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HomeMy WebLinkAboutSP200600010 Legacy Document 2006-08-09COUNTY OF ALBEMARLE EXECUTIVE SUMMARY AGENDA TITLE: SP 2006- Waldorf School Amendment SUBJECT/PROPOSAL/REQUEST: Amendment of an existing special use permit to allow for the construction of an initial building OWNER/APPLICANT: Waldorf School Foundation STAFF: Sean Dougherty PLANNING COMMISSION DATE: June 20, 2006 Public Hearing BOARD OF SUPERVISORS DATE: July 12, 2006 PROPOSAL: The applicant is proposing an amendment to an existing special use permit to allow for the construction of an initial building that is part of a larger plan for the Waldorf School. BACKGROUND: During the June 20, 2006 Planning Commission public hearing, concerns were raised over the clarity of the conditions and proposed changes. The Commission recommended approval but requested that staff review the conditions that are not repeated exactly, but have slight changes, to make sure that they are entirely accurate and as intended before going to the Board. A full history of proposed changes to the existing special use permit conditions is provided in Attachment G. The meaning of those conditions remains the same, with one exception. Staff had originally recommended that the depth of the building setback shown on the Concept Plan also apply to an undisturbed buffer, subject to section 21.7.3 of the Zoning Ordinance (which permits the Planning Commission to approve disturbances or plantings in the buffer if it demonstrated to be necessary or would result in improved site design). However, as an undisturbed buffer could not be disturbed without approval of the Planning Commission, the buffer requirement was amended and is now referred to in Condition Four as a "tree screening buffer". This language clarifies the type of buffer and allows disturbance and replanting through administrative approval, rather than the Planning Commission. DISCUSSION/FINDINGS: Attachment G illustrates changes and updates to the conditions. Condition Four is more in keeping with the original intent of the conditions and the use of "tree screening buffer" to qualify the buffer and provides specificity and clarity for future interpretation and enforcement. Factors favorable to this request 1. The amendment helps to shift the campus buildings closer to Rio Road, more in keeping with the Neighborhood Model 2. The plan continues to reflect and better account for the recommendations of the Jones and Jones study for the Meadowcreek Parkway and the urban core proposed near the entrance to the Parkway. 3. The plan reflects a future road reservation width (to the northern properties) that is more keeping with current County standards. 4. The additional condition that applies the building setback to parking as well ensures an appropriate condition given the neighboring residential uses. No unfavorable factors have been identified with this request. RECOMMENDATION: Staff recommends approval with conditions. ALBEMARLE COUNTY PLANNING STAFF REPORT SUMMARY Project Name: SP 06-10 Waldorf School Staff: Dougherty Amendment Planning Commission Public Hearing: Board of Supervisors Public Hearing: June 20, 2006 July 12, 2006 Owners: Waldorf School Foundation Applicant: Waldorf School Foundation Acreage: 13.2 Acres Amendment of Special Use Permit for: revision to approved concept plan TMP: Tax Map 61, Parcel 170 and 174 Proffers/Conditions: Yes Location: West of the Intersection of Rio Road and Penn Park Road By -right use: 52 units, up to 68 dwelling Magisterial District: Rio units using density bonuses Requested # of Dwelling Units: none DA X RA Proposal: Amendment of an existing special Comprehensive Plan Designation: Urban use permit to allow for the construction of an Density Residential - residential (6.01-34 initial building. units/acre) and supporting uses such as religious institutions, schools, commercial, office and service uses in Neighborhood Two. Character of Property: Mix of open fields Use of Surrounding Properties: The and woodland sloping away from Rio Road surrounding parcels all contain residential toward Meadow Creek. uses. Charlottesville Catholic School is nearby. Factors Favorable: Factors Unfavorable: None 1. The amendment helps to shift the campus buildings closer to Rio Road, more in keeping with the Neighborhood Model 2. The plan continues to reflect the recommendations of the Jones and Jones study for the Meadowcreek Parkway and the urban core proposed near the entrance to the Parkway. 3. The plan reflects a future road reservation width (to the northern properties) that is more keeping with current County standards. 4. The additional condition that applies the building setback to parking as well ensures an appropriate condition given the neighboring residential uses. RECOMMENDATION: Staff recommends approval with conditions. STAFF PERSON: PLANNING COMMISSION: BOARD OF SUPERVISORS: SEAN DOUGHERTY JUNE 20, 2006 JULY 12, 2006 SP 2006-00001 Charlottesville Waldorf School Amendment NOTE: THIS REPORT HAS BEEN UPDATED SINCE THE PLANNING COMMISSION PUBLIC HEARING TO FURTHER CLARIFY INFORMATION PROVIDED IN THE ORIGINAL REPORT. Applicant's Proposal: The applicant proposes an amendment of an existing special use permit for the Waldorf School. The proposal is to build an approximately 6,300 square foot building 200 feet to the west of an existing house (along Rio Road) that currently houses the early childhood learning program. When the initial special use permit was approved, the school's buildings were clustered toward the middle of the parcel. However, in 2003 the aforementioned house was purchased by a friend of the school and offered for the early childhood learning program. In order to use this building for the school's purposes, an amendment of the existing special use permit was pursued by the Waldorf School