HomeMy WebLinkAboutZMA202100001 Correspondence 2021-10-18REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
BACKGROUND
Dickerson Ridge, LLC (the "Applicant'), requests approval of an amendment to ZMA 2006-00019,
a zoning map amendment application approved for the Willow Glen project on October 10, 2007
(the "Project'). The Project is zoned Planned Residential Development (PRD). This amendment
Application affects only Phase 2 within the Project comprising the following parcels (collectively,
the 'Property'):
TMP Acres
Phase 1 32-49K 4.61
Phase 2 32-49F 3.63
32-491 4.57
32-49J 11.07
19.27
Total 23.88
Note: Numbers are approximate.
This Application does not include Willow Glen Phase 1, which has already been developed
pursuant to the original rezoning.
The Property is located along the east side of Dickerson Road (State Route 606) across from the
eastern boundary of the Charlottesville -Albemarle Airport. Phase 1 is located just north of
Towncenter Drive. To the northeast is the fully developed Deerwood residential neighborhood.
To the east is the fully developed Abington Place townhome community (part of the Hollymead
Town Center development); and, to the south, is an undeveloped 11 acres zoned R-15 (Tax Map
parcels 32-56 and 32-56A). Willow Glen Phase 1 is accessed from Towncenter Drive while Phase
2 will have two points of access from Dickerson Road.
In 2007 the Board of Supervisors approved a Comprehensive Plan Amendment to designate the
Property as Urban Density Residential (CPA-2006-00003, the "2006 CPA"). This designation
allows between 6.01-34 dwelling units per acre ("DUA"). At the same meeting the Board of
Supervisors also approved a rezoning application to rezone the Property from Light Industrial to
Planned Residential Development (ZMA 2006-00019, the "2006 ZMA") to permit a maximum of
234 residential dwelling units, which is a gross density of 9.88 DUA. Final site plans were
approved in October of 2008, and construction of Phase 1 began shortly thereafter. All thirty-six
(36) Phase 1 lots have been developed and sold.
In January 2019, the Board of Supervisors granted a Special Exception to allow several variations
to the approved rezoning Application Plan by the Board of Supervisors. This approval addressed
modifications to existing setbacks, the removal of double -front lots, adjustments to the private
road layout, interparcel connections and phasing. Other changes included slight adjustments to
both the lot layout and unit types.
The Applicant was forced to withdraw the site plan application for Phase 2 because the approved
proffers make Phase 2, as approved, financially untenable. The Applicant has already provided
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
six (6) affordable housing units in Phase 1 and has paid approximately $500,000 in cash proffers
for Phase 1 with a resulting net loss to the Applicant of approximately $325,000 for the first 36
homes. A well -respected apartment community developer desires to purchase the Phase 2
property and complete the Willow Glen community, and an amendment to the 2006 ZMA plan is
necessary to accommodate the contract purchaser's new development plan.
The residents of Phase 1 have been very happy with the development and continue to support
the completion of Phase 2. The Applicant worked with the Phase 1 owners to design and build a
temporary playground that provides an amenity until the remainder of the community and its
associated amenities are completed. The Applicant has also organized a representative group of
Phase 1 residents so that they can easily communicate and address any concerns in a timely
fashion.
The Applicant now proposes to amend the 2006 ZMA to modify the Application Plan for Phase 2,
including modification of the residential unit types and density within Phase 2.
PROJECT PROPOSAL
The Applicant proposes to amend the approved Application Plan from the 2006 ZMA to permit a
different development plan for Phase 2. Please see the attached Willow Glen Rezoning
Amendment Application, prepared by Edwards designStudio, dated July 9, 2021. As shown on
the Application Plan (Sheet Z4), the amendment contemplates approximately 308 multi -family
apartments, which would equate to an average gross density of approximately 15.98 DUA in
Phase 2. Phase 1 has a density of 7.81 DUA. Phases 1 and 2 together would have an overall
average gross density of approximately 14.41 DUA. These densities are summarized in the chart
below.
TMP Acres Units DUA
Phase 1 32-49K 4.61 36 7.81
Phase 2 32-49F 3.63 308 15.98
32-491 4.57
32-49J 11.07
19.27
Total 23.88 344 14.41
Note: Numbers are approximate and relate to the Application Plan.
To provide flexibility and foreclose the necessity of a potential future density increase request, the
Applicant is proposing a maximum gross density of 16.08 DUA (360 units) for the entire
Project, which is in the center of the density range contemplated by the Comprehensive Plan for
Urban Density Residential (6.01-34 DUA). This density would allow up to 324 units (16.81 DUA)
in Phase 2 in addition to the existing 36 in Phase 1. Because there are no environmental features,
such as preserved slopes, to protect, the NET and GROSS density calculations are the same.
2
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
The primary reason for this rezoning request is to respond to market changes and successfully
adapt the Willow Glen community to these changes. These changes will help reduce development
pressures on the Rural Areas by providing multi -family residential uses and medium density within
the Development Area, which is specifically designated for urban density residential development.
As the Concept Plan (Sheet Z5) illustrates, the multi -family buildings would replace the mixed -
type residential development approved with the 2006 ZMA. As a result, private/public roads
become travelways; open space is allocated differently; setbacks will adjust; and interparcel
connections will be modified to accommodate for both environmental, accessibility and financial
related issues.
