HomeMy WebLinkAboutSP201300006 Staff Report 2013-02-20y�
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ALBEMARLE COUNTY PLANNING
STAFF REPORT SUMMARY
Proposal: SP201300006 Commonwealth Office
Staff: David Benish
Planning Commission Public Hearing:
Board of Supervisors Hearing:
July 30, 2013
TBD
Owner: Moore's Creek Land, LLC
Applicant: Regents School of Charlottesville
(RSC)
Acreage: 1.149 acre parcel
TMP: 061 WO -03 -00 -01400
Location: Commonwealth Drive, approximately
Zoning: R -15 Residential - 15 units /acre
'/4 mile south of the Commonwealth
Drive /Greenbrier Drive intersection
Magisterial District: Jack Jouett
Conditions: Yes EC: No
Proposal: Proposal to construct a 13,500
Requested # of Dwelling Units: 0
square foot, three -story office building.
Professional offices are permitted in the R -15
District by approval of a Special Use Permit
Chapter 18 Section 18.2.2(l 1
DA: X RA:
Comp. Plan Designation: Urban Density
Residential — residential (6.01 — 34 units/ acre);
supporting uses such as religious institutions,
schools, commercial, office and service uses.
Character of Property: The property is
Use of Surrounding Properties: Surrounding
undeveloped. The immediate frontage of the
properties contain apartments, a nursing home
property is open, but most of the property is
and single family attached residential units
wooded and slopes to a stream on the
(across Commonwealth Drive from the site).
southwest corner of the site. Most of the
existing steep slopes on site are man -made.
(Attachments A and B)
Factors Favorable:
Factors Unfavorable:
1. Provides a mix of uses within a high
1. Underground drainage pipes downstream
density residential area
of site may be inadequate to convey
discharge from site /area.
2. There are no anticipated detrimental
impacts on adjacent property resulting
2. Site layout does not orient building to the
from the intensification of the existing
street and parking not fully relegated
use.
consistent with the Comprehensive plan
3. Impact of proposed development to site
and Neighborhood Model principles.
and area consistent with previously
developments on this site
RECOMMENDATION: Staff recommends denial of SP201300006 Commonwealth Office, due to
the application plan's inconsistency Comprehensive Plan and Neighborhood Model principles
regarding relegation of parking and building orientation (buildings and spaces of human scale).
Alternative conditions of approval have been provided should the Commission choose to
recommend approval.
SP201300006 — Commonwealth Offices)
Planning Commission: July 30, 2013
STAFF PERSON: David Benish
PLANNING COMMISSION: July 30, 2013
BOARD OF SUPERVISORS: TBD
PETITION:
PROJECT: SP201300006, Commonwealth Offices
PROPOSED: Proposal to construct a 13,500 square foot, three -story professional office building.
ZONING CATEGORY /GENERAL USAGE: R -15 Residential 15 units /acre. Professional offices are
permitted in the R -15 District by approval of a Special Use Permit
SECTION: Professional Offices (Chapter 18 Section 18.2.2(l 1))
COMPREHENSIVE PLAN LAND USE /DENSITY: Urban Density Residential — residential (6.01 — 34
units/ acre); supporting uses such as religious institutions, schools, commercial, office and service
uses.
ENTRANCE CORRIDOR: No
LOCATION: Commonwealth Drive, approximately' /4 mile south of the Commonwealth Drive /Greenbrier
Drive intersection
TAX MAP /PARCEL: 061 WO -03 -00 -01400
MAGISTERIAL DISTRICT: Jack Jouett
CHARACTER OF SURROUNDING AREA:
Apartments are located on the north and south side of this site. A nursing home also located just south
of this parcel. Apartments and single family attached residential units are located to the east of the
property (and across Commonwealth Drive). Wooded open space exists to the west of the site. The
nearest commercial uses are' /4 mile to the north (Greenbrier Drive) and 1/3 of a mile to the south
(commercial site on the corner of Commonwealth Drive and Rio Road). The Stonefield development is
just less than '/2 mile walking distance from this site.
PLANNING AND ZONING HISTORY:
SP200300067 — Request for a special use permit to allow a day care center (request withdrawn).
SDP200700061 Commonwealth Townhouses Final Site Plan — Approval of a final site plan for 14
townhouses.
SDP201000004 Commonwealth Townhouses Final Site Plan Major Amendment — Approval of a
major amendment to SDP200700061 to allow a 3 -story apartment building housing 14 units (replacing
the previously approved 14 townhouses).
