HomeMy WebLinkAboutZMA200800001 Staff Report 2008-03-17COUNTY OF ALBEMARLE
PLANNING STAFF REPORT SUMMARY
Project Name:
Staff: Scott Clark, Senior Planner
ZMA 2008 -00001 East Pantops Complex
SP 2008 -00001 East Pantops Complex - Athletic
SP 2008 -00002 East Pantops Complex - Parking
SP 2008 -00006 East Pantops Complex
Planning Commission Work Session: March 25,
Board of Supervisors Public Hearing: TBA
2008 (Public Hearing tentatively scheduled for May
13, 2008)
Owners: South Lego Farm LLC
Applicant: Mike Harding
Acreage: 58.217 acres
Zoning Map Amendment for: Rezoning from RA
Rural Areas to HC Highway Commercial.
Special Use Permits for:
Swim, Golf, Tennis or similar athletic facility
(section 10.2.2.4, , reference 5.1.16).
Display Parking in the Entrance Corridor
(30.6.3.2(b))
Additional Development Rights (10.2.2 (28)
and 10.5.2.1)
TMP: Tax Map 78, Parcels 33, 33A1, and 33C
Conditions: n/a
Location: Route 250 East, adjacent to the east -bound
off -ramp of Interstate 64.
Existing Zoning and By -right use: RA Rural Areas:
Magisterial District: Scottsville
agricultural, forestal, and fishery uses; residential
density (0.5 unit /acre); EC Entrance Corridor —
overlay to protect properties of historic, architectural or
cultural significance from visual impacts of
development along routes of tourist access; FH Flood
Hazard — Overlay to provide safety and protection
from flooding
Requested # of Dwelling Units: Seven additional
DA RA X
rights are requested; a total of 10 lots would be
residential
Proposal:
Comprehensive Plan Designation: RA - Rural
ZMA2008- 00001: Rezoning 1.8302 acres from RA
Areas: preserve and protect agricultural, forestal, open
Rural Areas to HC Highway Commercial
space, and natural, historic and scenic resources/
SP2008- 00001: Request for indoor /outdoor
density (.5 unit/ acre)
recreational facility including 93,750- square -foot
building.
SP2008- 00002: Request for display parking for
automobile dealership in Entrance Corridor
SP 2008 - 00006: Request for seven additional
development rights for Rural Area property.
Character of Property: Located on South Lego
Use of Surrounding Properties: Open pasture,
Farm, this property is mostly wooded, and slopes
woods and historic sites to the west, south, and
toward the Rivanna River. Two residences. Borders Rt.
southeast. Highways to the north and east, and a mix
250 and Interstate 64, both Entrance Corridors, and is
of residential and commercial uses to the east along
located at the entry to the Southern Albemarle Rural
Rt. 250.
Historic District.
RECOMMENDATION: The Commission is asked to provide guidance on three questions, and to give
staff direction on any particular information or analyses that they wish to see at the public hearing for these
items.
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PC Work Session March 25, 2008
Petitions:
ZMA 200800001 East Pantops Complex
PROPOSAL: Rezone 1.8302 acres from RA Rural Areas zoning district, which allows agricultural,
forestal, and fishery uses and 0.5 units /acre (see attached list), to HC Highway Commercial zoning
district, which allows commercial and service uses; and residential use by special use permit (15
units /acre). Proposed uses include a two- story, 35,000- square -foot retail and office building and a 4,250 -
square -foot car dealership with outdoor display parking. Proposed number of residential units is zero.
PROFFERS: No
EXISTING COMPREHENSIVE PLAN LAND USE/DENSITY: Rural Areas - preserve and protect
agricultural, forestal, open space, and natural, historic and scenic resources/ density ( .5 unit/ acre)
ENTRANCE CORRIDOR: Yes
LOCATION: RT. 250 East, south of and adjacent to the exit ramp from I -64 East at the Shadwell exit
(Exit 124).
TAX MAP/PARCEL: Tax Map 78, Parcels 33 and 33C
MAGISTERIAL DISTRICT: Scottsville
SP 200800001 East Pantops Complex- Athletic
PROPOSED: Special use permit request for an athletic facility with soccer fields, tennis courts, basketball
courts, and parking for the facility and for a proposed greenway trailhead.
ZONING CATEGORY /GENERAL USAGE: RA -- Rural Areas: agricultural, forestal, and fishery uses;
residential density (0.5 unit /acre); EC Entrance Corridor - Overlay to protect properties of historic,
architectural or cultural significance from visual impacts of development along routes of tourist access;
FH Flood Hazard - Overlay to provide safety and protection from flooding
SECTION: 10.2.2.4, Swim, golf, tennis or similar athletic facilities (reference 5.1.16).
COMPREHENSIVE PLAN LAND USE /DENSITY: Rural Areas - preserve and protect agricultural,
forestal, open space, and natural, historic and scenic resources/ density ( .5 unit/ acre)
ENTRANCE CORRIDOR: Yes
LOCATION: RT. 250 East, approximately 300 feet south of the exit ramp from I -64 East at the Shadwell
exit (Exit 124).
TAX MAP /PARCEL: Tax Map 78 Parcel 33
MAGISTERIAL DISTRICT: Scottsville
SP200800002 East Pantops Complex- Parking
PROPOSED: Display parking for car dealership (includes area requested for rezoning to HC under
ZMA2008- 00001).
