HomeMy WebLinkAboutZTA200900001 Legacy Document 2009-09-30COUNTY OF ALBEMARLE
EXECUTIVE SUMMARY
AGENDA TITLE:
Wind Turbines — Zoning Text Amendment
SUBJECT /PROPOSAL /REQUEST:
Adopt Resolution of Intent and review
ordinance proposal prior to drafting an
ordinance amendment for public hearing
STAFF CONTACT(S):
Mark Graham
AGENDA DATE:
October 7, 2009
ACTION: X INFORMATION:
CONSENT AGENDA:
ACTION: INFORMATION:
ATTACHMENTS: Yes
BACKGROUND:
The purpose of this report is for the Planning Commission to adopt a Resolution of Intent and to
review the current ordinance proposal prior to a Planning Commission public hearing scheduled for
November 17, 2009.
On May 6, 2009, the Board of Supervisors (Board) and Planning Commission held a joint
worksession to consider an ordinance proposal and provide direction on how to proceed. Staff was
directed to draft an ordinance amendment, working in cooperation with Mr. Slutzky, Mr. Edgerton,
and Ms. Joseph and to maintain the previously approved Community Development work program in
scheduling this effort. Staff gratefully notes its appreciation for the help provided by Ms. Joseph,
Mr. Edgerton, and Mr. Slutzky in preparing an ordinance proposal.
STRATEGIC PLAN:
Goal 2: Protect the County's Natural Resources
Goal 4: Effectively Manage Growth and Development
DISCUSSION:
Based on the direction at the joint worksession and subsequent guidance by the
representatives of the Planning Commission and Board, staff has revised the previous April
2009 proposal. The revised October 2009 proposal is Attachment A.
Among the changes with this proposal are:
• A simplified administrative process that eliminates the need for a Special Use Permit
associated with height. It was recognized that a modification of Supplemental
Regulations would provide an opportunity for public vetting of any issues associated
with modifying the height without the need for the complex and expensive process
required for a Special Use Permit.
• Allowing small wind turbines in the Development Areas and Entrance Corridors as
part of a Tier 1 use. It was recognized that the proposed setback requirement results
in a much greater restriction on wind turbines than it would for other structures. That
assured there is no increased impact on adjoining properties.
• Restricting the use of wind turbines within County recognized Historic Districts and
Mountain Overlay. By placing this requirement in the Supplemental Regulations, this
assures wind turbines in those areas would be allowed only if a waiver of the
Supplemental Regulations is granted by the Planning Commission.
BUDGET IMPACTS:
This proposal would treat small wind turbines the same as other uses regulated by the
Zoning Ordinance's Supplemental Regulations. For Tier 1 applications, which only require a
Building Permit, staff believes the administrative costs are offset by the permit fees. For Tier
2 applications, staff recognizes the cost of such waivers or modifications does create some
additional cost to the County which is not offset by fees, the same as other waivers or
modifications of Supplemental Regulations. Staff anticipates the County will only see a
couple of Tier 2 applications per year for the next several years. With an anticipated staff
impact of 20 hours per application, staff believes this workload can be absorbed without any
need for additional staff or budget funding.
RECOMMENDATION:
1. Advise staff of any additional changes the Planning Commission wishes to see
with an ordinance presented for public hearing.
2. Adopt the Resolution of Intent provided in Attachment B
ATTACHMENTS
A- October 7, 2009 Ordinance Proposal
B- Resolution of Intent
C- May 6, 2009 Executive Summary
Attachment A
Wind Turbine Outline
October 7, 2009 Proposal
Definitions:
Small Wind Turbine - A wind energy conversion system used for the generation of power to
support an allowed activity on the property. This includes all components of the system such as the
tower, guy wires, wiring, rotors and turbine blades, generators, and control systems. The small
wind turbine may be connected to a public utility and sell power to that utility provided the power
sold is not in excess of that typically used for the primary use on that property.