DETAILS OF THE PROPOSAL:
The applicant is proposing to construct a three - story, 13,500 square foot professional office building
with 54 parking spaces on a 1.15 acre site. No specific tenant is identified at this time. Access to the
site is from one entrance onto Commonwealth Drive. The Application Plan is attached (Attachment C).
ANALYSIS OF THE SPECIAL USE PERMIT REQUEST:
Section 33.8 of the Zoning Ordinance states that the Planning Commission and Board of
Supervisors shall reasonably consider the following factors when reviewing and acting upon an
application for a special use permit:
No substantial detriment. The proposed use will not be a substantial detriment to adjacent lots.
The adjacent property to the south is developed with apartments, with the closest apartment building
approximately 135 feet from the edge of the property line and approximately 250 feet from the
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
proposed building site. The property to the north is also a large scale apartment complex. The parking
lot for the apartment complex abuts this site and the apartment buildings are a minimum of 60 feet from
the common property line. The applicant is proposing to provide additional landscape buffer along the
north of the site. Given the scale of the development (13,500 square feet) and the proposed
professional office use, staff opinion is that the use will not be a substantial detriment to the adjacent
lots.
Character of the district unchanged. The character of the district will not be changed by the
proposed special use.
The proposed use will not change character of the area /district. This area consists primarily of high
density apartment development and an institutional use (nursing home). The scale of development and
type of use proposed (professional office) are consist and compatible with the surrounding uses.
Harmony. The proposed special use will be in harmony with the purpose and intent of this
chapter...
The R -15 zoning district is intended for high density residential development; however, professional
offices are allowed by special use permit, if sited appropriately. The scale of the proposed offices can
be adequately accommodated on this site. The potential impacts from non - residential uses (noise,
lighting, traffic) should be negligible. Conversely, the offices would provide nearby services to a high
density residential area.
...with the uses permitted by right in the district...
The scale of the development and type of use proposed is consist, compatible and in harmony with the
by -right uses of the R -15 district, which include high density residential uses. High density residential
use (apartments) is the dominant existing use in the immediate area of this site.
... with the regulations provided in section 5 as applicable...
There are no supplementary regulations in section 5 applicable to this proposal.
...and with the public health safety and _general welfare...
There are no significant negative traffic impacts anticipated from this proposal. The extent of the
proposed grading and development for this professional office is consistent with a prior proposal to
development a 14 unit apartment building on this site, which was approved in 2011 (SDP 201000004).
However, an area of concern with this proposal is the design of the stormwater management facilities
and, in particular, the adequacy of the drainage channel downstream of this site to convey run off from
the site.
Stormwater Facilities: The site is designed to drain to an existing basin area that is located on
multiple properties at the southwestern edge of the property, with the assumption that this basin
area will be upgraded in the future to public regional stormwater management facility (SWM). At
one time, the County had planned to acquire and upgrade this facility as a regional SWM facility;
however, the General Services Department is currently evaluating the needs and priorities for
various regional SWM facilities throughout the County. There is no plan to upgrade this facility at
this time (and no funding allocated for improvements to the facility). Given this current status, the
County Engineer has recommended that the SWM facility serving this site be constructed entirely
on this site. The applicant is amenable to this recommendation. This issue can and should be
addressed in more detail at the Site Development Plan review stage.
Adequacy of Downstream Channel: The SWM facility for this site will drain into an existing 48"
reinforced concrete pipe (RCP) owned and maintained by VDOT. This pipe and downstream pipe/
channel conveys water under Commonwealth Drive, the residential area located on the west side of
Commonwealth Drive, through the Stonefield center site, then under Rt. 29 and developments in
the City, ultimately conveying the water to Meadow Creek. The existing 48" RCP is in poor
condition. Another pipe has previously been inserted into the failing pipe to address the failing
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
condition, but the "new" pipe diameter is not known. The County Engineer has recommended
replacing this 48 inch pipe to maintain adequate flow and mitigate issues with this downstream
channel.
Typically, the County Engineer will request a downstream channel adequacy analysis during the
site development plan review /water protection ordinance (wpo) review process. The condition of the
pipe needs to be verified since its condition and capacity could result in impacts to properties both
upstream and downstream of this site. If the pipe is undersized, the extent of the ponding needs to
be verified to provide some guidance on the SWM facility size to mitigate potential upstream
impacts. If the pipe needs to be replaced, then the impacts of the additional rate and volume of
runoff downstream needs to be verified.