The proposed plan would result in far less impact on the streams that run along the northern and
southern boundaries of the Property than if the Project were developed in accordance with the
approved plan from the 2006 ZMA. The Applicant consulted with the U.S. Army Corp of Engineers
(USACE) and Department of Environmental Quality (DEQ) representatives to develop a plan for
minimal stream disturbance and has obtained the necessary USACE permit for installation of a
maximum of 300 feet of underground piping. Specifically, the stream mitigation plan consists of
the installation of a culvert under the parking lot and travelway approaching buildings 9 and 10,
which allows the Project to use the space above the streambed, providing reasonable use to the
Property, while also respecting other County minimum requirements associated with any
development (i.e. parking and circulation). By letter dated October 29, 2020, the USACE
confirmed that the work plan set out in the Applicant's permit application satisfies the criteria
contained in the Corps Nationwide Permits (18) and related Federal regulations and that, provided
the Nationwide Permit General Conditions are met, an individual Department of the Army Permit
will not be required. Further, DEQ has provided a Water Quality Certification for said permit.
As part of the Applicant's effort to minimize stream impacts, another proposed change to the 2006
ZMA Application Plan is the elimination of the vehicular connection to Phase 1 and any future
connection to TMP 32-49H to the north. This change will consolidate all stream impacts within the
parcel to the northern branch of the stream. It eliminates additional impacts to the northern branch
of the stream and any impacts to the southern branch of the stream, which would be required for
vehicular connections. Further, as described below, a vehicular connection through Phase I is not
desirable to the Phase 1 residents, and no vehicular connection was provided for on the property
to the north (TMP 32-49H).
Phase 1 residents have expressed concerns and opposition towards a vehicular traffic connection
from Phase 2 via Shannon Glen Court. Simply put, their children's safety is paramount to them.
When considering the additional daily traffic from the Phase 2 residents, coupled with any "cut -
through" traffic from Dickerson Road, the unnecessary safety risk to their children and
neighborhood outweighs any perceived benefits of the additional connections.
Phase 1 residents do, however, want their neighborhood to be connected to Phase 2. Therefore,
instead of providing a vehicular connection, the Applicant proposes to construct a new
pedestrian/bicycle bridge between Phases 1 and 2 at the end of Shannon Glen Court. The existing
pedestrian stream crossing at the end of Templehof Court will remain as well. The new
pedestrian/bicycle connection between the two Phases will provide easy and convenient access
for Phase 1 residents to use the trails, pool, clubhouses, and other recreational facilities within
Phase 2. This connection will unify the Project and provide a sense of community within Willow
Glen.
3
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
CONSISTENCY WITH THE COMPREHENSIVE PLAN
The Property is located on the western edge of the Community of Hollymead within the Northern
Development Area, abutting Dickerson Road.
The Property is designated as
Urban Density Residential
(UDR) on the Land Use Map of
the Comprehensive Plan.
Primary uses within UDR
areas are residential of all
housing types. The Urban
Density Residential
designation "is used in areas
around Centers where
multifamily housing with a
gross density range between
6.01 and 34 units per acre is
desired." (See Master Plan,
Ch. 4, "Land Use
Designations"). The Project
proposes maximum gross/net density of 15.08 DUA, which is the center of the desired
density range. Based on anticipated unit count of 308 in Phase 2, Phases 1 and 2 combined
would have an overall average density of approximately 14.41 DUA. As further detailed in the
"Primary and Secondary Uses" section of Chapter 4, residential buildings should not be taller than
four (4) stories or 45 feet unless by exception. All buildings proposed are three-story and some
do have basements (in the rear) to respond to grade changes. This height differentiation is
illustrated on the Conceptual Grading and Infrastructure Plan (Sheet Z8).
IMPACTS ON PUBLIC FACILITIES & PUBLIC INFRASTRUCTURE
In connection with the development of Phase 1 of the Project, the Applicant, contributed over
$508,300 in cash proffers and constructed and sold six (6) affordable units.
In addition, the Applicant has invested $10,000 towards helping the Albemarle County Service
Authority analyze and improve certain systems in the surrounding area and is committed to
assisting ACSA with further upgrades to offset future cost associated with certain capital
improvements. With the proposed apartment design, the Project's demand for service "tap"
connections will be fewer and have less impact on the Service Authority's ability to serve the
community in this area as compared to the approved plan with 234 mixed -type units.
Stormwater continues to be managed on -site rather than being released downstream and
managed by others. Similarly, both the existing water and sewer collection systems continue to
be sufficient to handle the proposed changes as compared to the approved plan.
Please see the enclosed report entitled, "Economic & Fiscal Impact Proposed Willow Glen
Residential Development in Albemarle County, Virginia," dated April 16, 2021, prepared by
Chmura Economics & Analytics. The report analyzes the economic impact of the Project during
4
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
the development and construction phase (2022-2024) and throughout its operations, beginning in
2025. It concludes that the economic support that the Project will provide to the County will exceed
the cost of County services used by the Project and its residents. In Table 3.4, the report lists the
estimated costs the County would incur to provide public safety, public works, health and welfare
services, education, and other services to the Project. These annual County costs (including
education, discussed in more detail below) are estimated to total $908,850 per year. The
estimated county revenue from the Project is $992,602, providing a net positive fiscal impact for
the County.
Table 3.4: Estimated County Cost for Willow Glen (Annual,
2025 Onward)
General Administration
$69,427
Public Safety
$149,381
Public Works
$20,035
Health & Welfare
$105,202
Education
$381,471
Parks, Recreation & Culture
$40,565
Community Development
$49,106
Debt Service
$93,663
Total County Cost
$908,850
Source: Chmura Economics & Analytics
The report estimates annual per capita
County expenditures for the residents of
Phase 2 and provides the total cost for
308 residents, as summarized in the
table to the left.
