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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