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07SN0358
~~tF~EI,p ~~:, ~~ti --~ ca~~'';. .v ~ ~ e,~ !' ~ ~~ ~ti, I rY~ ry ! ~;li ,~~~ t, -17 ~. J/i Ir~RGSI~1.P!!~ STAFF' S REQUEST ANALYSIS AND RECOMMENDATION 07SN0358 Chris and Gladys Kalentzos c~~~ ti~ ~nnQ rnr October 22, 2008 BS Matoaca Magisterial District Grange Hall Elementary; Swift Creek Middle; and Cosby High Schools Attendance Zones West line of Weatherbury Place RE VEST: Rezoning from Residential (R-40) to Residential (R-15). PROPOSED LAND USE: A single-family residential subdivision with a minimum lot size of 15,000 square feet is planned. The applicant has agreed to limit development to a maximum of six (6) lots, yielding a density of approximately 0.7 lots per acre. (Proffered Condition 2) PLANNING COMMISSION RECOMMENDATION RECOMMEND DENIAL. AYES: MESSRS. BASS, BROWN, HASSEN AND WALLER. ABSENT: MR. GULLEY. STAFF RECOMMENDATION Recommend denial for the following reason: While the proposed zoning and land uses conform to the Upper Swift Creek Plan, which suggests the property is appropriate for residential use of 2.0 units per acre or less and proffered conditions address the impact of the development on school, library, fire and park facilities, the proposal fails to adequately address the impact of the development on area roads and includes an illegal proffered condition which cannot be enforced, as discussed herein. Providing a FIRST CHOICE community through excellence in public service (NOTE: THE ONLY CONDITION THAT MAY BE IMPOSED IS A BUFFER CONDITION. THE PROPERTY OWNER(S) MAY PROFFER OTHER CONDITIONS.) PROFFERED CONDITIONS 1. In addition to the Transportation Contribution in Proffered Condition 9, the applicant, subdivider, or assignee(s) shall pay the following, for infrastructure improvements within the service district for the property, to the county of Chesterfield prior to the issuance of building permit: A. If paid prior to July 1, 2009, $7,613.00 per dwelling unit. At time of payment $7,613.00 will be allocated pro-rata among the facility costs as follows: $6,149.00 for schools, $853.00 for parks and recreation, $192.00 for library facilities, and $419.00 for fire stations; or B. The amount approved by the Board of Supervisors not to exceed $7,613.00 per dwelling unit adjusted upward by any increase in the Marshall and Swift building cost index between July 1, 2008, and July 1 of the fiscal year in which the payment is made. C. Cash proffer payments shall be spent for the purposes proffered or as otherwise permitted by law. D. Should any impact fees be imposed by the County of Chesterfield at any time during the life of the development that are applicable to the property, the amount paid in cash proffers shall be in lieu of or credited toward, but not be in addition to, any impact fees, in a manner determined by the County. (B&M) 2. The maximum density of this development shall not exceed six (6) lots. (P) 3. Storm water Management: The developer acknowledges that, if the water quality of the Swift Creek Reservoir has reached a median level that exceeds .03 5 mg/l in-lake phosphorus or otherwise degrades to an unacceptable level, the County may adopt phosphorus loading standards that are more restrictive than the standards applicable on the date on which the Board of Supervisors approves this rezoning request. To mitigate the impact of this development on the water quality of the Swift Creek Reservoir and the Upper Swift Creek Watershed, and consistent with the County's duty to exercise its police powers to protect the County's water supply, the Developer and his assignees agree that the phosphorous loading standards of the Zoning Ordinance, any water quality or storm water management standards adopted by the County to mitigate the impact of development on the water quality of the Reservoir, and any water quality standards required by the state or federal governments that are applicable to any undeveloped portion of the Property shall be those standards that are in effect at the time of subdivision plan approval. All substantially approvable construction plans in the department of Environmental Engineering that have complied with the submittal criteria for review shall not be affected. (EE) 2 07SN0358-OCT22-BOS-RPT 4. Except as noted in Proffered Condition #6, the minimum gross floor area for dwelling units shall be 2000 square feet. (BI & P) 5. All exposed portions of the foundation and exposed piers supporting front porches of each dwelling unit shall be faced with