction of physical improvements, property lines or boundaries is for general information only and shall not be used for the design, modification, or construction of improvements to real property or for flood plain determination. August 5, 2019
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VI LLI,A.M S M U LLEN
MEMORANDUM
TO: Albemarle County Community Development Staff
FROM: Lori Schweller, Williams Mullen
Valerie Long, Williams Mullen
DATE: April 15, 2019
RE: Virginia Institute of Autism Special Use Permit Application Narrative
PROJECT DETAILS:
Applicant: Virginia Institute of Autism (VIA)
Contact for Applicant: Lori Schweller and Valerie Long, Williams Mullen
Name of Project: Virginia Institute of Autism Adult Service Center
Short Description: SUP for Virginia Institute of Autism Adult Service Center
Proposed Site: 491 Hillsdale Drive, Charlottesville, VA 22901
PROPERTY DETAILS:
Parcel ID Number:
061W0-02-00-002A1
Total Acres:
1.71
Owner:
Senior Center, Incorporated
Property Address:
491 Hillsdale Drive, Charlottesville, VA 22901
Current Use:
Community Center for seniors ("The Center")
Magisterial District:
Rio
Zoning:
Commercial C-1
Proffered:
No
ZMAs Related to Proffers:
N/A
Entrance Corridor:
No
Comprehensive Plan Area:
Neighborhood 2- Places 29 Hydraulic
Comprehensive Plan Use:
Institutional
Land Use:
Commercial
Surrounding uses:
The Laurels of Charlottesville across Hillsdale Drive to the west;
Office building to the south; RoseWood Village Assisted Living
across Greenbrier Drive and Hillsdale Drive to the north;
Branchlands across Greenbrier Drive to the northeast; and
Meadow Creek and vacant land to the east
SITE PICTURES:
- - kr q
Side View of Buildinq from Hillsdale Drive
Front of Building
Site Vicinity and Parking Lot
A. PROPOSAL:
VIA's Adult Service Center Program will be a year-round, day program designed to provide
adults with autism spectrum disorder (ASD) ongoing, practical education and support
throughout adulthood. This unique program will offer comprehensive day programming services
designed to promote the skills necessary for adults with ASD to lead productive and enjoyable
lives. The Adult Service Center will be staffed by a highly trained team of clinicians and
educators who will develop and deliver programs that provide the support needed for all
program participants to better integrate into the Charlottesville community. From vocational
training to social support and clinical services, the Adult Service Center will equip program
participants with the tools they need to enhance and maintain autonomy.
The Adult Service Center will offer a variety of classes and activities to enhance vocational
skills, independent living skills, and enable program participants to participate in a variety of
cultural and recreational activities offered both at the Adult Service Center and in the
Charlottesville community. The facility will be designed to specifically enhance these
opportunities. For example, there will be a "mock" one -bedroom apartment that will enable
program participants to practice skills needed to live more independently (e.g., cook, clean,
develop social and hygiene skills, budget, and complete chores independently or as part of a
group). In addition, there will be spaces specifically designed to teach vocational skills needed
to obtain gainful employment. These spaces will enable specific instruction to promote the
development of employable skills including domestics, crafts, gardening, assembly and office-
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related activities. Finally, there will be spaces designated to facilitate recreation and social
interaction. This will enable on -site music classes, cultural events, art activities and visits to
parks, coffee shops, shopping centers, concerts, and sporting events in the local community.
Finally, we envision the Adult Service Center also serving as VIA's headquarters. The senior
leadership team, human resources department, finance department, and advancement
department will have their offices and workspaces in the building.
In the first 3-5 years of occupancy, VIA envisions the Adult Service Center serving
participants ages 18 years and older. After 5 years, it is anticipated that the Adult Service
Center will only serve participants ages 22 and older. (The Applicant is planning a capital
campaign that will enable it to move the 18-22-year old students to another facility.)
The anticipated facility hours of operation to be 8:00 a.m. to 5:00 p.m. Monday — Friday.
