HomeMy WebLinkAboutVA200400017 Review Comments 2004-10-05 STAFF PERSON: Amelia McCulley
PUBLIC HEARING: October 5, 2004
STAFF REPORT VA 2004-017
OWNER/APPLICANT: Pantops Investors, LLC / Michael Spooner
TAX MAP/PARCEL: 78 / 13A
ZONING: HC, Highway Commercial / EC, Entrance Corridor
ACREAGE: 1.3266 acres
LOCATION: South side of Route 250 East, between the intersections of
Rt. 20 and Hansen Road.
TECHNICAL REQUEST AND EXPLANATION: The applicant requests relief from
Section 21.7.1 which requires a minimum front building setback of 30 feet. The
applicant requests a reduction to a setback of 17 feet, a variance of 13 feet.
The applicant has submitted a site plan (known as Pantops Place) for a proposed
18,271 square foot office building served by 61 parking spaces. This setback variance
has arisen through the site plan review as a result of road dedication / full frontage
requirements from V.D.O.T. as a condition to approve any site plan on this property.
This road dedication will move the existing property line a distance of between 11.5 and
13 feet to the south.
RELEVANT HISTORY:
The Pantops Preliminary Site Plan was submitted on June 14, 2004. Initial reviews
were made in mid-July. The ARB conducted a preliminary review on August 16th
Consistent with past policy, the variance has been submitted for resolution prior to site
plan approval.
PROPERTY DESCRIPTION AND QUALIFYING CONDITIONS:
The subject property is triangular in shape with the base of the triangle along the Rt.
250 frontage. It narrows to a point in the rear of the property which is the top or peak of
the triangle. There are critical slopes along the road frontage and along the eastern
side of the property. The property slopes down from Rt. 250 about 30 feet to the rear of
the property (from an elevation of 486 to 456 feet). In addition, there is a gulley with a
drainage easement on the eastern side of the property. This parcel is about 270 feet
wide at Route 250 and tapers down to about 170 feet wide in the center and further
tapers to a point in the rear.
Both the triangular shape and the topography of the property present constraints to its
development. The triangular shape and narrowness limit the amount and location of
VA 2004-017 Pantops Place
October 5, 2004
Page 2
improvements which can be placed on this property. The slopes of the property and the
drainage channel also limit development of this property.
With regards to authorization of a variance, Section 34.2 of the Zoning Ordinance
states:
When a property owner can show that his property was acquired in good faith and
where, by reason of the exceptional narrowness, shallowness, size or shape of a
specific piece of property at the time of the effective date of this ordinance, or where, by
reason of exceptional topographic conditions or other extraordinary situation or condition
of such piece of property, or of the use or development of property immediately adjacent
thereto, the strict application of the terms of this ordinance would effectively prohibit or
unreasonably restrict the use of the property or where the board is satisfied, upon the
evidence heard by it, that the granting of such variance will alleviate a clearly
demonstrable hardship approaching confiscation, as distinguished from a special
privilege or convenience sought by the applicant, provided that all variances shall be in
harmony with the intended spirit and purpose of this ordinance.
An ordinance provision which specifically enables property dedication or condemnation
without penalty to the owner is as follows:
2.1.5 REDUCTION OF YARDS BELOW MINIMUM
No yard existing at the time of passage of this ordinance shall be reduced in dimension
below the minimum requirements set forth herein, unless such yard requirements reduce
the buildable area to unreasonable dimensions. In such cases, the board of zoning
appeals shall determine the minimum requirements consistent with provision of
adequate light and air, prevention of loss of life, health, or property from fire or other
dangers, and prevention of danger in travel. Yards created after the effective date of this
ordinance shall meet at least the minimum requirements established by this ordinance.
This provision shall not apply to reduction of yard dimension as may result from
dedication to or exercise of eminent domain by a public agency. (Amended 9-9-92)
However, an ironic aspect of this request is that if the building were built first and the
dedication obtained later, this ordinance language would provide for a reduced setback
as a result of dedication without the necessity of a variance. However because of the
order of events in the development process, the dedication will be required prior to
construction of the building. Therefore, the setback may not be reduced under this
ordinance section and a variance is necessary for approval of the site plan.
*Please note that the applicant has sought written VDOT comment regarding this
requirement. At the time of this writing, VDOT has not yet provided it. It is likely that the
County would have required full frontage improvements for this development in this
area, whether or not it was required by VDOT.