brick, decorative masonry or stone veneer or exterior insulation and finishing systems (EIFS) materials. (BI & P) 6. With the exception of the realignment of the intersection of Weatherbury Place and Genito Road, Weatherbury Place shall not be relocated. Any lots which adjoin Weatherbury Place shall conform to Residential (R-25) standards and any dwelling unit on such lot shall have a minimum gross floor area of 3,000 square feet. (P) 7. The existing pond shall be maintained as a best management practice facility. (EE) 8. Except for timbering approved by the Virginia State Department of Forestry for the purpose of removing dead or diseased trees, there shall be no timbering on the Property until a land disturbance permit has been obtained from the Environmental Engineering Department and the approved devices installed. (EE) 9. Transportation Contribution. A. The paving and ditch improvements as shown on Exhibit A shall be completed, as determined by the Transportation Department, prior to the recordation of any lots on the following Tax ID's 711-688-3114, 711-688- 7172, 711-689-153 1, 711-689-2247, 711-689-2465, 711-692-2160, 712- 688-4372, 712-689-1950, 712-689-3422, 712-689-6214, 712-689-7342, 712-689-8374, 713-689-3525, 713-691-1673, 713-691-8928, 714-690- 1660. B. The applicant, his successor(s), or assignee(s) (the "Applicant") shall comply with the obligations of Proffered Condition 1 and 9.A., and shall pay to the County of Chesterfield at time of recordation $6,988.00 per lot. If this amount is paid after June 30, 2009, the amount paid shall be adjusted upward annually by the percentage increase in the Marshall and Swift Building Cost Index. In the event that the improvements shown on Exhibit A are completed by others, as determined by the Transportation Department, then the applicant, his successor(s), or assignee(s) (the "Applicant") shall comply with the obligations of Proffered Condition 1., and shall pay to the County of Chesterfield at time of recordation $10,467.00 per lot. If this amount is paid after June 30, 2009, the amount paid shall be adjusted upward annually by the percentage increase in the Marshall and Swift Building Cost Index 3 07SN0358-OCT22-BOS-RPT C. If, upon the mutual agreement of the applicant, his successor(s), or assignee(s) (the "Applicant") and the Transportation Department, the applicant provides additional road improvements, other than the road improvements identified in proffered condition 9.A., then the transportation contribution in this Proffered Condition shall be reduced by an amount equal to the cost to construct the Improvements. Thereafter, the Applicant shall pay the balance of the transportation contribution as set forth in this Proffered Condition. For the purposes of this proffer, the costs, as approved by the Transportation Department, shall include, but not be limited to, the cost of right-of way acquisition, engineering costs, wetlands permitting and mitigation, costs of relocating utilities and actual costs of construction (including labor, materials, and overhead) ("Work"). Before any Work is performed, the Applicant shall receive prior written approval by the Transportation Department for any credit. However, under no circumstances shall the Applicant be required to expend any amount for transportation contributions and/or the cost of improvements pursuant to Proffered Condition 9 in excess of the total amount stated herein. (T) GENERAL INFORMATION T,~cati~n: West line of Weatherbury Place, north of Genito Road. Tax IDs 711-689-153 1, 2247 and 2465. Existing Zoning: R-40 Size: 8.1 acres Existing Land Use: Single-family residential or vacant Adjacent Zoning and Land Use: North - R-40; Single-family residential South - A; Single-family residential East - R-40 and A; Single-family residential with Special Exception to operate a catering business West - A; Vacant 4 07SN0358-OCT22-BOS-RPT T ITTT ,TTTF,~ Public Water System: The request site is within the Clover Hill Water Pressure Zone and the public water system is available to serve the request site. There is an eight (8) inch water line extending along Weatherbury Place adjacent to this site. Use of the public water system is required by County Code. Public Wastewater System: The request site is within the Upper Swift Creek Service Area. Aforty-two (42) inch wastewater trunk line extends along the north side of Swift Creek approximately 5,000 feet north of this site. The hydraulic analysis prepared by E. D. Lewis and Associates in conjunction