This definition effectively restricts small wind turbines to an accessory use of the property. For
those turbines that are an accessory to a single family residence or agricultural use, no site plan is
required per 18 -32.2 of the Zoning Ordinance. For other uses (e.g. power for a commercial
greenhouse), there would still be a site plan requirement to satisfy before a building permit for the
small wind turbine could be issued.
Tier I
A small wind turbine located on property within any zoning district except within a County
recognized Historic District or within the Mountain Contour List as defined in the County's
Comprehensive Plan.
A Tier 1 system would be considered a "by right" use, subject to the conditions in the Supplementary
Regulations of the Zoning Ordinance but administratively handled with minimal cost to applicants.
These facilities are anticipated to result in very little or no impact to the community and would have
minimal costs associated with County requirements.
Tier II
A small wind turbine that does not qualify as a Tier I, requiring the Planning Commission to waive
Supplemental Conditions for the use. This would include situations such as a system within a
County recognized Historic District, reduced setbacks, or height above that allowed for buildings in
that zoning district.
This would require the Planning Commission waiving a condition of the Supplemental Regulations.
The administrative cost for such a system would be considerably higher than a Tier 1.
Supplemental Regulations for Small Wind Turbines
Within Section 5 of the Zoning Ordinance (Supplementary Regulations), establish conditions for
wind turbines. As a Supplementary Regulation, the Planning Commission may waive or modify
these conditions, for a Tier II facility. This provides the simplest oversight for situations where
project specific conditions may require special consideration. The following are the recommended
conditions:
Small wind turbines are an allowed use within any zoning district, except within
County recognized Historic District or the Mountain Overlay District.
This makes wind turbines a "by right" use within any zoning district and allows the
Planning Commission to decide if the use is appropriately sited in the overlay district
where the potential for conflict is higher.
2. Require a minimum setback from property lines of the height of the structure, plus
twenty feet. It is recommended this include a provision for an administrative waiver
where the applicant has demonstrated to the satisfaction of the Agent and County
Atoorney that the adjoining property owner has agreed to restrict development within
that part of their property that would be within this setback distance.
This allows a margin of safety for structure collapse and ice throws from turbines.
3
3. Prohibit collocation of personal wireless service antenna.
This avoids situations where wind turbines might be constructed to circumvent
wireless facility ordinance requirements rather than being primarily intended for
generation of wind energy.
4. Prohibit all lighting of the wind turbine and tower.
This restriction recognizes the dark skies provisions in the Comprehensive Plan.
Prohibit wind turbines within the Entrance within the Mountain Contour List as
defined by the Comprehensive Plan . This assures oversight by the Planning
Commission for visual impacts within the Entrance Corridors and mountains. Within
the EC, the Planning Commission may also request input from the Architectural
Review Board before considering a request.
Height Restrictions
Under the Supplemental Conditions for small wind turbines, add a provision for small wind turbines
to meet the height limits within the underlying zoning district. Thus, the Planning Commission could
modify this requirement.
Unlike previous proposals, this eliminates the need for a Special Use Permit, which greatly reduces
the administrative burden for the County and the cost to the applicant while still assuring there is a
process where exceptions are vetted in public.
Administration
A building permit is required prior to the County permitting construction of a small wind turbine. A
site plan may be required before a building permit application is submitted per 18 -32.2 of the
Zoning Ordinance for those uses that are not exempted from the site plan requirements. . The
following information must be provided with the building permit application.
1. A plat of the property that clearly shows the boundary lines, location of the proposed
small wind turbine, and setbacks to the property line.
2. Plans that clearly show the total height of the proposed structure and satisfy all
provisions of the Building Code.
3. A signed and notarized affidavit using a County form that demonstrates the small wind
turbine will be used to support an allowed use of the property and assures the small
wind turbine shall be removed if the supported use is ended.
Tier I -
A Tier I small wind turbine is a "by right" use and will typically only require a building
permit.
Recognizing administrative costs can be a significant deterrent to use of small wind turbines,
this provision attempts to keep that cost to a minimum.