ZONING CATEGORY /GENERAL USAGE: HC Highway Commercial — commercial and service uses;
and residential use by special use permit (15 units/ acre); RA -- Rural Areas: agricultural, forestal, and
fishery uses; residential density (0.5 unit /acre); EC Entrance Corridor - Overlay to protect properties of
historic, architectural or cultural significance from visual impacts of development along routes of tourist
access; FH Flood Hazard - Overlay to provide safety and protection from flooding
SECTION: 30.6.3.2(b), Outdoor storage, display and/or sales serving or associated with permitted uses,
any portion of which would be visible from an EC street; provided that review shall be limited to the
intent of this section. Residential, agricultural and forestal uses shall be exempt from this provision.
COMPREHENSIVE PLAN LAND USE /DENSITY: Rural Areas - preserve and protect agricultural,
forestal, open space, and natural, historic and scenic resources/ density ( .5 unit/ acre)
ENTRANCE CORRIDOR: Yes
LOCATION: RT. 250 East, approximately 500 feet south of the exit ramp from 1 -64 East at the Shadwell
exit (Exit 124).
TAX MAP /PARCEL: Tax Map 78 Parcels 33 and 33A1
MAGISTERIAL DISTRICT: Scottsville
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 2
SP 2008 - 06 East Pantops Complex
PROPOSED: Request seven additional development rights to subdivide into a total of ten 12 lots on a
31.63 acre portion of 45.5 acre parcel
ZONING CATEGORY /GENERAL USAGE: RA -- Rural Areas: agricultural, forestal, and fishery uses;
residential density (0.5 unit /acre) EC Entrance Corridor - Overlay to protect properties of historic,
architectural or cultural significance from visual impacts of development along routes of tourist access
SECTION: Zoning Ordinance Section 10.2.2 (28) Divisions of Land and Section 10.5.2.1 Special
Provisions for Multiple single family dwelling units where permitted by special use permit
COMPREHENSIVE PLAN LAND USE /DENSITY: Rural Areas - preserve and protect agricultural,
forestal, open space, and natural, historic and scenic resources/ density ( .5 unit/ acre)
ENTRANCE CORRIDOR: Yes
LOCATION: RT. 250 East, approximately 500 feet south of the exit ramp from I -64 East at the Shadwell
exit (Exit 124).
TAX MAP/PARCEL: Tax Map 78 Parcel 33
MAGISTERIAL DISTRICT: Scottsville
Character of the Area:
For a map of the proposal's context, see Attachment C. For a more detailed aerial view of the site,
see Attachment D.
The property is located on a south - facing, partly - wooded slope in the Rivanna River water gap that
runs between the Southwest Mountains (to the north) and Monticello Mountain (to the south). It is
bounded on the west by Hickmans Branch, which runs south to the Rivanna, and on the east includes
a segment of Culpeper Branch, also running south, to its confluence with Shadwell Creek and then
the Rivanna. At the south boundary, the property is within approximately 250 feet of the Rivanna,
across the CSX Railway and the wooded floodplain of the Rivanna (on Tax Map 78 Parcel 33D). A
transmission -line easement crosses the site from the southeast corner, running north- northwest.
Maps from the Virginia Department of Historic Resources indicate that this hillside is a portion of
Lego Farm, one of four farms owned by Thomas Jefferson in the late 18t" century. According to the
Department of Historic Resources, at least four dwellings were built on the site, beginning in 1800.
The circa 1800 building was destroyed by fire in 1894, and a large house was built at the top of the
hill.
The land on the northwest, west, south, and southeast sides of the site is included in the Southern
Albemarle Rural Historic District. Several historic and archaeological sites are located in the general
vicinity. Across the Rivanna to the south is Monticello Mountain, location of the Monticello World
Heritage Site. That land, which is largely wooded, is under a conservation easement held by the
Virginia Outdoors Foundation.
Adjoining Tax Map 78 Parcel 33A1 to the southeast is the historic Shadwell estate, also held by the
Thomas Jefferson Memorial Foundation, and under a conservation easement held by the Virginia
Department of Historic Resources. The majority of Shadwell is open pasture. To the west is the Lego
Farm property held by the Thomas Jefferson Memorial Foundation, which is not protected by a
conservation easement. Near the confluence of Shadwell Creek with the Rivanna, near the southeast
corner of the site, is an archaeological site with remains of the Shadwell lock and dam of the 19th -
century canal along the Rivanna.
The north and northeast sides of the property abut Interstate 64 and Route 250 respectively. Both of
these roads are designated as Entrance Corridors. The Interstate 64 right -of -way is bounded by
woods. Route 250 in this area is characterized by a mix of residential and commercial uses from the
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 3
I -64 interchange to the crossing of Shadwell Creek. From that point east, Route 250 is bounded on
the south by Shadwell Quarter Farm (placed under conservation easement in September, 2000).
Shadwell was Thomas Jefferson's birthplace, and is partly or wholly included in the UNESCO -
designated Monticello World Heritage Site. On the north, US 250 is bounded by a mix of
commercial and residential uses as far east as the Luck Stone quarry. Zoning in this surrounding area
is a mix of RA Rural Areas and patches of LI Light Industrial and HC Highway Commercial. The
latter districts are stale zoning that is not consistent with the County's Comprehensive Plan. See
Attachment D for a map of zoning in this area.