with the Swift Creek Trunk Line Plans, calls for a future trunk line along the south side of Swift Creek from the existing line at its proposed crossing point west of Turkey Creek, to the request site, for a total off site extension of approximately 7,800 feet. Use of the public wastewater system is required by County Code. ENVIRONMENTAL Drainage and Erosion: The subject properties drain to a pond that straddles all three parcels and then via tributaries to Swift Creek and then to Swift Creek Reservoir. There are no existing or anticipated on- or off site drainage or erosion problems. The property should not be timbered without the developer obtaining a land disturbance permit from the Department of Environmental Engineering (Proffered Condition 8). This will insure adequate erosion control measures are in place prior to any land disturbance. Water ualit Proffered Condition 3 requirements for mitigating impacts on the water quality of the Swift Creek Reservoir exceed the water quality standards implemented with the Upper Swift Creek Plan adopted in October of 2007. These requirements are representative of recently approved standards for cases in the Upper Swift Creek area and are acceptable in this case. In addition, the existing pond on the property should remain to help protect the water quality of the Swift Creek Reservoir. (Proffered Condition 7) PUBLIC FACILITIES The need for schools, parks, libraries, fire stations, and transportation facilities is identified in the Public Facilities Plan, Thoroughfare Plan and Capital Improvement Program and further detailed by specific departments in the applicable sections of this Request Analysis. 5 07SN0358-OCT22-BOS-RPT Fire ~Prvi~P~ The Public Facilities Plan indicates that fire and emergency medical service (EMS) calls are expected to increase forty-four (44) to seventy-eight (78) percent by 2022. Six (6) new fire/rescue stations are recommended for construction by 2022 in the Plan. In addition to the new stations, the Plan also recommends the expansion of five (5) existing stations. Based on six (6) dwelling units, this request will generate approximately one (1) call for fire and emergency medical service each year. The applicant has addressed the impact of this proposed development on fire and EMS. (Proffered Condition 1) The Swift Creek Fire Station Company 16 currently provides fire protection and emergency medical service. When the property is developed, the number of hydrants, quantity of water needed for fire protection, and access requirements will be evaluated during the plans review process. ~chnnl~~ Approximately three (3) students (Elementary: 1, Middle: 1, High: 1) will be generated by this development. Currently, this site lies in the Grange Hall Elementary School attendance zone: capacity - 825, enrollment - 912; Tomahawk Creek Middle School zone: capacity - 1,200, enrollment - 1,086; and Cosby High School zone: capacity - 1,750, enrollment -1,758. The enrollment is based on October 1, 2007 and the capacity is as of 2007-2008. This request will have an impact on the elementary and middle school levels. This case combined with other tentative residential developments and zoning cases in the area will continue to push these schools to capacity. This case could necessitate some form of relief in the future. The applicant has addressed the impact of this development on school facilities. (Proffered Condition 1) T,ihrarie~~ Consistent with the Board of Supervisors' policy, the impact of development on library services is assessed Countywide. Based on projected population growth, The Public Facilities Plan identifies a need for additional library space throughout the County. Development in this area of the County would most likely impact either the existing Midlothian or Clover Hill Libraries. The Public Facilities Plan indicates a need for additional library space and identifies the need for two (2) new facilities, one in the vicinity of Powhite Parkway and Genito Road and one in the vicinity of Winterpock and Beach Roads. The applicant has addressed the impact of this proposed development on library facilities. (Proffered Condition 1) 6 07SN0358-OCT22-BOS-RPT Parks and Recreation: The Public Facilities Plan identifies the need for three (3) regional, seven (7) community and twenty-nine (29) neighborhood parks by 2020. In addition, there is a shortage of community and neighborhood park acreage in the County. The Public Facilities Plan identifies a need for 3 54 acres of regional park space, 