These issues can be addressed at the site development plan review stage. Any approval of this special
use permit request should be based on the understanding that the required SWM facilities will be
provided on -site, that a channel adequacy analysis will be submitted as part of the site development
plan review /wpo review process, and that the final site plan will not be approved until all SWM and
downstream channel issues are addressed to the satisfaction of the County Engineer.
Consistency with the Comprehensive Plan.
The Places29 Master Plan recommends this site for Urban Density Residential use. This use
encourages high density residential development (6 -34 du /ac.) as the primary use and allows retail,
commercial, office and institutional uses as a secondary use. Regarding secondary uses, the Places29
master Plan states:
Retail, commercial, office, and institutional uses are encouraged to locate in Centers so they are
accessible to residents throughout the surrounding area, and so they benefit from co- location with
other neighborhood - serving businesses. However, they may be located by exception in areas
around Centers designated Urban Density Residential provided they are compatible with
surrounding uses. (p. 4 -5)
Staff opinion is that this area and site is an acceptable location for the proposed office use. The scale
of the professional office proposal is compatible with the surrounding uses and the scale of the
development ensures it remains secondary to the primary residential uses in the area. The offices
would provide nearby services to a high density residential area.
Neighborhood Model: Staff's analysis below indicates how the proposal meets the 12 principals of the
neighborhood model:
Pedestrian
There is an existing sidewalk along the frontage of the site that will remain or
Orientation
be replaced and an internal sidewalk will be constructed to connect the
building to the Commonwealth Drive sidewalk. This principle is met.
Neighborhood
Trees are proposed to be planted between the existing sidewalk /road and
Friendly Streets and
proposed parking area. This principle is met.
Paths
Interconnected
No interconnection to adjacent sites is provided. This site is adjacent to the
Streets and
Trophy Chase apartments and parking lot. Although an interconnection could
Transportation
be made to connect these sites, due to the small scale of the proposal, and
Networks
the close proximity of the entrances serving these two sites /developments on
to Commonwealth Drive, there would be limited benefit or purpose for an
interconnection. A waiver request was already granted with the prior SDP
approvals. This principal is met.
Parks and Open
No park or public space is provided for the office building. The
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
Space
Comprehensive Plan does not identify this site for a public space /park use.
A portion of the site contains a drainage area /stream, with critical slopes. A
portion of that area will be used for stormwater detention for this proposal.
Given the scale of this development, this principle is not applicable.
Neighborhood
Neither this site nor the immediate area is designated as a center in the
Centers
Places29 MP. Other center areas are located within walking distance to this
section of Commonwealth Drive. However, this proposal would provide
service opportunities to nearby residential areas. This principle is met.
Buildings and
The building is proposed to be 3 stories with a 4500 sq. ft. footprint. The
Spaces of Human
height and scale of building is consistent with the general guidelines in the
Scale
Places29 MP for commercial and retail secondary uses in the Urban Density
Residential L.U. designation. However, parking is not fully relegated and the
building is not oriented to the public street on this small parcel. This principle
is not met.
Relegated Parking
Parking is not entirely relegated on this site. One of two sections of the "L"
shaped parking area is located between Commonwealth Drive and the
building. The second pad is located on the side of the building, which is
considered relegated. This principle is not fully met.
Mixture of Uses
This is a small site that would contain one professional office building.
However, this building will create a greater mix of uses this immediate area
along Commonwealth Drive. This principle is met.
Mixture of Housing
This proposal is for professional offices only. This section of Commonwealth
Types and
Drive consists of apartments, single - family attached dwellings and a nursing
Affordability
home. A range of housing types and affordability is already provided in this
area by the existing development. This principle is met in the larger context
of the area.
Redevelopment
This site is undeveloped. This principle does not apply.
Site Planning that
Critical slopes are impacted with this proposal. Most are man made from
Respects Terrain
prior grading and construction activity. A critical waiver was previously
granted for grading on these slopes. This proposal does affect any additional
areas not cover in the prior waiver. The County Engineer has no concerns
with proposed grading on these slopes at this time. Proposed grading further
reviewed at the site plan review stage. This principle has been addressed
Clear Boundaries
This property is located entirely within the Development Area Boundaries.
with the Rural
This principle does not apply.