Tax Map 78 Parcel 33 currently includes a single dwelling, built in 1979 according to County
records. Tax Map 78 Parcel 33C includes a single dwelling, built in 1992.
Specifies of the Proposals:
See Attachment F for the conceptual plan for these proposals.
ZMA 2008 - 00001: Rezone 1.8302 acres of Tax Map 78 Parcel 33C from RA Rural Areas to HC
Highway Commercial. Proposed uses include a two - story, approximately 35,000- square -foot retail
and office building, as well as parking (approximately eight spaces) and an entrance for a 4,250 -
square -foot car dealership (the majority of which would be located on Tax Map 78 Parcel 33A1,
which is already zoned HC).
SP 2008 - 00001: Special use permit request for an indoor and outdoor commercial athletic facility
with indoor soccer fields and basketball courts, outdoor tennis courts, and parking for the facility and
for a proposed greenway trailhead on Tax Map 78 Parcel 33. The building footprint of this two -story
facility would be 250 by 375 feet (93,750 square feet, or 2.15 acres).
SP 2008 - 00002: Special use permit for display parking for car dealership proposed for site as part of
requested zoning map amendment to HC Highway Commercial zoning (ZMA200800001). The majority
of the proposed display parking would occur on Tax Map 78 Parcel 33A1, which is already zoned HC.
However, approximately three of the display spaces would be on land that is currently zoned RA, and
which is proposed for rezoning to HC under ZMA 2008 - 00001. The proposed arrangement of display
parking spaces (versus spaces for other uses) is show in Attachment G.
SP 2008 - 00006: Special use permit request for seven additional development rights. This would
allow the applicants to create a total of 12 lots (10 residential, 1 commercial, 1 for trailhead parking)
on a 31.63 acre portion of the property, within the Rural Areas zoning district.
The conceptual plan for the proposals shows that Tax Map 78 Parcel 33D would be dedicated to the
County for use as a greenway corridor. The plan also shows a trailhead parking area on the north
side of the CSX railway; no information is available on how trail users would cross the rail line. A
formal proffer has not yet been submitted.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 4
Planning and Zoning History:
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10,11
'East Pantops" Properties
ON ING
Rural Areas
Highway Commercial
Mw1imilo Historic Di*ict
Contours 101t
Zoning History:
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78 -33D
TMP
Current
Zoning
3,9
Zoning Prior to 12/1980
78 -33
Rural Areas
Rural Areas
Commercial Business
78 -33A1
Highway
Commercial
Rural Areas
Commercial Business
78 -33C
m
Rural Areas
1g
L,
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78 -33D
TMP
Current
Zoning
Zoning Adopted 12/1980
Zoning Prior to 12/1980
78 -33
Rural Areas
Rural Areas
Commercial Business
78 -33A1
Highway
Commercial
Rural Areas
Commercial Business
78 -33C
Rural Areas
Rural Areas
Commercial Business
ZMA 1980 -05: On March 19, 1980, the Board of Supervisors approved the landowners' request to
rezone 8.25 acres on the northwest boundary (adjacent to Tax Map 78 Parcel 32A) of Tax Map 78
Parcel 33 from B -1 (commercial business zoning) to A -1 (rural/low- density residential). The
landowner requested the rezoning in order to build a dwelling to replace one demolished during
construction of I -64.
ZMA 1981 -20: On October 21, 1981, the Board of Supervisors approved this rezoning request,
changing the zoning on 13.33 acres (the land now included in Tax Map 78 Parcel 33A, 33A1, and
33B) from RA Rural Areas to HC Highway Commercial. Of that land, the portion now known as
Parcel 33A1 is included in the application for SP 2008 -00002 (display parking in the Entrance
Corridor). Stated reasons for the Board's approval of this request were (1) that the lack of water and
sewer facilities would limit the scale of any uses of the site, and (2) that it was in accord with the
Interstate Interchange policy. The latter comment may have referred to the policy being drafted at
that time for the 1982 Comprehensive Plan. Revisions to that policy have since removed this side of
the Shadwell interchange from the list of areas where interchange- focused development is
appropriate.
ZMA 1987 -01: This request to rezone 5 acres of Tax Map 78 Parcel 33 from RA Rural Areas to HC
Highway Commercial was withdrawn.
SDP 2007 -149: Review of this site plan application is currently suspended. The request is for
preliminary site plan approval for a sports complex with 91,835 square feet of buildings on 9.1 acres
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 5
zoned (HC) Highway Commercial (Tax Map 78 Parcel 33AI and a portion of Tax Map 78 Parcel
33A).
Purpose of Work Session
To introduce the Commission to the applicant's proposals and give an opportunity for the
Commission to provide guidance to the applicant and staff on major issues. With discussion and
input from the Commission on the questions raised in this report, the applicant can determine how to
address these issues in advance of a public hearing.
This work session will particularly focus on the appropriateness of these proposals under the
Comprehensive Plan, rather than individual details of the proposals.
Detailed review comments from staff addressing the conceptual plan will be provided to the
applicants along with the Commission's more general guidance from this meeting.
STAFF COMMENT
Conformity With The Comprehensive Plan
The property is designated as Rural Areas in the Comprehensive Plan.