252 acres of community park space and 199 acres of neighborhood park space by 2020. The Plan also identifies the need for linear parks and resource-based special-purpose parks (historical, cultural and environmental) and makes suggestions for their locations. The Plan addresses the need for additional recreational facilities to include sports fields, trails, playgrounds, court games, senior centers and picnicking area/shelters at existing parks to complete build-out, and identifies the need for water access and trails along the James and Appomattox Rivers and their maj or tributaries, Swift and Falling Creeks. Co-location with middle and elementary schools is desired. The applicant has offered measures to address the impact of this proposed development on the infrastructure needs of Parks and Recreation. (Proffered Condition 1) Transportation: The applicant is requesting rezoning from Residential (R-40) to Residential (R-15) on approximately eight (8) acres in the Upper Swift Creek Plan area. Based on trip generation rates for single-family housing and the maximum density of six (6) lots identified in Proffered Condition 2, development of the property could generate approximately eighty (80) average daily trips. Genito and Otterdale Roads will be directly impacted by this traffic. Genito Road had a 2008 traffic count of 3,703 vehicles per day and was functioning at an acceptable Level of Service D. Otterdale Road had a 2008 traffic count of 1,157 vehicles per day and was functioning at an acceptable Level of Service C. Otterdale Road in the vicinity of the property has extremely poor vertical and horizontal alignments, narrow pavement widths, no shoulders and fixed objects adjacent to the edge of pavement. Genito Road also has narrow pavement widths, no shoulders and fixed objects adjacent to the edge of pavement. Significant improvements to both of these roads should be committed before any additional traffic is added to them. Because the applicants have not committed to provide sufficient improvements to area roads, including Genito and Otterdale Roads, the Transportation Department cannot support this request. Area roads need to be improved to address safety issues and accommodate the increase in traffic. The applicants have proffered that the improvements shown on Exhibit A will be completed before any lots are recorded on the property, or any of the properties included in Cases 07SN0359, 07SN0360 and 07SN0361(Proffered Condition 9). Staff will not be able to enforce this proffered condition as development on the property is tied to properties not included in this request. The applicant has been advised by the county attorney to revise the proffered condition since it is illegal and cannot be accepted. The applicant has estimated that the total cost to provide these improvements is $800,000. The actual cost of this construction cannot be determined until the work is completed and may be more or less than this estimated amount. If these improvements are provided by 7 07SN0358-OCT22-BOS-RPT others (i.e. a public project) then the applicants will pay cash, in an amount consistent with the Board of Supervisors' Policy, towards mitigating the traffic impact. The applicants have indicated that when the estimated cost of construction is prorated over the total number of lots, two-hundred and thirty (230), expected to be developed by all four (4) cases, the estimated value of the improvements per lot is $3,479. The applicant has also proffered to contribute an additional $6,988 in cash per lot, bringing the applicant's per-lot contribution to roads, including the prorated estimated construction cost, to $10,467, an amount consistent with the Board's Cash Proffer Policy. Staff has suggested that additional improvements be provided in lieu of the $6,988 in cash that the applicant has proffered. Because the applicants have not modified the proffered condition or committed to provide sufficient improvements to area roads, the Transportation Department cannot support this request. Cash proffers alone will not be sufficient to fund the road improvements necessary in this area. There are only two (2) public projects planned in the area: reconstruction of a bridge on Otterdale Road and improvements to the intersection of Otterdale Road and Genito Road. At this time, the intersection project does not have adequate funding for construction. VDOT's "Chapter 527" regulations, dealing with development Traffic Impact Analysis (TIA) requirements, have recently been