HomeMy WebLinkAboutZMA202100016 Review Comments Zoning Map Amendment 2022-09-06C� OF A(8F
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ALBEMARLE COUNTY PARKS&RECREATION
COUNTY OF ALBEMARLE
Parks & Recreation Department
401 McIntire Road, Charlottesville, Virginia 22902
Telephone (434) 296-5844 1 Fax (434) 293-0299
To: Bill Fritz, AICP, Development Process Manager, Community Development Department —
Lead Reviewer for ZMA202100016 (UVA North Fork Discovery Center)
From: Tim Padalino, AICP, Chief of Parks Planning, Parks & Recreation Department
Date: September 6, 2022
Subject: ACPR Review Comments for ZMA202100016 — UVA North Fork Discovery Center
(Resubmittal Dated August 1, 2022)
ACPR Review Status: "See Recommendations"
ACPR Review Comments:
ACPR staff have reviewed the resubmittal materials for ZMA202100016, as well as relevant zoning
materials for previously -approved Zoning Map Amendments involving the subject properties included in
the Project Narrative, Application Plan, and Proffer Statement for this ZMA202100016 proposal. After
this review, ACPR have identified elements of the UVA Foundation's proposal which we
enthusiastically support, and have also identified elements of the proposal that we respectfully
recommend be modified.
Recommended modifications are identified because ACPR staff reasonably anticipates that the
proposed residential uses in the requested Neighborhood Model Development (NMD) District would
contribute to increased demand for on -site recreational amenities and facilities, and would also
contribute to increased demand for, use of, and impacts to the County's public recreational facilities
and open spaces.
We acknowledge your proposal includes some proposed recreational amenities within the proposed
NMD District and within the existing PDIP District, all of which would help to mitigate the reasonably
anticipated demands and impacts. We further acknowledge that some of the proposed recreational
amenities and open spaces would be publicly -accessible.
In performing our review, ACPR staff have referenced applicable formally -adopted County policies,
plans, and other relevant studies, including the following (attached at the end of this comment letter for
reference):
■ Albemarle County Comprehensive Plan —
o Attach. A: "Greenway Plan for the Development Areas" (Figure 3, Page 11.15)
o Attach. B: "Greenway Plan Details" Appendix Item — Future Major Greenway Trails in the
Development Areas' (Page A.11.25)
o Attach. C: "Greenway Plan Details" Appendix Item — River and Stream Crossings" (Page
A.11.26)
■ Places 29 Master Plan —
o Attach. D: "Parks and Green Systems Map North"
■ Albemarle County Parks and Recreation Needs Assessment —
o Attach. E: "Facility Rankings' (Figure 3.3.2, Page 52)
■ Virginia Outdoors Plan —
o Attach. F: "North Fork Rivanna River Proposed Water Trail' / Virginia Outdoors Plan
Mapper / Virginia Outdoors Plan Mapper (arogis.com)
Regarding our review of these plans relative to the North Fork Discovery Center's existing and
proposed/proffered recreational facilities and open spaces, ACPR staff respectfully recommends
certain modifications to the ZMA202100016 proposal to better address anticipated recreational
demands and impacts. Specifically, ACPR recommends the following revisions to ZMA202100016:
Proffer 6. Recreational Areas. Trails, and Open Space.
6.A: "Dabney Grove Recreation Area'
• Proffer #6.A — Analysis / Rationale for Recommendations:
Previous ZMA Proffers (ZMA199500004 Proffer 6.1 "Developed Recreational Areas' and
ZMA200500003 Proffer 6.1 "Developed Recreational Areas') both proffered the development
and dedication of "ball fields' or "sports fields' (respectively) to the County for public use, as
identified as "Sports Fields/Active Recreation Area" at Dabney Grove on "Exhibit N: Open
Space System Phasing Plan." Those previously -proffered recreational amenities have not been
developed or dedicated; and the need for and benefit of such facilities has only grown since
those prior proffered commitments — and would increase further with the development and use
of proposed residential dwelling units within the subject property.