Rural Areas Plan
The land uses supported by the Rural Areas chapter of the Comprehensive Plan (adopted March 2, 2005)
include agriculture, forestry, and conservation. The only commercial uses supported by the Plan are
small -scale operations located within historic "crossroads communities" and designed to serve the needs
of existing rural residents. The "Vision" section of the Rural Areas plan includes "[b]oundaries that show
a clear distinction between rural and urban areas, without low- density transition areas" as a key aspect of
the Rural Areas.
This chapter also focuses on the scale of land uses, preferring to provide rural -area residents with
"community meeting places, a basic level of services, and rural organizations and other cultural
institutions at traditional rural scales." The chapter also states that:
Scale and the intensity of land uses should be carefully considered. Where necessary,
performance standards should be used to ensure that scale and intensity are appropriate to the
rural landscape. Uses that cannot be sufficiently mitigated or that conflict with the Guiding
Principles should not be permitted.
Only four buildings in the Rural Areas currently exceed a footprint of 90,000 square feet —three schools,
and the Earlysville Industrial Park building (located in a stale Light Industrial zoning district). The
Hyosung America factory site also exceeds that size, but is located in Scottsville.
For comparison, the recently proposed SOCA facility along the North Fork Rivanna on Polo Grounds
Road (SP 2006 -08) included 39,220 square feet of new indoor space for a playing field and other
facilities — slightly over 40 percent of the size of the proposed sports facility on this site. The SOCA
proposal was located between two Development Areas, and was not adjacent to historic sites or lands
under conservation easement. The Planning Commission recommended denial of that request, finding a
facility of that scale inappropriate in the Rural Areas (among several reasons), and the Board of
Supervisors followed that recommendation.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 6
The Rural Areas chapter of the Comprehensive Plan includes several policy statements that are relevant to
residential proposal:
[T]he County's land development policies must be changed to stop the ongoing trend toward
fragmentation and loss of rural character. New policies should focus on protecting existing large
parcels from fragmentation, preserving a general pattern characterized by farms, forests, and
habitat corridors, and reducing the potential overall level of residential development and loss of
rural character. Implementation of these policies to address residential density and pattern of
development should be the County's highest priority.
GOAL: Reduce the level and rate of residential development in the Rural Areas, and minimize
the impacts of permitted development.
OBJECTIVES:
• Achieve the Vision for Rural Albemarle County by limiting the extent of residential
development in the Rural Areas and establishing a land use pattern based on protecting
large parcels and valuable resources for farming, forestry, natural resource conservation,
and other rural activities.
• Preserve open space, natural resources, farmland, forest land, and natural, historic and
scenic resources, while preserving the economic value of the land for rural uses.
• Minimize the amount of land used for residential development in order to maximize the
amount of land that is available for agriculture, forestry, open space, natural, scenic and
historic resources.
Since 1981, 20 applications for additional development rights have been considered, of which 10 have
been approved. The Board of Supervisors has typically based its approvals on finding that the applications
met the criteria of Section 10.5.2.1, such as location adjacent to a Development Area, permitting a
residence for a family member, or some unique circumstance (see Attachment H for information on 19 of
these requests). Since Attachment H was prepared, the Board of Supervisors approved SP 2007 - 00010,
which granted two additional development rights. However, the approval included a condition that one of
those rights be used to create an unbuildable lot for use as a source of water for fire suppression in North
Garden.
Land Use Plan
Interchange Policies
The "Interstate Interchange Development" section of the Land Use Plan provides guidelines for the
development of regional - service and highway- related uses near interchanges. The section states:
Because Interstate 64 is a limited access highway, its interchanges may be a focus for
development activities. To accommodate appropriate land uses in the vicinity of interstate
interchanges, while maintaining the safety and functional and aesthetic integrity of such
interchanges, the standards and policies set forth below are recommended.
Urban Area land at the following interchanges should be developed in accordance with the
standards set forth below:
- Route 250 East (Shadwell) (Urban Area side only)
- Route 20 South
- Route 631 (Fifth Street), north side only.
- Route 29 South
The proposals subject to this work session are located on the Rural Area side of the Shadwell interchange,
which is not included in the area designated for interchange - related development.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 7
Rural Area /Development Area Boundaries
Section 2 of the Neighborhood Model portion of the Land Use Plan describes the County's policy for
development along the boundaries of the Development Areas and Rural Areas:
And:
The Neighborhood Model proposes maintaining the existing borders to the Development Areas
and having distinctive boundaries between the Development Areas and the Rural Areas. This
principle increases the incentives to build the Development Areas efficiently while minimizing
threats to the Rural Areas.
[TJransitional areas rarely possess the physical beauty and natural amenity of the rural areas
they replace, nor do they offer the amenities or sense of community of the adjacent town. Instead
development often takes place in a way that creates neither "town" nor "country" and not a
community.
These are consistent with Rural Areas Plan's statement on boundary areas included above. Both elements
of the plan discourage developments that obscure the boundary between the Development Areas and
Rural Areas.
The master plan process for Pantops (a designated Development Area, located on the opposite side of I -64
from this site) was initiated in 2004 and the draft Pantops Master Plan will be considered by the Board of
Supervisors on March 17, 2008, for possible adoption. During the Pantops Master Plan (PMP) process,
there were no requests for changes along the eastern boundary of the Development Area.
Recommendations in the Pantops Master Plan are based on the assumption that there would be no
changes to the Development Area boundaries. The properties subject to this work session would remain in
the Rural Areas. See Attachment E for more details on the Pantops Master Plan process.
