HomeMy WebLinkAboutZMA201300004 Staff Report Zoning Map Amendment 2014-07-29COUNTY OF ALBEMARLE
PLANNING STAFF REPORT SUMMARY
Project Name: ZMA 2013 -00004 Hollymead
Staff: Claudette Grant
Town Center — Block VI
Planning Commission Public Hearing:
Board of Supervisors Public Hearing: To Be
July 29, 2014
Determined
Owners: Post Office Land Trust
Applicant: Post Office Land Trust — Charles W.
Hurt with Katurah Roell as the contact
Acreage: Approximately 5.74 acres
Rezone from: No change of zoning designation
is sought. This application seeks to amend
ZMA200100020 Application Plan, Code of
Development and proffers. This proposal
requests to construct 44 townhouse units in
Block VI, instead of an approved parking area
and to eliminate the required minimum square
footage of non - residential uses in Block IV.
TMP: Tax Map Parcel(s) 032000000041 LO
By -right use: Mixed use development with
(See Attachment A)
maximum total residential units of 120 in Area C
Location: West of Route 29 North. At the
of Hollymead Town Center.
intersection of Laurel Park Lane and Meeting
Street.
Magisterial District: Rio
Proffers: Yes
Proposal: Rezoning request to amend the
Requested # of Dwelling Units: 44 dwelling
approved ZMA200100020 Application Plan,
units in Block VI. This is a reallocation of the
Code of Development and proffers. This
maximum 120 units approved as part of
proposal requests to construct 44 townhouse
ZMA200100020. No additional units are being
units in Block VI, instead of an approved parking
requested.
area and to eliminate the required minimum
square footage of non - residential uses in Block
IV. The density for Block VI is 7.6 dwelling
units /acre. (Attachment B).
DA (Development Area): Hollymead Community
Comp. Plan Designation: Hollymead- Places
29- Commercial Mixed Use — commercial, retail,
employment uses, with supporting residential,
office, or institutional uses.
Character of Property: Blocks IV and VI are
Use of Surrounding Properties: The adjacent
vacant and undeveloped.
property to the east and south are vacant and
undeveloped. There are townhouses located to
the west and additional townhouses /mixed use
buildings are located in the vicinity along with
Rosewood Village, an assisted living facility.
Micro Aire is located to the north.
Factors Favorable:
Factors Unfavorable:
1. The rezoning request remains consistent
1. Loss of non - residential space /mix use
with the Comprehensive Plan and no
form within these blocks
changes to uses are proposed.
2. Technical revisions are needed to
Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
2. Proposed townhouse development in
proffers, code of development, and
Blocks IV and VI are consistent with
application plan.
existing residential development
adjacent to the site and will create a
larger and more cohesive residential
neighborhood that is close to a walkable
center
3. The original maximum number of
residential units is unchanged.
4. Sufficient non - residential land use
capacity/ development potential remain
within the Hollymead Town Center
RECOMMENDATION: Staff recommends approval of ZMA2013000004, Hollymead Town Center
Block VI, provided technical revisions are made to the proffers and changes are made to the
application plan, and code of development as described in the staff report prior to the Board of
Supervisor meeting.
Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
STAFF PERSON: Claudette Grant
PLANNING COMMISSION: July 29, 2014
BOARD OF SUPERVISORS: To Be Determined
ZMA 201300004 Hollymead Town Center — Block VI
PETITION
PROJECT: ZMA201300004 Hollymead Town Center (Block VI)
MAGISTERIAL DISTRICT: Rio
TAX MAP /PARCEL: 032000000041 LO
LOCATION: West of Route 29 North. At the intersection of Laurel Park Lane and Meeting Street.
PROPOSAL: To amend Proffers, Code of Development, and Application Plan to allow construction of
44 townhouse units for a density of 7.6 dwellings /acre and to eliminate the requirement to construct
32,000 square feet of non - residential use. This proposal requests to construct in Block VI, instead of an
approved parking area, and to eliminate the required minimum non - residential uses in Block IV.
ZONING: PD -MC Planned Development Mixed Commercial which allows large -scale commercial uses
and residential by special use permit at a density of 15 units /acre. No Zoning change is requested.
ENTRANCE CORRIDOR: Yes
AIRPORT IMPACT AREA: Yes
PROFFERS: Yes
COMPREHENSIVE PLAN: Hollymead- Places 29- Commercial Mixed Use — commercial, retail,
employment uses, with supporting residential, office, or institutional uses.