This proposal proffers the construction of "an active amenity area containing a recreation field
(the "Dabney Grove Field"), a picnic area, and restrooms." However, proposed proffer #6.A no
longer includes a voluntary commitment to dedicate the facility to the County for public use —
and instead only proffers to "make the Dabney Grove Field generally available for public use by
partnering with local community groups to allow the use and rental of the Dabney Grove Field
for community activities." This represents a reduced level of commitment in conjunction with a
proposed intensification and diversification of land uses within the overall subject property.
Additionally, proposed proffer #6.A does not appear to include public access to or use of the
picnic area and restrooms at the Dabney Grove Recreation Area, which (if intended to be
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proffered) would be beneficial amenities at an interesting, attractive site. The issue of parking
(and publicly -available parking spaces) at Dabney Grove is also not addressed.
Finally, the proposed timing of this proffer ("prior to the approval of a final site plan or
subdivision plat that would authorize the construction of the 201s1 residential dwelling unit") is a
concern. ACPR staff believe the design, permitting, construction, and use of these proposed
recreational amenities should occur closer to the initiation of residential uses at the subject
property, since the demand and need for these facilities and amenities will increase as soon as
residential uses are commenced.
• Proffer #6.A —Recommendations:
• ACPR recommends that the applicants provide clarifying details for their intentions relating to
the proposed Dabney Grove Recreation Area being "generally available" for public use,
including clarifying if the proposed picnic area and restrooms would be publicly accessible;
• ACPR recommends that the "Dabney Grove Recreation Area" proffer meet or exceed existing
commitments at Dabney Grove from ZMA200500003 (including, in particular, the dedication of
the "Sports Fields" / "Sports Fields parcel" to the County for public use);
• ACPR recommends that the applicants provide some amount of publicly -available parking at
Dabney Grove Recreation Area to (partially) facilitate public use of the field, the picnic area,
and the proffered Trail Connection(s) to the planned greenway trail along the North Fork
Rivanna River: and
• ACPR recommends that the applicants expedite the timing of the development and dedication
of the proposed Dabney Grove Recreation Area amenities, in order to more closely coincide
with the commencement of the initial residential uses at the UVA North Fork Discovery Center
subject properties.
Proffer 6. Recreational Areas, Trails, and Open Space.
6.13: "Sports Field/Active Recreation Area Land Dedication"
• Proffer #6. B — Analysis / Rationale for Recommendations:
ACPR acknowledges the proposed dedication of 21 acres of scenic open space with
approximately 2,000' of frontage along the North Fork Rivanna River — and area labeled as
"Sports Field/Active Recreation Area" and illustrated with multiple athletic fields, parking lots,
and structures on "Exhibit D: NMD-PDIP Conceptual Master Plan" in the Application Plan.
While the type of athletics complex identified in the application materials would be publicly
beneficial, this proffer would be the dedication of land only — the proposed athletics and
recreation improvements are not designed, permitted, or funded. Due to the fact that Albemarle
County currently has planned athletics facilities/complexes that remain unfunded at this time,
ACPR does not support acceptance of this proposed proffered land dedication for unfunded
recreation improvements.
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• Additionally, ACPR has identified significant concerns about the suitability of this floodplain site
for larger -scale active recreation development, with regards to the presence of the Flood
Hazard Overlay District which covers almost all of this area.
• Separately, County staff have also identified significant concerns about the overall feasibility of
developing such a facility at this location, which can only be accessed by vehicles off of
Dickerson Road. Due to the existing conditions of Dickerson Road, including narrow unpaved
travelways and narrow bridges which are functionally single -lane, ACPR does not support
acceptance of this proposed proffered land dedication without adequate demonstration of the
suitability and overall feasibility of such an active recreation facility.
• Proffer#6.B—Recommendations:
• ACPR recommends that the applicants reconsider what types of recreational proffers would
best be able to offset reasonably anticipated impacts to existing recreation areas, and to best
accommodate increases in recreational demands, in ways that are more highly suitable and
feasible at the UVA North Fork Discovery Center subject properties.
