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12SN0123CASE MANAGER: Jane Peterson November 3 0, 2011 B S STAFF' S REQUEST ANALYSIS AND RECOMMENDATION 12SN0123 Balzer & Associates, Inc. and Second Baptist Church Bermuda Magisterial District South line of Iron Bridge Road RE VEST: Conditional use planned development approval to permit exceptions to Ordinance requirements relative to setbacks in Agricultural (A) and Neighborhood Business (C-2) Districts. PROPOSED LAND USE: Expansion of a church parking lot is planned. Parking setback reductions are requested from the northwestern (Request I) and western (Request II) project boundaries. (Textual Statement) PLANNING COMMISSION RECOMMENDATION RECOMMEND APPROVAL AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON PAGE 2. STAFF RECOMMENDATION Re uest I. Recommend approval of parking setback reductions adjacent to Tax ID 784-652- 9766 (northwestern project boundary) for the following reason: This setback exception maintains minimum separation from the Route 10 Corridor and does not adversely impact adjacent property to the northwest. Re uest II. Recommend denial of parking setback reductions adjacent to Tax ID 785-652-1066 (western project boundary) for the following reason: This setback exception results from proposed overdevelopment of the properties; impairs effective land use transition to adjacent residential development; and potentially sets a precedent for similar requests. Providing a FIRST CHOICE community through excellence in public service (NOTE: CONDITIONS MAY BE IMPOSED OR THE PROPERTY OWNER MAY PROFFER CONDITIONS. CONDITIONS NOTED WITH "STAFF/CPC" WERE AGREED UPON BY BOTH STAFF AND THE COMMISSION. CONDITION NOTED WITH A "CPC" IS A CONDITION RECOMMENDED BY THE PLANNING COMMISSION.) PROFFERED CONDITIONS (CPC) 1. The Textual Statement dated September 23, 2011 and the exhibit titled "Second Baptist Church Schematic Layout Plan," prepared by Balzer and Associates, Inc., dated August 5, 2011, shall be considered the Master Plan. (P) (STAFF/CPC) 2. Access: There shall be no direct vehicular access from the property to Iron Bridge Road (Route 10). (T) (STAFF/CPC) 3. Right-of Way Dedication: Prior to any site plan approval or within sixty (60) days of a written request by the Transportation Department, whichever occurs first, 100 feet of right-of way, measured from the centerline of Route 10 shall be dedicated, free and unrestricted, to and for the benefit of Chesterfield County. (T) GENERAL INFORMATION T ,n~ati nn The request property is located along the south line of Iron Bridge Road, west of West Hundred Road. Tax ID 785-652-2271 and 2975. Existing Zoning: A and C-2 Size: .6 acre Existing Land Use: Vacant Adjacent Zoning and Land Use: North - R-TH and A; Vacant South - C-2 and A; Single-family residential or public/semi-public East - C-2; Public/semi-public (church) West - A; Single-family residential 2 12SN0123-NOV30-BOS-RPT UTILITIES; ENVIRONMENTAL AND FIRE This request will have no impact these facilities. County Department of Transportation: This request will have a minimal impact on the transportation network. The Thoroughfare Plan identifies Route 10 as a major arterial with a recommended right- of way width of 120 to 200 feet. The applicant has proffered to dedicate 100 feet ofright- of way measured from the centerline of Route 10, in accordance with the Plan. (Proffered Condition 3) Access to major arterials, such as Route 10 should be controlled. The applicant has proffered no direct vehicular access from the property to Route 10. (Proffered Condition 2) Virginia Department of Transportation (VDOT): VDOT has no comment on this case. T ,ANn T 1~F, Current Comprehensive Plan: The subject property is located within the boundaries of the Chester Plan, which suggests the property is appropriate for office/residential mixed use. Draft Comprehensive Plan: The Revised Draft Comprehensive Plan (as of September, 2011) designates the subject property "Community Corridor." This proposed land use designation encourages vertically and horizontally integrated mix of residential, office, public, open space and commercial uses. It should be noted that the revised draft plan is pending review by the Planning Commission, has not been approved, and does not provide land use guidance for the subject property at this time. As of the date of this report, the Commission has not forwarded a recommendation regarding the revised draft plan to the Board of Supervisors. Additionally, the Board has not reviewed the revised draft plan, nor has the Board taken any action on the revised draft plan to date. The recommendations of the revised draft plan are provided for reference purposes only. Variance and Development History: On November 7, 1984 the Board of Zoning Appeals approved variances to reduce required building and parking setbacks from Iron Bridge Road for the new church sanctuary located east and adjacent to the current request property (Case 84A230). This variance permitted a forty (40) foot variance to the required fifty (50) foot parking setback along Iron Bridge 3 12SN0123-NOV30-BOS-RPT Road. Staff was supportive of this request due to the fact that the relocation of Iron Bridge Road at that time had created a hardship warranting a reduced parking setback. On November 2, 1988 the Board of Zoning Appeals approved a variance to reduce the required side yard setback for additional sanctuary parking from both Iron Bridge Road and the western property line adjacent to Tax ID 785-652-3160 (located south of the current subject property) (Case 88AN0242). It should be noted that staff was not supportive of the variance request noting, in part, that the variance represented an overdevelopment of the property. On May 6, 2009 a site plan was approved to permit a second floor addition to the church sanctuary and atwo-story fellowship hall addition (Case 09PR0108). The existing church facility was