HomeMy WebLinkAboutSP200700054 Executive Summary Special Use Permit 2008-04-22
1
COUNTY OF ALBEMARLE
EXECUTIVE SUMMARY
Project Name: SP200700054 SOCA -
All Weather Synthetic Field - Belvedere
Staff: Summer Frederick, Senior
Planner
Planning Commission Public Hearing:
April 22, 2008
Board of Supervisors Public Hearing:
May 14, 2008
Owners: Belvedere Station Land Trust;
Robert M Hauser & Stan C Manoogian,
Trustees, and Jacob C. & Charlotte G.
Levenson
Applicant: Stonehaus Development &
McKee Carson
Acreage: Approximately 7.5 acres Special Use Permit for: Section
15.2.2.4 of the Zoning Ordinance which
allows for athletic facilities, associated
parking and accessory structures in R-4,
Residential zoning district.
TMP: 062A3-00-00-00100, 06200-00-
00-002A0
Location: At the northern end of
Belvedere Boulevard (currently under
construction), approximately three (3)
miles from its intersection with East Rio
Road [SR 631], and adjacent to the
Norfolk-southern Railroad line.
Conditions: Yes
Existing Zoning and By-right use: R-4
Residential (4 units/acre) which allows for
single-family detached, side-by-side
duplexes, semi-detached and attached
single-family residential dwelling units.
Magisterial District: Rio
Requested # of Dwelling Units: N/A DA - X RA
Proposal: The applicant purposes to
construct one (1) full sized all-weather
synthetic turf field, two (2) mini-soccer
fields, and a facility to include; a
concession stand, locker rooms,
manager’s office, trainer’s treatment room
and equipment storage; associated
parking.
Comprehensive Plan Designation:
Neighborhood Density residential (3-6
units/acre) and supporting uses such as
religious institutions and schools and
other small-scale non-residential ues in
Urban Neighborhood 2.
Character of Property: Property is
heavily wooded.
Use of Surrounding Properties:
Residential and residential to be
developed
2
Factors Favorable:
1. The facility will provide a community
oriented, community-wide athletic
facility serving the new neighborhood
and other parts of the County.
2. The facility is proposed within the
County’s designated development
areas.
3. The facility will augment recreational
facilities already planned for the
neighborhood.
Factors Unfavorable:
1. The scale of the use is greater than
would be typically expected in
Neighborhood Density residential
development.
2. Public streets are intended to provide
on-street parking for the use. As
currently planned, the streets are not
wide enough to accommodate the on-
street parking. Staff is
recommending a condition to address
this.
3. Timing of construction of the public
streets is not tied down, such that
construction of the synthetic field
could take place before the streets
are built. Staff is recommending a
condition to address this.
4. Pedestrian access from the end of
the public streets to the facility does
not appear to be provided. Staff is
recommending a condition to address
this.
RECOMMENDATION: Staff recommends approval with conditions.
3
STAFF PERSON: SUMMER FREDERICK
PLANNING COMMISSION: APRIL 22, 2008
BOARD OF SUPERVISORS: MAY 14, 2008
SP 07-54 SOCA – All Weather Synthetic Field – Belvedere and Critical Slope Waiver
Applicant's Proposal:
The applicant purposes to construct two (2) facilities located at different sites; one (1) full sized
all-weather synthetic turf soccer field and two (2) mini-soccer fields, with seating for 500 and a
structure to include a concession stand, locker rooms, manager’s office, trainer’s treatment room
and equipment storage. This location will also have associated parking. (See Attachment A)
Petition:
PROJECT: SP2007-054 SOCA Synthetic Fields near Belvedere
PROPOSED: Soccer Field and associated parking and spectator seating adjacent to Belvedere
and accessory building near soccer fields in the floodplain
ZONING CATEGORY/GENERAL USAGE: R-4 (4 units/acre)
SECTION: Section 15.2.2.4 of the Zoning Ordinance which allows athletic facilities for fill in the
R4 District
COMPREHENSIVE PLAN LAND USE/DENSITY: Neighborhood Density Residential - residential
(3-6 units/acre) and supporting uses such as religious institutions and schools and other small-
scale non-residential uses in Neighborhood 2
ENTRANCE CORRIDOR: No
LOCATION: At the northern end of Belvedere Drive off of East Rio Road
TAX MAP/PARCEL: Portion of 62A3-1 and 62-2A
MAGISTERIAL DISTRICT: Rivanna
Character of the Area :The surrounding area is made up of existing or to be developed single-
family attached and detached dwelling units in the neighborhoods of Belvedere, Dunlora and
Northfields. (See Attachment B).
