Loading...
HomeMy WebLinkAboutSDP200700075 Staff Report 2006-06-13COUNTY OF ALBEMARLE EXECUTIVE SUMMARY Project Name: Mount Calvary Baptist Staff: Amy Ransom Arnold Church, SP 2006 -06 Planning Commission Public Hearing:Board of Supervisors Public Hearing: June 13, 2006 July 12, 2006 Owner: Mount Calvary Baptist Church Applicant: Mount Calvary Baptist Church Acreage: 1.46 acres Special Use Permit for: the construction of a new church building and additional parking in accordance with Sections 31 2.4.1, 10.2 2.35 and from Zoning Ordinance. TMP: 58A1 Parcel 20 12.2.2.15 Proffers / Conditions : yes EC: no Location: 3045 Morgantown Road, Ivy Depot By Right Use: Agricultural, forestal, and fishery;Magisterial District: Samuel Miller Magisterial residential, game preserves; wayside stands;District electric, gas, oil, and communication facilities; accessory uses including home occupation class A, temporary construction uses; public uses, etc. Requested # of Dwelling Units: n/a DA RA X Proposal: The parcel is located at 3045 Comprehensive Plan Designation: RA -- Rural Morgantown Road and is zoned Village Areas: agricultural, forestal, and fishery uses; Residential. The applicant has requested a Special residential density (0.5 unit /acre) Use Permit to allow for the construction of a two story, approximately 6,640 square foot (70' x 45'), church building and expanded parking area to support an increase in sanctuary seating from 135 to 200. The proposal includes the demolition of an 1890's church building currently located on the site (Attachement A.). Character of Property: The property contains an Use of Surrounding Properties: Small scale, 1890's frame church, a gravel entrance and single family residential buildings and small parking area, a modern cemetery to the south of farms to the north, east and west, with the the parking area, and a wooded area that includes railroad tracks along the south edge of the a portion of an historic cemetery identified as the property. Cooper Family Cemetery'. Factors Favorable: The retention of this Factors Unfavorable: The demolition of the congregation on this site, with its relationship to existing 1890's church. the surrounding community, its physical place within the crossroads community of Ivy Depot, and the historic significance of the congregation exemplifies support of Rural Areas goals that is integral to the fabric of the local community. RECOMMENDATION: Based on the findings contained in this staff report, staff recommends approval of Special Use Pen 2006 -06 Mount Calvary Baptist Church with conditions. Character of the Area: The segment of Morgantown Road (Route 738) where Mount Calvary Baptist Church is located is included in the area identified as the village of Ivy Depot. Among twelve villages included in the Historic Architectural Survey of Albemarle County Villages by Dames and Moore, Ivy Depot is an important example of an historic crossroads community (Attachment B.). The Comprehensive Plan identifies crossroads communities as fundamental to the fabric of rural Albemarle County. Morgantown Road, is one of the remnants of Route 39 (east /west precursor to State Route 250) that is still in use. The primary ways the history of this portion of the village of Ivy Depot is expressed is through narrow lots, buildings and site elements located close to the road, the scale of buildings and site elements, and in the narrow width of Morgantown Road. Small residences, small farms, and Mount Calvary Baptist Church occupy this length of Morgantown Road (Attachment C.) Mount Calvary Baptist Church has served and continues to serve as a focus for both the local community and the physical village of Ivy Depot. The congregation has been an active voice in the Ivy Depot community since it was established in 1869. As the visual focus of this portion of Morgantown Road, the placement and scale of the church building has been an integral part of the historic patterning of this crossroads community since the mid 1890's. Planniny_ and Zoning History: Tax Map and Parcel 58A1 -20 is the result of several transactions throughout the years. In early December 1894, the congregation of Mount Calvary Baptist Church purchased approximately .3 acres of land immediately adjacent to Morgantown Road on which the existing church was built. In February of 1985, Henry Hughes made a gift of the parcel formerly known as 58A1 -19, totaling approximately 1 acre, to the congregation of Mount Calvary Baptist Church. One of the boundaries described in the deed describes the church property based on a property to the west owned at that time by E. (Ephram) Cooper. Parcel 58A1 -19 contains a portion of the 1800's Cooper Family Cemetery, with the remainder of the cemetery extending into parcel 58A1 -17 which belonged to the Cooper family as early as the 1870's. (Attachment D.) In February of 2006, a property exchange between neighbor Oneida Smith and Mount Calvary Baptist Church consolidated and clarified the western property boundary in preparation for the proposed construction of a new church (SUB 2005 -379). STAFF COMMENT: Staff will address each provision of Section 31.2.4.1 of the Zoning Ordinance. 