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HomeMy WebLinkAboutSP200800032 Legacy Document 2009-01-29 (3)Central Virginia Recycling Center Albemarle County, VA Request and Justification for a Special Use Permit SP # 2008-00032 Submitted by: Terra Concepts, P.C. Revised on November 17, 2008 F Table of Contents I Nature of the Request 1 II Search for the Right Location 2 III The Property 6 IV The Concept Plan 7 V Noise 11 VI Performance Standards 14 V Summary 15 VI Appendix 17 Central Virginia Recycling SP -2008-00032 Request and Justification Narrative E Central Virginia Recycling SP -2008-00032 Request and Justification Narrative I. Nature of the Request For decades, Vess Excavating, Ltd. has served the local development community by providing quality site contracting services. Almost all projects that they undertake include some degree of clearing of vegetation. In some instances acres of trees and brush have to be removed to permit grading and subsequent installation of infrastructure and buildings. As a result of land development a significant quantity of "natural waste" is generated, which needs to be disposed of. Historically, this native material is either burned or buried on-site or transported to the local landfill. The quantities of imported natural waste can, at times, tax the landfill, taking up volume that could otherwise be used for domestic and commercial trash. Trips to the local landfill also cost contractors money in terms of time, fuel, and tipping fees. Faced with the time and expense of trucking waste to the landfill contractors have oftentimes decided to bury or burn the by-products of land clearing. Neither alternative is desirable in that the former will compromise the integrity of the land for a myriad of other uses and the latter introduces pollutants into the air in the form of smoke, dust, and odor. Appropriately, because of the noxious effects of burning and the drought conditions that regularly plague our area, burning is now a highly restricted activity. Robert L. Vess, owner of Vess Excavating, Ltd. has owned and operated a mobile tub - grinding operation for several years. Contractors, developers, and landowners have retained him to travel to a particular job site and reduce the cleared vegetation to a mulched state. This process occurs in dirty, and sometimes muddy, conditions. The material going into the grinder includes soil and rock. The product of the grinding is course, usually dirty, and oftentimes ends up piled on bare soil, in huge mounds that go unattended. This rough material is still considered a by-product and is largely unmarketable for the use as mulch. Consequently, it ends up having to be uneventfully disposed of. Mr. Vess recognized that the "natural waste" that was being disposed of in a costly manner should actually be viewed as a "natural resource" and that a properly designed and managed facility could be created that not only serves as a recycling center for wood resources, but also as an outlet for sale of recycled wood products. He formed Central Virginia Recycling, Inc. (CVR) to meet the need for wood recycling in this area. This transformation of wood by-products into wood products is not new. In fact, there are other facilities currently in operation across the nation who specialize in this process. Mr. Vess has educated himself about the wood recycling business and devised a method for scaling an operation of this nature down to a size that is appropriate to the local marketplace and suitable to this site. Recycling ventures succeed in part because our evolving culture is receptive to the concepts of protecting the environment and sustainable practices. Some folks will go out of their way to practice recycling on a personal level, but they remain a minority. Many more participate when it is made convenient for them to do so. Taken a step further, the Central Virginia Recycling Request and Justification Narrative SP -2008-00032 introduction of financial incentives makes recycling programs at once very attractive and successful. The business plan for CVR is crafted around the premise that it will be less expensive to bring natural waste to their site for recycling than it would be to pay the tipping fees at the landfill. Given the control CVR will have over the quality of products coming in and the handling of that material through the recycling process, CVR's products will meet or exceed the highest standards of the mulch industry, which is practically impossible if the processing occurs in a mobile format on job sites. II. Search for the Right Location The idea of a wood recycling center is rather attractive in terms of waste management and sustainable practices. Finding a reasonable location to host such a facility was viewed as the most difficult challenge. Many times Mr. Vess has witnessed land use applications being denied upon the basis of a "good plan — wrong location." He did not want to set himself up for the same response. He went about compiling a list of the attributes that he felt would be characteristic of a location that would be the least intrusive on the community while at the same time ensure the viability of the business part of the venture. Foremost among the attributes were Zoning, Size of the Property, Existing Vegetation, and Location within the Community. Because his business was new and somewhat unusual he began by asking the local planning office for an official determination of how his enterprise would