The cost of county services for Phase 2 residents is more than offset by the income to the County
that the Project will generate from taxes on the Project and Property (BPOL and real estate taxes)
and the personal property, consumer utility, and sales tax paid by the Project's residents, as
summarized in the table below:
Table 3.2: Recurring Tax Revenues from Willow Glen (2025)
Real Estate Tax
$679,757
Personal Property Tax
$119,846
Consumer Utility Tax
$14,784
Tax from Willow Glen Resident Spending
$143,524
Total
$992,584
Note: Numbers may not sum due to rounding
Source: Chmura
5
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Schools:
Students living in the Project would be within the current school districts for Baker -Butler
Elementary School, Lakeside Middle School, and Albemarle High School. Based on the
September 2021 Albemarle County Long Range Planning Committee study Recommendations',
Lakeside is under capacity, while Baker -Butler and Albemarle High School are over capacity.
Based on the County's calculator, the requested change in dwelling unit type mix in Phase 2
would produce an additional 11 school children from the Project overall. However, based on its
analysis of the actual number of school children living in similar multifamily projects it has
developed, the Applicant believes that the more accurate multiplier is 0.17, which produces 52
rather than 61 students from the multi -family units, which would be only two students more than
the Official Calculator's estimate for the existing zoning. Further, based on our analysis of
the number of registered students in four Albemarle County multifamily developments, the
expected number is even smaller. Below we show details of three different calculations of the
expected student numbers — (1) the County's Official Calculator, (2) the actual numbers of
registered students in four existing County multifamily developments in the County; and (3) the
student calculator derived from the contract purchaser's portfolio of existing multifamily
communities.
1. OFFICIAL CALCULATOR
Student Numbers in the Proposed Housing Mix:
Type of Dwelling Unit Elementary Middle High Total
SFD (14) 0.15(2) 0.08 (1) 0.12(2) 5 (Phase 1)
Townhome (22) 0.15(2) 0.06(1) 0.08(2) 6 (Phase 1)
Multi -Family (308) 0.12 (37) 0.03 (9) 0.05 (15) 61 (Phase 2)
Totals
42 11 19 72 Project
Student Numbers in the Current Approved Housing Mix:
Type of Dwelling Unit
Elementary
Middle
High
Total
SFD (22)
0.15(3)
0.08(2)
0.12(3)
8
SFA (12)
0.13(2)
0.05(1)
0.08 (1)
4
Townhome (106)
0.15 (16)
0.05(1)
0.08(8)
30
Multi -Family (94)
0.12 (11)
0.03(3)
0.05(5)
19
Totals: 234
32
12
17
61 Project
'Albemarle County Public Schools Long Range Committee Recommendations, dated September 9, 2021
z Provided by Rosalyn Schmitt, Chief Operating Officer, Albemarle County Public Schools.
N.
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Thus, based on the Official Calculator, the difference in projected student numbers between the
existing and proposed zoning is 11 children, representing an increase of 10 elementary students,
decrease of 1 middle school student, and increase of 2 high school students.
2. EXISTING MULTIFAMILY DEVELOPMENTS
When we analyze the actual number of registered students in four comparable County multifamily
developments, we find a significantly lower likely student number than the Official Calculator
would indicate:
Multifamily
Project
Reserve at Belvedere
Arden Place
Stone Creek Village
Units Pre-K/Elem.
294
212
264
Middle High Total
2 6 16
17
Stonefield Commons 251 8 1 2 11
Totals: 1,021 24 8 20 52
The actual student numbers for these four multi -family communities indicate an average multiplier
of .051, not 0.21, for the total number of students. Thus, based on the 2019-20 data above for
these four existing multi -family developments, we would expect 16, not 61, students from the 308
proposed multi -family units, which is a 74% decrease in number.
3. COMPARABLE PROJECTS
Perhaps most accurate is the Applicant's analysis based on similar projects in its own portfolio.
Based on these similar developments, the expected multiplier is 0.17, which produces 52
students, which would be only two students more than the Official Calculator estimates for the
existing zoning.
The Albemarle County Public Schools Long Range Planning Advisory Committee
Recommendations, September 9, 2021 (the "Report") recommends a new elementary school to
alleviate capacity issues in the 29 North area, specifically for Baker Butler and Hollymead
Elementary Schools. It recommends a new elementary school in the Northern Feeder Pattern and
has the following conclusion regarding capacity in this area:
Baker -Butler enrollment has increased due to redistricting and growth. The Camelot, Briarwood,
and North Pine neighborhoods continue to grow, primarily due to NGIC employee growth. The
Hollymead district has had overall moderate growth, with primary growth in the Hollymead
Subdivision as younger families move into the neighborhoods. What's more, major
developments are planned including North Pointe, which may produce more than 300 units, and
Brookhill, which may produce more than 800 units.
7
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Baker -Butler currently is over capacity (by 74 seats during the 2019-20 school year) and the
student population is projected to continue growing. The student yield analysis from new
development shows the Baker -Butler and Hollymead districts as having the highest impact of
443 potential students. In addition, the expected long-term population growth is only second to
Brownsville/Crozet, growing by 75% by 2045.