enacted. At this time, it is uncertain what impact VDOT's regulations will have on the development process or upon zonings approved by the county. The applicant has indicated that a Chapter 527 TIA is not required for this rezoning request. VDOT's Access Management Regulations were enacted on July 1, 2008 but only apply to roads that are classified by VDOT as Principal Arterials. The regulations are scheduled to apply to roads such as Otterdale Road, which is classified as an Urban Collector, on October 1, 2009. Because these regulations have not been finalized, it is unclear what impact they will have on development of the property. To summarize, the Transportation Department cannot support this request because the applicants have not committed to provide sufficient improvements to area roads. 8 07SN0358-OCT22-BOS-RPT Financial Impact on Capital Facilities: PER UNIT Potential Number of New Dwelling Units 6~ 1.00 Population Increase 16.14 2.69 Number of New Students Elementary 1.32 0.22 Middle 0.66 0.11 High 0.96 0.16 TOTAL 2.94 0.49 Net Cost for Schools $48,888 $8,148 Net Cost for Parks 6,780 1,130 Net Cost for Libraries 1,524 254 Net Cost for Fire Stations 3,336 556 Average Net Cost for Roads $83,226 13,871 TOTAL NET COST $143,754 $23,959 ~ Based on a proffered maximum of six (6) dwelling units (Proffered Condition 2). The actual number of dwelling units and corresponding impact may vary As noted, this proposed development would have an impact on capital facilities. At the time that this rezoning application was submitted, the calculated fiscal impact of every new dwelling unit on schools, roads, parks, libraries, and fire stations was $15,648 per unit. Effective July 1, 2008 the maximum per-dwelling-unit cash proffer was increased to $18,080. The applicant has been advised that a maximum cash proffer of $18,080 per unit would defray the cost of the capital facilities necessitated by this proposed development. Consistent with the Board of Supervisors' policy, and proffers accepted from other applicants, the applicant has offered $18,080, $7,613 in cash and $10,467 in transportation contributions or road improvements, per dwelling unit to assist in defraying the cost of this proposed zoning on such capital facilities. The $10,467 proffered to address roads consists of road improvements with a cost equivalent to $3,479 per dwelling unit and a cash contribution of $6,988 per dwelling unit. Staff continues to express the desire to have road improvements in lieu of the transportation contribution. The applicant has not committed to such road improvements, as referenced in the Transportation Department's report. The applicant has further included language in Proffered Condition 9A. that refers to parcels that are neither included as part of this zoning request, nor controlled by the applicant, rendering that condition illegal. The applicant has been advised that this condition cannot be accepted. 9 07SN0358-OCT22-BOS-RPT Note that circumstances relevant to this case, as presented by the applicant, have been reviewed and it has been determined that it is appropriate to accept the maximum cash proffer in this case. Staff recommends the applicant adequately address the Transportation Department's concerns as they pertain to mitigating the development's impact on roads. The Planning Commission and Board of Supervisors, through their consideration of this request, may determine that there are unique circumstances relative to this request that may justify acceptance of proffers as offered for this case. T , ANn T T~F, Comprehensive Plan: On June 25, 2008, the Board of Supervisors adopted amendments to the Upper Swift Creek Plan. These amendments addressed levels of service standards for schools, fire and emergency services; road infrastructure needs; water quality; and a growth management boundary. This application was filed prior to the Board's adoption of the amended Plan. As such, staff's evaluation of this request is based upon the previous Upper Swift Creek Plan in effect prior to these amendments. This previous Plan suggests the property is appropriate for residential use of 2.0 units per acre or less. Area Development Trends: Adjacent properties are characterized by single-family residential uses in weatherbury subdivision and on acreage parcels, a bed and breakfast and catering business operated from a home and by vacant properties. Single-family residential uses are expected to continue in this area, as suggested by the Plan. It should be noted, as reflected on the attached map, there are several other pending zoning cases surrounding the intersection of Genito and Otterdale Roads. Zonin H.