This portion of the Rural Areas separates two designated development areas—Pantops to the northwest,
and the Village of Rivanna, approximately 3 miles to the east.
Natural Resources & Cultural Assets Plan
Natural Resources
This chapter and the Rural Areas Plan focus on protecting productive soils in the Rural Areas. The Rural
Areas Plan, for example, statest that the County should "encourage the protection of prime agricultural
soils." The upper portions of the site include soils rated as Prime and Locally Important (see Attachment
D).
This chapter also states that the County should protect its "surface water through a management program
that recognizes the functional interrelationship of stormwater hydrology, stream buffers, flood plains,
wetlands, and human management practices." Building to this plan would require piping approximately
240 feet of perennial stream (Culpeper Branch) to accommodate the proposed street, car dealership, retail
space, and provide access to residential lots. This piping and development would permanently remove
approximately 32,000 square feet of stream buffer. Also, there would be impacts to floodplain and stream
buffer associated with the outdoor soccer field on the existing HC land that are not shown on the plan -
both would need to be graded and disturbed to provide for a soccer field. A special use permit for fill in
the floodplain would need to be obtained to create the soccer field.
The site has not been surveyed for important biological resources.
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PC Work Session March 25, 2008 8
Historic and Archaeological Resources
See "Character of the Area" above for a description of the site's historic and archaeological context. The
former historic dwellings listed by the Department of Historic Resources, and the presence of
archaeological sites nearby, indicates that the site needs to be surveyed for archaeological sites.
The site is in the immediate vicinity of lands protected for their historic value (including Monticello and
Shadwell), and is surrounded on the west, south, and east by the Southern Albemarle Rural Historic
District. A visibility study carried out by the Thomas Jefferson Memorial Foundation indicates that this
site is not visible from the house site at Monticello with the area's current forested landcover, but would
be visible without that cover. No formal study has been done from other points of view, but at least
portions of the site could be visible from Shadwell and the lower elevations of Monticello Mountain near
the Rivanna, as well as from the Entrance Corridor.
The adjacent Monticello and Shadwell lands are protected by conservation easements. Consideration of
proposed development should include assessment of potential impacts on protected land, including
properties under easement. As noted, portions of the proposed uses would be visible from those protected
lands and would impact their historic character.
Scenic Resources
This commercial and residential development would be located along a designated Entrance Corridor,
which is intended to protect the scenic character of the County's highways. The property is also visible
from the Rivanna River, which is designated as a Virginia Scenic River. The Scenic Rivers Act of 1970
provides for the identification, protection and preservation of rivers or sections of rivers that possess
natural or pastoral beauty of high quality. However, protection and management of the river rests with the
local government.
Greenways
The extension of the Greenway shown on the conceptual plan (on Tax Map 78 Parcel 33D) is consistent
with the mapped Greenway corridors shown in this chapter of the Comprehensive Plan. The proposed
trailhead access from this site may be problematic due to the required crossing of the CSX Railway.
Open Space & Critical Resources Plan
The Open Space and Critical Resources Plan identifies several critical resources on this site:
The Rivanna and its floodplain are included as an Important Stream Valley.
This reach of the Rivanna River (from the Woolen Mills to the Fluvanna County boundary) is a
Virginia Scenic River.
The site and its surroundings are mapped as Farmlands and Forests.
The Lego farm site and the Shadwell canal lock/dam described above are included on the Open
Space Map for this area.
The site is adjacent to and visible from the Entrance Corridor.
The site has critical slopes.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 9
Anticipated impact on public facilities and services:
This purpose of this work session is not to work out specific details of the proposed plan for these
uses. However, the more significant public - facilities impacts are outlined below in order to address
issues of scale and location.
Transportation
The most recent Average Annual Daily Trip count for this section of Route 250 (from 2006) is
23,000. The following preliminary traffic- generation estimates were provided by the applicants,
based on use categories defined by the Institute of Traffic Engineers (ITE):
Use
Weekdays — Vehicle
Per Day
AM Peak — Vehicles
Per Hour
PM Peak — Vehicles
Per Hour
Office
237.8
33.5
32.2
Retail
775.6
119.7
87.9
Auto Sales*
140.6
8.6
11.1
Athletic Center
[no ITE estimates
available for this use
category]
299.1
547.5
* The auto -sales use would occur on land already zoned HC, but would use the same entrance as the
other proposed uses.
VDOT has made an initial review of the plan. VDOT standards would require the applicants to
prepare a traffic impact analysis report; for a rezoning, that report would identify any existing or
predicted road - capacity problems. It would be appropriate to have that information for the
Commission and Board to review.
Also, according to VDOT's Access Management Standards, the minimum permissible distance to a
"right -in right -out" commercial entrance (as shown on the plan) located in the vicinity of a limited
access interchange ramp is 750 feet. The entrance location shown on the plan is approximately 350
feet from the I -64 eastbound off -ramp. VDOT cannot permit this type of access at this location.
(Other entrance types with 3- or 4 -sided intersections would require longer separation distances.)
The right -in right -out entrance also forces drivers who need to travel west on Route 250 to go east
and make a U -turn before they can drive toward the Interstate interchange or the Development Area.