As new developments are approved, ACPS has acquired two potential elementary school sites
through proffers. A site at Brookhill is located centrally in this area, and a new elementary school
is recommended to be built to benefit Baker -Butler and adjacent school districts.
Recommendation: New elementary school in the Northern Feeder Pattern.
The Report states adequate capacity for Lakeside Middle School and makes the following
conclusion regarding all middle schools in Albemarle County:
The five comprehensive middle schools currently have combined adequate capacity, but
Division projections show looming capacity issues at Henley and Jouett. The student yield
potential from planned developments is 644 across all of the middle schools, and long-term
population forecasts show a forecast of approximately 1,300 more students. With the
complication of split feeder patterns and under enrollment at some schools, further study to
determine feasible alternatives is needed. Potential alternatives may include the addition of a
new middle school, addressing current grade level configurations, and redistricting.
'ecommendation: Middle School Capacity Study
The Report states that the school division "has embarked upon a 'center' based strategy to
address capacity issues at its three comprehensive high schools, in particular Albemarle High
School." The two "centers" that have been approved by the County will serve 650 students. Center
I, which opened in 2018 and is located approximately six miles from the Project, will serve up to
250 students. Center 2 was paused during the COVID-19 pandemic due to economic and
enrollment uncertainties. The Report recommends that Center 2 should be prioritized to be funded
as a capacity solution.
IMPACTS ON ENVIRONMENTAL FEATURE
As amended, the Project would have fewer impacts on environmental resources than the 2006
ZMA. The new plan makes a stronger effort to respect the streams by limiting activities associated
with the development adjacent to them. In addition, the plan attempts to pull any necessary
grading away from the top of banks whenever possible. The revised plan eliminates a stream
crossing, which lessens environment impacts and remains consistent with USACE/DEQ impact
approvals to ensure that this project is both successful and marketable.
PROFFERS
This proposed Amendment replaces the proffers associated with the 2006 ZMA, which address
(1) affordable housing, (2) cash proffers, and (3) a vehicular connection through Phase 1 to
Towncenter Drive. The amended PRD Plan includes an equivalent in -kind affordable housing
commitment in place of Proffer 1. The cash proffers associated with the existing zoning (Proffer
2) pertain to housing types other than multifamily so would not be applicable under the amended
[3
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
plan. (As noted above, the cash proffers have rendered the approved plan not viable
economically, so, practically speaking, none of the anticipated benefits would ensue if the plan
were not amended.) Finally, as described below, the amendment eliminates the street connection
(Proffer 3) between Phases 1 and 2 for environmental, safety, and traffic planning reasons. The
connection is strongly opposed by the Phase I homeowners and is unnecessary for their
enjoyment of the Phase 2 recreational facilities because of the planned pedestrian connections.
The proposed changes and proffers are discussed in more detail below.
Affordable Housing. The existing proffers provide affordable housing equal to 15% of the
total dwelling units with a specified maximum selling price for for -sale affordable units and
net rent for affordable rental units not to exceed the "then -current and applicable maximum
net rent as published by the County Housing Office," increasing 3% annually, for a ten-
year affordability period. Proffer 1.0 allows the applicant to carry over credits for affordable
units across subdivision plats and site plans. The proffers also include a cash option in
lieu of for -sale units. In Phase 1, the Applicant provided 6 of the 36 units as affordable
(16.67% of the units).
With the Project redesigned to 100% multi -family housing in Phase 2, the Project becomes
more affordable for County residents as a whole since multi -family rental housing is
typically a more affordable option than homeownership. With PRD zoning, the affordable
housing commitment is provided as a note on the PRD plan rather than as a proffer. In
compliance with the County's Housing Policy at the time of submission, the Applicant has
committed to renting 15% of the units in Phase 2 at rental rates that are affordable to those
earning no more than 80% of the then -current Area Median Income (AMI) for the
Albemarle County area for a minimum of ten (10) years. Affordable housing costs under
the current policy are housing costs that do not exceed 30% of gross household income.
Rental housing costs include both rent and tenant -paid utilities "with maximum allowances
for utilities to be those adopted by the Housing Office for the Housing Choice Voucher
Program."
2. Cash Proffers. The proffer statement approved with the 2006 ZMA did not require cash
proffers for multi -family units. The original 2006 ZMA application proposed a creative
solution for the provision of workforce housing through a Housing Loan Fund. Starting in
2007, the draft proffers included a unit category called "Moderately -Priced Units," which
would be single family attached (SFA) units (townhouses and duplexes) and
condominiums. This first 2007 iteration of the proffer statement was constructed with two
options for cash proffers — one with a Housing Loan Fund and one without the fund. In the
proffer statement with the fund, the cash proffer amount for each unit type would be
halved. The categories of units were laid out as follows:
(a) Single Family Detached (SFD)
(b) SFA NOT moderately -priced or affordable
(c) Moderately -Priced Units
(d) Affordable housing units
"Moderately -Priced Unit" was a defined term that included condo units; the cash proffer
for such units was half of the amount for the SFA units that were not moderately priced.
Affordable units had no cash proffers.
W
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Staff recommended against, and the Board of Supervisors rejected the Housing Fund
concept, so the concept of "Moderately -Priced Unit" was removed from the proffers in the
October 1, 2007 iteration of the statement. Thus, the proffers apply only to single-family
(SFD and SFA) units.