31.2.4.1: Special Use Permits provided for in this ordinance may be issued upon a finding by the Board of Supervisors that such use will not be of substantial detriment to adjacent property, Staff usually asks for rural areas churches to comply with Section 21, Commercial standards for setbacks and buffers. However, in this case there are identifiable circumstances that would warrant lesser setbacks on the west side. There is a retaining wall on the west side of the existing church with a grade change of approximately two or three feet, placing the parcel to the west of church property at a higher elevation. Given the difference in elevation and the fact that there are no parking setback requirements in Village Residential zoning district there does not seem to be a public benefit in imposing a parking setback in this area. The vehicular entrance into the site and parking are proposed along the eastern side of the new church building near the parcel boundary of the residence located immediately to the east. Staff is concerned about the proximity of the proposed parking to the neighboring house. In order to minimize the impacts of parked cars on the house located immediately to the east, staff recommends that the parking along the east property boundary begin no closer to Morgantown Road (Route 738) than the south face of the neighboring residence and that a mixed planting of trees and shrubs be located in place of the proposed parking area from the south face of the building north to Morgantown Road. 7 The Planning Division has been contacted by a near -by property owner voicing concern over an ongoing drainage issue that involves the church property. It is clear that the local topography includes a large swale that initiates near the church site and directs the flow of water to the southeast and across neighboring parcels. Current Development has indicated that existing drainage conditions are not addressed during the site plan review process, but that stormwater run off requirements do address any increase in runoff onto neighboring property. Staff has suggested to the applicant that the concerns of the neighbors to the east regarding stormwater run -off be addressed as part of their stormwater management plan. that the character of the district will not be changed thereby and The south side of this portion of the village of Ivy Depot is characterized by narrow lots, small scale residences (primarily wood frame) and site elements constructed of local materials, all arranged close to the edge of a narrow Morgantown Road. A few residences and a farm occupy the north side of this portion of Morgantown Road (Attachment C.). The church property contains an 1890's frame church with a standing seam metal roof and a stone foundation located 15 feet from the edge of Morgantown Road, a gravel entrance and parking area that is currently accessed from both the east and west sides of the church, a modern cemetery to the south of the parking area, and a wooded area between the modern cemetery and the railroad tracks that includes a portion of an 1800's cemetery identified as the `Cooper Family Cemetery'. Since the initiation of the Special Use Pennit process for this proposal, both Preservation Piedmont and the Virginia Department of Historic Resources have expressed concern over the proposed demolition of the 1890's church building and preservation of the Cooper Family Cemetery (labeled `Old Cemetery' on the concept plan). The applicant has indicated that the congregation of Mount Calvary has spent several years discussing options and raising the funds needed to build a new structure, or renovate the existing building in a manner that would support what is an active, growing church community. The importance of the history of the congregation on this site and in the existing 1890's church building is acknowledged by the congregation. The congregation indicates that the decision to demolish the existing 1890's church has not been an easy one for the congregation, though they have decided to pursue that course of action. The applicant has indicated that the existing church building has serious structural problems and has emphasized the need for a safe and accessible meeting place for the church congregation. Rural Areas Section of the Comprehensive Plan includes the importance of preserving rural districts and emphasizes the importance of cross roads communities in the overall fabric of Albemarle County. While the existing church building contributes considerably to the character of the site and to this section of Ivy Depot, it is staffs opinion that continuing the use on this site, with this historic and thriving congregation, and within the village of Ivy Depot is important to the local conununity. It is staffs opinion that maintaining the overall hierarchy of buildings along Morgantown Road, their placement related to one another and to the street, and their overall scale and material palette is of equal if not greater concern than the preservation of one building. Construction of the new church building will allow the congregation to remain on this site, preserving the historic relationship between the church and the local community. Mount