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88SN0058 August 24, 1988 BS ADDENDUM 88SN0058 Millhiser-Halsey & Company, Inc. Matoaca Magisterial District West line of Riverway Road On August 22, 1988, the applicant proffered the conditions set out below. As these conditions do not address staff's concerns in this case, staff continues to recommend denial of the request, now, with rejection of the proffers. PROFFERED CONDITIONS 1. The average lot size per gross acre in this development shall be 1.30 acres or more (319A divided by 209 lots = 1.53A) . Roads are estimated to be .09A per lot for a yield of 1.44A/lot. No lot will be less than 1.00 acre. 2. Developer agrees to aid the County and the River Ridge Developer in the previously required (Case No. 865069) water line extension from Beach and Riverway Roads. Developer further agrees to allow the Board of Supervisors to determine the percentage paid the County by each of the two developers for this extension and further agrees to be bound by their decision. 3. Developer will help to preserve the rural character of the area by restricting the number of trees which can be removed from each lot. 4. Developer agrees to utilize as many "green areas" as possible in the development of the area in order to lessen the undesirable impact of water runoff and in order to preserve and enhance the quality of life and nature within this rural setting. 5. In order to ensure the safety to school children, the developer agrees to install turn lanes into the development at Riverway Road. 6. Developer will contribute $15,000.00 toward the development of a fire station in the area. These funds will be deposited to the account of Winterpock Area Citizens Association upon written confir- mation that the Association is beginning the development of the fire station for the area, or deposited in a trust fund to be used for such purpose on or before December 31, 1990, whichever shall sooner occur. 88SN0058/BSNL8/AUG24II l anae-~~r-X988-s~6 a~~p-~9T-X988-sus August 24, 1988 BS REQUEST ANALYSIS AND RECOMMENDATION 88SN0058 Millhiser-Halsey & Company, Inc. Matoaca Magisterial District West line of Riverway Road RE UEST: Rezoning from Agricultural (A) to Residential (R-25). A single family residential subdivision is planned. PLANNING COMMISSION RECOMMENDATION RECOMMEND DENIAL. STAFF RECOMMENDATION Recommend denial for the following reasons: A. The proposed use is contrary to the Western Area Land Use and Trans- portation Plan, which designates continued agricultural and forestal uses south of Beach Road and west of Riverway Road. B. Residential development in this rural part of the County would be premature and could not be supported by existing or planned public facilities. Development of this site, lying far beyond the urban and suburban areas of the County, would inordinately tax the Coun- ty's ability to provide normal public services. C. Approval of this request would set a precedent for further develop- ment in the areas of the County designated on the land use plans for agricultural/forestal uses. A mayor goal of the Western Area Plan is to "allow limited expansion of urban development where a full range of urban services can be provided..." Adequate public roads, schools, parks, libraries, utilities, and police/fire protection are not currently available in the area, nor are they planned in the foreseeable future. GENERAL INFORMATION Location: Fronting approximately 1,460 feet on the west line of Riverway Road, approximately 300 feet north of Walkes Quarter Road, also fronting in two (2) places on River Road for a total of approximately 1,150 feet, measured from a point approximately 920 feet west of Walker Quarter Road. Tax Map 126 (1) Parcels 79 through 87, 107 through 109, 121 through 124, 130, and 131 (Sheet 38). Existing Zoning: Agricultural (A) Size• 319.2 acres Existing Land Use: Vacant Adjacent Zoning & Land Use: North - R-25; Single family residential South - A; Single family residential and vacant East - A; Single family residential and vacant West - A; Single family residential and vacant Utilities: A 16 inch water line was recently con- structed down Winterpock Road, and along Beach Road to Hensley Road to serve Physic Hill. An extension of this main east along Beach Road to serve Brandy Oaks and Carters Mill is currently being designed. Use of public water is required for the future development of the ad3acent River Ridge, after the first forty-six (46) lots. Public water is, at present, approximately 8,200 feet north of the site. If this proposal were approved, use of public water would be required by Ordinance and should be coordinated with surrounding develop- ment. The site lies in the Appomattox River drainage basin. Public sewer is not available, and there are at present no plans to extend sewer into this area. Environmental Engineering: The site drains toward Surline Branch and then into other tributaries to the Appomat- tox. There is a large lake a few thousand feet downstream. No on- or off-site drain- age or erosion problems are foreseen. The existing lake on the property should remain and be enlarged if possible with detention capability built into it. Schools: ~ Approximately 190 school age children would be generated by this request. The site lies in the Grange Hall Elementary School 2 F~0058/BSJUL8/AUG24I attendance zone: capacity - 617, enroll- ment - 653; the Swift Creek Middle School attendance zone: capacity - 1,350, enroll- ment - 1,577, and the Clover Hill High School attendance zone: capacity - 1,530, enrollment - 1,799. An addition was made to Clover