Regardless of the history and status of the proffers approved with ZMA 2006, this
amendment application is subject to current Virginia proffer law, amended July 1, 2019,
which provides that offsite proffers (which includes cash proffers) are considered
unreasonable unless they address an impact to one or more of four categories of offsite
public facilities (transportation, schools, public safety, and parks), meaning the new
residential development creates or contributes to the need for public facility improvements
in excess of existing public facility capacity at the time of the rezoning or proffer condition
amendment, and the development will receive a direct and material benefit from such
proffer. As stated above, the Applicant has conducted an economic analysis addressing
the Project's impacts to public facilities to determine whether any offsite proffers are
warranted. Please see the enclosed report entitled, "Economic & Fiscal Impact Proposed
Willow Glen Residential Development in Albemarle County, Virginia," dated April 16, 2021,
prepared by Chmura. Chmura researched and evaluated the economic and fiscal impacts
of the proposed multi -family development — both during the development and construction
phase and during operations. The report concludes that the economic support that the
Project will provide to the County will exceed the cost of County services used by the
Project and its residents. Given the minimal impact on schools described above, the
economic exigencies of the Project, and other factors, the Applicant is not proposing cash
proffers.
However, based on the Applicant's Traffic Impact Analysis (TIA), dated March 25, 2021,
prepared by Ramey Kemp Associates, the Project is expected to increase the delays for
drivers turning onto Dickerson Road from Towncenter Drive. The Applicant has worked
with the County Transportation Planner and Virginia Department of Transportation (VDOT)
to evaluate options for mitigating the expected increased wait times. Options reviewed
have included extending the right turn lane on Towncenter Drive to provide additional
storage, a traffic light at the intersection of Dickerson Road and Towncenter Drive, and a
roundabout at the intersection. VDOT has expressed support for a roundabout as a long-
term solution for traffic volumes at this intersection, and the Applicant will proffer a cash
contribution towards the construction of a roundabout or other such intersection
improvements that maybe constructed in this location for traffic mitigation.
3. Connection to Town Center Drive. The Applicant's proposal eliminates the proffer of a
vehicular connection between Phase 2 through Phase 1 to Towncenter Drive. The owners
of the homes in Phase 1 are strongly opposed to a vehicular connection through Phase 1
because of safety concerns. Further, the connection would provide minimal benefit to
surrounding developments since the distance from the proposed entrances on Dickerson
Road to Towncenter Drive is very short. Finally, the amended plan's elimination of the
vehicular stream crossing between the two phases protects stream buffers, which
outweighs any minimal convenience to motorists. A new pedestrian and bicycle
connection from Shannon Glen Court, along with the existing connection from Templehof
10
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Court, will join the two phases of the community to provide the desired unity of community
and Phase 1 owners access to recreational facilities in Phase 2.
As described in greater detail in the Chmura report discussed earlier, Phase 2 of the Project will
provide not only housing and related recreational facilities but significant economic benefits to the
County. The table below summarizes those benefits and shows how they outweigh the cost of
County services and resources provided to the apartment community and its residents:
11
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
DIRECT POST -CONSTRUCTION ECONOMIC BENEFITS
EXISTING PROFFERS VS. PROPOSED REZONED PROJECT
Existing Proffers
Proffers
Phase 2, as
Phase 2 as
Fulfilled in
Proposed
Currently Zoned
Phase One
(Amended)
Percentage
15% of units
17% = 6 units
15% of 308 units
15% of 198 units
of Units
= 46 units
= 29 units
For -sale
90-day identification
All 29 units for-
units
and qualification
17% = 6 units
NA
sale
a,
period
3
Rents at the
Affordable to
O
then -current and
residents making
For -lease
applicable maximum
no more than 80%
m
units
net rent published by
NA
AMI.
NA
the County Housing
office.
10-year
a
10- ear affordability
affordability
Cash
If purchaser not
Actual units
Actual units to be
Up to 29 x
Option
identified -
provided.
provided.
$19,100 =
$19,200/unit
$553,900
yr
(14) SFD units
7 SFD =
c
= $245,000
BPOL tax on
$122,500
ET
$17,500/SFD
(22) SFA units
rental income:
96 SFA =
a
$11,900/SFA
= $261,800
$34,692/year
beginning 2025
$1,142,400
H
$0/Affordable Unit
Total Phase 2:
V
= $506,800
$1,264,900
paid
With no rate
increases, over 30
NA -- will not be
p
+ $10,000 to
years: $1,040,760
developed with
ACSA
SFD/SFA
N
N
N
O
None
NA
Six (6)
NA
a
E
w
12
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 16, 2021
The table below sets out the expected annual tax revenue from Willow Glen Phase 2, as
amended, versus annual costs for County services to its residents.
TAX BENEFITS TO COUNTY FROM PHASE 2
BPOL (on rental income)
$34,674
Real Estate
$679,757
Personal Property
$119,846
Consumer Utility
$14,784
Sales
$143,524
TOTAL TAX (ANNUAL)
$992,584
COUNTY COSTS ASSOCIATED WITH WILLOW GLEN PHASE 2
General Administration
$69,427
Public Safety
$149,381
Public Works
$20,035
Health & Welfare
$105,202
Education
$381,471
Parks, Recreation & Culture
$40,565
Community Development
$49,106
Debt Service
$93,663
TOTAL COSTS
$908,850
Net Benefit to County per Year
$87,734
In addition, Willow Glen Phase 2 residents' spending in the county is estimated at
$15,700,000 annually.
13
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
PRINCIPLES OF NEIGHBORHOOD MODEL
Below is a description of how the project satisfies each of the principles found in Section 20A.1 of
the Zoning Ordinance.