CHARACTER OF THE AREA
This proposal is located in the area known as Hollymead Town Center, which is subject to multiple
approved rezonings. Each rezoning covers a certain section of the town center and are referred to
as Area Al (Kohl's area), A2 (west of Kohl's and along Meeting Street), B (Target and Harris - Teeter
area), C (North end of the town center, north and west of Target, and the area along and on the north
side of Timberwood Blvd), and D (Abington Place and the area south of Timberwood Blvd).
The subject property is located in Area C and is vacant and undeveloped. However, the surrounding
area is developed with townhouses to the west, a mixed use building and an assisted living facility to
the south, and a flex - industrial use (Micro Aire) to the north. The area immediately east of the site is
vacant but is approved for non - residential uses (commercial and office). Portions of the Hollymead
Town Center further south and east are developed in commercial and residential uses.
SPECIFICS OF THE PROPOSAL
This request is to amend the uses permitted in Blocks IV and VI of the Hollymead Town Center Area C
as defined in the Code of Development (COD).
Block IV — The current COD calls for a minimum of 32,000 square feet of non - residential uses
and between 15 and 30 residential units in Block IV (See page 22 of Attachment C). The
applicant is now requesting to eliminate the requirement to construct a minimum 32,000 square
feet of non - residential uses. The applicant is proposing to construct 30 townhouses which is
consistent with the current approved zoning. (This construction is not part of this rezoning
request)
Block VI — The current COD calls for this block to be used to provide parking for buildings in the
adjacent Block IV, if needed. No other permitted uses are identified in the current COD for this
block. The applicant is proposing to construct 44 townhouses in this block instead of parking.
3 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
Under this proposal, Block IV would contain all required parking on -site, so there is no longer a
need for separate parking to be provided in Block VI.
Area C of the Hollymead Town Center was approved for a maximum of 120 townhouses to be
located within various blocks of the Area. This maximum is not being changed or exceeded by
this proposal. This proposal reallocates some of the permitted residential units to Block VI.
The applicant has provided a revised COD. See pages 10, 19 and 22 of the revised COD for the
blackline changes to the COD. Some technical, non - substantive, corrections are needed to both the
COD and the application plan, including:
Table A in the COD needs to be revised, as it is not clear what the asterisk ( "') in Block VI is
referring to.
The application plan provided is more detailed than desired for an application plan; however, a
note on the plan states that "the residential units are conceptual with regards to location, size,
and number of units. The details will be worked out during the site plan process." Staff also
recommends that the note reference flexibility for landscaping that is shown on the plan, which
could also change during the site plan process.
The roads shown on the application plan are inadvertently referenced as alleys instead of
private roads and need to be corrected.
Revised proffers have also been provided and further discussed in the proffer section of this staff
report. Staff recommends that the above noted revisions be made to the plan and reviewed by staff
prior to Board of Supervisor's public hearing. These changes are technical in nature. The overall
development concept for the block is acceptable to staff. (See Attachment B for the Application Plan
and Attachment C for the revised Code of Development).
APPLICANT'S JUSTIFICATION FOR THE REQUEST
As previously mentioned earlier in this staff report, Block VI was originally proposed to provide parking
for the buildings in Block IV, if necessary. However, Block IV now provides its' own parking and there is
no longer a need for Block VI to provide parking. The applicant believes the best use for block VI is
residential. There are no additional dwelling units proposed for Area C of the Hollymead Town Center
Development, just a relocation of the units. The original approved maximum of 120 townhouses for
Area C remains unchanged, but a portion of those units would be allocated to Block VI if this rezoning
is approved. In addition, the applicant has described a low market need for non - residential uses in this
portion of the development. Significant area remains available for non - residential uses within
Hollymead Town Center Area C, and the portions of the Town Center.
PLANNING AND ZONING HISTORY
ZMA82 -02 was approved on September 9, 1986 to rezone the property to LI, Light Industry.
ZMA89 -08 was approved on September 20, 1989 to rezone the property from LI to C -1 and SP 89 -71
(Skating Rink), SP89 -72 (Motel) and SP89 -73 (Drive- through bank) were also approved concurrently.
ZMA94 -21 was approved on March 15, 1995 to amend proffers of ZMA 89 -08 to allow all uses
permitted by -right in the C -1 Commercial District.
ZMA01 -20 was approved on August 6, 2003 to rezone the property from C -1, LI, and RA to PD -MC to
allow for a mixed —use development in Area C. Other rezoning and special use permits were approved
for different areas of Hollymead Town Center.