through SP 2003-04. This amendment was approved with conditions on June 3, 2003. This shifted the campus closer to Rio Road and also provided a "face" for the school on Rio Road. The change proposed with the current amendment is to place a proposed building in between the house and the originally -proposed (and retained) location of the main school building (to be built during a later phase). The original approved concept plan clustered the entire campus roughly 500 feet from Rio Road. The new Concept Plan is Attachment A. The action letter and the concept plan approved with SP 2003-04 is Attachment B and C respectively. The concept plan and the related action letter approved with the initial special use permit (SP 2001-040) are Attachment D and E. A full history of proposed changes to the existing special use permit conditions is Attachment G. Petition: PROJECT: SP 2006-00010, Charlottesville Waldorf School Amendment PROPOSED: Amendment of Special Use Permit to allow for revisions to approved concept plan. ZONING CATEGORY/GENERAL USAGE: R-4 Residential (4 units/acre) SECTION: 15.2.2.5 which allows for private schools in R-4 residential by special use permit. COMPREHENSIVE PLAN LAND USE/DENSITY: Urban Density Residential - residential (6.01- 34 units/acre) and supporting uses such as religious institutions, schools, commercial, office and service uses in Neighborhood Two. The Jones and Jones Study for the Meadowcreek Parkway also applies to this area. ENTRANCE CORRIDOR: No LOCATION: 734 Rio Road, near the intersection of Penn Park Road and Rio Road. TAX MAP/PARCEL: Tax Map 61, Parcel 170 and parcel 174 MAGISTERIAL DISTRICT: Rio (See Attachments B & C.) Character of the Area: The area surrounding the parcel is primarily residential. The entrance to the Charlottesville Catholic School building is 1,500 feet to the south and east. The remaining adjacent areas contain mainly single-family detached residential with single-family attached and I multifamily located down Penn Park Road in the River Run development. Penn Park and associated amenities are located at the end of Penn Park Road, '/4 mile from the Waldorf site. Planning and Zoning History: A special use permit was approved for the Waldorf School in this location on March 6, 2002. A subsequent amendment to that special use permit was approved on June 4, 2003. Two parcels referenced in earlier staff reports and action letters, Tax Map 61, Parcels 173 and 174A have since been combined into Tax Map 61, Parcel 170. Prior to December 2, 1980, the parcel had R-2, residential zoning. In 1980, the zoning classification was amended to R-4, residential. A site development plan (SDP 2005-00071) was submitted for review in 2005. This proposal varies the layout of the campus slightly. Zoning staff approved the new layout, with the exception of the new proposed building which was previously located closer to the main school building with the existing special use permit, but is now proposed to be located closer to Rio Road. Changes to layout of vehicular access, parking, and the main school building have been administratively approved through SDP 2005-00071 and are reflected on the Concept Plan. This special use permit request evaluates the change in location of the Proposed Building (labeled as such on the Concept Plan) and associated changes to the site program. Comprehensive Plan and the Neighborhood Model: The Comprehensive Plan designates this property as Urban Density Residential which supports residential (6.01-34 units/acre) and supporting uses such as religious institutions, schools, commercial, office and service uses in Neighborhood Two. As adopted into the Comprehensive Plan, the Jones and Jones study for the Meadowcreek Parkway was also reviewed for the purposes of evaluating this proposal. Relevant portions of the Jones and Jones study are Attachment F. In previous legislative actions regarding the Waldorf School in this location, the applicant had been requested to reserve a 40 -foot wide area for a future road that would tie into the urban center proposed along Rio Road, south of the entrance to the Meadowcreek Parkway. As the County's standard for streets has increased or widened since this special use permit was last reviewed, the applicant was asked to provide a reservation that could accommodate travelways, bike lanes, planting strips, and sidewalks in both directions. The applicant has increased the width of this reservation from a width of 40 feet to 52 feet. This is reflected on the Concept Plan (Attachment A) and labeled "Proposed Road Easement". Additionally, the applicant was asked to slightly rotate the alignment of this reserved area (within the constraints of the applicant's program for the site) to better reflect the alignment for this future road illustrated in the Jones and Jones study. The area reserved with the previous amendment followed the rear boundary of any existing property line that would make it intersect with Rio Road, which was not the intent of the Jones and Jones conceptual plan. The site layout also anticipates a civic green proposed to be located in the urban center (from the Jones and Jones study) north of the main school building (on an adjacent property). The plan continues to reserve a future greenway trail associated with the Meadowcreek Parkway. Access to the parkway in this location was eliminated from the proposal during the last public hearing with the Planning Commission. The applicant sited concerns for student's safety and an inability to control movement across their property from Rio Road to the greenway. However, access points to this 0 greenway are established '/2 mile to the north at the entrance to the parkway and another access point has been proposed by the Albemarle Housing Improvement Program project named Treesdale Park, 1/8 of a mile to the South. (This