COUNTY OF ALBEMARLE PLANNING STAFF REPORT SUMMARY Project Name: ZMA 2013-00004 Hollymead Town Center Block VI Planning Commission Public Hearing: July 29, 2014 Staff: Claudette Grant Board of Supervisors Public Hearing: To Be Determined Owners: Post Office Land Trust Applicant: Post Office Land Trust Charles W. Hurt with Katurah Roell as the contact Acreage: Approximately 5.74 acres Rezone from: No change of zoning designation is sought. This application seeks to amend ZMA200100020 Application Plan, Code of Development and proffers. This proposal requests to construct 44 townhouse units in Block VI, instead of an approved parking area and to eliminate the required minimum square footage of non-residential uses in Block IV. TMP: Tax Map Parcel(s) 032000000041L0 By-right use: Mixed use development with (See Attachment A) maximum total residential units of 120 in Area C Location: West of Route 29 North. At the of Hollymead Town Center. intersection of Laurel Park Lane and Meeting Street. Magisterial District: Rio Proffers: Yes Proposal: Rezoning request to amend the approved ZMA200100020 Application Plan, Code of Development and proffers. This proposal requests to construct 44 townhouse units in Block VI, instead of an approved parking area and to eliminate the required minimum square footage of non-residential uses in Block IV. The density for Block VI is 7.6 dwelling units/acre. (Attachment B). DA (Development Area): Hollymead Community Character of Property: Blocks IV and VI are vacant and undeveloped. Factors Favorable: 1. The rezoning request remains consistent with the Comprehensive Plan and no changes to uses are proposed. 1 Hollymead Town Center, Block VI Requested # of Dwelling Units: 44 dwelling units in Block VI. This is a reallocation of the maximum 120 units approved as part of ZMA200100020. No additional units are being requested. Comp. Plan Designation: Hollymead-Places 29-Commercial Mixed Use commercial, retail, employment uses, with supporting residential, office, or institutional uses. Use of Surrounding Properties: The adjacent property to the east and south are vacant and undeveloped. There are townhouses located to the west and additional townhouses/mixed use buildings are located in the vicinity along with Rosewood Village, an assisted living facility. Micro Aire is located to the north. Factors Unfavorable: 1. Loss of non-residential space/mix use form within these blocks 2. Technical revisions are needed to
2. Proposed townhouse development in Blocks IV and VI are consistent with existing residential development adjacent to the site and will create a larger and more cohesive residential neighborhood that is close to a walkable center 3. The original maximum number of residential units is unchanged. 4. Sufficient non-residential land use capacity/ development potential remain within the Hollymead Town Center proffers, code of development, and application plan. RECOMMENDATION: Staff recommends approval of ZMA2013000004, Hollymead Town Center Block VI, provided technical revisions are made to the proffers and changes are made to the application plan, and code of development as described in the staff report prior to the Board of Supervisor meeting. 2 Hollymead Town Center, Block VI
STAFF PERSON: Claudette Grant PLANNING COMMISSION: July 29, 2014 BOARD OF SUPERVISORS: To Be Determined ZMA 201300004 Hollymead Town Center Block VI PETITION PROJECT: ZMA201300004 Hollymead Town Center (Block VI) MAGISTERIAL DISTRICT: Rio TAX MAP/PARCEL: 032000000041L0 LOCATION: West of Route 29 North. At the intersection of Laurel Park Lane and Meeting Street. PROPOSAL: To amend Proffers, Code of Development, and Application Plan to allow construction of 44 townhouse units for a density of 7.6 dwellings/acre and to eliminate the requirement to construct 32,000 square feet of non-residential use. This proposal requests to construct in Block VI, instead of an approved parking area, and to eliminate the required minimum non-residential uses in Block IV. ZONING: PD-MC Planned Development Mixed Commercial which allows large-scale commercial uses and residential by special use permit at a density of 15 units/acre. No Zoning change is requested. ENTRANCE CORRIDOR: Yes AIRPORT IMPACT AREA: Yes PROFFERS: Yes COMPREHENSIVE PLAN: Hollymead-Places 29-Commercial Mixed Use commercial, retail, employment uses, with supporting residential, office, or institutional uses. CHARACTER OF THE AREA This proposal is located in the area known as Hollymead Town Center, which is subject to multiple approved rezonings. Each rezoning covers a certain section of the town center and are referred to as Area A1 (Kohl s area), A2 (west of Kohl s and along Meeting Street), B (Target and Harris-Teeter area), C (North end of the town center, north and west of Target, and the area along and on the north side of Timberwood Blvd), and D (Abington Place and the area south of Timberwood Blvd). The subject property is located in Area C and is vacant and undeveloped. However, the surrounding area is developed with townhouses to the west, a mixed use building and an assisted living facility to the south, and a flex-industrial use (Micro Aire) to the