• Please see the following ACPR recommendations pertaining to proposed Proffers 6.C.a, 6.C.b,
6.D, and Application Plan (below) for more specific examples of recommended modifications,
which are geared more specifically towards the recommended development and dedication of a
publicly -accessible network of greenway trails with public parking opportunities at appropriate
trailhead locations.
Proffer 6. Recreational Areas, Trails, and Open Space.
6.C: Pedestrian Trails — 6.C.a. "Trail Connecting Dabney Grove Park Parcel to a Greenway Trail'
• Proffer #6. C. a — Analysis / Rationale for Recommendations:
• ACPR acknowledges and supports the proffered commitment to construct at least one
Connection Trail in one of the locations identified on Exhibit E, including the dedication of a
public access easement over such Connection Trail(s).
• ACPR acknowledges that the proposed proffered Connection Trail(s) would be designed and
built to Class B, Type 1 Primitive Trail standards. ACPR is concerned about the
appropriateness and adequacy of this trail standard for what would likely be a popular, heavily
used Trail Connection within the Places 29 Development Area.
• ACPR is also concerned about the adequacy of one single Connection Trail between Dabney
Grove Recreation Area and the North Fork Rivanna River greenway area, with regards to the
existing public demand for walking trails (as identified as the highest -level priority in the
Albemarle County Parks and Recreation and Needs Assessment), and with regards to the
anticipated increases in recreational needs associated with the proposed residential uses at the
UVA North Fork Discovery Center subject properties.
• Separately, the proposed timing of this proffer ("prior to the approval of a final site plan or
subdivision plat that would authorize the construction of the 201s1 residential dwelling unit') is a
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concern. ACPR staff believe the design, permitting, construction, and use of these proposed
recreational amenities should occur closer to the initiation of residential uses at the subject
properties, since the demand and need for these facilities and amenities will increase as soon
as residential uses are commenced.
Finally, ACPR staff are concerned about the proposed timing of this proffer being triggered by
the County's development of the "Rivanna River Greenway Trail." That is primarily because this
greenway trail project is currently unfunded. And it is partially because the greenway trail
project may not be entirely feasible within the limits of the existing greenway easement area,
which is 100' wide as measured from the centerline of the North Fork Rivanna River. These
easement dimensions and configurations create several "pinch points' where it may not be
possible to locate a greenway trail out of the floodway and within the easement area; and it
does not appear to be possible to construct a (necessary) bike/ped bridge over Jacob's Run in
a location that is within the easement area.
• Proffer #6. C. a — Recommendations:
• In order to maximize the recreational capacity and value of the Connection Trail(s) and the
recreational amenities they would connect with, ACPR recommends that the applicants
construct a minimum of two of the three potential Connection Trails shown on Exhibit E.
• In order to better accommodate relatively high levels of recreational use on the Connection
Trails and the recreational amenities they would connect with, ACPR recommends that the
Connection Trails be designed and built as Class B Type 2 trails (with minimum 5' trail surface
width, compacted stone dust surface material, and complying with maximum grades and
maximum cross -slopes). ACPR does not recommend Class B Type 1 primitive trails for these
Connection Trails.
In order to accommodate the planned and proffered trails along the North Fork Rivanna River,
ACPR recommends an amended (enlarged) greenway easement area that provides sufficient
suitable land for construction of a greenway trail along the North Fork Rivanna River (but
outside of the floodway), and which accommodates the siting and construction of a bike/ped
bridge at a suitable, feasible location across Jacob's Run.
In order to ensure that these proposed proffered recreation amenities are implemented and
available for public and private uses, ACPR recommends that the applicants construct the
Rivanna River Greenway Trail along the North Fork Rivanna River, from Dickerson Road to
US-29 ROW (designed and built as Class B Type 2 trails with minimum 5' trail surface width,
compacted stone dust surface material, and complying with maximum grades and maximum
cross -slopes).