project is currently indefinitely deferred.) This proposal has been evaluated for its conformity with the Neighborhood Model in previous staff reviews. The revisions to the plan vary slightly from that original plan. However, much of the plan, pedestrian networks, and access relationships remain similar. The largest change is the establishment of a dispersed campus, rather than one connected building. This works to shift the campus buildings closer to Rio Road. This change reduces the distance between the school's buildings and Rio Road (originally over 500 feet). Rio Road, the existing house, the building proposed with this amendment, and the main school building are each roughly 200 feet apart. This condition is more in keeping with the Neighborhood Model in terms of pedestrian orientation, neighborhood friendly streets and paths, building and spaces of human scale, and redevelopment. Pedestrians accessing the site from Rio Road will be engaged with the campus buildings closer to the site's entrance. The existing house, proposed building, and main school building are all aligned within a short walking distance of each other. Rather than having to walk over 500 feet from Rio Road to the main school building, the dispersed campus with its integrated and connecting pathway system connects buildings roughly 200 feet from each other, shifting the campus toward Rio Road. This has positive implications for human scale and neighborhood friendly paths. The property where the school is locating once contained a residential structure. This house was destroyed by a fire. The development of the school in this location represents a redevelopment. Another change is that the parking, which was once located perpendicular to the school's access road (along the approach to the school), is now placed further to the rear of the school buildings, further relegating the parking. Engineering Analysis: The County's Engineering staff has reviewed this request for engineering issues related to health, safety, and welfare requirements. Engineering is recommending approval of the proposed changes to the concept plan. Considerations of access and stormwater management were approved with the initial site plan prepared to allow use of the existing house on the site for the early childhood program. This includes a traffic light, access road, and stormwater pond. Because the school's mission is to be the greenest school in the country, additional innovative stormwater measures such as cisterns and rain gardens will follow with the site plan for this amendment and the construction of the main school building. Zoning Considerations: Zoning has commented that the setback established for buildings should also apply to parking. Private schools are allowed by special use permit in R-4 zoning. However, because no parking setbacks apply in R-4, the following condition was added to this request: No structure, parking, or loading shall be located closer than 20 feet to any residential district. This additional condition ensures that an appropriate relationship between neighboring properties 5 and the school's buildings, parking lot and loading areas is established. In addition, no screening is required between parcels zoned R-4. Zoning has recommended that the building setback should include a tree screening buffer to the satisfaction of the Agent that shall be maintained along two sections of the school property where residential uses exist. The "to the satisfaction of the Agent" clause will allow the school to provide a buffer that is more natural in appearance than the default screening standard, which is staggered arrangement of evergreens. STAFF COMMENT: Section 31.2.4.1 of the Zoning Ordinance below requires that special use permits be assessed as follows: Will the use be of substantial detriment to adjacent property? This request has previously been reviewed with respect to this consideration. The layout and program for the school has been minimally amended and staff does not find that this use or the amendment to the concept plan would change prior findings or would be a substantial detriment to any adjacent properties. Will the character of the zoning district change with this use? The educational use should have minimal or no effect or impact on the existing character of the district. With a large regional public park, Charlottesville Catholic School, and a mix of housing types existing within close proximity, the proposed school should support the mix of residential, instructional, and recreational uses in the area. Will the use will be in harmony with the purpose and intent of the zoning ordinance? A private school is in harmony with the purpose and intent of R-4 zoning which is intended to provide a variety of housing types with supporting uses such as private schools, day care, community centers, and clubs. Will the use be in harmony with the uses permitted by right in the district? By -right uses in R-4 districts include a variety of housing types, tourist lodges, public uses and buildings and homes for the developmentally challenged. The proposed private school is consistent with these uses. Will the use comply with the additional regulations provided in Section 5.0 of this ordinance? Section 5.1.06 addresses day care centers (Waldorf early childhood program) and requires licensure by the Virginia Department of Social Services, cooperation with periodic inspections by the Albemarle County fire official, and adherence to all other applicable requirements of the Virginia Department of Social Services, Virginia Department of Health, Virginia State Fire Marshall, or any other local or federal agency. The Waldorf early childhood program that is operating within the existing house on the property is fully licensed and compliant with all applicable rules and agency regulations. Will the public health, safety and general welfare of the community be protected if the use is approved? 