4 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
COMPREHENSIVE PLAN
The existing zoning approved for Hollymead Town Center is consistent with the Places 29 Master Plan
land use designation of Commercial Mixed Use, which allows commercial, retail, employment uses,
with supporting residential, office, or institutional uses. This rezoning request does not propose to
change the land uses previously approved for Hollymead Town Center in ZMA200100020.
The Neighborhood Model: Staff's analysis below indicates how well the proposal meets the 12
principles of the Neighborhood Model:
Pedestrian Orientation
Sidewalks are proposed to be provided along Meeting Street,
Laurel Park Lane, and Grand Forks Boulevard. Sidewalks are
also shown internally on the site; Some of the sidewalks
appear to provide interconnection internally and externally on
the site. This principle is addressed.
Neighborhood Friendly
The entrance onto the site is a road leading to garages for
Streets and Paths
the townhouses on the property. Sidewalks and pathways are
provided on the site. Street trees are shown to be provided
on the exterior streets and landscaping is also shown
internally on the site. This principle is addressed.
Interconnected Streets and
The application plan shows alleys that are actually intended
Transportation Networks
to be private streets providing access to the individual
townhouse garages. The application plan will need to be
revised to reflect the actual intent. The streets connect to
Meeting Street, and Laurel Park Lane. This principle is
addressed.
Relegated Parking
The proposed townhouses have garages and parking is
shown to be internal on the site. This principle is addressed.
Parks and Open Space
There are two open space areas within the Blocks IV and VI
that consist of greenspace /open space. Block VI is inclusive
of a tot lot and activity recreation area as shown on the plan.
The COD called for a "central plaza" consisting of some
features being provided for Block IV. The central amenity
illustrated in the approved COD is now being shown as a
more dispersed feature, with open space also shown
throughout various areas of the blocks. As a result, the
central amenity appears smaller in size. Although this feature
is different than originally depicted, the basic form and intent
is still being provided. This principle is met.
Neighborhood Centers
The Hollymead Town Center is designated and planned as
both a Community and Destination Center, with the
Community Center area focused on Meeting Street just south
of this site. The subtraction of non - residential uses in Block IV
does not significantly affect the provision of center activities in
this area. Neighborhood /residential oriented open spaces are
provided in lieu the "central plaza" called for in the COD. This
principle is addressed.
Buildings and Spaces of
The townhouses are proposed to be two to four stories in
Human Scale
height. The elevations provided in the plans appear to be in
keeping with other townhouse developments in the vicinity.
This principle is addressed.
5 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
Mixture of Uses
This proposal does not provide a mixture of uses. Although
non - residential uses were not proposed for Block VI, a
minimum of 32,000 square feet of non - residential uses was
proposed for Block IV and is now eliminated since Block IV is
proposed with townhouses. However, a maximum of 80,000
square feet of non - residential uses is still allowed in Block IV,
allowing non - residential to be developed in the block in the
future. Due to its location, in a town center that is inclusive of
retail and other commercial uses located within a one - quarter
mile of the proposal, the elimination of a minimum square
footage of non - residential uses in Block IV is not seen as
problematic. A mixture of uses is located within the
neighborhood. This principle is addressed.
Mixture of Housing Types
There is a mixture of housing types in the immediate area
and Affordability
surrounding Hollymead Town Center. However, most of the
units approved to date in Hollymead Town Center are
townhouses. Other unit types are permitted within the
Hollymead Town Center. The number of maximum housing
units remains the same as originally approved in Area C.
With no change in the amount of housing provided from the
original approval, there is no expectation that additional
affordable housing be provided. Affordable housing was
addressed with the initial ZMA approval. This principle is
partially addressed.
Redevelopment
Not Applicable.
Site Planning that Respects
There are designated Managed Slopes located on the site
Terrain
that will be disturbed. Most appear to be man -made.
Clear Boundaries with the
Not Applicable.
Rural Areas
Economic Vitality Action Plan
The primary goal of the County's Economic Vitality Action Plan is to:
Increase the County's economic vitality and future revenues through economic development by
expanding the commercial tax base and supporting the creation of quality jobs for local residents.
This Plan is developed for the benefit and economic well being, first, of current local residents and
existing local businesses.
The existing zoning approved for Hollymead Town Center supports the Plan by providing additional
employment possibilities with the proposed land uses. The proposed reduction of 32,000 square feet of
non - residential space in Block IV could reduce future opportunities to locate businesses; however,
there remains a large inventory of land and buildable square footage within both the Hollymead Town
Center and the greater Hollymead Development Area to support future business needs.
Relationship between the application and the purpose and intent of the requested zoning
district
PDMC districts allow for the development of large -scale commercial areas with a broad range of
commercial uses under a unified planned approach. The PDMC district is intended to be established on
major highways in the urban area and communities in the Comprehensive Plan.