It should also be noted that with the development of Gazebo Plaza, located in the Development Area
just west and north of the I -64 / Route 250 interchange, the existing median cross -over at Route 240
and Hansens Mountain Road will be closed. Thus, traffic traveling east on Route 250 will have to
go beyond Gazebo Plaza and make a U -turn farther east to come back to Hansens Mountain Road
and access Gazebo Plaza. One of the intersections where this would take place would be at the Route
250 / North Hill Road intersection, which would be directly across RT. 250 from the site of the
current proposal.
Water and Sewer
The property is not in the Albemarle Charlottesville Service Authority Jurisdictional Area (ACSA)
for water or sewer service, and the proposed development would need to be supported by wells and
septic systems.
Although an extension of the jurisdictional area has not been requested, the scale of use in a
Highway Commercial zoning district (office /retail development, car dealership), or a large
recreational facility in the Rural Areas district, may eventually produce a demand for water and /or
service to this property in the Rural Areas. According to the Comprehensive Plan, "Water and sewer
ZMA 08 -01, SP 08 -01, -02,-06 East Pantops
PC Work Session March 25, 2008 10
service jurisdictional areas provide the implementing measure for directing utilities according to the
land use plan and overall growth management policies."
The Plan recommends that public water and sewer be provided only to areas within the ACSA
jurisdictional area and should follow the boundaries of the designated Development Areas. In
addition, the Comprehensive Plan discourages central sewer systems in the RA, except to address
health and safety problems.
The Health Department has not yet provided specific comments on these proposals. The Health
Department will need detailed information from the applicants on the design of the water and septic
systems, and on the scale of use. This information would be used to determine the level of site
testing needed, and to establish what permits are needed (for example, the use might need approval
of its water supply from the Health Department's Office of Drinking Water), before the Health
Department can approve the use.
Questions for the Commission
1. Does the Commission feel that the requested rezoning (ZMA 2008 - 00001) from RA to HC for the
purpose of permitting a retail office building (as well as a small portion of the site for a car
dealership) is appropriate in this location under the Comprehensive Plan?
Under the Comprehensive Plan, the preferred land uses for the Rural Areas are agriculture, forestry, and
conservation. Staff believes that this request is not consistent with the Comprehensive Plan for the
following reasons:
The Rural Areas Plan does not support commercial development of this scale. The
commercial uses in the Rural Areas are intended to serve rural residents with a basic level of
services. Regional -level services are not expected or desired in the Rural Areas.
The Interstate Interchange Policy specifically excludes this side of the Shadwell interchange
from its list of areas where interchange - related development is appropriate.
Commercial development in this location would not support the policies in the Neighborhood
Model and Rural Areas Plan calling for clear boundaries between Development Areas and
Rural Areas.
The site, which is on an Entrance Corridor and adjacent to the Southern Albemarle Rural
Historic District and includes the sites of known historic and/or archaeological resources,
would not support protection of the County's scenic and historic resources as called for in the
Natural Resources & Cultural Assets Plan.
2. Does the Commission feel that an athletic facility (as proposed in SP 2008 - 00001) is appropriate in
this location under the Comprehensive Plan?
Staff believes that this request is not consistent with the Comprehensive Plan, for the following reasons:
The Rural Areas Plan does not support commercial development of this scale. The commercial
uses in the Rural Areas are intended to serve rural residents with a basic level of services.
Regional -level services are not expected or desired in the Rural Areas.
Development in this location is contrary to the Interstate Interchange Policy in the Land Use Plan.
Construction of the facility would require impacts to natural resources listed in the Natural
Resources and Cultural Assets Plan, including critical slopes.
The facility would be significantly larger than the scale for rural facilities and services that would
be consistent with the intent of the Rural Areas Plan.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 11
The facility would affect the character of the surrounding Rural Areas, including the Entrance
Corridor, the Southern Albemarle Rural Historic District, the adjacent State Scenic River, and
adjacent lands that are under conservation easement and included in the Monticello World
Heritage site.
3. Does the Commission feel that granting additional development rights (as proposed in SP 2008-
00006) is appropriate under the Comprehensive Plan?
Staff believes that this request is not consistent with the Comprehensive Plan for the following reason:
The Rural Areas Plan states that residential development is contrary to the County's land -use
goals for the Rural Areas, and that the level of development should be reduced. This request
would increase the amount of residential development in the Rural Areas.
Please note that the proposed lot layout cannot be permitted, as it does not conform with section 10.3.1 of
the Zoning Ordinance, which requires that all development -right lots must fit within 31 acres. Only the
Board of Zoning Appeals may vary that requirement, by approving a variance. As there is no hardship to
be relieved in granting such a request in this case, staff does not expect that a variance would be granted
in this case. The layout would need to be revised to comply with this requirement before the special use
permit could be approved. (This is an example of the kind of revision request that will go to the applicants
from staff reviewers at the same time as the Commission's direction from this work session.)
RECOMMENDATION
The Commission is asked to provide guidance on three questions, and to give staff direction on any
particular information or analyses that they wish to see at the public hearing for these items.
1. Does the Commission feel that the requested rezoning (ZMA 2008 - 00001) from RA to HC is
appropriate in this location under the Comprehensive Plan?
2. Does the Commission feel that an athletic facility (as proposed in SP 2008 - 00001) is appropriate in
this location under the Comprehensive Plan?
3. Does the Commission feel that granting additional development rights (as proposed in SP 2008-
00006) is appropriate under the Comprehensive Plan?