Planning and Zoning History: The area specific to the special use permit application has no
zoning or planning history. However, the area immediately adjacent to the application area is
included in ZMA2004-007, Belvedere. The 2004 action rezoned 206.682 acres from R-4,
Residential to NMD, Neighborhood Model District, allowing for residential, commercial, and
recreational uses. (See Attachment C)
Comprehensive Plan: The Comprehensive Plan shows this area as Neighborhood Density in
Urban Neighborhood 2. (See Attachment D) The proposed Places 29 Master Plan also shows
this area as Neighborhood Density residential. The purpose/intent of the Neighborhood Density
designation is to provide for a gross residential density of three (3) to six (6) dwelling units per
acre, a range of dwelling unit types, and neighborhood-scale non-residential uses.
In relation to the Comprehensive Plan, the scale of this use is greater than would typically be
expected for the Neighborhood Density designation. The proposed synthetic soccer field facility
4
with seating for up to 500 spectators and the associated peak use and traffic is more in keeping
with a “community-scale” use than a “neighborhood-scale” facility.
However, the Hollymead Elementary/Sutherland Middle School complex and Crozet Park are
somewhat comparable facilities in or adjacent to existing designated neighborhood areas of the
County.
The Open Space Plan shows the area as having a wooded buffer in the location shown for the
facility. This wooded buffer was shown on the Open Space Plan as a proposed buffer along the
proposed Meadow Creek Parkway alignment. However, this is now the area of the Northern Free
State Connector Road rather than the Meadow Creek Parkway and potential alignments have not
been finalized.
Neighborhood Model principles relevant to this Special Use Permit include:
Pedestrian Orientation – The approved master plan for Belvedere provides for a sidewalk network
throughout the community. The applicant has indicated that a large quantity of the parking for the
synthetic field facility will be provided through on-street parking and people could walk to the
facility. Parking spaces are located along (currently unconstructed) neighborhood streets within
the Belvedere community.
However, no pedestrian access is shown on the conceptual plan from the proposed streets to the
synthetic fields. A sidewalk or path will be needed to connect the sidewalks along the future
public streets to the synthetic field. Since on-street parking is to be utilized for such a large
portion of the proposed facilities’ parking, staff believes that pedestrian access is essential and
should be provided once the synthetic field is constructed and available for full-time use. This
principle is partially met.
Interconnected Streets and Transportation Networks – The approved master plan for Belvedere
shows an interconnected street network throughout the community. The concept plan shows a
driveway accessing TMP62-2A, but makes no provisions for future public road access to this
parcel. Staff has provided conditions for this special use permit to ensure such future access is
possible.
Parks and Open Space – The synthetic field facility will provide a large amount of recreational
area in a highly planned, moderately dense neighborhood, and will utilize land that would
otherwise be developed with single-family residences. This principle is met.
Neighborhood Centers – The synthetic field facility is anticipated to house a community focused
recreational facility, providing recreational opportunities for large numbers of Albemarle County
residents. Such a facility will provide a gathering center for SOCA participants. This principle is
met.
Relegated Parking – Sixty (60) parking spaces are located at the synthetic field facility. The
applicant expects any overflow parking to utilize on-street parking spaces located on near-by
Belvedere neighborhood streets. Staff believes it is important to note that streets immediately
5
adjacent to the proposed facility have not been constructed, nor are there any applications for
approval of their construction currently being reviewed by County staff. The streets are shown on
the approved application plan for ZMA2004-07, which rezoned 206 acres and allowing for the
development of the Belvedere neighborhood. This principle is partially met.
Site Plan that Respects the Terrain – This principle is discussed with the critical slope waiver at the
end of this report.
STAFF COMMENT:
Section 31.2.4.1 of the Zoning Ordinance below requires that special use permits be assessed as
follows:
Comments regarding the synthetic field and associated building and parking.