VA 2004-017 Pantops Place
October 5, 2004
Page 3
APPLICANT'S JUSTIFICATION AND STAFF COMMENT: A review of the variance
criteria provided by the applicant and comments by staff follows:
Hardship
Staff comments are written in italics and follow the applicant's comments. The applicant
notes that the variance is necessary:
• The owner was compensated for a portion of this property that was sold to the
Commonwealth of Virginia to accommodate the additional lanes constructed on
Rt. 250 E in the early 1990s. After this, the parcel was reduced to 1.3266 acres.
• This site is zoned Highway Commercial, the most intense commercial zoning
allowed in Albemarle County;
• The site is particularly challenging because of its triangular shape, its small size,
the existing drainage easement that provide a means to channel runoff from
Route 250 E and the existing topography. These elements work together to limit
the site layout on this parcel.
• The site plan was designed to respond to the Neighborhood Model of
development. The building was placed to be the prominent feature. The
improvements VDOT is requiring are not listed in either the County
Comprehensive Plan or the County's Six Year Road Plan.
For site plan approval, VDOT is requiring the owner to build a full frontage 12 foot
lane, 2 ft. gutter pan, 0.5 ft. curb, 2 ft grass strip and a 5 ft. sidewalk. There is
currently about 10 ft. behind the existing curb to the existing right-of-way. This
would place the r/w 11.5 ft. into the property. The owner of the property is
required to fund this without compensation.
• Without a variance, it would be necessary to either a) construct a 12 ft. high
retaining wall 10 ft. from the new r/w, placing the parking heading into the wall to
make up for the loss of footprint area. It is unlikely the ARB would approve this
configuration. The ARB has reviewed the preliminary site plan and building
design and has responded favorable to the site layout and the building design.
OR b) increase the fill and reduce the parking area, increasing the need for
offsite grading or a retaining wall; OR c) reduce the size and configuration of the
building.
Staff finds the shape and topography of this property constitute a constraint to its
development. With the requirement for full frontage improvements and associated right-
of-way dedication, moving the building setback 13 feet into this property would be a
hardship. It would either require the building to be downsized or would necessitate a
retaining wall and the loss of about 7 parking spaces, which would limit future occupants
for the building. The property is zoned Highway Commercial, the most intensive
VA 2004-017 Pantops Place
October 5, 2004
Page 4
commercial zoning provided in the County. The current proposal is for an office building
with associated parking based on that use. Office parking requirements are significantly
less than those for retail uses (1 space/200 sq ft as opposed to 1 space/ 100 sq ft).
The loss of 7 parking spaces would not only limit office size for this building but would
also further limit other future commercial tenants with a higher parking requirement.
It also seems that Section 2.1.5 was intended to remedy situations such as this, but that
the order of requirements in our development process would preclude it in a case such
as this. It would serve to discourage voluntary dedication of land and would instead
encourage protracted condemnation after-the-fact.
1. The applicant has provided evidence that the strict application of the
ordinance would produce undue hardship.
Uniqueness of Hardship
The applicant notes:
• Other parcels in the vicinity do not share the same shape or size constrictions nor
are they the last undeveloped parcel on Pantops. The parcels to the west and north
of the site may be nonconforming as a result of the acquisition of additional r/w in the
early 1990's when Rt. 250 was improved.
• This parcel, the last unbuilt site along this portion of Rt. 250 cannot ignore the
current ordinance requirements, nor does it have enough acreage to contemplate a
rezoning to Planned Development or Neighborhood Model Zoning District, that
would allow the yard requirements to be reduced. The site will adhere to all the
ordinance requirements concerning landscaping, relegated parking, etc.
Staff notes that the shape and topographical constrictions of this parcel are fairly
unique. The hardship relating to the "requirement"of dedication for site plan approval,
while unusual, may not be totally unique. Because this circumstance may recur,
particularly in the development areas, it may be difficult to find a uniqueness of
hardship.
2. The applicant has not provided evidence that such hardship is not shared
generally by other properties in the same zoning district and the same vicinity.
Impact on Character of the Area
The applicant offers:
• The site and building will not be a detriment to the adjacent properties. The
building and site have received a favorable response from the ARB. The layout
follows the Neighborhood Model by providing pedestrian access and street trees,
VA 2004-017 Pantops Place
October 5, 2004
Page 5
by using compatible building materials, by screening the parking areas with the
building and by making the building have a "presence" to the street.
• The reduction in the setback will not act as a detriment to this area or the
community. It will allow this parcel to be used effectively and efficiently.
The proposed development with a 17 foot building setback, does not appear to be
detrimental to adjacent property or to the character of the district. The building design
must receive a certificate of appropriateness from the ARB and the landscaping must
comply with the Zoning Ordinance.