ATTACHMENTS
Attachment A
— Area Map
Attachment B
— Detail Map
Attachment C
— Context Map
Attachment D
— Development Areas and Zoning In Vicinity
Attachment E
— Conservation Easements and Historic Districts
Attachment F —
Aerial View of Site
Attachment G
— Pantops Plan memo
Attachment H
— East Pantops Conceptual Plan
Attachment I —
Parking Layout for SP 2008 -00002
Attachment J —
Previous Requests for Additional Development Rights
Attachment K
— RA Rural Areas Zoning Ordinance
Attachment L
— HC Highway Commercial Zoning Ordinance
ZMA 08 -01, SP 08 -01, -02,-06 East Pantops
PC Work Session March 25, 2008 12
2008- 00001, SI
2008- 00002, SP
1
0.
Attachment A
11
Roads Parcels
} Railroads - Parcels of Interest
Streams County Boundary
1 1,5003,0 d,c0 S Water Body - City Boundary
ZMA 08 -01, SP 08 -01, -02,-06 East Pantops
PC Work Session March 25, 2008 13
ZMA /2008-00001, SP-2008-00001
SP2008-00002 SP 2008-00006---
East Pantqps____--_-i�--�-
10
78-33C
Np
so
IAttachment B
78-33A1
Roads Streams
Railroads S Water Body
x Driveways Parcels
',
"
Buildings Parcels of Interest
ZMA 08-01, SP 08-01, -02,-06 East Pantops
PC Work Session March 25, 2008 14
X
IAttachment B
78-33A1
Roads Streams
Railroads S Water Body
x Driveways Parcels
',
"
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ZMA 08-01, SP 08-01, -02,-06 East Pantops
PC Work Session March 25, 2008 14
T
Neighborhood 3 - Pantop s�
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■ P,,p,:,,l by Alb;, 1:,ty,1—,—ity0D3,,,l.p.,nt Dept
Map c Bated by c:,I,,l Clark, February 2 0
M , a elements 0- 11.t- T1, P 1—nt, d i.t,d are graphic representations and are not
to be —,t—d — —d a:pa legal description. This map is for display purposes _ly.
Parcel boundaries reflect most recent available data.
ZMA 08-01, SP 08-01, -02, -06 East Pantops
PC Work Session March 25, 2008 15
5,(
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atq Ir
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NEIGHBORHOOD
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Project Parcels
Development Areas
Zoning
Rural Areas
R1 Residential
Planned Residential Development
- Neighborhood Model District
- Monticello Historic District
-commercial Office
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I I I I I I I I I
prepared by Albemarle County Cunmvnity Development Dept.
Map c sated by Scott Clark, February 1008.
Nate: The map elements depicted are graphic repro sentatf ans and a not
to be c nstrued a sod a a legalr descr ipti on. This map is far display purposes only.
. Parcel boundaries r refl —tsm ost --t a ailable data
Aerial photos 2002 Commanooealth of Virginia
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 16
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Prepared by Albemarle County Cunmvn ity Development Dept.
Map c sated by Scott Clark, February 2008.
Nate: The map el emer�ts depicted a e graphic repro sentatf ens and a not
to be c nstrved a sod a a le galydescr iptian. This map is far display Purpases only.
. Parcel boundaries r reflertsm ost r cots a ail able data.
Aerial photos 2002 Ccmm .' alth of Virginia
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 17
Attachment F
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0 250 500 1,000 Feet
h Prepared by Albemarle C o-vr�ty Commtm ity Development Dept.
Map Bated by Scott Clark' Fe bry ary Y008.
k Note: The map eleme tits depicted a e graphic representations and a not
to be c —trued or sed a a legal r description. Tbi, map i, for display pvfposes only.
k Parcel bwndarie, reflectfmost r cent a ailable data.
Aerial photos YOOY C«nmonmealtb of Virginia
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 18
Attachment G
Lrf2C;l1�ZA
COUNTY OF ALBEMARLE
Department of Community Development
401 McIntire Road
Charlottesville, Virginia 22902 -4596
Phone (434) 296 -5832 Fax (434) 972-
4126
MEMORANDUM
TO: Scott Clark
FROM: Rebecca Ragsdale
DATE: March 11, 2008
RE: SP- 2008 -01: East Pantops Complex - Athletic Facility
SP- 08 -02: East Pantops Complex - Display Parking
ZMA- 08 -01: East Pantops Complex
I have not conducted a detailed review of the plans submitted for the above - referenced proposal
but can offer the following comments, based on recommendations for the Pantops
(Neighborhood 3) of the Development Area in the Draft Pantops Master Plan. If this proposal is
recommended for consideration by the Planning Commission after their work session on this
project, I would recommend the applicant submit a concept plan that follows the planned zoning
district application plan check -list.
The parcels proposed for development are located in the Rural Areas. The Pantops
Development Area is located west of this parcel. The Pantops Development Area is bounded on
the east by the 600 foot elevation of the Southwest Mountains, the power line south of Ashcroft,
and Lego Drive (excluding the property consisting of approximately 17 acres located at the
northwest corner of Hansen's Mountain Road and Lego Drive), on the south by Interstate 64.
The master plan process for the Pantops Development Area was initiated in 2004 and the draft
Pantops Master Plan will be considered by the Board of Supervisors on March 17, 2008 in a
work session, for possible adoption. During the Pantops Master Plan (PMP) process, changes
to the eastern boundaries of the development were not requested by the public and are not
recommended by the draft PMP. Recommendations in the PMP are based on the assumption
that there would be no changes to the Development Area boundaries and properties proposed
for development would remain in the Rural Areas.