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,
Immediately adjacent properties are in the undeveloped portion of the new neighborhood of
Belvedere. Close-by are the established and virtually built-out neighborhoods of Northfields to the
northwest and Dunlora to the south. These neighborhoods primarily have single-family detached
homes of low-to-mid level densities. Issues associated with the proposed use that may impact
adjacent properties include parking and traffic.
The County Engineer has reviewed the proposal and has identified the following concerns with
regard to parking and traffic:
The traffic analysis provided with the application has a number of problems. First, the study does
not have any real, measured data for SOCA events or facilities. Second, the study does not look
at the road categories and how design dimensions might be affected. For example, the study
stops at the village green in Belvedere. This is not where the application is proposed. The roads
past the village green are a concern as well. These will be the lowest design currently, and the
most affected by the development. Below is a graphic of these roads as shown on the Belvedere
zoning plan.
6
Briefly considering only those roads beyond the village green, the roads marked in red will need to
be wider to accommodate parking and traffic as intended in the application. A 32’ curb-to-curb
section is needed. The reasons are explained below:
On the rezoning plan, all of these streets are at the minimum standard, which is a 28’ curb-to-curb
width. The VDOT standards transition to a 36’ section at 400 daily trips or more, and at least the
Belvedere Boulevard links will come under this requirement with the SOCA improvements. In
addition, the 28’ section allows only for occasional on-street parking, such as might be seen for
residences with occasional guests or parties. It is not adequate for full parallel parking on both
sides, which would leave only 12 to 14 feet of width for two-way traffic, with doors closed. Typical
neighborhood model streets in these situations use 32 feet widths minimum (7’ for parking on
each side, and two 9’ travel lanes), which is a compromise between the 36’ VDOT standard, and
the goal of smaller streets for new urbanism networks, and allowing on-street parking. In this
case, parking would seem to be the main concern.
Note 6 on the SOCA plan indicates seating will be provided for 500 people. There are 60 parking
spaces on-site. Generously assuming 4 persons per vehicle, there are 125 spaces needed. That
means 65 vehicles will park on adjacent streets in Belvedere. Each parallel space requires about
20’ in length, for a total of 1300 linear feet of parking needed. Measuring available spaces on the
roadsides, and assuming there are no unfortunately timed neighborhood parties or too many
guests during the SOCA event, the areas in red will be fully parked.
Third, the traffic study leaves open the questions of what portion of traffic might be considered
cut-through given the fact that this high traffic generator is in the back of a residential
neighborhood. It is generally this pass-through traffic which generates complaints. The most
recent study only considered weekday volumes. Weekend volumes are the larger traffic
generator for SOCA, and perhaps lower for the Belvedere development. This would indicate a
higher percentage of cut-through traffic in Belvedere. It still appears as though cut-through traffic
may be above 30% in some areas of the neighborhood, as well as significant on Free State Road
and in Dunlora.
The lack of empirical data for the analysis is also a concern relative to carpooling. The brief
analysis provided mentions “we have observed a higher degree of carpooling and ridesharing
during the week. The calculations are confirmed by empirical, historical evidence.” No additional
information was provided. Although staff thought the applicant would be performing a survey and
vehicle count that documents the percentage and degree of carpooling or ridesharing, and the
vehicle trips and parking area usage during events, this never happened.
Therefore, staff has provided its own estimates as to traffic and parking needs that need to be
accommodated by this project.
that the character of the district will not be changed thereby and
7
While the R-4 zoning district anticipates recreational activities of the type proposed, the scale is
the issue relative to this special use permit. A recreational facility seating 500 is larger than what
would be typically expected in an established R-4 neighborhood, but could be expected in a new
R-4 neighborhood. As the property surrounding the proposed use generally is undeveloped, this
facility can be an integral part of the emerging Belvedere community.
that such use will be in harmony with the purpose and intent of this ordinance,
The property is currently zoned R-4-Residential. The primary purpose of this district is to provide
for moderate density, attached and detached single-family dwelling units within the Development
Areas.
In addition to regulations directly associated with the construction of by-right uses, this district is
also subject to recreation regulations found in Section 4.6 of the zoning ordinance. Regulations
within this Section are intended to ensure the development of recreational areas within
developments of thirty (30) units of more equal to or exceeding four (4) dwelling units per acre.