3. The applicant has provided evidence that the authorization of such
variance will not be of substantial detriment to adjacent property and that the
character of the district will not be changed by the granting of the variance.
STAFF RECOMMENDATION: Since only two of the three criteria for approval have
been met, staff recommends denial of this request. Should the Board find cause to
approve it, staff recommends the following conditions:
1. The building shall not exceed 18,271 square feet in size;
2. This variance is granted on the condition that full frontage requirements are
required by either the V.D.O.T. or the County or both. In the event frontage
improvements are not required and / or dedication of right-of-way is not
necessary, this variance shall be void.
VA-2004-017 Pantops Investors
Variance Request
October 5, 2004
Statement
Reason for Variance Request
This request has occurred as a direct response to Virginia Department of
Transportation's (VDOT) requirement for full frontage improvements along Route
250E. This parcel currently measures 1.3266 acres. The area proposed for
improvement measures approximately 3,510 square feet. This is approximately
6 % if the overall site. VDOT has offered no compensation for the land or the
construction costs.
I have met with representatives from VDOT on three occasions. and have
requested that they provide justification for this requirement. Normally, there is a
road improvement plan approved or the road is listed on Albemarle County's Six
Year Road plan, or at least the road is noted in the Albemarle County
Comprehensive Plan. This is not the case with Route 250 E. There is a study
that was completed in 1998 that has just been released, that illustrates Route
250E with eight lanes and additional turning lanes at intersections. The study
has not been adopted or approved by VDOT or Albemarle County.
Mr. Spooner has offered to reserve a strip of land for dedication to the state when
and if VDOT determines it will "improve" the roadway to include the additional 12'
lane. If VDOT were to accept the dedication, we would not be here requesting a
variance. Unfortunately, in a meeting with VDOT represented by Jim Bryan
VDOT Resident Engineer, Chuck Proctor, Assistant Resident Engineer and Jim
Kesterson, each VDOT employee assured me that the site plan would not be
signed, which means approval would not be granted, unless Mr. Spooner, the
owner of the property, agreed to build an additional 12' lane, 2' gutter plan,
curbing, a 2' grass strip and a 5' side walk, and dedicate these improvements to
VDOT. It did not matter that the sidewalk or roadway would not match up to the
property to the west.
Response to Staff Report
The Zoning Administrator agrees that two of the three "tests" for the variance
request have been met, 1) Hardship and 3) The Impact on the Character of the
Area. She indicates that the Uniqueness of Hardship has not been met. She
has stated that although she agrees that the "shape and the topographical
constrictions of this parcel are fairly unique" she feels that this issue may recur in
development areas. I respectfully disagree with the Zoning Administrator that the
Uniqueness of Hardship has been met for the following reasons:
Reason 1) r0}
Other parcels in the development area may have the luxury of rezoning to create
setbacks unique to the property. The zoning ordinance allows for rezoning of
properties to Planned Development. Planned Developments can determine their
setbacks as part of their rezoning request, to encourage greater density in the
development areas the setbacks are most often reduced. To keep it's current
zoning as HC Highway Commercial, this parcel would have to be rezoned to a
Community Service Designation. Community Service Designation requires a
five-acre minimum. Mr. Spooner's property measures 1.3226 acres, it is not
eligible to request a rezoning that could reduce the set backs that the code
requires in the HC Zoning District.
Reason 2)
This appears to be the last unbuilt site on the southern side of Route 250E.
Other surrounding sites became non-conforming in set back when the most
recent improvements were made to Route 250E. Some projects that have been
proposed within the last few years, (some as recently as within the last few
months) have been amendments to site plans. These plans have been approved
without the full frontage improvements that VDOT is requiring for Mr. Spooner's
site. These sites include Denis Enterprises next door (expanded auto storage
area), Brown Auto Dealership, (expanded storage area), Flow Auto (plans to
improve parking around the service building) and Tip Top restaurant (addition to
the building).
Reason 3)
The adjacent properties do not have to strictly adhere to the Neighborhood Model
form of development. The site plan submitted reflects the Neighborhood Model
of Development. Every site plan submitted to Albemarle County is now reviewed
in its relation to the Neighborhood Model. The Spooner site plan reflects a
building that relates to the human scale, relegates the parking by placing it in the
rear of the site, provides pedestrian access and respects the terrain by using the
building as a retaining wall to use the slope instead of filling in large areas. By
reflecting the ordinance and planning policy on the site plan he has submitted,
Mr. Spooner has found himself between a rock and a hard place.