Tier II -
A Tier II small wind turbine shall require Planning Commission approval of a waiver or
modification of the conditions in the Supplemental Regulations prior to approval of a building
permit or site plan. As part of approving a waiver or modification, the Planning Commission
may establish reasonable conditions to assure the ordinance intent is maintained. If the
commission denies an application, it shall identify which requirements were not satisfied and
inform the applicant what needs to be done to satisfy each requirement.
Recognizing site specific considerations may suggest a small wind turbine should be allowed,
the Planning Commission can waive or modify the requirements as related to setbacks, zoning
districts and overlay districts, collocation of antenna, lighting, and height. Depending on the
submission requirements, the cost of this application may be a significant deterrent to
applicants constructing small wind turbines.
4
Attachment B
RESOLUTION OF INTENT
WHEREAS, wind turbines have been determined to not be accessory to primary
commercial, industrial and residential uses in Albemarle County because, historically, they have not
been customarily incidental to those primary uses; and
WHEREAS, the County of Albemarle desires to promote renewable energy sources such
as wind turbines; and
WHEREAS, it is desired to amend the Albemarle County Zoning Ordinance to permit
wind turbines that provide energy for the primary use or uses to which they are accessory in various
zoning districts under appropriate regulations.
NOW, THEREFORE, BE IT RESOLVED THAT for purposes of public necessity,
convenience, general welfare and good zoning practices, the Planning Commission hereby adopts a
resolution of intent to add to and amend the appropriate sections of the Albemarle County Zoning
Ordinance to achieve the purposes described herein; and
BE IT FURTHER RESOLVED THAT the Planning Commission shall hold a public
hearing on the zoning text amendment proposed by this resolution of intent, and make its
recommendation to the Board of Supervisors, at the earliest possible date.
5
AGENDA TITLE:
Wind Turbines
SUBJECT /PROPOSAL /REQUEST:
Review Staff's and the Planning
Commission's recommendation on wind
turbines
STAFF CONTACT(S):
Messrs. Tucker, Foley, Davis, Kamptner,
Graham, Fritz, Clark
LEGAL REVIEW: Yes
Attachment C
AGENDA DATE:
May 6, 2009
ACTION: X INFORMATION:
CONSENT AGENDA:
ACTION: INFORMATION:
ATTACHMENTS: Yes
REVIEWED BY:
BACKGROUND:
Staff and the Planning Commission have been working on a possible Zoning Ordinance
amendment that would permit wind turbines within the County. Examples of the types of wind
turbines being considered will be included in the presentation at the Board meeting. Currently, wind
turbines are neither permitted as a primary use nor as an accessory use in any of the County's
zoning districts. The purpose of this worksession is for the Board to receive a brief presentation on
the complexities of wind energy in Albemarle County, review the draft proposal outline as it
currently stands (Attachment A), and provide an opportunity to comment and give direction.
STRATEGIC PLAN:
Goal 2: Protect the County's Natural Resources
Goal 4: Effectively Manage Growth and Development
DISCUSSION:
Staff and the Planning Commission have not considered large commercial /industrial wind turbines,
but have limited their considerations to small wind turbines. Small wind turbines have been defined
as those that are used to provide electricity for uses on the property rather than those used
primarily for the sale of electricity (i.e., commercial "wind farms ").
Small Wind Turbine Issues
Based on its review of the literature, staff believes the following are important considerations for
locating small wind turbines in Albemarle County:
The visibility of monopoles and towers is one of the most common and usually the most
controversial land use issue, and small wind turbines may be visible. While most of the
concern is with large commercial wind turbines, concerns have also been noted with small
wind turbines, especially when they are proposed in areas of high aesthetic value, such as
mountain tops and land in or near a conservation easement. Another visual factor with
small wind turbines has been shadow flicker, resulting from the sun behind the rotating
I/
blades. This primarily is a concern with small wind turbines in close proximity to other
uses.