Hill High School in 1987. No further expansion is planned to any of these schools, which are all already over capacity. Fire Service: Clover Hill Fire Station, Company ~~7. At present, fire service capability is good. However, fire service capability reflects a preferred travel time from station to site of five (5) to six (6) minutes, but travel time from the Clover Hill Fire Station to the subject site is estimated to be eight (8) to eleven (11) minutes. If the Clover Hill Fire Station is unavail- able, back-up company comes from the Phillips Fire Station--an all volunteer company. Travel time from this station is greater again than that from the Clover Hill Station. As development in the Clover Hill Fire Station's service area, e.g. Greenspring, Spring Run (Birkdale), Deer Run, and areas recently rezoned for devel- opment in the east and north, continues to increase the demand on the Clover Hill Station and the amount of time when it would be unavailable, increases. It should be noted that the Capital Im- provement Program proposes no new fire stations for this area because of the agricultural/forestal designation on the Plan. Further residential development in the area, without re-evaluation of the Capital Improvement Program regarding fire service, could jeopardize the capability of Clover Hill Fire Station. General Plan (Western Area Land Use and Transporta- tion Plan): Agricultural/forestal Transportation: This proposed development could generate approximately 2,680 average daily trips. These vehicles would be initially dis- tributed along Riverway Road and River 3 88SN0058/BSJUL8/AUG24I Road, which had 1986 traffic counts of 440 and 307 vehicles per day, respectively. The Western Area Land Use and Transporta- tion Plan identifies Riverway and River Roads as major arterials with recommended right of way widths of ninety (90) feet. Right of way dedication should be in accor- dance with that Plan. Access to these identified major arterials should be con- trolled. To insure access control, a buffer would need to be provided along the property that abuts Riverway and River Roads. It should be noted that approxi- mately thirty-three (33) lots have been cut off of most of the existing road frontage of River Road and Walkes Quarter Road that are not included in this request. There- fore, any access control would be limited. An additional lane of pavement would need to be provided along Riverway and River Roads at each access point to provide left- and right-turn lanes. There are several major collector roads planned in the vicin- ity of this request (see attached map). At least a no-lot-frontage collector road would have to be developed through this property. At the time of tentative subdi- vision review, staff would make specific recommendations regarding the design and location of the collector road(s), as well as providing stub(s) to adjacent proper- ties. T)TS('TTSSTnN The applicants are requesting rezoning from Agricultural (A) to Residential (R-25) of 319.2 acres. A single family residential subdivision served by public water and private septic systems is planned. Maximum R-25 development, at 1.56 units/acre, could yield 497 lots. Typical R-25 development, at 0.84 units/acre, would yield 268 lots. The Western Area Land Use and Transportation Plan, adopted January 14, 1987, calls for agricultural and forestal uses for the areas south of Beach and west of Riverway Roads. This part of the County is furthest from the suburban areas of the County and the public roads, water, sewer, police/fire protection, schools, libraries, parks, etc., necessary for development of residential subdivisions. The Plan promotes continuance of the existing agricultural and forestal land uses, which compliment the rural nature of the area. The intent of the agricultural/forestal uses would be to allow for sparse residential development related to agricul- tural and forestal activities, not residential subdivisions to the extent proposed by this request. ~ 4 ~N0058/BSJUL8/AUG24I ~' More intense development should be occurring as infill development in the urbanized areas of the County or along the leading edge of the urbanized area where infrastructure connections (e.g., water and sewer) and public services (e.g., police, fire protection, libraries, schools) are readily available. Development beyond this service area, known as leap-frog development, places residences ahead of rational public facilit and initially leads to inadequate public services followed by expensive expansion of the needed facilities. The high cost of extending these public facilities is then borne by all County taxpayers. History sug- gests that as this type of development continues, the County will come under increasing pressure to extend public services to outlying develop- ments which occur in areas where the expected level of public services are not available. It should be noted that certain residential developments in this area, River Ridge, Plantation Trace, and Physic Hill, were rezoned for residen- tial uses rior to adoption of the Western Area Land Use and Trans orta- tion Plan. Also, further road strip development, as has occurred in the area, has been prohibited by the amendment to the Subdivision Ordinance, adopted May 25, 1988. Because efficient growth for the County should proceed outward from urbanized areas as public facilities and services become available, and because the Plan designates this site for continued agricultural and forestal uses, while designating residential growth for sites to the north and east, rezoning of this site would be premature. Staff