north. The area immediately east of the site is vacant but is approved for non-residential uses (commercial and office). Portions of the Hollymead Town Center further south and east are developed in commercial and residential uses. SPECIFICS OF THE PROPOSAL This request is to amend the uses permitted in Blocks IV and VI of the Hollymead Town Center Area C as defined in the Code of Development (COD). Block IV The current COD calls for a minimum of 32,000 square feet of non-residential uses and between 15 and 30 residential units in Block IV (See page 22 of Attachment C). The applicant is now requesting to eliminate the requirement to construct a minimum 32,000 square feet of non-residential uses. The applicant is proposing to construct 30 townhouses which is consistent with the current approved zoning. (This construction is not part of this rezoning request) Block VI The current COD calls for this block to be used to provide parking for buildings in the adjacent Block IV, if needed. No other permitted uses are identified in the current COD for this block. The applicant is proposing to construct 44 townhouses in this block instead of parking. 3 Hollymead Town Center, Block VI
Under this proposal, Block IV would contain all required parking on-site, so there is no longer a need for separate parking to be provided in Block VI. Area C of the Hollymead Town Center was approved for a maximum of 120 townhouses to be located within various blocks of the Area. This maximum is not being changed or exceeded by this proposal. This proposal reallocates some of the permitted residential units to Block VI. The applicant has provided a revised COD. See pages 10, 19 and 22 of the revised COD for the blackline changes to the COD. Some technical, non-substantive, corrections are needed to both the COD and the application plan, including: Table A in the COD needs to be revised, as it is not clear what the asterisk ( * ) in Block VI is referring to. The application plan provided is more detailed than desired for an application plan; however, a note on the plan states that the residential units are conceptual with regards to location, size, and number of units. The details will be worked out during the site plan process. Staff also recommends that the note reference flexibility for landscaping that is shown on the plan, which could also change during the site plan process. The roads shown on the application plan are inadvertently referenced as alleys instead of private roads and need to be corrected. Revised proffers have also been provided and further discussed in the proffer section of this staff report. Staff recommends that the above noted revisions be made to the plan and reviewed by staff prior to Board of Supervisor s public hearing. These changes are technical in nature. The overall development concept for the block is acceptable to staff. (See Attachment B for the Application Plan and Attachment C for the revised Code of Development). APPLICANT S JUSTIFICATION FOR THE REQUEST As previously mentioned earlier in this staff report, Block VI was originally proposed to provide parking for the buildings in Block IV, if necessary. However, Block IV now provides its own parking and there is no longer a need for Block VI to provide parking. The applicant believes the best use for block VI is residential. There are no additional dwelling units proposed for Area C of the Hollymead Town Center Development, just a relocation of the units. The original approved maximum of 120 townhouses for Area C remains unchanged, but a portion of those units would be allocated to Block VI if this rezoning is approved. In addition, the applicant has described a low market need for non-residential uses in this portion of the development. Significant area remains available for non-residential uses within Hollymead Town Center Area C, and the portions of the Town Center. PLANNING AND ZONING HISTORY ZMA82-02 was approved on September 9, 1986 to rezone the property to LI, Light Industry. ZMA89-08 was approved on September 20, 1989 to rezone the property from LI to C-1 and SP 89-71 (Skating Rink), SP89-72 (Motel) and SP89-73 (Drive-through bank) were also approved concurrently. ZMA94-21 was approved on March 15, 1995 to amend proffers of ZMA 89-08 to allow all uses permitted by-right in the C-1 Commercial District. ZMA01-20 was approved on August 6, 2003 to rezone the property from C-1, LI, and RA to PD-MC to allow for a mixed use development in Area C. Other rezoning and special use permits were approved for different areas of Hollymead Town Center. 4 Hollymead Town Center, Block VI