be defined for zoning purposes. It was later determined that his business would fit the definition of "sawmills, planning mills and woodyards. " Further research showed that these uses are permitted by -right only in Heavy Industrial (HI) districts. Not unexpectedly, they were also permitted by Special Use Permit (SP) only in the Rural Area (RA) districts. Realizing that the path of least resistance lay in finding a parcel zoned HI, Mr. Vess asked his land use consultant to query the Albemarle County land use database for HI - zoned properties. Appreciating the land area his operation would require Mr. Vess instructed the consultant to seek properties that were over 30 -acres in size. This would allow half of the property to serve as a buffer area between his operation and any adjacent industrial uses. The buffer's purpose was to insulate his need for a rather controlled environment from that of other industrial activities. As it turned out there we no HI -zoned properties identified as being unused that were between 30 and 100 -acres. Lowering the standard to a minimum of 1 -acre resulted in eighteen hits. Six of these properties appeared to already have an industrial land use on them. Eight others are listed as having a value of improvements on the land of less than $20,000. This was understood to mean that these eight parcels were either undeveloped or had no building improvements on them. It can be assumed that the remaining four, although zoned HI, were occupied by improvements that supported non -industrial uses. A summary of this research and specifics on the parcels identified is included in the appendix. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 Mr. Vess began his quest for HI -zoned land in Albemarle County, but eventually had to expand that search to include both Greene and Louisa Counties. Three suitable sites had been identified and purchase agreements were pursued. Each time something hasn't worked out and the sale has fallen through. It was after these failed attempts that Mr. Vess began looking to the rural areas for opportunities. He understood that the Albemarle County policy is to direct growth toward the designated growth areas, but he viewed his facility as non -compatible with many of the uses planned for the growth area. Furthermore, to ensure that the CVR operation was not intrusive to growth area uses he would have to purchase an even larger parcel, setting aside much of it as buffer. He considered the consumption of that much property a waste of the land resource within a growth area. Because sawmills have always been considered an appropriate use in the rural areas he refocused his search to find a suitable location in a rural area of Albemarle county. Mr. Vess was aware that some might consider the establishment of his business in a rural area as "growth," but the fact of the matter is that certain land uses are anticipated and permitted to occur within RA zones, sawmills being one. The Special Use Permit process that applies to this use in that district is an indication that the County wants to take a harder look at any proposals of this nature. Furthermore, the Supplementary Regulations found in Chapter 18, Section 5 of the Albemarle County Zoning Ordinance includes Section 5.1.15 which is specifically dedicated to restrictions that are to be placed upon sawmills. These five paragraphs outline certain limitations that the County views as necessary to ensure that sawmill operations do not blatantly impact adjoining property. Central Virginia Recycling's proposed operation is clearly an ag-forestal-based business and should therefore be considered a reasonable proposition in a rural area given the right conditions and the ability to meet both the applicable Supplementary Regulations. Also, on Mr. Vess' mind was the need to preserve the rural character of the area, particularly if he was to choose a site near to, or off of, an Entrance Corridor. Residents of a largely rural area have become used to country living. His choice of property would have to include considerations beyond that of his own facility. Here again, he would be accountable to the owners of adjacent property. He would require a large piece of property in the middle of which he could locate his operation. Restrictions as to the use of the balance of the property may have to be imposed and the activities of his business would most certainly have to be screened from the public roadway. There would be performance standards to meet (or exceed) and Department of Environmental Quality (DEQ) permits and inspections that would apply. He would be looking at a considerable investment in land to make the plan work and everywhere he looked there were always homes and farms. He turned to his list of the attributes that made for a suitable location. With zoning already having directed him to this juncture his search narrowed to the parameters of size, vegetation, and position within the community. He knew that if he set up shop out in the boondocks he would have a difficult time getting customers to patronize his facility. Not only would it be inconvenient for regular customers, but new customers could literally get lost looking for CVR. The farther away CVR was from future growth areas, the more Central Virginia Recycling Request and Justification Narrative SP -2008-00032 3 it would cost in time and fuel to get to this facility — making the landfill, burning or burying more attractive as alternatives. A