recom- mends denial. However, as facilities become available and as development continues outward from the city in the future, it may be appropriate to re-evaluate the Plan to consider the appropriateness of growth in the area. CASE HISTORY Planning Commission Meeting (6/21/88): At the request of the applicants, and on motion of Mr. Belcher, seconded by Mr. Perkins, this case was deferred for thirty (30) days to the July 19, 1988, meeting. Staff (6/29/88): Staff has received no new information from the applicants and continues to recommend denial. Planning Commission Meeting (7/19/88): Mr. Roy Crawford gave a presentation on the background of this case. Mr. Les Saunders came forward to represent the applicants. He stated that it was the intent to build a single family residential subdivision 5 88SN0058/BSJUL8/AUG24I on approximately 300 acres, he stated that, given the fact that the property would be developed using septic tanks, the number of lots which would be created would be very limited. Specifically, he stated that the maximum expected would be 209 lots. He further stated that the developers' extension of public water would assist other residents in the area, who are currently experiencing well failures. He stated that the applicants would agree to restrict the removal of trees; to maintain common areas thereby ensuring a rural setting; to construct turn-lanes along Riverway Road; and to donate eight (8) acres for a school site, provided that a school were built within five (5) years of the date of the approval, but that, if a school were not built within five (5) years, the eight (8) acres would revert to the developer, except for two (2) acres, which could be used for a public library, if desired. Mr. Saunders felt that the only reason staff had recommended denial was an arbitrary line placed on the Western Area Land Use and Transportation Plan indicating the point at which development should cease and the rural character of the area be maintained. He noted that there were other subdivisions in the area. With respect to a collector road proposed for the area, Mr. Saunders said that, while it would be desirable to have a collector road, there is no funding for construction of such a road. Mr. Kenneth Payne, a property owner in the area, expressed concern rela- tive to the inadequate sight distance along River Road and Walkes Quarter Road. He also expressed concern relative to the average lot size being proposed by the developers, and requests that a minimum lot size be established of no less than 1.3 acres. Mr. Belcher indicated that he had spoken with the applicants' representa- tive approximately one month ago and had discussed the concerns which he had relative to the project. He stated that proffered conditions had been submitted for consideration, but were subsequently withdrawn. He stated that he had reviewed new proposed proffers, but felt that they did not adequately address the concerns which he had. He stated that orig- inally the proffered conditions had limited the access to River Road or Riverway Road, but the new proffers failed to address such conditions. Secondly, he indicated that the original proffers insured an average lot size of 1.75 acres; whereas the new proffers reduced this to 1.3 acres. Mr. Belcher stated that he felt he had three (3) alternatives relative to the request before him, the first being to send the request to the Board of Supervisors with a recommendation for denial, the second being to defer the request for thirty (30) days, and the third being to request that proffers be submitted limiting the number of lots to a maximum of 175. Mr. Saunders indicated that the original proffers were withdrawn because, after submission of the proffers, staff had not changed the recommen- dation; therefore, the recommendation was for denial whether or not the proffers were submitted. Further, he indicated that the applicants were the contract purchasers of the property and that the owners of the j 6 F ''x10058/BSJULB/AUG24I F~ ~' '' property did not feel that proffers development as outlined originally. should have been made to limit the Mr. Belcher indicated that, while he could support residential develop- ment in the area, he felt that the development should be more compatible with the designation of the Western Area Land Use and Trans ortation Plan for agricultural and forestal uses, and felt that without sufficient limitations and guarantees under the current request he could not support Residential (R-25) zoning. Further, he indicated that area residents had expressed concerns relative to the proposed development and that the applicants had failed to meet with area residents to attempt addressing their concerns. On motion of Mr. Belcher, seconded by Mr. Warren, the Commission resolved to recommend denial of Case 88SN0058. AYES: Messrs. Miller, Warren, Kelly, Belcher, and Perkins. The Board of Supervisors on Wednesday, August 24, 1988, beginning at 2:00 p.m., will take under consideration this request. ~ 88SN0058/BSJUL8/AUG24I ~1r' :~ ,! / A ~~~l~ N A !O wnl~- . RI ,~ .~ ~~ R~ ~~ ~Qv 88SN0058. REZ: A TO R-25 SH. 38 ~' ~~ ~~ ~~ ,~ ,~ ., ,, ,+ ~ ' ,• t .. '+ PLANNED r , ~ : ~ ROAO NETWORK ~ ~ l -,, , NS TG+ i yM~HYM ~ `I NE ~~~ _~ ~~-~~~ Qom. ~ ~. ~ -~~~ ~' ~~ ~1 , ~~r ~ ~ ~~45 ~~~~.~~~~~~~~ ~ ~ ° ---- ~ 'ti •, eF9 I ~`~ , Ro. ~ ~.~. l,. ~. ~ ~ a _ ~~~ ~~ ~ ~~~ CASE#. -R~~FRaq WaY < a~ J~~ ~ ~ 'RIVER ~ ~ - a ~ , ~ . ~~ <v ~ ~ i I l ~~ ,F- ~ ~ ~a r_~~ 3Qv ~~ 2V ~ ' ~ ~ ~ Q' ' i. .~ • - -~ ~ ° ~ -'~ ~ ~'y'~ ~ ~ ~ ~ ~~~ ~ o ~` ~ .~~: ~., ~ ~ ~ 1 ~~ ~' ~~ ,. .- ~~~ ~~ 4 88sNo1 8-1 k" .~ ~