Calvary Baptist Church has been active on the site for 137 years and has served as a focus for the community for much of that time. A church in this location, with its relationship to the surrounding community, its place within the crossroads connnunity of Ivy Depot, and the historic significance of the congregation exemplifies support of Rural Areas goals that is integral to the local community. In order to minimize disruption in the overall village pattern of Ivy Depot, to avoid featuring a parking lot at the Morgantown Road edge and to allow a church building to continue its predominant presence in the village, staff recornmends that the new church building be located as close to the footprint of the 3 existing church as zoning setbacks will allow. The standard Village Residential setbacks cannot be waived or modified without a variance from the Board of Zoning Appeals. However, Section 4.11.1 will allow a stairway or porch to project 4' into the front and side setbacks. The setback from Morgantown Road under Village Residential zoning is 25 feet measured from the edge of the prescriptive easement. This setback and allowance for front porch projections, when applied to the proposed church building, places the face of the new church 10 feet to the south of the face of the existing church. It is staffs opinion that the resulting building placement falls within an appropriate range for maintaining the physical continuity of the village of Ivy Depot. Given the proposed parking and drainfields located in the southern portion of the site, confinning the exact location of the Cooper Family Cemetery has been of concern to staff. The portion of the site that contains the cemetery is wooded, making the location and extent of the cemetery difficult to clearly determine. Dr. Lynn Rainville an anthropology /archeology faculty member of Sweet Briar College, specializing in identifying and mapping early African - American cemeteries in Virginia donated her time on behalf of the applicant and Albemarle County to locate the Cooper Family Cemetery. With the permission of the applicant and a neighboring property owner, Dr, Rainville has mapped not only the Cooper Family Cemetery, but the 20`" century cemetery on this site, as well as the historic Mount Calvary Baptist Church Cemetery located on a parcel adjacent to Murray Elementary School. Dr. Rainville's report on the Cooper Family Cemetery is included in this report (Attachment D.). Dr. Rainville has identified and mapped 50 graves on site and has indicated that there may be as many as over 100 individuals buried in the cemetery, but that the intensity of the undergrowth in April / May when the mapping occurred made total numbers difficult to assess. In order to preserve the Cooper Family Cemetery staff recommends that permanent fencing be installed on the portion of the perimeter of the cemetery known as the `Cooper Family Cemetery' that is located on the property known as Tax Map 58A(1) Parcel 20. Staff also recommends that the location and extent of the boundary of the `Cooper Family Cemetery' on Parcel 58A1 -20 be located in the field by Dr. Lynn Rainville and that the fencing be fully installed and functioning before any site disturbance occurs. that such use will be in harmony with the purpose and intent of this ordinance, A purpose of the Rural Areas District (Section 10 of the Zoning Ordinance) is "Conservation of natural, scenic, and historic resources." Allowing the congregation of Mount Calvary Baptist Church to continue its relationship to the surrounding community and maintain its physical presence within the crossroads conununity of Ivy Depot directly supports the conservation of both historic and scenic resources in the County. with uses permitted by right in the district, The property and the adjacent properties are zoned RA, Rural Areas. The uses permitted by right under RA Zoning directly support agriculture, forestry, and the conservation of rural land. The Rural Areas Section of the Comprehensive Plan includes the achievement, maintenance, and improvement of rural land patterning, including crossroads communities. Part of this vision includes the support of agricultural and forestal communities through community meeting places, at rural scales, that provide the opportunity to take part in community life. The construction of a new church building on this site will allow the congregation of Mount Calvary Baptist Church to continue to support local community life at a rural scale, as it has since 1869. with the additional regulations provided in section 5.0 of this ordinance, There are no regulations in Section 5.0 of the Ordinance that apply to church buildings and adjunct cemeteries. M and with the public health, safety and general welfare. The concept plan includes both primary and reserve drainfields and parking spanning a new cemetery and the wooded portion of the site that contains the Cooper Family Cemetery. The Health Department has indicated that in order to be approved, any portion of a parking area located above a primary or reserve drainfield must be paved and include a construction cross section unique to this condition. Drainfields must be