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HomeMy WebLinkAboutCPA201700001 Staff Report 2018-02-06COUNTY OF ALBEMARLE STAFF REPORT SUMMARY Project Name: CPA 2017-00001 Willow Glen Staff: Rachel Falkenstein, Senior Planner Industrial Area Planning Commission Worksession: February 6, Planning Commission Public Hearing: TBD 2018 Board of Supervisors Public Hearing: TBD Owner/s: Dickerson Ridge LLC and Peery, Barbara A, Applicant: Dickerson Ridge LLC and Tammy P Grubb, WA. c/o Steve Edwards Tax Map Parcel: 03200-00-00-049BO and portions of Acreage: 2.8 acres 03200-00-00-04910, 03200-00-00-049J0, and 03200- 00-00-049FO Location: On the east side of Dickerson Road, approximately 1000 feet north of the intersection of Towncenter Drive and Dickerson Road Zoning District: PRD Magisterial District: Rio Proposal: To amend the Comprehensive Plan land Comprehensive Plan Designation: use designation from Urban Density Residential to Urban Density Residential (in areas around Office/R&D/Flex/Light Industrial to allow for the centers) in the Places29 Development Area construction of Light Industrial/Flex space. Use & Character of Property: Use of Surrounding Properties: The airport Two existing, currently vacant homes in disrepair, is west (across Dickerson Road). Existing and woods and a stream. proposed residential uses surround the property on the other three sides. Factors Favorable: Factors Unfavorable: 1. The proposed land use change would add 1. The area under consideration is less additional LI inventory to County and the than three acres and is not a Places29 development area and the proposal significant addition to the LI inventory. is supported by Economic Development staff. 2. The property is surrounded on three 2. The location across the street from an airport sides by residential neighborhoods. is considered an appropriate location for light 3. The use as shown on the proposed industrial uses. plan is neither well incorporated with 3. The proposal increases the mix of uses in the the adjacent residential area. neighborhood, nor is it well screened. 4. The proposed change will provide for 4. This proposal contradicts the rationale additional stream protection, which was not used in the 2007 Comp Plan part of the 2007 proposal (though the same Amendment on this property that effect could have been achieved through changed the land use designation changes in the site plan). from Industrial to Urban Density Residential. Recommendation: Staff recommends the Planning Commission provide direction on whether or not the proposed change could be supported and if so, what features need to be addressed with the future rezoning of this property. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 STAFF PERSON: Rachel Falkenstein PLANNING COMMISSION WORKSESSION: February 6, 2018 CPA 201700001 Willow Glen Industrial Area PETITION PROJECT: CPA201700001 Willow Glen Industrial Area MAGISTERIAL DISTRICT: Rio TAX MAP/PARCELS: 03200-00-00-049BO and portions of 03200-00-00-04910, 03200- 00-00-049J0, and 03200-00-00-049F0 LOCATION: On the east side of Dickerson Road, approximately 1000 feet north of the intersection of Towncenter Drive and Dickerson Road, PROPOSAL: To amend the Comprehensive Plan designation for approximately 3 acres, from Urban Density Residential - residential (6.01 — 34 units/ acre) and supporting uses such as religious institutions, schools, commercial, office and service uses to Office/R&D/Flex/Light Industrial which allows commercial, professional office; research and development, design, testing of prototypes; manufacturing, assembly, packaging; residential is a secondary use (no maximum density). ZONING DISTRICT: Planned Residential Development which allows 3 — 34 units/acre with limited commercial uses and Rural Areas which allows agricultural, forestal, and fishery uses; residential density (0.5 unit/acre in development lots) OVERLAYS: AIA — Airport Impact Area; Steep Slopes Managed PURPOSE OF THIS WORKSESSION The purpose of this worksession is to evaluate whether this applicant -initiated Comprehensive Plan Amendment (CPA) has merit for consideration as a future CPA to the Places29 Master Plan. If the Commission believes that merit exists, it should articulate is expectations for specific elements to be addressed in a future Zoning Map Amendment (ZMA). This staff report provides analysis on how the proposed change could meet overall Comprehensive Plan recommendations and would be consistent with the Neighborhood Model. CHARACTER OF THE AREA The 2.77 acres under review fronts on Dickerson Road directly across from the Charlottesville -Albemarle Regional Airport. It is partially cleared but has some areas of woods around a stream which runs along the northern portion of the property. There are two existing houses on the property, which appear to be vacant (Attachment A). A portion of this site (1.81 acres) is part of the Willow Glen Planned Residential District (PRD) that was approved in 2007. One phase of the 23.7 acre PRD low Glen has been platted for 36 units, 34 of which are built. Phase 1 is to the southeast of the area under review. The other .96 acres of the site (TMP 32-49B) is zoned RA and was not part of the original Willow Glen rezoning. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 2 The property is surrounded on three sides by existing or proposed residential uses. To the north are several RA parcels with houses and the community of Deerwood which is zoned R-4. East and south of the property are undeveloped portions of Willow Glen. SPECIFICS OF THE PROPOSAL The land use designation for this property is Urban Density residential, which was the result of both a Comprehensive Plan Amendment (CPA) and Zoning Map Amendment (ZMA) in 2007. The applicant's proposal (see Attachment B) is for an Office/R&D/Flex/Light Industrial designation on property shown currently shown for Urban Density Residential to allow industrial service uses on the property. (See Overlay Exhibit `B' in Attachment B.) The requested change is speculative as the applicant has not identified any users at this time. The applicant states an intention to build and design space specific to prospective future users. The proposed concept plan (Attachment C) shows a conceptual design for the proposed industrial/flex space, specifically approximately 50,000 square feet of flex space occupying four separate two-story buildings with an entrance on Dickerson Road. The area requested for redesignation (and ultimately rezoning) shows parking in front of the proposed structures along Dickerson Road and a retaining wall separating the residential part of the development from the industrial portion. There is a separate entrance proposed for the industrial portion of the site, so that the industrial traffic will not share roads with the residential portion. Loading space is provided behind the proposed buildings, adjacent to future residential areas in Willow Glen. The proposed industrial area is disconnected from the residential area. APPLICANT'S JUSTIFICATION FOR THE REQUEST The applicant's justification for the change in use is primarily due to changing market conditions. The applicant states that due to the financial recession and housing crisis of 2008, Willow Glen has not been able to fully develop. The applicant also states that there is now a market for the "service sector" type of industry that is currently not being met in the County. He describes service industries as those that provide both goods and services. He offers a John Deere dealership as an example, which both sells tractors and offers landscaping services to local businesses, institutions and homeowners. Additionally, the applicant states an intention use sensitive design such that the use is compatible with the surrounding residential community. He feels that since he owns both properties he will be able to design the industrial and residential uses to be compatible with one another and to also provide a live/work opportunity for the residents. The applicant feels that this approach will make the community more supportive of the proposed change in use. PLANNING AND ZONING HISTORY CPA2006-00003 and ZMA200600019 were approved on October 10, 2007. Existing and recommended land use designations at that time were different than the designation desired by the applicant. Consideration of this change occurred during final development of the Places29 Master Plan. The process included work sessions on the CPA prior to consideration of the ZMA. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 Staff did not support the redesignation of industrial to residential use in this area. Staff asserted that an industrial designation should be retained on the property because of the location of the property across the street from the airport, the need for industrial land in the County's inventory, the difficulty in redesignating non -industrial land to an industrial classification or zoning, and the fact that the mobile home park was expected to convert to industrial land when or if it was ever vacated. The applicant, however, made a case that provision of four different housing types and 32% affordable or workforce housing units served a greater public benefit. The applicant also argued that it is unreasonable to have an industrially designated property surrounded on three sides by residential. The Planning Commission and Board agreed to the change. During the 2011 update the Places29 Master Plan was changed to reflect an Urban Density Residential land use designation. The application plan for ZMA200600019 showed an integrated plan for housing and amenities. The applicant proffered to provide 15% of the units to meet the County's affordable housing standards. During the rezoning, the applicant asked the Board for reduced proffer amounts for the affordable units but the Board felt it was necessary to retain the cash proffers in full for all the units beyond the 15% required affordable units. For