Pedestrian Orientation - Like Phase 1, where the residential units are oriented towards the
streets, Phase 2 orients the apartment buildings toward the travelways. The scale and design of
the streetscape, along with the residential buildings' architectural features, such as front porches,
balconies and stoops, will establish a pedestrian orientation and human scale. Together, these
outdoor spaces encourage neighbors and residents to interact at comfortable distances in a
positive way. They also allow for seating opportunities, which promote conversation and getting
to know your neighbors as well as watching the activities going on within the community.
Sidewalks will be provided throughout the Project to serve the residents and offer safe convenient
connections between the apartments and recreational areas within the community. These
sidewalks are both functional and comfortable while strengthening opportunities for residents to
interact with one another along the way or from a "safe social" distance.
In addition, the Project includes an attractive pedestrian/bicycle trail connecting the two phases
to allow the residents of each phase to form one community. Furthermore, this connection
provides Phase 1 owners access to the recreational facilities within Phase 2 while giving Phase
2 residents convenient access to established commercial uses and public transportation stops
along Towncenter Drive and in the Hollymead Towncenter.
The trail network is shown on the Concept Plan (Sheet Z5) within the Phase 2 Common Open
Space. The precise location is conceptual and will be determined during the final site plan phase.
This amenity feature offers residents within both phases the opportunity to exercise and interact
with nature. The majority of the trails will be Class B- Type 2 (high maintenance pedestrian path)
as a minimum; however, in some cases a Class B- Type 1 trail could be used if opportunities
become available in wooded naturalized areas. Together, these networks of paths are intended
to highlight the community's natural amenities as well as educate the residents of the local flora
and wildlife all in a pedestrian -friendly manner.
For convenience and safety, the sidewalks along the travelways will be lit through a combination
of entry lights on the buildings and the street light poles adjacent to the parking lots. All lights will
conform to the County's dark sky policies. In addition, the major routes will have some form of
crosswalk symbology which will be determined during final site plan. In the meantime, we have
shown on the Concept Plan (Sheet Z5) where those crosswalks might be to provide a safe route
through the development and to its amenities.
Mixture of Uses and Types - Willow Glen will have a mixture of housing types, including single-
family detached, townhomes, and multifamily homes. Though it will not include a mixture of uses
(e.g. commercial, retail, etc.), it is located within walking distance (1/2 mile) to Hollymead Town
Center, which includes not only additional housing types (condominium) but well -developed retail
development serving the northern portion of the County with grocery, department store, drug
stores, specialty retail, and restaurants. Further, Willow Glen will be within a '/4 mile of a future
Places29 Neighborhood Center shown on the Land Use Map at the intersection of Towncenter
and Dickerson Road.
14
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
In addition to close proximity to the destinations above, the table below highlights Willow Glen's
proximity to several other key service industries in the surrounding area. Together with the many
existing commercial and industrial uses in the immediate area, the residential offerings at Willow
Glen help create the desired "mixture of uses" from a regional context.
Destination
Distance
Use
Charlottesville Regional Airport
1/4 mile
Service
UVA Research Park
1/2 miles
R&D, Office
Northside Industrial Park
2.5 miles
Industrial
Chris Greene Lake
4 miles
Recreation
NGIC
5 miles
Government
Berkmar Crossing
7 miles
Office
Fashion Square Mall
8 miles
Retail, Commercial
Neiahborhood Centers — The Willow Glen community is located near a Neighborhood Center,
but does not include a center itself. Not all neighborhoods must have a neighborhood center. A
Neighborhood Service Center is designated in the Comprehensive Plan for parcels immediately
abutting Towncenter Drive at the Dickerson Road intersection. This area is designated Urban
Mixed Use (in Centers) on the Future Land Use North map. As described in Strategy 2f of the
Comprehensive Plan, "(n)eighborhood centers are focal points or places in a neighborhood or
area where people congregate. A center may be a school or park, location of a major employer
or a shopping area....
Figure 7: Illustration "S Mile
Distance from Neighborhood Center
As seen in Figure 7 (left), they are intended to be located within a
comfortable walking distance (approximately'% mile) from homes..."
In Figure 7, the orange area designates medium to high density
residential. The Property is designated Urban Density Residential,
which is intended for medium to high density residential, and will be
less than 1/8 mile from the designated Neighborhood Service Center
Area.
Of course, Hollymead Town Center, a large Destination Center,
I� Community Center, and Commercial Mixed Use area is only one-half
mile east of the Project. The Willow Glen community is designed with
S.,, ..... 1YDev9 .o 1,hr.N 20both pedestrian and vehicular connections to provide residents easy
accessibility to the Hollymead Town Center.
The Project will include recreational facilities and surrounding areas, such as the stormwater
pond, where residents from both Phase 1 and Phase 2 can socially congregate. At the fitness
center and pool, residents may exercise using a gym in a generous space, swim, and socialize
and entertain around fire pits and outdoor grilling stations. Around the pond, residents can walk,
bike, stroll along the trails, fish from the dock and edge, and sit privately or socialize with others
using the seating opportunities envisioned along the trail and pond.
15
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Mixture of Housing Types and Affordability - This application requests changing the existing
zoning plan for Phase 2 of the Project from a mix of residential unit types to multi -family, but the
Project already includes fourteen (14) single-family detached and twenty-two (22) townhome
dwellings, so the Project, as amended, would contain three (3) different housing types. The
Project abuts Deerwood, which comprises seventy-five (75) single-family detached dwellings.