ACPR also recommends that the applicants expedite the timing of the development and
dedication of these proposed recreation amenities, in order to more closely coincide with the
commencement of the initial residential uses at the UVA North Fork Discovery Center subject
properties.
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Proffer 6. Recreational Areas, Trails, and Open Space.
6.C: Pedestrian Trail" — 6.C.b. "Public Pedestrian Trail within Jacob's Run Greenway"
• Proffer #6. C. b — Analysis / Rationale for Recommendations:
• ACPR acknowledges the proffered commitment to construct and dedicate to the County for
public use the "Jacob's Run Greenway and Primitive Trail." ACPR generally supports this
proposed dedication, as it supports and advances the proposed trail connections included in
the Parks and Green Systems Map North" in the Places29 Master Plan.
• ACPR acknowledges that this proposed proffered trail would be designed and built to Class B,
Type 1 Primitive Trail standards. ACPR is concerned about the appropriateness and adequacy
of this trail standard for what would likely be a popular, heavily used trail within the Places 29
Development Area.
• ACPR is unclear about the implications of the "existing license with the U.S. Department of
Forestry," relative to planned and proffered greenway trails.
• Separately, the proposed timing of this proffer ("prior to the approval of a final site plan or
subdivision plat that would authorize the construction of the 201s'residential dwelling unit") is a
concern. ACPR staff believe the design, permitting, construction, and use of these proposed
recreational amenities should occur closer to the initiation of residential uses at the subject
properties, since the demand and need for these facilities and amenities will increase as soon
as residential uses are commenced.
Finally, ACPR staff are concerned about the proposed timing of this proffer being triggered by
the County's development of the "Rivanna River Greenway Trail." That is primarily because this
greenway trail project is currently unfunded. And it is partially because this greenway trail
appears to be located on the north side of Jacob's Run, which would require a bike/ped bridge
to be designed, permitted, and constructed across Jacob's Run. Based on multiple site visits
and on review of available GIS and LIDAR data, such a bike/ped bridge does not appear to be
feasible within the limits of the existing greenway easement area, which is 100' wide as
measured from the centerline of the North Fork Rivanna River.
• Proffer #6. C. b — Recommendations:
• ACPR requests more detailed information about the "existing license with the U.S. Department
of Forestry," including an opportunity to review a copy of that license if appropriate.
• In order to enable a bike/ped bridge to be built across Jacob's Run in the most feasible and
suitable location, ACPR recommends greenway easement area(s) be included along both
sides of the "lower" or downstream portions of Jacob's Run.
• In order to accommodate the planned and proffered trails along the North Fork Rivanna River,
ACPR recommends an amended (enlarged) greenway easement area that provides sufficient
suitable land for construction of a greenway trail along the North Fork Rivanna River (but
outside of the floodway), and which accommodates the siting and construction of a bike/ped
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bridge at suitable, feasible location across Jacob's Run.
In order to better accommodate relatively high levels of recreational use, ACPR recommends
that the Jacob's Run Greenway Trail and "Rivanna River Greenway Trail" be designed and built
as Class B Type 2 trails (with minimum 5' trail surface width, compacted stone dust surface
material, and complying with maximum grades and maximum cross -slopes). ACPR does not
recommend Class B Type 1 primitive trails in these proposed locations.
In order to ensure that these proposed proffered recreation amenities are implemented and
available for public and private uses, ACPR recommends that the applicants construct the
Jacob's Run Greenway Trail and the Rivanna River Greenway Trail along the North Fork
Rivanna River, from Dickerson Road to US-29 ROW (designed and built as Class B Type 2
trails with minimum 5' trail surface width, compacted stone dust surface material, and
complying with maximum grades and maximum cross -slopes).
Similarly, because a bike/ped bridge across Jacob's Run is a required improvement within this
network of planned and proffered trails, ACPR further recommends that the applicants design,
permit, and construct the bike/ped bridge across Jacob's Run at a suitable location (or provide
the County with funds to conduct a feasibility study and prepare design and construction
documents for such a bike/ped bridge across Jacob's Run, in order to catalyze the public
funding and implementation of such a bike/ped bridge).