located 5' minimum from the property boundaries, but there is no minimum distance required between a cemetery and a drainfield. Due to the increased traffic volume expected for Sunday services, Virginia Department of Transportation and the County Engineer have required that the ingress /egress from Route 738 (Morgantown Road) be consolidated into a single entrance that meets VDOT Minimum Standards for Entrances to Private Street requirements, which includes a 24' minimum travelway at the entrance. The concept plan includes an entrance measuring 20' wide. Staff recommends that the entrance width be adjusted to meet VDOT standards during site plan review. VDOT and the County Engineer have also required the addition of a 12'wide by 48' long right -turn taper for access to the entrance from eastbound Morgantown Road. The required taper is included on the concept plan. Route 738 lies within a 30' prescriptive easement centered on the roadway. The County Engineer has recommended the dedication to public use of a 15' right -of -way along the front of the property in anticipation of future improvements along Morgantown Road. However, after researching the conditions along Morgantown Road and determining that there are no other existing dedicated right -of- ways from Route 250 west to Murray Elementary and that there are no future plans to increase the width of Morgantown Road, both the County Engineer and planning staff has concluded that no public service will be served by dedicating a public right -of -way and recommends that the parcel remain as currently configured. Under section 4.12.6, the zoning administrator determines the number of parking spaces required for churches in the rural areas of the comprehensive plan. Based on the parking study submitted by the applicant, Zoning has established that required parking will fall somewhere in the range of 56 to 88 spaces. Zoning has suggested reducing the length of the parking spaces from 18 feet to 16 feet in any area where the parking will overhang grass, such as adjacent to the cemetery. The reduction in parking space length will not be appropriate when adjacent to areas containing required site plantings. Zoning has also suggested that the parking be angled, which is more space efficient. All of the parking shown on the final site plan will have to meet the standard determined for required parking. Waiver Requests: 1. The Albemarle County Code requires parking lots be surfaced (18- 4.12.15.a.). The applicant has requested a waiver of this requirement and proposes to use gravel as the primary surface for the parking areas on the parcel. The applicant has indicated that their primary concern in making this request is reducing stormwater runoff, consequently reducing the need for stornwater management facilities on a small site. The primary parameters for the VDOT computation method (specified in the Code) for designing the parking lot surface are the traffic volume (average daily trips) and the soil support value. Due to the lower average traffic volumes in rural area churches, the use of compacted gravel is generally an option. The specific design (type & depth of material) will be determined during final development plan review. Staff recommends approval of this waiver. 2. The applicant has requested a waiver from the required use of curbs in the parking areas (18- 4.12.15.g.). The omission of curbs from the parking lots for small rural area churches is generally deemed to be in keeping with the rural character and therefore appropriate for this use. Approval of this waiver is recommended, except where curb is deemed necessary to capture runoff for stormwater management. This will be determined during final development plan review. 5 The applicant has also requested a waiver for the required 20 foot wide two -way travel lane leading to the south parking area (18- 4.12.17.c.1.). Moving from the northern to the southern parking area requires passing between two grave sites, with clearance at that point of only 12 feet. Section 4.12.2c. of the ordinance indicates that the Zoning Administrator may modify or waive a design requirement if they find that public health, safety or welfare would be equally or better served through the modification and only after consultation with the County Engineer. Both the Zoning Administrator and the County Engineer have indicated that the reduction of the two -way travelway to 12 feet is too narrow to serve the parking spaces for 14 to 37 additional vehicles. However, the County Engineer could support a reduction of the passage to 18 feet. The Zoning Administrator and County Engineer have indicated that two, 10 foot wide, one way travelways would also be appropriate as an alternate. 