As a use that is needed in the community and will be available to residents with children who play
soccer, it is viewed as being in harmony with the residential uses in the R-4 Zoning district.
with uses permitted by right in the district,
Uses permitted by-right are residential uses, public uses and buildings including temporary or
mobile facilities such as schools, offices, parks, playgrounds and roads funded, owned or
operated by local, state or federal agencies, (reference 31.2.5); public water and sewer
transmission, main or trunk lines, treatment facilities, pumping stations and the like, owned and/or
operated by the Rivanna Water and Sewer Authority. The use would be similar to an elementary
school in terms of size and users. The hours of operation, however, would be dissimilar and
traffic patterns would be different. Staff believes that with appropriate conditions of this special
use permit the use can be in harmony with other by-right uses in the district.
with the additional regulations provided in section 5.0 of this ordinance,
Section 5 requirements related to this use are the County’s lighting requirements. This use will
have to conform with County regulations when outdoor lighting is installed. A zoning text
amendment for modifications to lighting requirements for playing fields is currently being
developed by staff. This is a result of recent approval of a resolution of intent by the Board of
Supervisor’s to amend the ordinance for lighting.
and with the public health, safety and general welfare.
The public safety issues have been discussed earlier in this report.
SUMMARY:
Staff has identified the following factors, which are favorable to this request:
1. The facility will provide a community oriented, community-wide athletic facility serving the
new neighborhood and other parts of the County.
2. The facility is proposed within the County’s designated development areas.
3. The facility will augment recreational facilities already planned for the neighborhood.
8
Staff has identified the following factors, which are unfavorable to this request:
1. The scale of the use is not in keeping with the expectations for Neighborhood Density
residential development.
2. Public streets are intended to provide on-street parking for the use. As currently planned,
the streets are not wide enough to accommodate the on-street parking. Staff is
recommending a condition to address this.
3. Timing of construction of the public streets is not tied down, such that construction of the
synthetic field could take place before the streets are built. Staff is recommending a
condition to address this.
4. Pedestrian access from the end of the public streets to the facility does not appear to be
provided.
Critical Slope Waiver Request
In conjunction with this special use permit, the applicant has applied for a waiver of Section 18-
4.2.5. Staff review of the waiver request is as follows:
A modification to allow critical slopes disturbance is necessary to allow the construction of an
access road on the property for the synthetic fields and to the proposed fields in the floodplain.
The request for a modification has been reviewed for both the Engineering and Planning aspects
of the critical slopes regulations. Section 4.2.3.2 of the Zoning Ordinance restricts earth-
disturbing activity on critical slopes, while Section 4.2.5(b) allows the Planning Commission to
waive this restriction.
This request is to disturb approximately 0.3 acres of critical slopes. The critical slopes in the area
of this request do not appear to be man-made. Staff has reviewed this waiver request with
consideration for the concerns that are set forth in Section 4.2 of the Zoning Ordinance, entitled
“Critical Slopes.” These concerns have been addressed directly through the analysis provided
herein, which is presented in two parts, based on the section of the ordinance each pertains to.
Section 18-4.2.5(a)
Review of the request by Current Development Engineering staff:
Description of critical slope area and proposed disturbance:
This a slope above the railroad track and the floodplain at the edges of the property. The
applicant is proposing to build an access road and a small building and parking area on the
slopes.
Areas Acres
Total site It is not clear what the total site property acreage is. The
SP boundary for the all-weather facility appears to be
about 6.5 acres. The soccer fields in the floodplain, and
the associated building appear to cover about 8 acres.
(The road area is not counted, as it is exempt.) This
totals about 14.5 acres.
9
Critical slopes approx. 0.4 less than 3% of site under consideration.
This is just the portion above the floodplain
and around the small building. It leaves
the river bank alone, which is the other
portion of critical slopes.
Critical slopes disturbed approx. 0.3 75% of critical slopes under consideration.
Exemptions to critical slopes waivers for driveways, roads and utilities without reasonable
alternative locations:
The access road and associated biofilters and swales are exempt. There is no other reasonable
way to get down to the floodplain without disturbing critical slopes. This road has been moved
from the other side of the property at the county’s request in order to minimize disturbance and
impact to the neighbor.