~X: On March 27, 1985, the Board of Supervisors, upon a favorable recommendation from the Planning Commission, approved rezoning to Residential (R-40) with Conditional Use to permit stock farm use on this property as well as the surrounding R-40 property. The intent was to develop an equestrian subdivision allowing the keeping of horses on lots having a minimum of three (3) acres. (Case 85SN0024) On January 25, 1989, the Board of Supervisors, upon a favorable recommendation from the Planning Commission, approved an amendment to Case 85SN0024 relative to the maximum allowable density (Case 88SN0258). Specifically, this amendment increased the permitted number of lots in the VVeatherbury Subdivision from twenty-five (25) to fifty (50), yielding a permitted density of approximately 0.6 dwelling units per acre. 10 07SN0358-OCT22-BOS-RPT Density and Lot Sizes: Proffered Condition 2 would limit development to a maximum of six (6) lots, yielding a density of approximately 0.7 lots per acre. Residential (R-15) Zoning District standards would permit lots to have a minimum area of 15,000 square feet and a minimum lot width of 100 feet. In addition, the applicant has agreed that Weatherbury Place will not be relocated, except for a realignment of its intersection with Genito Road, and that the portion of the property which adjoins Weatherbury Place is to be developed to Residential (R-25) standards, with a minimum lot size of 25,000 square feet and a minimum lot width of 120 feet (Proffered Condition 6). This condition will also require compliance with R-25 setbacks. Dwelling Sizes and Foundation Treatments: Proffered Conditions 4, 5 and 6 establish minimum house sizes and foundation treatments for dwelling units developed on the property. CONCLUSIONS While the proposed zoning and land uses conform to the Upper Swift Creek Plan which suggests the property is appropriate for residential use of 2.0 units per acre or less and the proffered conditions address the impact of the development on schools, parks, libraries and fires stations in accordance with the Board of Supervisors' Policy, the proposal fails to address the impact on area roads, as discussed herein, so as to mitigate the impact on the transportation network. In addition, the proposal includes an illegal proffered condition which cannot be accepted. Specifically, Proffered Condition 9 ties development on the property to conditions of development for properties not included in this request. Given these considerations, denial of this request is recommended. CASE HISTORY Planning Commission Meeting (7/15/08): On their own motion, the Commission deferred this case to their September 16, 2008 public hearing. 11 07SN0358-OCT22-BOS-RPT Staff (7/16/08): The applicant was advised in writing that any significant, new or revised information should be submitted no later than July 21, 2008 for consideration at the Commission's September 16, 2008 public hearing. Applicant (9/3/08 and 9/16/08): Revised proffered conditions and an exhibit were submitted. Planning Commission Meeting (9/16/08): The applicant did not accept the recommendation, stating the case offers what is expected with the current proffer policy. No one spoke in favor of, or in opposition to, the request. Mr. Bass expressed concerns that the modifications to proffers were received so late and stated he would request the Board remand the case to the Commission. He also expressed concerns that the road improvement issues had not been addressed. Mr. Waller also expressed concerns about newly submitted proffers. On motion of Mr. Bass, seconded by Mr. Hassen, the Commission recommended denial. AYES: Messrs. Bass, Brown, Hassen and Waller. ABSENT: Mr. Gulley. The Board of Supervisors, on Wednesday, October 22, 2008, beginning at 6:30 p.m., will take under consideration this request. 12 07SN0358-OCT22-BOS-RPT 1 ~~ ~~ t r i ~ ~ o `° ~ M O ~~J Z F I:r`. ~:~.~ ~~ ~ h r 0 ~ N {~ c~ ~ U ~ r ~~ %~ ,, l ~~ } a ~~~ ~ J = ~ ~ ~ OOrOA'6QI"d1S OdOid 011N39 ~, a ~ ~ ~ dpN 133HS 33S • 3NI1H~1dM o ~~ ~~~~~ n • \ ~~ g ;~ ~~ .g i~ N I J ;g d z M w pry K/ w w O o r z J LL a ~ W } ~ x ~ ~ ~ ! N ~: \ ~ y ~ S961199111.XO1 a 2 ~ O ,~ '` x~ I I ~: •` \ ° a in ~ 8/.07 u ~~ f '•' g o\ Z m~F~ ,~ pooM~x~~ ~i-' ~ i ,~ ~ .\. ,;,; ,_~ ~N~ Q~3~~~~ ~~i ~_ ~ ~ ;a 'o ~ 3 J ~DN HII.~ ~~ R S ; ! 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