6 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
Under the approved zoning, Blocks IV would be developed as a mixed use area consisting of a
minimum of 32,000 square feet of non - residential uses and between 15 to 30 residential units.
Block VI would be used to provide parking for the development in Block IV. A central plaza
would be provided in Block IV that would serve as a public space amenity. This concept created
a mixed use block which would provide a transition from the more intensely commercial portion
of the town center east of the this site to the residential block just to the west of, and adjacent
to, this site.
The applicant's plan for this area would increase the number of permitted residential units
(townhouses) in these two blocks from the current maximum of 30, up to 74, and provide no
commercial or office space /building(s) within these blocks. More dispersed greenspace and
courtyard areas are proposed within the blocks providing some similar features, but in a form
more in keeping with the needs and expectations of a residential neighborhood.
The following is staff's assessment of the proposed changes:
The proposal creates a larger, more cohesive residential area, essentially expanding the
small block of existing townhouses located at the western edge of the development. The
existing block of townhouses is somewhat isolated from other residential areas. This
residential area is within walking distance to commercial areas.
A "transitioning" mixed use block is not provided. While it is more desirable to have this
transition, it is not seen as critical in this location.
The elimination of the minimum non - residential square footage is not seen as a
significant issue. Significant area (and existing development) remains available for non-
residential uses within the Hollymead Town Center, much of it within a short walking
distance from this site. Non - residential uses would still be permitted within the blocks,
permitting the conversion of some units in the future to commercial or office uses.
The central amenity has changed in form, to some extent, from being located within a
more commercial "public" area to pockets of space within residential neighborhoods.
However, the features called for under the current zoning are being provided and all
residents of the town center will have access to the spaces. The open space area as
proposed is more in keeping with the needs and expectations for a residential area.
This amendment does not change the maximum number of residential units allowed in
Area C (120).
Staff can support the proposal. Approval of a townhouse development in these two blocks,
combined with the existing block of adjacent townhouses, will create a larger more cohesive
residential area that will not only meet the markets current demand for town houses, but will
generate users within walking distance to the existing commercial uses in the Hollymead Town
Center. As previously described in this staff report, there remains adequate space in the
Hollymead Town Center for additional non - residential uses in the future, and based on
approved plans for Areas A, B, C and D. The original form of the greenspace is somewhat
changed from a central plaza to greenspace that is more dispersed throughout different spaces
in the blocks. Although it is changed, the greenspace will remain an important feature for a
majority of the proposed residential units.
7 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
Anticipated impact on public facilities and services
Streets:
The following engineering concerns are provided relating to the proposed street design for the subject
development:
Engineering staff is concerned that the existing Timberwood Boulevard has not been accepted
into the state highway system by VDOT. The County Engineer does not recommend new
development that accesses Timberwood Boulevard be approved until the road is completed and
accepted by VDOT. The applicant has indicated that he is working with VDOT towards road
acceptance. The applicant believes the road will be accepted by VDOT in a timely manner and
is not necessarily interested in providing a possible solution such as proffering no building
permits until the road is accepted into the state system. Since this rezoning request does not
propose any intensification of use or additional impact to the road above what could be done by-
right under the current zoning, staff does not believe this issue needs to be addressed with this
rezoning.
The road centerline radius that has been provided shows the entire curve has been left open on
the right side. Entrances to lots should use standard VDOT driveway entrance details. Leaving
large sections of road frontage open does not meet standards. (See Attachment D for
Engineering comments). These issues will need to be addressed at the site plan /subdivision
plat approval stage.
VDOT has not identified any major issues with this proposal. They have noted that the proposed
entrance onto Meeting Street will need to be constructed in accordance with the standards of Appendix
F of the Road Design Manual for commercial entrances, which will be addressed at the site
plan /subdivision plat stage. (See Attachment E for comments from VDOT)
Schn�ls�
Students living in this area would attend Baker - Butler Elementary School, Sutherland Middle School,
and Albemarle High School.
Fire and Rescue:
This area is served by the Hollymead Fire Station.
Utilities:
The site is serviced by public water and sewer. This proposal has no affect on this service.
Anticipated impact on environmental, cultural and historic resources
There are no anticipated impacts from the proposed amendment on environmental or cultural and
historic resources.
Anticipated impact on nearby and surrounding properties
There are no anticipated impacts from the proposed amendment on nearby and surrounding properties.