Compliance with Zoning Ordinance 18-4.2:
“movement of soil and rock”
Proper slope construction, control of drainage, and vegetative stabilization will prevent any
movement of soil.
“excessive stormwater runoff”
Stormwater runoff will be increased in this area from parking and roof areas, and constructed
slopes, but stormwater management will be provided according to the final plan requirements.
“siltation”
Inspection and bonding by the County may ensure siltation control during construction. Proper
stabilization and maintenance will ensure long term stability.
“loss of aesthetic resource”
This area will be visible from the roads and houses in the neighborhood, from across the
railroad tracks, and from the river and across the river. However, the slopes to be disturbed
are not shown on the Open Space Plan.
“septic effluent”
It is not clear whether restroom facilities are provided. It is recommended that they not be
permitted in the floodplain or next to the stream buffer unless a public sewer connection is
provided. There are no objections to facilities at the all-weather complex.
Based on the review above, there are no engineering concerns which prohibit the disturbance of
the critical slopes as shown. Stormwater management plans, erosion control plans, and
mitigation plans will be required and will address design details.
Summary of review of modification of Section 4.2:
Section 4.2.5 establishes the review process and criteria for granting a waiver of Section 4.2.3.
The preceding comments by staff address the provisions of Section 4.2.5(a). Staff has included
the provisions of Section 4.2.5(b) here, along with staff comment on the various provisions.
The commission may modify or waive any requirement of section 4.2 in a particular case upon
10
finding that:
1. Strict application of the requirements of section 4.2 would not forward the purposes of this
chapter or otherwise serve the public health, safety or welfare, or that alternatives proposed by
the developer would satisfy the purposes of section 4.2 to at least an equivalent degree; or
(Added 11-15-89)
Staff opinion is that strict application of the requirements of Section 4.2 would forward the
purposes of this chapter, as well as the Comprehensive Plan.
2. Due to its unusual size, topography, shape of the property, location of the property or other
unusual conditions, excluding the proprietary interest of the developer, the requirements of
section 4.2 would effectively prohibit or unreasonably restrict the use of the property or would
result in significant degradation of the site or adjacent properties. Such modification or waiver
shall not be detrimental to the public health, safety or welfare, to the orderly development of
the area, or to adjacent properties, or be contrary to sound engineering practices; or (Added
11-15-89)
Denial of this waiver would not prohibit or restrict the use of the property. Alternative designs
for this site and plan were proposed. Staff requested a less environmentally destructive
access plan. The currently proposed location of the access road disturbs the least amount of
critical slopes and avoids intrusion into the floodplain
3. Granting such modification or waiver would serve a public purpose of greater import than
would be served by strict application of section 4.2. (Added 11-15-89)
Approval of this request will allow for a community-wide use of soccer facilities, especially
the fields under review with SP08-58 for fill in the floodplain.
RECOMMENDED ACTION
Staff believes the proposed soccer facility provides a community benefit and can be appropriately
integrated into the emerging community of Belvedere. Staff’s concerns relate to the facility’s
scope of activity and, in particular, the resulting impacts to the existing and future transportation
infrastructure serving the area. Staff has developed conditions to address these concerns and
recommends approval inclusive of the following conditions:
1. The synthetic field shall be developed in general accord with the conceptual plan entitled,
“Belvedere – SOCA Special Use Permit: All Weather Synthetic Turf Field”, and dated
March 28, 2008.
2. Public streets which provide access to the synthetic field and parking shall be constructed
prior to public use of the facility.
3. Public streets which provide on-street parking to accommodate parking requirements for
the synthetic field shall be a minimum of 32’ in width or other width as may be required by
the County Engineer.
4. Pedestrian access shall be provided from the end of the public street to the synthetic field
in accordance with the Albemarle County Design Manual standards for permanent paths.
11
5. Modifications to the proposed extension of Belvedere Boulevard are allowed as necessary
to provide public road access to TMP62-2A.
Additionally, staff recommends approval of the critical slope waiver request.
ATTACHMENTS:
A – Plan entitled, “Belvedere SOCA Special Use Permit: All Weather Synthetic Turf Field”
prepared by McKee Carson and last dated March 25, 2008
B – Location Map
C – Zoning Map
D – Comprehensive Plan Map
E – Applicant’s request and justification for critical slope waiver