location down a secondary or tertiary roadway would undoubtedly involve truck traffic rolling past numerous homes, some of which would likely be proximate to the roadway. Ideally, his facility would be located immediately off of a primary roadway, making it easier for folks from all over Albemarle County to find and access. In the best scenario very few houses would be located close to this stretch of primary roadway and a safe means of private, paved access back into the property could be established. If the property were located near an interstate interchange that would enable much of the traffic to forego travel on the primary roadway until they got to within a few miles of the facility, speeding up travel time for them and reducing the degree of impact on those living and regularly using the primary roadway. In terms of the physical features, rolling terrain would provide a means of screening activity from roadways and adjacent properties. It may also play a role in noise abatement. Tree cover was deemed very desirable. Hedgerows, if available could screen open areas where his stockpiling would occur. Dense, mature woodland would be ideal for a limited clearing and grading effort that placed his buildings, machinery storage, incoming raw material piles and the heaviest grinding operations out of sight in the trees. Certainly the forest would also provide noticeable mitigation of noise, glare, dust, and other by-products of this type of enterprise. If he could accomplish all of this in the middle of a large parcel he could justify setting aside the balance of a site into a buffer area It involved several months of searching and inquiry, at times door-to-door, to locate what Mr. Vess considered a proper location for Central Virginia Recycling. Finally, a site was located that appeared to meet the parameters outlined by Mr. Vess. The properties are legally described as TMP's 94-21N and 94-21N1, totaling just over 100 acres. The property is largely woodland comprised of mature hardwoods with some interspersed evergreens. Open areas are defined by maturing cedar hedgerows running along fence lines or mixed tree cover associated with creek beds. The land slopes primarily east- southeast to west-northwest with the high ground lying within the woods along the eastern boundary. Several ravines run through and continue out of the woods in an east- northeast direction. Some carry water from springs and deserve protection. The various swales are interrupted by gentle ridgelines, some of which are suitable for limited development. The combination of tree cover and rolling terrain provide an ideal opportunity for screening of this activity from most directions. A water well that issues 23 gallons -per -minute was previously installed within the northernmost quarter of the property. The yield from this well would certainly meet the needs of the new facility. Due to the lay of the land and the well's location on the property, professionals have determined that the existing well draws on a different fracture zone than most of the other neighboring wells. Use of the well for these purposes would therefore have minimal or no affect on the adjacent water wells. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 4 The property has frontage along both Route 250 and Three-Chopt Road. Access to the proposed facility would be primarily from Route 794 and improvements to the intersection of these two roads are envisioned as a prerequisite to the issuance of an entrance permit. A paved travelway could be constructed from the state road to a check point roughly twelve -hundred feet or nearly one-quarter mile inside the property. Strategically located gates at the check point and at the entrance off of the state road could effectively control access to the site. A modest caretaker's residence could be included as part of the office/shop complex back in the woods or separately so that the facility could be policed around the clock. The site seemed to present a solid opportunity for CVR. The next steps were to take a harder look at the site in terms of facility layout, impact of the development on the property, and the impact this operation could have on adjacent property. A plan has been developed for the new Central Virginia Recycling facility. It is the culmination of several months of conceptual design and redesign in an effort to achieve the most non -intrusive solution. That diagram, entitled Concept Plan, along with an aerial map of the property, is included as an exhibit on the following pages. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 III. The Property Below is an outline of the subject property. The arrow points to the specific area of the parcel upon which the recycling facility is proposed. Buildings are to be placed, and delivery of raw materials and grinding activity are to occur, within the wooded area. Aging and final product stockpiling are planned in the open area. Limited clearing of the site is required to accomplish the program. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 6 IV. The Concept Plan On the following page is our proposed Concept Plan. It illustrates the area intended to be part of the Special Use Permit, as well as describes the other areas within the overall property. Furthermore, it shows how the site will be served off Route 794 and where the designated areas in which the material will be received, processed and handled and stored during the overall wood recycling process. The Concept Plan shows the operational component too (i.e. office/shop) and indicates surface material and land use data. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 Central Virginia Recycling Request and Justification Narrative SP -2008-00032 INSERT CONCEPT PLAN HERE Central Virginia Recycling Request and Justification Narrative SP -2008-00032 Central Virginia Recycling Request and Justification Narrative SP -2008-00032 10 V. Noise In addition to the specific restrictions placed upon sawmills, the General Regulations found in Chapter 18, Section 4 of the Albemarle County Zoning Ordinance includes Section 4.18, which specifically addresses noise. This is a broad -reaching code section encompassing seven pages. According to the text this section applies to any land use that generates noise within Albemarle County. Its goal is to limit noise impact not only on property within Albemarle County, but beyond. This section defines certain terminology associated with the science and analysis of noise, describes procedures and formulae for measuring noise, sets appropriate limitations for noise levels at property lines, and exempts certain sounds from the code requirements. Every single land use within Albemarle County must meet these criteria on an on-going basis. Proposed land uses aren't typically required to prove that they will meet these parameters before receiving a permit. It is understood that these are the acceptable noise limits and if you exceed them your activity will have to cease. In the case of CVR and the subject property, the surrounding land is considered rural area. Therefore, the maximum sound level that could be imposed upon neighboring property is 60 decibels (dBA) during the daytime (7 am to 10 pm) and 55 dBA during the nighttime (10 pm to 7 am). Respecting that the recycling operation will generate noise Mr. Vess invited members of the Planning Commission, Board of Supervisors, staff, and neighbors to an on-site meeting at which he informed attendees of his proposal and demonstrated the equipment that performs the grinding process. The demonstration could not be undertaken at the exact location of the proposed grinding operation because this area is currently heavily wooded. Therefore, the pieces of equipment involved in the demonstration were placed adjacent to the woods, but closer to the nearest property line than planned. The material used for the grinding demonstration was of the exact same character that would be processed at this recycling center. Comparatively, to all the pieces of equipment used in the overall recycling operation, both the tub grinder and the excavator used in this demonstration are considered the two pieces that would generate the bulk of the noise. Prior to the demonstration, baseline noise level readings were taken at many of the adjoining homes, at several locations along the property boundary, and elsewhere on site. An Extech Instruments (Model #407764A) industry -standard Type II digital sound meter instrument as used for the sound study. This high -accuracy meter meets both ANSI and IEC 651 standards. Once baseline readings were established the grinding demonstration was held. During the time the equipment was being used, the Applicant took noise meter readings using the same equipment at many of the same locations. Also during this demonstration, the Albemarle County Enforcement staff conducted separate tests with their own equipment at certain on-site locations. In only one instance did the test indicate that the noise levels exceeded 60 dBA at the property boundary. That reading was 69 dBA and it was taken directly opposite the equipment on the opposite side of an open Central Virginia Recycling Request and Justification Narrative SP -2008-00032 11 field and in front of an evergreen hedgerow. That location was roughly 13' lower in elevation than the test site. The differences in noise levels elsewhere on and off the property were very small and did not approach the 60 dBA limit. The results of the noise study are reflected on an exhibit located in the appendix of the Certified Engineer's Report. This demonstration showed what Mr. Vess expected all along; that the grinding and other initial processing of resources would have to occur within the wooded portion of the site where added distance, topography, and tree cover could further abate the noise levels. It is not the intent of Central Virginia Recycling to generate unnecessary noise or to maintain noise levels throughout the day. A quick analysis was done of the truck traffic expected to patronize the facility once it was operational and stocked with processed material. By Mr. Vess' estimates no more than fifty -(50) tandem -axle trucks would come to the site during any given day. They would bring raw materials consisting of brush, stumps, and clean wood pallets. On average, each truck's payload would be between 10 and 11 cubic yards (CY). This maximum daily influx of material would then equate to roughly 2,750 CY. The grinding process, which arguably generates the most noise, would be performed in shifts, and not piecemeal as each truck arrives. In fact, the process will likely result in the grinding taking place for a period of several hours one to four days per week depending upon the volume of incoming product. The tub grinder processes an average of 400 cubic yards per hour. While there are times when it has to run slower, one can see that processing of 2,750 CY of raw material