Many townhome, condominium, and other residential types are located within Hollymead Town
Center. The Comprehensive Regional Housing Study and Needs Assessment published by The
Central Virginia Regional Housing Partnership of the Thomas Jefferson Planning District
Commission reports that only three percent (3%) of the land in Albemarle County is zoned for
multifamily housing, while ninety-five percent (95%) is zoned for single-family housing (Table 14.
Residential Zoning by Jurisdiction, 2018). The report goes on to explain that "(u)nder the goal of
protecting single-family neighborhoods, such zoning restricts the opportunities for multi -family
housing and increases multi -family land prices" (Id., p. 61). Areas around Centers are often
designated for Urban Density. The Comprehensive Plan guides residential use for the Property,
which is designated as Urban Density Residential, to be 6.01-34 DUA, which can be achieved
with the proposed multi -family development.
Affordable Housing: The Project has already provided six (6) or 17% affordable housing
in Phase 1. The Applicant intends to provide 15% of the multi -family units in Phase 2 at rents
affordable to those making no more than eighty percent (80%) of the Albemarle County area's
median AMI for a minimum of ten (10) years.
Interconnected Streets and Transportation Networks — Two points of access from Dickerson
Road are proposed on the Application Plan (Sheet Z4). A pedestrian/bicycle interconnection is
shown between the two phases and continues on to Towncenter Drive, providing further access
to Hollymead Town Center and Berkmar Road Extended.
In the existing plan, a vehicular connection between the phases was envisioned. However, this
connection is strongly disfavored by the established residents in Phase 1 due to safety concerns.
Not all streets need to be connected for vehicular purposes especially within a community,
provided alternative connections are possible. Incorporating the "pedestrian/bike-only' connection
eliminates the safety concerns raised by the Phase 1 residents, maintains a connection between
the phases, protects sensitive environmental features, provides Phase 2 residents access options
to the surrounding neighborhood centers, and encourages walk -ability within the community and
regional context.
Furthermore, once the proposed Places29 Neighborhood Center develops at Towncenter Drive
and Dickerson, the Willow Glen residents will be able to enjoy their proximity to the Center even
more without the burden of getting in their cars for a 1/8 mile trip because they have the ability to
easily and comfortably walk or bike using the established sidewalks along Towncenter Drive and
proposed trails.
The former proposed connection between the Project and TMP 32-49H, a single-family residential
parcel zoned Rural Areas, has been eliminated to avoid further stream disturbance, which is not
permitted under the approved Army Corps of Engineers Nationwide permit.
16
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
l 32
Interparcel connections with the Deerwood
J219; • 2J3 ,, subdivision are infeasible and impractical. As can
�2&7 "" be seen on the GIS map excerpt to the left (subject
IC6}yal PP�w 164 I2 3� 154 60 3
.169
3 ��"„ 1 parcel identified by stars), the existing development
32
l]3655 =�' did not provide room for such interconnection. No
1='=� "' m right-of-way was reserved in Deerwood amid the
'°%3 '° �\ locations of houses and a storm water basin. On a
A 31l 16, practical level, Deerwood has connectivity via
3621 361 ,,, Airport Road and Livingston Drive and would derive
Itl5 64 little benefit from a connection through Willow Glen,
ll 89 which would require stream crossings. As parcels to
31-49J 393 93 the southwest are developed, Deerwood residents
J2 d6F ,,,, oee would have readily available access over existing
\ ' roads.
16) 1J.:
8 "' Multi -Modal Transportation Opportunities - The
T�22�1streets within Willow Glen are primarily designed as
J136 Sk2� V� J2UO3P/�" 2°46���"travelways." Slow traffic speeds, low traffic
" isaol--" 9' volumes, and landscaped roadways with sidewalks
help make the streets and paths neighborhood friendly. This design will allow opportunities for
bicyclists to get to and from their destinations without separate bike lanes. Bike racks will also be
situated near certain amenities whenever possible. These facilities will be incorporated into the
Final Site Plan. As previously discussed, the Project includes interior sidewalks and trails and a
new "pedestrian/bike-only" connection to Phase 1.
Using the new pedestrian -bike connection from the pedestrian trail to Shannon Glen Court in
Phase I, residents will have a shortcut to the multi -modal network system that extends the entire
way along Towncenter Drive to Hollymead Town Center. It would be approximately one-half mile
(1/2 mi.) from the Phase 2 connection access to the front door of Harris Teeter. Using Dickerson
and Towncenter roadways, the distance is 0.9 mile and certainly within suitable walking distance.
Dickerson Road currently has no sidewalks, and the terrain is not conducive to installing them
because of the managed slopes. The Applicant is willing to construct a portion of sidewalk within
the Dickerson Road right-of-way, along the proposed southern right turn taper, in order to access
(in the future) Towncenter Drive and the proposed Places29 Neighborhood Service Center. This
portion of sidewalk would eventually be extended by a future sidewalk connection along Dickerson
Road that the owner of TMP 32-56 (Uptown Village LLC c/o United Land Corp) constructs.
Further, the Application Plan proposes 1-2 suitable locations for future trail connections from the
Property to TMP 32-56, should that owner agree.