COMPREHENSIVE PLAN The existing zoning approved for Hollymead Town Center is consistent with the Places 29 Master Plan land use designation of Commercial Mixed Use, which allows commercial, retail, employment uses, with supporting residential, office, or institutional uses. This rezoning request does not propose to change the land uses previously approved for Hollymead Town Center in ZMA200100020. The Neighborhood Model: Staff s analysis below indicates how well the proposal meets the 12 principles of the Neighborhood Model: Pedestrian Orientation Neighborhood Friendly Streets and Paths Interconnected Streets and Transportation Networks Relegated Parking Parks and Open Space Neighborhood Centers Buildings and Spaces of Human Scale Sidewalks are proposed to be provided along Meeting Street, Laurel Park Lane, and Grand Forks Boulevard. Sidewalks are also shown internally on the site; Some of the sidewalks appear to provide interconnection internally and externally on the site. This principle is addressed. The entrance onto the site is a road leading to garages for the townhouses on the property. Sidewalks and pathways are provided on the site. Street trees are shown to be provided on the exterior streets and landscaping is also shown internally on the site. This principle is addressed. The application plan shows alleys that are actually intended to be private streets providing access to the individual townhouse garages. The application plan will need to be revised to reflect the actual intent. The streets connect to Meeting Street, and Laurel Park Lane. This principle is addressed. The proposed townhouses have garages and parking is shown to be internal on the site. This principle is addressed. There are two open space areas within the Blocks IV and VI that consist of greenspace/open space. Block VI is inclusive of a tot lot and activity recreation area as shown on the plan. The COD called for a central plaza consisting of some features being provided for Block IV. The central amenity illustrated in the approved COD is now being shown as a more dispersed feature, with open space also shown throughout various areas of the blocks. As a result, the central amenity appears smaller in size. Although this feature is different than originally depicted, the basic form and intent is still being provided. This principle is met. The Hollymead Town Center is designated and planned as both a Community and Destination Center, with the Community Center area focused on Meeting Street just south of this site. The subtraction of non-residential uses in Block IV does not significantly affect the provision of center activities in this area. Neighborhood/residential oriented open spaces are provided in lieu the central plaza called for in the COD. This principle is addressed. The townhouses are proposed to be two to four stories in height. The elevations provided in the plans appear to be in keeping with other townhouse developments in the vicinity. This principle is addressed. 5 Hollymead Town Center, Block VI
Mixture of Uses Mixture of Housing Types and Affordability Redevelopment Site Planning that Respects Terrain Clear Boundaries with the Rural Areas This proposal does not provide a mixture of uses. Although non-residential uses were not proposed for Block VI, a minimum of 32,000 square feet of non-residential uses was proposed for Block IV and is now eliminated since Block IV is proposed with townhouses. However, a maximum of 80,000 square feet of non-residential uses is still allowed in Block IV, allowing non-residential to be developed in the block in the future. Due to its location, in a town center that is inclusive of retail and other commercial uses located within a one-quarter mile of the proposal, the elimination of a minimum square footage of non-residential uses in Block IV is not seen as problematic. A mixture of uses is located within the neighborhood. This principle is addressed. There is a mixture of housing types in the immediate area surrounding Hollymead Town Center. However, most of the units approved to date in Hollymead Town Center are townhouses. Other unit types are permitted within the Hollymead Town Center. The number of maximum housing units remains the same as originally approved in Area C. With no change in the amount of housing provided from the original approval, there is no expectation that additional affordable housing be provided. Affordable housing was addressed with the initial ZMA approval. This principle is partially addressed. Not Applicable. There are designated Managed Slopes located on the site that will be disturbed. Most appear to be man-made. Not Applicable. Economic Vitality Action Plan The primary goal of the County s Economic Vitality Action Plan is to: Increase the County s economic vitality and future revenues through economic development by expanding the commercial tax base and supporting the creation of quality jobs for local residents. This Plan is developed for the benefit and economic well being, first, of current local residents and existing local businesses. The existing zoning approved for Hollymead Town Center supports the Plan by providing additional employment possibilities with the proposed land uses. The proposed reduction of 32,000 square feet of non-residential space in Block IV could reduce future opportunities to locate businesses; however, there remains a large inventory of land and buildable square footage within both the Hollymead Town Center and the greater Hollymead Development Area to support future business needs. Relationship between the application and the purpose and intent of the requested zoning district PDMC districts allow for the development of large-scale commercial areas with a broad range of commercial uses under a unified planned approach. The PDMC district is intended to be established on major highways in the urban area and communities in the Comprehensive Plan. 6 Hollymead Town Center, Block VI