Throughout the public process and reflected in the guiding principles below, a major public input
theme was preservation of open space and scenic qualities of Pantops. There were also major
concerns expressed regarding traffic in the Pantops Neighborhood.
PANTOPS MASTER PLAN GUIDING PRINCIPLES
1. Residents of Pantops value the exceptional natural and historical scenic qualities of this
neighborhood - views to Monticello, surrounding mountains, Rivanna River, and west into the
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 19
City. It is important to protect these scenic vistas and sense of open space as the neighborhood
continues to grow.
2. It is also important to ensure that new development acknowledges and respects the rural
character of this area, preserving existing neighborhoods and providing a variety of quality
housing choices and a more pedestrian - friendly environment.
3. Future density increases must provide for the creation of additional natural areas, parks and
urban landscapes to preserve the unique scenic and recreational qualities of our neighborhood.
Further density must control light and noise intrusions that affect the livability of our environment,
and support the provision of sufficient quality water supply to meet our demand.
4. Our location will continue to provide convenience and accessibility to the City of Charlottesville,
surrounding rural areas, and major transportation corridors in Albemarle and beyond. However,
continued convenience depends on transportation improvements such as a regional
transportation system, public transit, and additional connection linkages.
5. Although Pantops has a variety of residential and commercial choices and opportunities, the
addition of public facilities, services, and other institutions are needed to create a livable and
convenient neighborhood.
6. Redevelopment, infill, and new development within Pantops are expected to occur in a manner
that is wholly consistent with the Neighborhood Model and the Pantops Master Plan design
principles. Suburban land use patterns should not be continued and innovative sustainable
design practices and mixed use approaches are encouraged.
The inset below reflects the Pantops Master Plan land use recommendations for the portion of the
Development Area adjacent to the proposal, which are for Green Space along the edges of the Pantops
Development Area adjacent to 1 -64.
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Pantops Master Plan - Framework Map (Land Use) August 1, 2007 Draft
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 20
The inset below reflects the recommendations of the Pantops Master Plan Green Infrastructure Map:
• Piraeus lack &
JL
go 0
� x - ' �y1 • -�+ - - -- _ -- ! F may+
All-
NIO TICELLD
Pantops Master Plan -Green Infrastructure Map (Land Use) August 1, 2007 Draft
Preservation of the Rivanna River is a recommendation of the plan. It is shown as green space
on the Green Infrastructure Map, which recommends creation a linear park within the Pantops
Neighborhood. Preservation of historic buildings and natural landscape features that are unique
to Pantops is also a recommendation of the plan, and cultural, historic, and natural assets are
all noted on the above plan, including the proximity and importance of Monticello to Pantops.
Transportation recommendations for improvements within the Pantops Development Area near
the proposed project are as follows:
• Provide for multi -modal transportation, including sidewalks, bike lanes and other
pedestrian crosswalk and safety features.
• Improvements to Route 250 should not include excessive widening and no more than six
lanes total are recommended, to include two travel lanes with a continuous right turn
lane.
• Address signalization and improve turning lanes and turn movements with a center
median from the Route 20 intersection to the top of the mountain.
• Reconstruct Route 250 as a boulevard with a planted median and completed sidewalk
system, with crosswalks at strategic crossing points.
• Develop a corridor landscaping plan to unify and beautify both sides of Route 250 East.
This plan may distinguish portions of the corridor with different landscaping treatments.
The most formal urban design and character along Route 250 should begin at Peter
Jefferson Parkway/Westminster Canterbury and continue to Free Bridge.
• Improve the Level of Service of the 1 -64 /Route 250 Interchange, including double left
turn lanes on the east bound off ramp. Other traffic management and signal
improvements should be considered.
• Relocate the Hansens Mountain Road intersection with Route 250 to align with the
existing entrance into Peter Jefferson Place (Glenorchy Drive /Peter Jefferson Parkway).
Several possible alignment options for Hansen Mountain Road are identified on the
Pantops Master Plan.
ZMA 08 -01, SP 08 -01, -02, -06 East Pantops
PC Work Session March 25, 2008 21
Lots - 10 residential,
1 commercial recreation,
1 trailhead parking
Trailhead parking
ZMA 08 -01, SP 08 -01, -02,-06 East Pantops
PC Work Session March 25, 2008 22
Proposed rezoning to HC
41_
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Attachment H
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COLLINS ENGINEERING i EAST PANTOPS COMPLEX - ZONING MAP AMENDMENT & SPECIAL USE PERMITS
, L JU H 1— m ,110 f t CFIARL077BVILLF, VA 22902 4W?91 1719 1 EXHIBIT 3 — APPLICATION PLAN
SCALE
Existing HC zoning —
Location of proposed
display parking
Sports facility
Proposed Greenway
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COLLINS ENGINEERING i EAST PANTOPS COMPLEX - ZONING MAP AMENDMENT & SPECIAL USE PERMITS
, L JU H 1— m ,110 f t CFIARL077BVILLF, VA 22902 4W?91 1719 1 EXHIBIT 3 — APPLICATION PLAN
SCALE
Existing HC zoning —
Location of proposed
display parking
Sports facility
Proposed Greenway