this reason, the applicant did not include any proffers relating to the additional affordable units, though four housing types were still shown on the application plan. SDP200800086 — A final site plan was approved for whole site; only 1 phase (34 units) has been built. Comprehensive Plan This proposal has been reviewed based on the current Comprehensive Plan policy and the Places 29 Master Plan last updated in 2011. Land Use Designation: This site is designated as Urban Density Residential in areas around centers in the Places29 Master Plan. Urban Density Residential calls for primarily residential uses with a density of 6.01 - 34 units per acre. Secondary uses can include small amounts of retail, commercial and office uses that are intended to draw most of their clientele from the surrounding neighborhoods. The proposed land use designation for the 2.77 acres is Office/R&D/Flex/Light Industrial. Primary uses include office uses, research and development, light manufacturing, storage and distribution. Retail is intended to be incidental to the primary uses and auto commercial sales and services are permitted as long as the use does not adversely impact neighboring uses. Residential uses are also allowed as secondary uses. A change of land use designation does not preclude future residential use of the property. The Places29 Master Plan emphasizes the importance of compatibility with residential uses when Office/R&D/Flex/Light Industrial uses are located adjacent to dwellings. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 4 Noise, truck traffic, vibrations, and fumes should be avoided. Office and research and development uses are described as having the least impact on residential developments. Economic Development The Comprehensive Plan and County's Strategic Plan speak to the importance of economic development. Relevant portions of the Comprehensive Plan are provided below: Strategy 1 a: Promote new employment activities in the Development Areas and encourage developers of commercial and industrial projects to incorporate the Neighborhood Model principles. Strategy 3a: Continue to use the 2012 Target Industry Study to guide decisions for economic development. (Target industries are Bioscience and Medical Devices, Business & Financial Services, Information Technology and Defense & Security, and Agribusiness and Food Processing. Complementary targets are Health Services, Arts, Design, and Sports & Media) Objective 4: Ensure that there is sufficient land to accommodate future business and industrial growth, and plan for infrastructure to serve employment areas where these businesses are located. Strategy 4b: Encourage development of business and industrial uses in the Development Areas on appropriately zoned land and consider proactively rezoning land to allow for light industrial uses that have been identified on master plans. The proposed change would increase the land area available for employment activities. It does not appear to be targeting one of the preferred industries or incorporate important principles of the Neighborhood Model (see later in the report). The County's Strategic Plan incorporates these goals: Thriving Development Areas Attract quality employment, commercial, and high density residential uses into development areas by providing services and infrastructure that encourage redevelopment and private investment while protecting the quality of neighborhoods Economic Prosperity Foster an environment that stimulates diversified job creation, capital investments, and tax revenues that support community goals It is not clear how the industrial area will protect the quality of the remainder of the Willow Glen neighborhood except by keeping traffic separate. The provision of 2.77 acres of additional industrial land will help foster an environment for job creation in a small way. Review of Requests for Comprehensive Plan Amendments CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 Requests for comprehensive plan amendments are reviewed at a higher level of policy than zoning map amendments which require a fair amount of detail. All CPA requests are reviewed as follows: A. Any proposed change in the Land Use Map will be evaluated for protection of the health, safety, and welfare of the general public rather than the proprietary interests of an individual. Issues of health, safety, and welfare generally relate to capacity of utilities, such as water and sewer, and infrastructure, such as roads to serve an area. The site is served by public water and sewer. Upgrades may be required depending on projected levels of use and will be determined with the review of construction plans. The level of traffic to be added to Dickerson Road is not known at this time. The applicant will need to provide warrants to determine if turn lanes are needed. A separate entrance from the Willow Glen residential area will help to minimize conflicts and keep truck traffic out of the neighborhood. However, staff believes