Under the approved zoning, Blocks IV would be developed as a mixed use area consisting of a minimum of 32,000 square feet of non-residential uses and between 15 to 30 residential units. Block VI would be used to provide parking for the development in Block IV. A central plaza would be provided in Block IV that would serve as a public space amenity. This concept created a mixed use block which would provide a transition from the more intensely commercial portion of the town center east of the this site to the residential block just to the west of, and adjacent to, this site. The applicant s plan for this area would increase the number of permitted residential units (townhouses) in these two blocks from the current maximum of 30, up to 74, and provide no commercial or office space/building(s) within these blocks. More dispersed greenspace and courtyard areas are proposed within the blocks providing some similar features, but in a form more in keeping with the needs and expectations of a residential neighborhood. The following is staff s assessment of the proposed changes: The proposal creates a larger, more cohesive residential area, essentially expanding the small block of existing townhouses located at the western edge of the development. The existing block of townhouses is somewhat isolated from other residential areas. This residential area is within walking distance to commercial areas. A transitioning mixed use block is not provided. While it is more desirable to have this transition, it is not seen as critical in this location. The elimination of the minimum non-residential square footage is not seen as a significant issue. Significant area (and existing development) remains available for nonresidential uses within the Hollymead Town Center, much of it within a short walking distance from this site. Non-residential uses would still be permitted within the blocks, permitting the conversion of some units in the future to commercial or office uses. The central amenity has changed in form, to some extent, from being located within a more commercial public area to pockets of space within residential neighborhoods. However, the features called for under the current zoning are being provided and all residents of the town center will have access to the spaces. The open space area as proposed is more in keeping with the needs and expectations for a residential area. This amendment does not change the maximum number of residential units allowed in Area C (120). Staff can support the proposal. Approval of a townhouse development in these two blocks, combined with the existing block of adjacent townhouses, will create a larger more cohesive residential area that will not only meet the markets current demand for town houses, but will generate users within walking distance to the existing commercial uses in the Hollymead Town Center. As previously described in this staff report, there remains adequate space in the Hollymead Town Center for additional non-residential uses in the future, and based on approved plans for Areas A, B, C and D. The original form of the greenspace is somewhat changed from a central plaza to greenspace that is more dispersed throughout different spaces in the blocks. Although it is changed, the greenspace will remain an important feature for a majority of the proposed residential units. 7 Hollymead Town Center, Block VI
Anticipated impact on public facilities and services Streets: The following engineering concerns are provided relating to the proposed street design for the subject development: Engineering staff is concerned that the existing Timberwood Boulevard has not been accepted into the state highway system by VDOT. The County Engineer does not recommend new development that accesses Timberwood Boulevard be approved until the road is completed and accepted by VDOT. The applicant has indicated that he is working with VDOT towards road acceptance. The applicant believes the road will be accepted by VDOT in a timely manner and is not necessarily interested in providing a possible solution such as proffering no building permits until the road is accepted into the state system. Since this rezoning request does not propose any intensification of use or additional impact to the road above what could be done byright under the current zoning, staff does not believe this issue needs to be addressed with this rezoning. The road centerline radius that has been provided shows the entire curve has been left open on the right side. Entrances to lots should use standard VDOT driveway entrance details. Leaving large sections of road frontage open does not meet standards. (See Attachment D for Engineering comments). These issues will need to be addressed at the site plan/subdivision plat approval stage. VDOT has not identified any major issues with this proposal. They have noted that the proposed entrance onto Meeting Street will need to be constructed in accordance with the standards of Appendix