Parks, Recreational Amenities and Open Space — The proposed development will provide an
"improved level of amenities" (Zoning Ordinance Sec. 18-19.1) as compared to traditional zoning
districts. As depicted and tabulated on Sheet Z7, Phase 2 will contain 7.29 acres of Common
Open Space, comprising more than 38% of its 19.27 acres. Together with Phase 1, over 36% of
the Project land will be in Common Open Space. The Phase 2 property owner will be responsible
for maintaining all the Common Open Space and the amenities being offered in this phase.
17
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Within the Common Open Space, extensive Recreational Facilities (125,029 square feet) will be
provided for Project residents and their guests. Every building will be close to a small park,
recreational facility, or trail connection. The trails will wrap around the Project from Building 9 at
the north end of the Project to Building 1 at the southwest corner and will connect with the interior
sidewalk network for easy accessibility.
Under Section 4.16.2 of the Zoning Ordinance, the Project must include eight tot lots and three
half -court basketball courts. The Applicant proposes a mix of recreational facilities more suitable
and desirable to the residents, based on its experience with many similar projects. For that reason,
recreational facility substitutions are proposed. Sheet Z7 lists and identifies possible locations for
proposed activities and facilities available for the residents throughout the development. Within
those spaces are opportunities for a variety of different active and passive activities. Some will
serve only one purpose while others can be more flexible offering variety. The list of recreational
facilities is also provided below:
Program Location Potential Activities
Clubhouse community meetings, business center
Pocket Park #1 tot lot (#1), seating
Pet Spa grooming pets
Fitness Center
Pool
Pocket Park #2
Dog Park
Pocket Park #3
Pocket Park #4
Viewing Platform
Pocket Park #5
Gazebo/Dock
Amenity Pond
Pocket Park #6
Pocket Park #7
Pocket Park #8
Pocket Park #9
Trails
gym
swimming
fire pit, grilling stations
recreation for both large and small dogs, seating
sitting
amphitheater, park, seating
Respite, seating
tot lot (#2), grilling station
respite
fishing, bird watching, education
plaza, gardens, seating, lawn games
tot lot (#3), seating, lawn games
fountain, gardens, seating
plaza, gardens, fire pit, seating
exercise (biking, walking, running)
Interwoven throughout all the common areas and recreational areas are outdoor architectural
elements such as benches, tables and trash cans, landscaping, signage and lighting which
strengthen and tie the development together giving residents a sense of home and comfort. In
addition, all recreational areas will be available to the Phase 1 owners; provided that a few will
have a fee -based private membership program (e.g. pool and fitness center). Combined, these
alternative recreational amenities would replace the County's minimum recreational
requirements.
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
Furthermore, along the fringes of the property vegetation will be preserved. This effort will help
buffer the project from neighboring developments, reduce environmental impacts, conserve
provide wildlife corridors; and contribute to Common Open Space requirements. Large mature
trees will be preserved within these areas. At the rear of the project there will be a pond to satisfy
the community's stormwater needs as well as serve as a recreational area for the project.
Benches, trails and landscaping will convert this space into a user-friendly, park -like environment.
In addition, the stormwater feature also has the potential to be stocked with fish and used for
fishing, education and further enjoyment for the residents.
Buildings and Spaces of Human Scale — Zoning guidelines limit building sizes, heights and
setbacks. Willow Glen architecture is both pedestrian -friendly and human -scale. Residential units
are oriented towards the street. Human scale will be established through the buildings'
architectural features, such as front porches, balconies and stoops, as well as the design and
scale of the streetscape. Together, these outdoor spaces encourage neighbors to interact at
comfortable distances in a positive way. They also allow for seating opportunities which promote
conversation and community.
Relegated Parking — In most cases, parking is located back into the project and off Dickerson
Road. By working with the topography, very little parking will be visible because the Property
slopes down away from Dickerson Road, and the parking will be screened by buildings,
topography, and landscaping. Additionally, where parking is adjacent to Dickerson Road, it has
been oriented perpendicularly which will make it feel smaller. In fact, of the eight acres comprising
parking lots and travelways only 9/10 of an acre is visible from Dickerson Road. In addition, 27
spaces will be garaged within the apartment buildings. The planned parking design and location
of the garaged spaces are illustrated in both the Concept Plan (Sheet Z5) and the Conceptual
Grading and Infrastructure Plan (Sheet Z8). Screening and landscaping of parking areas will be
addressed at the site plan stage of development.
Redevelopment - Phase 2 of Willow Glen is undeveloped; its development will complete the
Project begun with the development and construction of the thirty-six (36) single-family homes in
Phase 1.
Respecting Terrain and Careful Grading and Re -grading of Terrain — Development of Phase
2 of the Willow Glen community will preserve as many existing trees as possible, supplementing
them with additional landscaping. This preservation is being accomplished with proper site
planning, architectural design that is appropriate for the land and, in some cases, using walls to
eliminate grading that would otherwise impact natural buffer areas.
The proposed amendment permits the Applicant to preserve more of the existing site features.
This revised design results in stronger wildlife corridors, wider buffers and lower development
cost. Most important, fewer environmental impacts to the stream are necessary with the
elimination of the vehicular connection between the phases.
Clear Boundaries with the Rural Area - This development is located in the development area;
therefore this principle is not applicable.
We believe the current ZMA's proposed plan would satisfy the goals of the Places29 Master Plan
and Neighborhood Model, as well as be compatible with the surrounding community.
19
REZONING NARRATIVE
ZMA-2021-00001
January 19, 2021, resubmitted July 19, 2021, resubmitted October 18, 2021
BLOCK CHARACTERISTICS
There are no blocks being proposed at this time within Phase 2.
20