Public need and justification for the change
According to the applicant, the proposed housing will meet market demands for residential units within
close walking distance to a mixed use community /town center. The subtraction of non - residential uses
in Block IV will reduce future opportunities to locate businesses in this block, but it does not preclude
businesses from locating to this block in the future; Hollymead Town Center and the greater Hollymead
Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
Development Area have the potential, with available land and approved plans, to support future
business needs. The proposed amendment will also provide the applicant an opportunity to develop
Block VI with a residential use instead of reserving the site for un- needed parking for Block IV.
PROFFERS
The applicant has provided revisions to the proffers from ZMA200100020. The proposed changes to
the proffers are intended to 1) update the references to the proposed COD and application plan, and 2)
update the status of those proffers which have now been satisfied (See Attachment C for revised
proffers). While there are no major substantive issues with the proposed proffers, technical revisions
are needed to the form and language of the proffers. The proffers should reflect the complete language
as referenced in the original proffers with revisions made to the dates for this amendment.
Area C of the Hollymead Town Center was approved for a maximum of 120 townhouses to be located
within various blocks of Area C. This maximum is not being changed or exceeded by this rezoning
request. Since there is no change to the number of residential units proposed, there are no additional
impacts to public facilities or services are anticipated by this rezoning request. Consequently, no
additional cash proffers are anticipated since there are no additional impacts to the public facilities.
Likewise, no further commitment to affordable housing is anticipated since no additional residential
units are proposed.
SUMMARY
In general, the primary changes to this rezoning request is the re- location of residential units from one
block to another, and the elimination of a minimum 32,000 square feet of non - residential uses in Block
IV as depicted in the COD. The proposal remains consistent with the original intent of the zoning
district, density and land use. In summary, staff can support the proposed rezoning amendment.
Staff has identified the following factors, which are favorable to this request:
1. The rezoning request remains consistent with the Comprehensive Plan and no
changes to uses are proposed.
2. Proposed townhouse development in Blocks IV and VI are consistent with existing
residential development adjacent to the site and will create a larger and more
cohesive residential neighborhood that is close to a walkable center.
3. The original maximum number of residential units is unchanged.
4. Sufficient non - residential land use capacity/ development potential remain within the
Hollymead Town Center
Staff has identified the following factors which are unfavorable to this request:
1. Loss of non - residential space /mix use form within these blocks
2. Technical revisions are needed to proffers, code of development, and application
plan.
RECOMMENDATION
Staff recommends approval of this rezoning ZMA2013000004, Hollymead Town Center -
Block VI, provided technical revisions are made to the proffers and changes are made to the
application plan and code of development as described in the staff report prior to the Board of
Supervisor meeting.
9 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
ATTACHMENTS
ATTACHMENT A — Location Map
ATTACHMENT B — Application Plan, dated March 18, 2013, revised June 04, 2014
ATTACHMENT C — Code of Development, inclusive of proffers, dated July 25, 2003, revised April 21,
2014
ATTACHMENT D — Memorandum from Glenn Brooks dated July 14, 2014
ATTACHMENT E — Electronic Mail from Troy Austin, dated May 14, 2014
PLANNING COMMISSION MOTION:
A. If the ZMA is recommended for approval: Move to recommend approval of ZMA201300004 with
revised code of development, and provided technical revisions are made to the proffers, and changes
are made to the application plan as recommended by staff, prior to the Board of Supervisor meeting.
B. If the ZMA is recommended for denial: Move to recommend denial of ZMA201300004. Note
reasons for denial.
10 Hollymead Town Center, Block VI
PC Public Hearing 7/29/2014
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ATTACHMENT II
To: Wayne Cilmiberg
Director of Planning
Albemarle County
Charlottesville, VA
September 11, 2014
Re: Block VI Plan revisions for Planning Commission review.
In an effort to address the comments of the Planning Commission regarding the request to increase the
open space and remove lots 17 -21, we have modified our plan by removing the lots in that area and
increased the open space as requested. In addition, we have relocated two of the lots in question to the
front on Meeting Street by realigning the entrance to the alley behind the townhomes. This increases
the amount of townhomes along the frontage from 8 to 10. The number of units along the second row
from Meeting Street decreased from 10 to 9. Along the opposite side of the playground, the amount of
units decreased from 9 to 6. This results in a total of 42 units that we are requesting to be approved
with this plan. We effectively added an additional 5,600 square feet to the previously existing open
space thus making the wooded and grass area on the approach to the lot greater in size in order to
accomplish a more effective open space system and to unpack what would be an otherwise crowded
and congested development.
I hope this meets with the Planning Commission's approval during the next review.
Thank you,
Katurah Roell