increased from 5,336 gross square feet to 17,463 gross square feet in area. The Ordinance parking requirement for places of worship is based upon seating capacity at a ratio of one (1) parking space for every four (4) seats. The sanctuary's seating capacity is 225, necessitating the provision of fifty-seven (57) parking spaces. Currently seventy-one (71) parking spaces have been provided. (Reference attached site plan - 09PR0108) Area Development Trends: Properties to the north across Iron Bridge Road are zoned Residential Townhouse (R-TH) and are under development as part of Iron Mill, being a mix of single-family, cluster and townhouse dwellings. Adjacent property fronting the south line of Iron Bridge Road is zoned Agricultural (A) and is vacant. Properties to the east incorporate the subject church. Properties to the south and west are zoned Agricultural (A) or Neighborhood Business (C-2) and are occupied by single-family dwellings. It is anticipated that a mix of residential and office uses will continue in this immediate area along the north and south lines of Iron Bridge Road, as suggested by the Plan. Parking Setbacks: The Neighborhood Business (C-2) portion of the request property lies within an Emerging Growth Area. The Emerging Growth standards for parking also apply to the Agricultural (A) portion of the request property in accommodating parking for five (5) or more vehicles serving anon-residential use. Within Emerging Growth Areas, the Ordinance requires a minimum side yard setback of thirty (30) feet for parking from the adjoining Agricultural (A) zoned properties to the northwest and west (Tax IDs 784-652-9766 and 785-652-1066) with the installation of Perimeter Landscape "A." Exceptions are requested to reduce these setbacks, to one (1) and two (2) feet, respectively, to accommodate a parking expansion serving the existing church facilities (reference attached schematic layout plan). While these additional thirty-five (35) spaces are not required to satisfy parking requirements of the Ordinance, the applicant indicates the additional parking is needed to accommodate the church's growing congregation. With this proposed setback reduction, it is anticipated that the applicant will seek relief to the associated perimeter landscaping requirements of the Ordinance through the site plan process. 4 12SN0123-NOV30-BOS-RPT Parking Adjacent to Tax ID 784-652-9766 (Request I~: Adjacent property to the northwest is vacant. This property is part of anon-contiguous parent parcel located adjacent to and west of Tax ID 785-652-1006. Containing approximately 2,000 square feet in area, this residual property resulted from a parcel split and carries minimal development potential as a stand-alone site. As such, the proposed parking setback reduction would have no adverse impact upon this property. Further, the proposed parking expansion would maintain minimum setbacks from Route 10, consistent with the existing church parking lot. Parkin .Adjacent to Tax ID 785-652-1066 (Request II): Adjacent property to the west is occupied by asingle-family residence. The proposed parking expansion will be located approximately two (2) feet from this shared property boundary, thereby providing no transition between these residential and non-residential uses. Given that these additional parking spaces are in excess of Ordinance requirements, staff believe this expansion represents an overdevelopment of the site and could establish a precedent for additional exceptions through the conditional use planned development process. As such, staff does not support this setback exception. CONCLUSION In consideration of conditional use planned developments, the Ordinance specifies that exceptions to development regulations should be solely for the promotion of an integrated plan that is no less beneficial to occupants of neighboring properties than would be obtained under adherence to Ordinance requirements. It is staff's opinion that the requested parking setback exceptions are the result of property overdevelopment rather than an integrated plan of development. while the proposed setback encroachment would have no adverse impact upon property to the northwest (Tax ID 784-652- 9766), the lack of physical and visual separation between the proposed parking location and the adjacent single-family residence to the west (Tax ID 784-652-1066) provides no transition between these uses, as intended by Ordinance standards. Further, approval could provide an opportunity to circumvent the variance process and associated criteria in favor of a process intended for exceptions that promote a unified development concept. Given these considerations, staff recommends approval of Request I and denial of Request II. Accordingly, Proffered Condition 1 and the Textual Statement should be modified as an imposed condition specific to exceptions relative to Request I only. CASE HISTORY Planning Commission Meeting (10/ 18/ 11) The applicant did not accept staff s recommendation, but did accept the Planning Commission's recommendation. 5 12SN0123-NOV30-BOS-RPT Mr. Hassen noted a community meeting was held; no objections were raised; and the adjacent western property owner supported the request. On motion of Mr. Hassen, seconded by Dr. Brown, the Commission recommended approval and acceptance of the proffered conditions on page 2. AYES: Messrs. Bass, Brown, Gulley, Hassen and Waller. The Board of Supervisors, on Wednesday, November 30, 2011 beginning at 6:30 p.m., will take under consideration this request. 6 12SN0123-NOV30-BOS-RPT Second Baptist Church Textual Statement September 26, 2011 Setback Exceptions -Parking 1. A twenty-nine (29) foot exception to the required thirty (30) foot side yard setback from Tax ID 784-652-9766. 2. A twenty-eight (28) foot exception to the required thirty (30) foot side yard setback from Tax ID 785-652-1066. 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