Counts of Adult Service Center participants and staff:
• 52 Adult participants (non -drivers)
• 69 Adult Service Center staff members (including 13 VIA administration members)
Parking needs:
• Currently there are 106 parking spaces on -site
• VIA anticipates needing a total of 80 parking spaces (69 staff, 11 open) to serve all
uses in the building.
• [NOTE: As to the 25% of the building to be used for office space, calculation
pursuant to Code Sec. 4.12.6 would be as follows: 21,788 gross square feet x .80 =
17,430 net square feet /4 = 4,358 square feet / 200 = 22 spaces.]
Participant arrival/departure schedules:
• VIA anticipates Adult Service Center participants arriving via public transportation, Jaunt
Inc. buses, cabs, and being dropped off and picked up via family vehicles (no
participants in the Adult Service Center drive independently).
• For those participants who are between 18-22 years of age, we anticipate four full-size
school buses dropping off at approximately 8:45 a.m. and picking up at 2:45 p.m. Note
that the buses will not be full, even though full-size.
• Adult Service Center staff stagger -arrive beginning at 7:30 a.m. and stagger -depart
through 6:00 p.m., with the majority arriving by 8:00 a.m. and departing by 4:30 p.m.
Many of the uses and day-to-day activities that VIA proposes for the 491 Hillsdale Drive
property are similar to those uses currently carried out at the property by The Center (formerly
the Senior Center). VIA does not propose to change the existing building footprint. Further, VIA
expects to have significantly fewer parking needs and requirements, and to generate fewer trips
per day. As shown on the Conceptual Plan and on the Aerial Plan, VIA plans to convert a
portion of the parking lot into a fenced green area for passive recreational use. The green area
may be grass or artificial turf and may include an asphalt path encircling the area.
Additional Information on VIA:
The Virginia Institute of Autism (VIA) is a 501(c)3 nonprofit organization founded in 1996 and
headquartered in Charlottesville, Virginia. VIA's mission is to help people overcome the
challenges of autism through innovative, evidence -based programs in education, outreach and
3
adult services. In response to a diagnosis that is associated with isolation, VIA builds community
bridges. To do this, VIA uses its expertise to translate science into service. VIA employs state-
of-the-art, evidence -based approaches that are tailored for each individual and their family.
Through collaborative partnerships with the University of Virginia and others, it develops
services that result in meaningful and profound changes in the lives of the people it serves. With
its James C. Hormel School, Outpatient Services, and Adult Services, VIA addresses the unique
needs of people with autism throughout their lifespan. The organization provides clinical and
educational services regardless of the individual's race, national or ethnic origin, cultural
heritage, religion or political beliefs.
B. CONSISTENCY WITH THE COMPREHENSIVE PLAN
The primary designated use of the Property on the Places 29 Master Plan for the Northern
Development Areas is Institutional. County Community Development Department staff has
determined that the proposed use is consistent with this designation.
C. IMPACTS ON PUBLIC SAFETY, PUBLIC FACILITIES, PUBLIC INFRASTRUCTURE &
ENVIRONMENTAL FEATURES
The proposed project will not have any negative impacts on public safety, public facilities, public
infrastructure or environmental features. The Property is currently used as community center
hosting events and educational programming for seniors. The proposed use will be very similar
in impact except that none of the clients of VIA will drive vehicles to the site. Therefore, traffic
and parking needs are expected to be reduced. The conversion of a portion of the parking lot to
natural or artificial grass to be used as a passive recreational space will disturb only 4,100
square feet and will not involve any changes to ground elevation or tree removal.
SUMMARY:
The proposed special use will not be a detriment to adjacent lots or change the character of the
zoning district as the use will be very similar to the current use by Senior Center, Incorporated
and the Applicant does not propose any changes to the Property other than to add fencing and
convert a portion of the parking lot to green space. Impact to the neighborhood may be
lessened in that the clients of VIA will not drive and park onsite. Office use is permitted by right
in the C-1 district. The educational uses will have similar impact to the current community
center and educational uses of the Senior Center.
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