Areas
This proposal meets most of the of the Neighborhood Model principles; however, it does not meet two
principles related to the form of development. The proposed building location is not oriented to the
street and the parking is not fully relegated from Commonwealth Drive. The applicant has not provided
any compelling reason why the building cannot be oriented closer to the street, with more parking
located behind the building. The applicant has stated that more parking is relegated beside the building
with this Special Use Permit proposal (23 relegated spaces beside the building) than with the previously
approved site development plan (SDP 201000004) for a 14 unit apartment building on this site (0
spaces relegated; all spaces located in front of building)(Attachment D). Staff notes that building
orientation and the relegation of parking cannot be required as part the review and approval of a by-
right proposal, such as the site plan approval for the apartment building. A special use permit request is
reviewed for its consistency with County's Comprehensive Plan. Staff believes the building orientation
and additional relegation of parking is relatively important in this location. This would be only the
second parking lot constructed in front of a building on the west side of Commonwealth Drive
(Attachment E).
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
In summary, while staff considers the concept of providing professional offices on this site a good
proposal that is consistent with most of the recommendations of the Comprehensive Plan and Places29
Master Plan, staff believes further effort should be made by the applicant to meet the parking relegation
and building orientation expectations of the Master Plan and Neighborhood Model. Alternatively, the
applicant should provide sufficient justification as to why such changes cannot, or should not, be made
to the site.
SUMMARY:
Staff finds the following factors favorable to this request:
1. The proposal provides a mix of uses within a high density residential area
2. There are no anticipated detrimental impacts on adjacent property resulting from the intensification
of the existing use.
3. The impact of proposed development to the site and immediate area consistent with previously
approved developments on this site
Staff finds the following factor(s) unfavorable to this request:
1. Underground drainage pipes downstream of site may be inadequate to convey discharge from
site /area.
2. Site layout does not orient building to the street and parking not fully relegated consistent with
the Comprehensive Plan and the Neighborhood Model principles.
RECOMMENDED ACTION:
Staff recommends denial of SP201300006, Commonwealth Office, due to the application plan's
inconsistency Comprehensive Plan and Neighborhood Model principles regarding relegation of parking
and building orientation (buildings and spaces of human scale). However, if the Planning Commission
chooses to recommend approval of this proposal, staff has provided the following recommended
conditions of approval:
CONDITIONS OF APPROVAL:
Development of the use shall be in general accord with sheet C4 of 4 (Concept Plan) of the plan
entitled "Application Plan for Commonwealth Office," prepared by Shimp Engineering, P.C., revision
1, dated 5/6/13, as determined by the Director of Planning and the Zoning Administrator. To be in
general accord with the Conceptual Plan, the development and use shall reflect the following major
elements as shown on the Conceptual Plan:
• Total building square footage of 13,500 square feet.
• Entrance location.
Minor modifications to the plan which are in general accord with the elements above may be made
to ensure compliance with the Zoning Ordinance.
2. The stormwater detention facility shall be located entirely on the subject property (Tax Map /Parcel
061W0- 03 -00- 01400) and shall be designed and built as approved by the County Engineer.
3. The use shall commence on or before [date two years from Board of Supervisor approval] or the
permit shall expire and be of no effect.
MOTION:
A. Should the Planning Commission choose to recommend approval of this special use permit:
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
Move to recommend approval of SP201300006, Commonwealth Office, with conditions as stated
in the staff report.
B. Should the Planning Commission choose to recommend denial of this special use permit:
Move to recommend denial of SP201300006, Commonwealth Office. Should a
commissioner motion to recommend denial, he or she should state the reason(s) for
recommending denial.
ATTACHMENTS:
Attachment A — Location Map
Attachment B — Aerial Map
Attachment C — Application Plan
Attachment D — Exhibit Showing Approved Site Plan and Proposed Commercial (Office) Site
Attachment E — Regional Context Map
SP201300006 — Commonwealth Offices
Planning Commission: July 30, 2013
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Attachment A
SP201300006 Commonwealth Office
ATTACHMENT A
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Attachment A
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APPLICATION PLAN EOK
Commonwealth Office
TMP OG I WO-03-00-01400
JACK JOUETT DISTKICT, ALDEMAKLE COUNTY, VIKGINIA
SNEETINDEX
5HEET C I - COVER SHEET
5HEET C2 - REGIONAL CONTEXT MAP
SHEET C3 - EXI5TING CONDITIONS
5HEET C4 - APPLICATION PLAN
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the project if the SUP is appro.d.
VP 61w -3 -15 There are no parking setbacks for R15 zonng.
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REQUESTED COMMERCIAL SITE PLAN
04/29/13
Exhibit Showing Extent of Proposed Changes to
Landscape Buffers and Relegated Parking for
SP 201300006 "Commonwealth Office"
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