VA-2004-017 Pantops Investors Variance Request 2
October 5, 2004
Reason 4)
If we follow the Zoning Administrator's reasoning, there will be more properties in
the Development Areas that will also have this problem because of VDOT and
County current regulations and policies. If it becomes a common problem, it will
necessitate a change in the zoning ordinance. The preponderance of variance
requests will require a change in the ordinance. If this is the case, this property
should not have to be restricted now to comply with VDOT imposed restrictions
that do not allow for the optimum use of this site in the Development Area.
VA-2004-017 Pantops Investors Variance Request 3
October 5, 2004
Other Options
Sketch One
Moving the building to the rear of the site, with the parking meeting the set back
from the "new" right of way, using a retaining wall that varies in height from the
low end of 8' to a high end of 16'. It is highly unlikely that the Albemarle County
Architectural Review Board would approve this site design.
Sketch Two
Moving the building back to meet the set back requirements from the "new" right
of way. This increases the fill required, will reduce the size of the building on the
site because it reduces the number of parking spaces that can be
accommodated on the site.
Sketch Three
Reduce the setback required. Use columnar trees for street trees; this form of
tree has been used on the Crown Auto site. Although Mr. Spooner would prefer
not to dedicate the land and build the improvements that VDOT is requiring, this
is the preferred option that reflects the VDOT requirements.
Sketch Four
Site Plan originally submitted for review. This is the preferred option for
construction on this site, with dedication to VDOT of the area required for
construction of the full frontage improvements on demand.
VA-2004-017 Pantops Investors Variance Request 4
October 5, 2004
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Commonwealth of Virginina 0 62.5 125 250 375 nvitoc:547ritip
Created Oct 2004
/ kyU
Proposed Use - Office
Pantops Place Maximum Height of Structure 35' 40
Front Setback 30' /41P
Owner/Developer No side or rear setback required
yA Pantops Investors LLC
o Me Michael E S ooner Man er Parking Schedule
a PANTOPS PLACE
P 9 Gross Area - 18,271 sf I \ \ / ^"'.
Plan prepared by Useable Space - 10,126 SF I � \\ \ 'P�
/5 Joseph Associates, LLC Parking required for office use 1 space/2005F 474 SITE PLAN
ay6� Marcia Joseph Parking Required 51 Spaces
P Parking Provided 61 Spaces eX.r N.
Tax Ma 78 Parcel 13A One loading space provided \ 6a June 14, 2004
1.3266 Acres
Building coverage 5,460 SF
HC Hi�, a' /4e2 �» I
ghway Commercial Zoning District and 1 5 'A ail Contour Interval Scale 1° = 2� = 2
Rivanno Magisterial District
EC Entrance Corridor Overlay District Paving coverage 25,936 5F 47z m o
M� Impervious cover on site 0.72 acres = 54% / ' y
Pervious cover on site 0.61 acres = 46 % �y �IGIt� IN mw
r -¢ Albemarle County, Virginia 470
9 specifications Paving s
w Datum Reference
v Benchmark - Chiseled square on southwest Trovelway and parking 6" #21A base stone / f 5 surface 4eo
Pr
corner of sidewalk to Hilltop Restaurant Z" SM 9.
El. = 495.16' Sidewalk 4" 3,000 psi concrete \
° r\N e s not within a reservoir watershed o7" 4
Site i1 \ ` / \ •
Source of Survey and Topography
Kirk Hughes and Associates h`➢ r,
414
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LANDSCAPE
SCHEDULE
Symbol
Botanical
Common
Size
Condition
Number
Name
Name
BN
Betula nigra
River Birch
1 1/2" -
B & B
5
1 3/4" cal
CF
Cornus florida
Dogwood
1 1/2" -
B & B
6
1 3/4" cal
GT
Gleditsia tricanthos
Thornless Common
1 1/2" -
B & B
2
inermis
Hone locust
1 3/4" cal
PY
Prunus x yedoenis
Yosl Cher
2 " cal.
B & B
7
Si
Styrax japonicus
Japanese Snowbell
1 1/2" -
B & B
3
1 3/4" cal
TC
Tilia cordata
Little Leaf Linden
3" cal,
B & B
6
ZS
Zelcovo serrate
Japanese Zelcova
1 1/2" -
B & B
6
1 3/4" cal
Slopes 25% or greater
4eo
490 \\ \\
L \ \\
V
Sheet One
of One
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..... .. .. .. .. .. .. .. .. .. .
510 EAST MAIN STREET
CHARLOTTESV I LLE
VIRGINIA 22901
(804) 295.0131
SCHWA-M SIECWN
commission
date
revisions