Finally, ACPR also recommends that the applicants expedite the timing of the development and
dedication of these proposed recreation amenities, in order to more closely coincide with the
commencement of the initial residential uses at the UVA North Fork Discovery Center subject
properties.
Proffer 6. Recreational Areas. Trails, and Open Space.
6.D: "Trailhead Parking Area"
• Proffer #6. D — Analysis / Rationale for Recommendations:
• ACPR acknowledges the proffered commitment to provide a "Trailhead Parking Area"
comprised of seven (7) dedicated parking spaces for trailhead parking, in order to enable some
public access to and use of proposed trails/rec amenities.
• However, ACPR is concerned that the number of proffered parking spaces would not be
sufficient, relative to the anticipated levels of use of planned and proffered trails at the UVA
North Fork Discovery Center subject properties within the Places 29 Development Area.
• Additionally, ACPR is concerned that the proposed location would not adequately enable safe,
convenient access to proffered and recommended publicly -accessible recreational amenities at
the UVA North Fork Discovery Center subject properties. This is due to the proposed location
of the Trailhead Parking Area being on the south side of Lewis & Clark Drive, while the publicly -
accessible amenities (including the Dabney Grove Recreation Area, Rivanna River Greenway
Trail, and Jacob's Run Greenway Trail) are located on the north side. Additionally, there is
currently a gap in the bike/ped route of circulation between the proposed "Trailhead Parking
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Area" and the existing crosswalk across Lewis & Clark Drive near the Dabney Grove
Recreation Area.
• Proffer #6.D —Recommendations:
• ACPR recommends that the applicants provide a larger aggregate number of publicly -available
parking spaces, including the designation of multiple disparate trailhead parking sites around
the outer perimeters of existing surface parking lots, and/or at Dabney Grove Recreation Area.
• ACPR recommends that the applicants provide, as may be appropriate, additional new
sidewalks, shared use paths, and/or crosswalks in order to provide safe, convenient bike/ped
connections between proffered and recommended trailhead public parking spaces and
proffered recreational amenities (such as Dabney Grove Recreation Area and Connection
Trails).
• Finally, ACPR also recommends that the applicants expedite the timing of the development and
dedication of these proposed recreation amenities, in order to more closely coincide with the
commencement of the initial residential uses at the UVA North Fork Discovery Center subject
properties.
Application Plan:
ACPR recommends including a publicly -accessible sidewalk or shared -use path generally
parallel to SB US-29, between Lewis & Clark Drive and the planned greenway trail alongside
the North Fork Rivanna River. Alternately, ACPR recommends providing an easement to the
County for the future public construction of such an improvement across UVA Foundation
property generally alongside SIB US-29.
ACPR recommends that the applicants develop sidewalks, shared use paths, and/or
crosswalks to provide safe, convenient bike/ped connections between proffered and
recommended trailhead public parking spaces and proffered recreational amenities (such as
Dabney Grove Recreation Area and Connection Trails).
In summary, ACPR recognizes the large volume of our analysis and recommendations, and we
anticipate that a meeting with CDD staff, ACPR staff, and the applicants would be beneficial in order to
ensure clarity and to otherwise discuss ACPR's recommendations for the applicant's proposal. ACPR
staff remain available to meet and communicate further.
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Figure 3: Greenway Plan F., the D.I.pmeM A..