4. The Zoning Ordinance allows 24 months for both construction and start of the use of a Special Use Permit (18-31.2.4.4.). Staff has found that churches often need more time to accomplish their fundraising prior to building. Staff recommends that the time allowed for construction and start of the use of this Special Use Permit, should it be approved, be increased to five (5) years. SUMMARY: Staff has identified the following factors favorable to this application: The retention of this congregation on this site, with its relationship to the surrounding community, its physical place within the crossroads community of Ivy Depot, and the historic significance of the congregation exemplifies support of Rural Areas goals that is integral to the fabric of the local community. Staff has identified the following factor unfavorable to this application: The demolition of the existing 1890's church. Waivers: 1. The applicant has requested a waiver from Section 18- 4.12.15.a. requires parking lots be surfaced. Staff has no objections to this request. 2. The applicant has requested a waiver from the required use of curbs in the parking areas (18- 4.12.15.g.). Staff has no objection to this request. 3. The applicant has also requested a waiver for the required 20 foot wide two -way travel lane leading to the south parking area (18- 4.12.17.c.1.). Staff does not recommend support of this waiver. 4. The applicant has requested a waiver from 18- 31.2.4.4. to be allowed live years from the date of approval of this Special Use Permit to commence construction. Staff has no objections to this request. Condition 8. under SP 2006 -06 would permit the requested time extension for this Special Use Permit. RECOMMENDED ACTION: Based on the findings contained in this staff report, staff recommends approval of Special Use Permit 2006 -06 Mount Calvary Baptist Church with the following conditions: 1. Special Use Permit 2006 -06 shall be developed in general accord with the concept plan dated May 31, 2006, prepared by Dex Sanders, architect, and titled "Masterplan Mount Calvary Baptist Church" Attachment F.) Important elements of the concept plan include the following: The church shall be located as close to Route 738 as possible to maintain the overall hierarchy of buildings along Morgantown Road and their placement related to one another and to the street. To protect the adjacent dwelling to the east, no parking shall be located in the area labeled mixed trees and shrubs adjacent to the dwelling on the east side of the church property. 2. The ingress /egress from Route 738 (Morgantown Road) shall be consolidated into a single entrance that meets VDOT Minimum Standards for Entrances to Private Street requirements. 3. A 12'wide by 48' long right -turn taper shall be constructed for access to the entrance from eastbound Morgantown Road. 31 4. Two, 10 foot, one -way travel lanes shall be required to access the parking area to the south of the new cemetery. In order to reduce as much as possible, the amount of retaining wall needed, the specific length of these travel ways, their configuration, and the arrangement of the parking area shall be determined at final site plan review. 5. The existing 1890's church building shall be documented using the Secretary of the Interior's Standards for Historical Documentation prior to any disturbance of the site. Copies of the documentation of the building shall be provided to the Virginia Department of Historic Resources and the Albemarle County Historic Preservation Planner. 6. Permanent fencing shall be installed on the portion of the perimeter of the cemetery known as the Cooper Family Cemetery' that is located on the property known as Tax Map 58A(1) Parcel 20. The location and extent of the boundary of the `Cooper Family Cemetery' (labeled `Old Cemetery' on the concept plan) on Parcel 58A1 -20 shall be located in the field and fencing shall be fully installed as approved by the Director of Planning direction before any site disturbance occurs. 7. Any area of platted cemetery that is proposed to be used as parking area shall be formally abandoned prior to site plan approval. 8. Construction of the church as shown on the concept plan shall conmmence within five years of the date of approval of this special use permit or it shall expire. Waiver Requests: 1. Staff has no objections to a waiver of Section 18- 4.12.15.a. (parking lot surfacing). 2. Staff has no objection to a waiver of 18- 4.12.15.8. (required use of curbs in the parking areas). 3. Staff does not recommend support of a waiver of 18- 4.12.17.c.1. (required 20 foot wide two -way travel lane for parking areas). 4. Staff has no objections to a waiver from 18- 31.2.4.4. (to be allowed five years from the date of approval of this Special Use Pennit to commence construction). ATTACHMENTS Attachment A -- Excerpts from Virginia DHR file numbers 002 -0274 -0001 and 002- 0274 -0002 describing the existing 1890's church building Attachment B - Excerpt from `Historic Architectural Survey of Albemarle County Villages' by Dames and Moore Attachment C — Morgantown Road and Route 39/250 alignments (close up of village portion) Attachment D — `Cooper Family Cemetery' report by Dr. Lynn Rainville Attachment E — Site photographs: Mount Calvary Baptist Church Attachment F — Existing conditions drawing prepared by Dex Sanders Architect Attachment G Concept application plan dated June 5, 2006, prepared by Dex Sanders Architect, and titled "Masterplan Mount Calvary Baptist Church" Attachment H — Email from adjacent property owner. 7 c m s 4 XV M,Tl O '8 3 unld 1daduoj :91 l r :cif I I i vinyj 1swdn9 ,frnaln,7 lunOK 90-900,7,19