11 This project will not negatively impact the public health, safety, or general welfare. The school's enrollment is conditioned to be limited to a maximum of 350 students. A traffic signal has been installed and the first portion of an access road that is designed to a standard to serve the entire site as it develops has been completed. The normal hours of the school are conditioned to be from 8:00 A.M. until 6:00 P.M. Staff believes the health, safety, and general welfare of the community will remain if this amendment is approved. Water and Sewer The Albemarle County Service Authority has determined that adequate water and sewer service exists to serve this site. SUMMARY: Staff has identified the following factors, which are favorable to this request: 1. The amendment helps to shift the campus buildings closer to Rio Road, more in keeping with the Neighborhood Model 2. The plan continues to reflect and better account for the recommendations of the Jones and Jones study for the Meadowcreek Parkway and the urban core proposed near the entrance to the Parkway. 3. The plan reflects a future road reservation width (to the northern properties) that is more keeping with current County standards. 4. The additional condition that applies the building setback to parking as well ensures an appropriate condition given the neighboring residential uses. RECOMMENDED ACTION Staff recommends approval of the request with the following conditions of approval: 1. Maximum enrollment of the Charlottesville Waldorf School shall be three hundred fifty (350) students, with a maximum of 40 staff. Any increase to enrollment or staffing shall require amendment of this special permit; 2. Normal hours of operation for the school shall be from 8:00 a.m. to 6:00 p.m. weekdays, with occasional uses in the evenings and weekend; 3. The approved final site plan shall be in substantial accord with the Concept Plan for SP 2006- 010, hereinafter, the "Concept Plan" and shall reflect all required pedestrian and road connections to adjacent properties; 4. A building setback and tree screening buffer to the satisfaction of the Agent shall be maintained adjacent to the Village Square residential development to the south and adjacent to Tax Map 61, Parcel 171, as shown on the Concept Plan; 7 5. The school shall be operated in accord with the Special Use Permit Application and Justification (SP 2001-040) submitted August 27, 2001 and the Site Development Strategy Narrative submitted via facsimile December 18, 2001; it shall also be operated in accord with the Special Use Permit Application and Justification submitted January 26, 2003 for SP 2003-004 and the Special Use Permit Application and Justification submitted March 20, 2003 for SP 2003-029; 6. A reservation for a public vehicular connection shall be made to the parcel or parcels located to the north of the school property, as shown on the Concept Plan and labeled, "Proposed 52' Future Connection". If it is determined to be necessary by the County to provide for interparcel access, the owner shall make the reserved vehicular connection available for such use. This reservation may be relocated or modified so long as it is in general accord with the Concept Plan; 7. Access from this parcel shall be made available to the two adjacent parcels fronting Rio Road (173A and 174) in an appropriate location and manner to be determined in conjunction with the County's review and approval of the site plan for the school, so as not to conflict with access to the private school; if it is determined to be necessary by the County to provide for interparcel access, the owner shall make the a vehicular connection available for such use; 8. A pedestrian connection shall be made to the parcel or parcels located to the south as shown on the Concept Plan; 9. As a condition of final site plan approval, a greenway dedication along Meadow Creek at the western boundary of the parcel, as delineated on the Concept Plan shall be made to Albemarle County; 10. No disturbance of the critical slopes located at the western portion of the site or other undisturbed areas identified on the Concept Plan shall occur as a result of site development other than development of a pedestrian access to the greenway. Prior to final site plan approval, a tree preservation plan shall be submitted and approved by the Zoning Administrator, addressing in detail the limits of all disturbed areas, diameter and location of trees to be preserved, clearing and limbing policy for trees to be preserved, and supplemental trees and d rubs (if any), and related issues. Disturbance to the twenty (20) -foot buffer shown along the northern property boundary on Parcel 170 shall be allowed for construction of the parking lot associated with the early childhood education center. Screening consisting of an opaque fence and landscaping shall be installed along the shared boundary between Parcels 170 and 172A; 11. As a condition of site plan approval for the Proposed Building labeled on the Concept Plan, the area necessary for a future sidewalk along Rio Road shall be identified and right-of-way dedicated; 12. No structure, parking, or loading shall be located closer than 20 feet to any residential district; 13. Future amendments to this special use permit shall be evaluated for conformity with the Jones and Jones study for the Meadowcreek Parkway (Final Report dated May, 2001) for relationships of building placement and their relationship with open space. ATTACHMENTS: A — Concept Plan B — SP 2003 — 004 Existing Amendment Concept Plan C — SP 2003 — 004 Action Letter D — SP 2001 — 040 Original Concept Plan E — SP 2001 — 040 Action Letter F — Relevant Portions of Meadowcreek Parkway Final Report G — History of Changes to Conditions