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Attach. A: Comprehensive Plan / Greenway Plan for the Development Areas (Fig. 3, Page 11.15)
South Fork
ivanna River
Reservoir
Attach. A: Comprehensive Plan
Chris Greene
La ke A
Paik
Plan for the Development Areas
Note "Greenway Trail"
along Rivanna River and
Jacobs Run, and "G3
Access" Point in vicinity
Page 11.15) (enlarged)
Page 9 of 12
Greenway Plan Details
The Greenway Plan is described and shown in Chapter 11 of the Comprehensive Plan. Areas for
greenways should be viewed as providing the main components of an overall greenway system. This
Appendix provides information on the general location for the greenway network along rivers and
streams in the Rural Area. The greenway network for the Development Areas is shown on the Parks and
Green Systems Plans in each Development Area Master Plan. The location and types of trails are
intended to be conceptual in nature and do not address details. Instead, these maps are intended to
provide a framework for the implementation of the greenway system, and are not intended to preclude
future opportunities for greenways not shown here. It is assumed that exact locations of trails will be
determined in cooperation with communities and property owners of the area.
Future Major Greenway Trails in the Development Areas
The following trails are major trails in the system of connecting greenways. Other trails in the
Development Areas can be found In the Development Area Master Plans on the Parks and Green Systems
Plan.
Places29
�• North Fork Rivanna River - Jacob's Run from Chris Greene Lake to Yn mile east of Development
Area Boundary
• Powell Creek — From Forest Lakes North to South Fork of Rivanna River
• Rivanna Upper River Greenway from Rivanna Reservoir to Pantops
• Meadow Creek Trail —from Brookmill neighborhood near Pepsi Place through City of
Charlottesville to confluence with the Rivanna River
Attach. B: Comprehensive Plan / "Greenway Plan Details" Appendix Item
("Future Major Greenway Trails in the Development Areas," Page A.11.25)
River and Stream Crossings
Due to the high costs associated with construction of pedestrian bridges, in all cases crossing of major
water bodies will utilize existing bridges. Steps or ramps should be constructed to allow access from the
greenway to the bridge. Bridge design (i.e. striping or pedestrian barrier) may have to be altered to
facilitate safe pedestrian crossing.
Use of the following bridges is recommended to facilitate the crossing of a water course
• North Fork Rivanna River - Route 29 Bridge (Seminole Trail)
• South Fork Rivanna River - Route 29 Bridge (Seminole Trail)
• Rivanna River - Route 250 East (Free Bridge) (Richmond Road)
• Rivanna River - Route 729 Bridge (North Milton Road)
• Moore's Creek — Route 742 Bridge (Avon Street Extended)
• Moore's Creek - Route 781 Bridge (Sunset Avenue)
• Moore's Creek - Route 780 Bridge (Old Lynchburg Road)
• Moore's Creek - Route 20 South Bridge (Scottsville Road)
It may be advantageous to construct a bicycle bridge over a water course; however, alternatives to a
bridge crossing must be thoroughly explored. It is much more desirable to utilize existing bridges for
connections when they are in close proximity to proposed river and stream crossings. However, free -
Attach. C: Comprehensive Plan / "Greenway Plan Details" Appendix Item
("River and Stream Crossings," Page A.11.26)
Page 10 of 12
d •
i .vim -•d._' �! � I ..
FacilitylAmeni
Walking, Hiking and Biking Trails
Priori
Hlgh
O
Youth Athletic Fields - Diamond and Multi -Purpose
Open Space/Conservation Parks
Small Neighborhood Parks
Large Community Parks
Aquatic Facilities
Off -Leash Dog Parks
River Access/Boat Launches
Pavilions and Picnic Shelters
Indoor Recreation Spaces
Medium
Playgrounds
Athletic Fields for Adults
Outdoor Tennis Courts
Facilties/Amenities for Special Needs
Gymnastic Facilities
LOW
Competitive Swimming Facilities
Pickleball Courts
Outdoor Basketball Courts
Disc Golf
Indoor Soccer Facilities
Outdoor Sand Volleyball Courts
Skateparks
Attach. E: 2018 Albemarle County Parks & Recreation Needs Assessment "Facility Rankings" (Figure 3.3.2, Page 52)
Attach. F: "North Fork Rivanna River Proposed Water Trail' — Virginia Outdoors Plan Mapper
Virginia Outdoors Plan Mapper (arcgis.com)
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