will not require continuous grinding. It is important to note that the quality of product Central Virginia Recycling is proposing to produce is much higher than what can typically be created on a job site. Removal of dirt, rock and other impurities are possible when once has control over the facility and process. A second grinding is performed by an inline grinder and the coloring process is accomplished by a trommel. These machines generate less noise than the tub grinder, but the time of operation required for these pieces of equipment also need to be accounted for in the overall grinding schedule. It is possible that moving the grinding operation into a wooded setting and further from the western property line will not bring the entire recycling operation into compliance with the noise limits. Mr. Vess and his consultants are exploring supplemental measures that could be implemented to further reduce noise levels. These measures include, but are not limited to, planted berms, structural noise barricade walls, and noise abatement blankets, all located close to the noise source. Unfortunately, there are no means of definitively determining what the noise levels will be from this facility until it is operational. Regardless, it was important to Mr. Vess that he performs some degree of research and demonstration to confirm that his being able to unilaterally conform to the noise ordinance was relatively possible. He also fully expects that his operation will continue to receive constant scrutiny. The facility is expected to limit operation to Monday through Friday, 7:00 am to 5:00 pm and Saturdays from 7:00 am to 1:00 pm. No grinding or processing is to take place over the weekend. Once Mr. Vess can evaluate the initial operational logistics of the facility he will be open to considering self-imposed restrictions on material processing, both in Central Virginia Recycling Request and Justification Narrative SP -2008-00032 12 terms of days of the week and hours of the day. Of course, all of this presumes he is already meeting the noise limits. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 13 VI. Performance Standards Chapter 18, Section 4.14 of the Albemarle County Zoning Ordinance states that, "No use shall hereafter be established or conducted in any industrial district in any manner in violation of the following standards of performance. " While this proposal does not involve a "use" in an "industrial district" one could surmise that the nature of the proposed enterprise would suggest that these performance standards should apply. This application assumes that these criteria need to be met on an on-going basis to permit the continued operation of the proposed recycling facility. Not only does this section of the ordinance list the categories and associated criteria that need to be met, but it also discusses the preparation and submission of a Certified Engineer's Report. The code specifically states that, "Each future occupant of an industrial character shall submit to the county engineer as precedent to issuance of a zoning compliance clearance a certified engineer's report... The county engineer shall review the applicant's submittal and make comment and recommendation prior to final commission action on the site development plan. " Relative to this proposal, a Zoning Compliance Clearance is applied for at the time a new use is established on a parcel, not during the consideration of a special use permit, for without the granting of the SP, the zoning would not permit the use. Even though no formal format or solid example of a Certified Engineer's Report is readily available, and these reports do not appear to be required for processing of a Special Use Permit, the Applicant has chosen to offer for advance consideration their best attempt at such a report. This report has been provided as an attachment to this submission. Within this report the Applicant is to provide a description of "the proposed operation, all machines, processes products and by-products, stating the nature and expected levels of emission or discharge to land, air and/or water or liquid, solid or gaseous effluent and electrical impulses and noise under normal operations, and the specifications of treatment methods and mechanisms to be used to control such emission or discharge. " Issues of noise, vibration, glare, air pollution, water pollution, radioactivity and electrical interference are all covered in a typical Certified Engineer's Report. The report for Central Virginia Recycling goes further to include discussion of such matters as water consumption, traffic, visual impact, trash collection, and chemical storage. Consideration of this special use permit should be predicated upon a review of this important information. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 14 VII. Summary Chapter 18, Section 31.2.4.1 of the Albemarle Coun . Zoning Ordinance discusses the issuance of special use permits by the Board of Supervisors and specifically states that they, "may be issued upon a finding by the board of supervisors that such use will not be of substantial detriment to adjacent property, that the character of the district will not be changed thereby and that such use will be in harmony with the purpose and intent of this ordinance, with the uses permitted by right in the district, with additional regulations provided in section 5.0 of this ordinance, and with the public health, safety and general welfare. " The special restrictions specific to sawmills are the first hurdle which applications of this nature must clear. The special setbacks and operating limits help ensure that basic protections are provided for. Noise is such a universal concern that it was given its own section of the ordinance. The detailed parameters governing noise are not so much focused upon the nature of the source, but rather the nature of the receiving area. This section, therefore, places a very high priority on assuring that any proposed uses do not excessively impact adjacent property. Meeting the requirements set forth for noise is the second hurdle. Third on the list of hurdles are the performance standards. Proposed facilities and activities must find locations and/or means by which they can meet or exceed the limits and expectations of these criteria. While these are designed to apply to uses within industrial districts it says a lot about an Applicant when they subject their land use proposal in an RA district to the litmus test of each and every issue. There are other hurdles on the horizon. Site planning and the process associated with design and engineering of the facility brings to light other limitations and requirements beyond those describe above. Securing these approvals is the logical next step. Thereafter, the Certified Engineer's Report has to be formally reviewed and approved. There are also DEQ and other permits that would need to be secured before an operation of this nature could be licensed. In other words, there are many steps to be taken and this is just the beginning of the journey. It is the issuance of a "permission slip" to move forward with the idea, recrafting it along the way so that it meets all necessary requirements and conforms to all associated regulations. CVR is willing to do whatever is necessary to ensure the operation remains in compliance. Considerable expense is involved in securing the land and establishing a facility of this nature. The equipment costs alone are significant and the carrying costs require that the operation remain open and operational full-time. CVR cannot afford to purchase a piece of property, construct the improvements and lease the equipment for a facility of this nature only to find out that they cannot meet the performance standards that are pre- requisite to their operation. Mr. Vess has gone through enough analysis to feel confident that this property has all of the characteristics and features necessary to operate a successful and compliant wood recycling operation of the magnitude he envisions. He feels that he can do so without placing undue hardship on adjoining property or changing the character of the area within which he will be locating. While placing a facility of this Central Virginia Recycling Request and Justification Narrative SP -2008-00032 15 nature adjacent to a large, 2+ -acre residential subdivision would be a mistake it seems that locating it a quarter mile off of a public road in the middle of a 100 -acre parcel in a largely rural -agricultural zone is logical and, with proper limitations, should be in harmony with the uses permitted by right in the RA district. Meeting the criteria set forth in the General and Supplemental Regulations and the "Industrial" Performance Standards should also ensure that the health, safety and general welfare of the community are preserved. Albemarle County's landfill is now largely a transfer station. Much of our waste is repackaged and sent to Amelia County. As a county we have delegated the responsibility for managing our own waste. It is not something to be proud of. It's important that we focus on what we can do in terms of waste management and the protection of our environment. Having a facility of this nature in Albemarle County accomplishes a variety of objectives. First, it sends a signal that we are concerned about sustainability and anxious to promote "green" business. Second, we would be providing landowners and business with an alternative to wasteful burning and burying of timbering by-products. Third, it would present an opportunity for our county to ban burning of brush in areas where it is deemed most noxious and, through the permit process, enable us to move toward recycling of certain materials associated with demolition. Furthermore, we would greatly reduce the amount of traffic and fill material being trucked to, and then out of, the Ivy landfill. Finally, and most importantly, we would be providing a less costly and more environmentally -conscious means of disposing of what has, up to this point been treated as waste material. The establishment of Central Virginia Recycling at this location would literally turn a county -wide negative into a positive by turning waste into a resource and a by-product into a product. Nothing but good things can come from that. Central Virginia Recycling Request and Justification Narrative SP -2008-00032 16 Central Virginia Recycling Center Appendix Documents Included: 1. Zoning Research (based upon the Albemarle County GIS information) Central Virginia Recycling Request and Justification Narrative SP -2008-00032 17 0 U) c 0 Z N U) U c 0 U a� L C� C Q U) 00 0 M r r O U Q O O O O O 0 0 0 0 0 0 O O O O O 0 0 0 0 0 0 O' o ' 0 6 ' O"" O O o 6 0 6 O O O O O 0 0 0 0 0 0 LO LO fl- ti � N N CO O ti r N N N CO m LO CO � 00 M�� N r r N O M LO M LO CO r r 61) 61) 61) 61) 613 61) 61) f? 613 Ef? H? H? H? Ef? H3 Ef), H? 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