F of the Road Design Manual for commercial entrances, which will be addressed at the site plan/subdivision plat stage. (See Attachment E for comments from VDOT) Schools: Students living in this area would attend Baker-Butler Elementary School, Sutherland Middle School, and Albemarle High School. Fire and Rescue: This area is served by the Hollymead Fire Station. Utilities: The site is serviced by public water and sewer. This proposal has no affect on this service. Anticipated impact on environmental, cultural and historic resources There are no anticipated impacts from the proposed amendment on environmental or cultural and historic resources. Anticipated impact on nearby and surrounding properties There are no anticipated impacts from the proposed amendment on nearby and surrounding properties. Public need and justification for the change According to the applicant, the proposed housing will meet market demands for residential units within close walking distance to a mixed use community/town center. The subtraction of non-residential uses in Block IV will reduce future opportunities to locate businesses in this block, but it does not preclude businesses from locating to this block in the future; Hollymead Town Center and the greater Hollymead 8 Hollymead Town Center, Block VI
Development Area have the potential, with available land and approved plans, to support future business needs. The proposed amendment will also provide the applicant an opportunity to develop Block VI with a residential use instead of reserving the site for un-needed parking for Block IV. PROFFERS The applicant has provided revisions to the proffers from ZMA200100020. The proposed changes to the proffers are intended to 1) update the references to the proposed COD and application plan, and 2) update the status of those proffers which have now been satisfied (See Attachment C for revised proffers). While there are no major substantive issues with the proposed proffers, technical revisions are needed to the form and language of the proffers. The proffers should reflect the complete language as referenced in the original proffers with revisions made to the dates for this amendment. Area C of the Hollymead Town Center was approved for a maximum of 120 townhouses to be located within various blocks of Area C. This maximum is not being changed or exceeded by this rezoning request. Since there is no change to the number of residential units proposed, there are no additional impacts to public facilities or services are anticipated by this rezoning request. Consequently, no additional cash proffers are anticipated since there are no additional impacts to the public facilities. Likewise, no further commitment to affordable housing is anticipated since no additional residential units are proposed. SUMMARY In general, the primary changes to this rezoning request is the re-location of residential units from one block to another, and the elimination of a minimum 32,000 square feet of non-residential uses in Block IV as depicted in the COD. The proposal remains consistent with the original intent of the zoning district, density and land use. In summary, staff can support the proposed rezoning amendment. Staff has identified the following factors, which are favorable to this request: 1. The rezoning request remains consistent with the Comprehensive Plan and no changes to uses are proposed. 2. Proposed townhouse development in Blocks IV and VI are consistent with existing residential development adjacent to the site and will create a larger and more cohesive residential neighborhood that is close to a walkable center. 3. The original maximum number of residential units is unchanged. 4. Sufficient non-residential land use capacity/ development potential remain within the Hollymead Town Center Staff has identified the following factors which are unfavorable to this request: 1. Loss of non-residential space/mix use form within these blocks 2. Technical revisions are needed to proffers, code of development, and application plan. RECOMMENDATION Staff recommends approval of this rezoning ZMA2013000004, Hollymead Town Center - Block VI, provided technical revisions are made to the proffers and changes are made to the application plan and code of development as described in the staff report prior to the Board of Supervisor meeting. 9 Hollymead Town Center, Block VI
ATTACHMENTS ATTACHMENT A Location Map ATTACHMENT B Application Plan, dated March 18, 2013, revised June 04, 2014 ATTACHMENT C Code of Development, inclusive of proffers, dated July 25, 2003, revised April 21, 2014 ATTACHMENT D Memorandum from Glenn Brooks dated July 14, 2014 ATTACHMENT E Electronic Mail from Troy Austin, dated May 14, 2014 PLANNING COMMISSION MOTION: A. If the ZMA is recommended for approval: Move to recommend approval of ZMA201300004 with revised code of development, and provided technical revisions are made to the proffers, and changes are made to the application plan as recommended by staff, prior to the Board of Supervisor meeting. B. If the ZMA is recommended for denial: Move to recommend denial of ZMA201300004. Note reasons for denial. 10 Hollymead Town Center, Block VI