2. Small wind turbines create noise. It appears that the technology has significantly reduced
the noise levels with newer wind turbines, but noise concerns are still an issue when the
turbines are in close proximity to other uses. A whirring noise is often identified as an
annoyance in places where wind turbines are placed near residences.
3. Albemarle County has very limited areas where wind power will be cost effective, as most of
the County is considered poor for wind energy production. With this in mind, staff believes
that if wind turbines are to be encouraged in the County, it will be necessary to keep
County regulation of the use to a minimum and provide as much flexibility as possible.
Due to the marginal economic benefit that might be realized in low wind areas and the fact
that turbine technology and design are evolving, staff believes a rigid ordinance could
exclude some promising new technologies.
4. Turbine efficiency increases with height, and this is especially true when height is
necessary to provide wind clearance from nearby obstructions. Given the challenging
economics of wind turbines in this area, flexibility on the height of structures will be a critical
consideration. The literature indicates that turbine blades should be a minimum of thirty feet
above any obstruction within three hundred feet of the turbine. For example, if nearby trees
are seventy feet tall and the wind turbine blades are twenty six feet in diameter, the turbine
shaft should be at least one hundred thirteen feet above the ground to be considered
effective. This height can be reduced based on the local conditions.
5. The consequences of a tower collapse, ice throws, and noise should be taken into account
when considering the required clear zone and setback distances. The literature suggests
that most localities require a clear zone somewhere between one to three times the
structure height. For stand alone turbines, this would effectively limit wind turbines to
sparsely developed areas.
6. The telecommunications industry may seek to co- locate personal wireless service facilities
(cell phone antennas) on wind turbines. Because most wireless facilities in the County are
either attached to an existing structure (Tier 1) or are limited to a height not exceeding 10
feet about the nearest tree (Tier II), the additional height required for a wind turbine could
provide a tremendous incentive to co- locate these antennas on wind turbines. There are
still some technical issues with antenna co- location, such as vibration created by the
turbine's rotor blades, but those issues may be resolved in the future. Because a wind
turbine would likely be considered an existing facility under the County's wireless
regulations, the current Zoning Ordinance could allow an antenna to be co- located as a
"Tier 1 Facility ", which would be considered through an administrative process.
Comprehensive Plan
Staff notes that the most desirable location for wind energy production will be the mountain ridges,
and this appears to conflict with existing policies in the Comprehensive Plan. In particular,
elements of the Natural Resources and Cultural Assets section and the Land Use section of the
Comprehensive Plan have policies regarding the siting of structures in order to protect the natural
beauty of the mountains. These policies discourage structures that alter the continuity of the
ridgeline, that are located so that the structure is sky - lighted against the horizon, or that are taller
than the natural tree canopy.
Current Proposal
The current proposal outline is provided as Attachment A. This proposal attempts to balance the
policy issues through a tiered approach, similar to the way the County regulates and permits
wireless facilities. Tier I would be reserved for those small wind turbines that are anticipated to
have very low visual impact and be limited to the Rural Areas outside of the Entrance Corridors and
I
designated mountain areas. Tier II would require a modification of the regulations by the Planning
Commission in order to locate a small wind turbine in either the Entrance Corridors or the mountain
areas, but would not allow structures taller than otherwise allowed in the underlying zoning district
(typically thirty -five feet). Tier III would require a special use permit in order to build a small wind
turbine taller than otherwise allowed in the zoning district. This provides the Board the opportunity
to make discretionary decisions on those wind turbines anticipated to have the most significant
visual impact, particularly those in the Entrance Corridors or in the mountains.
BUDGET IMPACT:
No budget analysis has been prepared at this point.
RECOMMENDATIONS:
Staff requests that the Board provide direction to staff as to how to proceed with this proposal.
ATTACHMENTS
A - Planning Commission April 21 2009 report with attached proposal outline
B — Planning Commission April 21, 2009 Action Memo Work Session Summary
View PC minutes
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