that the uses should be limited to those that can be more compatible with the neighborhood and not require a separate entrance. B. The merit of Comprehensive Plan amendment requests shall be largely determined by the fulfillment of support to the "Goals and Objectives" specified in the Comprehensive Plan. The Comprehensive Plan supports economic development expansions primarily in the Development Areas and in accord with the Neighborhood Model. As mentioned in the previous section the request supports economic development objectives of the Plan. Neighborhood Model analysis is provided below. Neighborhood Model Analysis Pedestrian Orientation The property fronts Dickerson Road which contains no curb, gutter, sidewalks or street trees at this location. A sidewalk is shown on the plan at the main entry drive to the Willow Glen development. This principle is not met. The addition of nonresidential uses to the neighborhood would result in a mixture of use; however, the uses aren't really Mixture of Uses integrated into the same neighborhood. Loading areas adjacent to the residential area should be minimal and well screened if they are essential. In theory this principle is met, but not in practice. Neighborhood Several centers are nearby, including Hollymead Town Center Centers and the Airport. This principle is met. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 6 The proposed change from Urban Density Residential to Office/R&D/Light Industrial, as shown on the plan, removes housing from a portion of the development. In isolation, this Mixture of Housing principle is not applicable. However, the concept plan for the Types and remainder of Willow Glen is now shown with only two housing Affordability types, single family detached and townhouses. If developed as shown, in combination with Phase 1, 75 /o will be townhouses. At least 15% of the total will meet affordability standards of the County. It will be important to ensure that a mixture of housing types still exists if the Willow Glen PRD is amended. The area shown for Office/R&D/Flex/Light Industrial is not Interconnected interconnected to the rest of Willow Glen. The applicant has said Streets and that the separation is deliberate so that traffic for the industrial is Transportation not comingled with the residential use. A restriction on the types Networks of uses allowed in the changed area could provide opportunities for interconnections and better compatibility within the development. Multi -modal No information has been provided to assess whether this Transportation principle is met. This information is not essential for the CPA but Opportunities would be important for a subsequent ZMA. Parks, Recreational For the 2.77 acres under consideration for redesignation, this Amenities, and Open principle is not applicable. Parks and amenities for the remainder Space of the Willow Glen development are unaffected by the proposed change. Buildings and Space No information is provided to assess whether this principle is of Human Scale met. Relegated Parking Parking is shown on the concept plan in front of the buildings that face Dickerson Road. This principle is not met. Redevelopment There are two existing vacant houses on the property that will be redeveloped. This principle is met. Grading information hasn't been provided for the 2.77 acres; Respecting Terrain however, a retaining wall is shown between the proposed and Careful Grading industrial area and the adjacent townhomes. It is not known and Re -grading of whether this principle met because the height of the retaining Terrain wall is unknown. The applicant has committed to retaining the stream adjacent to the site, rather than piping it, as was shown in the 2007 application plan. Clear Boundaries This principle is not applicable. with the Rural Area Should the Planning Commission wish to move forward with a Comp Plan amendment, staff recommends that Neighborhood Model issues identified above be resolved. The relationship between the use and the adjacent residential areas should be more compatible so that the entire development can be fully integrated. The wording of a CPA can establish the expectation for this compatibility and the methods for integration can be considered as part of a rezoning. Additionally, it would be expected in a rezoning (and subsequent site plan) that a sidewalk and streetscape improvements be constructed along Dickerson Road. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 7 Provision of relegated parking and ways in which buildings address the street should also be part of rezoning plan. C. A primary purpose of the Comprehensive Plan and Land Use Map is to facilitate the coordination of improvements to the transportation network and the expansion of public utilities in an economical, efficient and judicious manner... No Comprehensive Plan amendment shall be considered in areas where roads are non -tolerable or utilities are inadequate unless the improvement of those facilities is included in the Comprehensive Plan amendment proposal. The property is in a Development Area, on a parcel served by public utilities. Dickerson Road appears to have adequate capacity to handle this use. As mentioned previously, warrants will be required with the site plan to determine the need for turn lanes on Dickerson Road. Curb and gutter, street trees and a sidewalk along the east side of Dickerson Road will be required when the site develops. D. Proposed Comprehensive Plan amendments shall be evaluated for general compliance with adopted County plans, policies, studies and ordinances and to determine if corresponding changes are necessary. As mentioned previously this use supports economic development goals of the Comprehensive Plan; however, it does not appear that the applicant is pursuing only target industries for the site. Also as mentioned previously, staff has concerns with the compatibility of the use with the adjacent neighborhoods and compliance with Neighborhood Model guidelines. While it is possible for Office/R&D/Flex/LI uses to be compatible with residential uses, the form demonstrated on the concept plan does not effectively integrate the two uses. E. Except as otherwise provided, the following conditions may be considered in the evaluation of a request to amend the Comprehensive Plan. 1. Change in circumstance had occurred; 2. Updated information is available; 3. Subsequent portions of the Comprehensive Plan have been adopted or developed, or 4. A portion of the Plan is incorrect or not feasible; or 5. The preparation of the Plan as required by the Code of Virginia was incomplete or incorrect information was employed. The applicant has said that market conditions have changed such that housing demands are not as strong as they were in 2007. Staff is not convinced that housing demands have changed; however, if Office/R&D/Flex/Light Industrial property is now marketable, there may be justification for the change. CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 Summary and Recommendation: Staff has identified the following factors for consideration. Factors Favorable: 1. The proposed land use change would add additional LI inventory to County and the Places29 development area and the proposal is supported by Economic Development staff. 2. The location across the street from an airport is considered an appropriate location for light industrial uses. 3. The proposal increases the mix of uses in the area. The proposed change will provide for additional stream protection, which was not part of the 2007 proposal (though the same effect could have been achieved through changes in the site plan). Factors Unfavorable: 1. The area under consideration is less than three acres and is not a significant addition to the LI inventory. 2. The property is surrounded on three sides by residential neighborhoods. 3. The use as shown on the proposed plan is neither well incorporated with the adjacent residential neighborhood, nor is it well screened. 4. This proposal contradicts the rationale used in the 2007 Comp Plan Amendment on this property that changed the land use designation from Industrial to Urban Density Residential. Staff believes there is merit to considering a CPA for this area under certain conditions. Staff recommends the CPA should set an expectation for the following: 1. Compatibility of uses, which may mean limiting the site to only Office and R&D uses, but not Light Industrial uses 2. Design considerations for compatibility, including screening of loading/storage areas from adjacent residences and interconnected streets/pedestrian facilities 3. Streetscape expectations for Dickerson Road including relegated parking 4. While it technically is not part of this CPA, staff believes it is pertinent to have a discussion on the appropriateness of different dwelling unit types for the remaining residential portion of the Willow Glen development If the Commission agrees the proposal has merit, then it is asked to provide guidance on the expectations for the CPA and subsequent ZMA. Staff is looking for guidance and discussion on the topics listed above as well as any other issues that the Commission believes should be addressed with this proposal. Motion Should the commission wish to pursue a CPA for the property, staff recommends that the Commission adopt the attached resolution of intent to amend the Comprehensive Plan to change the land use on Tax Map Parcel 03200-00-00-049BO and portions of 03200-00-00-04910, 03200-00-00-049J0, and 03200-00-00-049FO (as shown in CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 9 Attachment B) from Urban Density Residential to Office/R&D/Flex/Light Industrial (ROI to be provided as an additional attachment during the meeting). Attachments: A — Location Map B — Narrative and proposed CPA map C — Concept plan Concept plan D — Resolution of Intent (to be provided during the meeting) CPA2017-00001 Willow Glen Industrial Area Planning Commission February 6, 2018 10