14SN0516CASE MANAGER: Robert Clay
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January 22, 2014 BS
ADDENDUM
14SN0516
VSU Trojan Development LLC
Matoaca Magisterial District
Ettrick Elementary, Matoaca Middle and Matoaca High School Attendance Zones
East line of Chesterfield Avenue
REQUEST: Rezoning from Residential (R-12), Neighborhood Business (C-2) and Community
Business (C-3) to Community Business (C-3) with conditional use to permit
multi-family residential use plus conditional use planned development to permit
exceptions to ordinance requirements.
PROPOSED LAND USE:
A nuxed use development incorporating a vertical mix of commercial, office and
multifamily residential uses is planned. Residential density is limited to sixty-two (62)
multifamily units (Proffered Condition l.c.i). Commercial uses are limited to those
permitted by right or with restrictions in the Neighborhood Business (C-2) District,
except as restricted by Proffered Condition l.a and b, plus fast food restaurants without
drive in windows. Exceptions to ordinance requirements are requested to achieve an
urban neighborhood design along Chesterfield Avenue.
The purpose of this addendum is to communicate revised comments from Schools.
On January 21, 2014 staff received revised comments from Schools for this case. Schools
advised that their comments are revised to reflect current schools' functional capacities based on
the 2013-14 Space Utilization Study as well as current school trailer data.
Staff continues to recommend approval of this request, for the reasons previously outlined in the
"Request Analysis".
Pro~Tiding a FIRST CHOICE community through excellence in public ser~Tice
Schools:
Residential
Yield: 62
Student
Yield From Functional % of No. of
School Name Residential Membership Capacity Capacity Trailers
Development
:~
Elementary: Ettrick 13 496 552 90% 1
Middle: Matoaca 7 1,072 1,438 75%
High: Matoaca 9 1,860 1,794 104% 5
Total: 30
NOTE: The Student Yield is based on the FY2014 Cash Proffer Methodo logy as provided by the
Chesterfield County Finance Department.
NOTE: ** If a school is less than 90% of capacity and has trailers, those trailers are not identified
in the staff report.
Student Membership is based on membership as of 09-30-13.
School Capacity is based on the 2013-14 Space Utilization
Study.
After review of this request, the proposed rezoning case will have an impact on the
aforementioned schools involved. Over time this case, combined with other tentative
residential developments, infill developments and other zoning cases in the area, will
continue to push these schools to capacity and beyond capacity. Three (3) of the trailers
at Matoaca High School are used for instnictional space. While the developer is offering
a partial cash proffer of $2,000 per dwelling unit for infrastnicture improvements within
the service district for the property, the aforementioned units should be subject to full
cash proffers, to nutigate the impact that this development would have on schools.
2 14SN0~1Ei-20141_~N22-BC)S-_~DD
CASE MANAGER: Robert Clay
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BS Time Remaining:
365 days
STAFF' S
REQUEST ANALYSIS
AND
RECOMMENDATION
14SN0516
VSU Trojan Development LLC
uccEiHiv°'crr~?$1~~Tc
Tanuary 22, 2014 BS
Matoaca Magisterial District
Ettrick Elementary, Matoaca Middle and Matoaca High School Attendance Zones
East line of Chesterfield Avenue
REQUEST: Rezoning from Residential (R-12), Neighborhood Business (C-2) and Community
Business (C-3) to Community Business (C-3) with conditional use to permit
multi-family residential use plus conditional use planned development to permit
exceptions to ordinance requirements.
PROPOSED LAND USE:
A mixed use development incorporating a vertical mix of commercial, office and
multifamily residential uses is planned. Residential density is limited to sixty-two
(62) multifamily units (Proffered Condition l.c.i). Commercial uses are limited to
those permitted by right or with restrictions in the Neighborhood Business (C-2)
District, except as restricted by Proffered Condition l.a and b, plus fast food
restaurants without drive in windows. Exceptions to ordinance requirements are
requested to achieve an urban neighborhood design along Chesterfield Avenue.
PLANNING COMMISSION RECOMMENDATION
RECOMMEND APPROVAL AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON
PAGES 2 THROUGH 7.
STAFF RECOMMENDATION
Recommend approval for the following reasons:
A. The proposed zoning and land uses conform to the Comprehensive Plan, which
suggests the property is appropriate for Community Mixed use.
B. While the amount proffered is less than the Board's maximum cash proffer, staff
recommends that the Board give careful consideration to the uniqueness of this
Pro~Tiding a FIRST CHOICE community through excellence in public ser~Tice
request, particularly as it relates to a key site for initiating revitalization and
redevelopment efforts along Chesterfield Avenue as a gateway into the
community of Ettrick and the campus of Virginia State University, when malting
its decision.
C. With flexibility in typical zoning standards to support the proposed urban
neighborhood development as requested in this case, the Plan suggests design
details that ensure integration of uses within the project and connections to the
surrounding community. The proposal provides standards for pedestrian-scale
streetscape, bicycle facilities and public spaces that are designed to promote a
high quality mixed-use project which will serve as a template for future area
redevelopment activity.
(NOTE: CONDITIONS MAY BE IMPOSED OR THE PROPERTY OWNER(S) MAY
PROFFER CONDITIONS. CONDITIONS NOTED "STAFF/CPC" WERE AGREED UPON
BY BOTH STAFF AND THE COMMISSION.)
PROFFERED CONDITIONS
(STAFF/CPC) 1. Uses. Uses shall be limited as follows:
a. Uses permitted by right or with restrictions in the
Neighborhood Business (C-2) District except as follows:
Gasoline sales
ii. Automobile self service station
iii. Funeral home or mortuary
iv. Rest, convalescent or nursing home
v. Greenhouse or nursery
vi. Motor vehicle rental
vii. Motor vehicle accessory store
viii. Hospital
ix. Single-family dwellings
b. Fast food restaurant, without a drive in window
c. Multifamily dwelling units, subject to the following
provisions:
2 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
Maximum of sixty-two (62) units
ii. Units shall have no more than 2 bedrooms each
iii. Units are located within building accommodating a
vertical mix of residential and nonresidential uses
(Mixed use building)
iv. No residential use shall be located on the first floor
v. A minimum of 2,800 square feet of indoor activity
area, open and easily accessible to building
residents. Such area shall include, at a minimum, an
exercise room and multipurpose area for gatherings,
and shall not be located on the first floor. This
condition shall not preclude the ability to have a
maximum of 1,500 square feet of additional
multipurpose area on the first floor. (P)
(STAFF/CPC) 2. Phasing. The first building constricted on the property shall be a
mixed use building which incorporates a minimum of thirty-one
(31) multifamily dwelling units. (P)
(STAFF/CPC) 3. Architectural Standards.
a. Building(s) shall be consistent to that depicted in the
elevation and rendering prepared by Livas Group
Architects, P.C., dated June 2013, entitled Virginia State
University Chesterfield Avenue -Mixed Use Project as
determined by the Planning Department.
b. A minimum of seventy-five (75) percent of the Chesterfield
Avenue building facade and a minimum of sixty (60)
percent of the remaining building facades, excluding
windows and doors, shall be red or earth tone brick.
c. Building mass shall be broken through the incorporation of
design features to include, but not necessarily limited to:
masonry ornamentation
ii. towers up to four (4) stories in height with a focal
center tower
iii. a second floor plaza facing Chesterfield Avenue
3 14SN0~1Ei-20141_~N22-BC)S-RPT
iv. varied rooflines that emphasize the distinction
between each building section
d. Building(s) shall be a minimum of two stories and a
maximum of 4 stories.
e. Adjacent to Chesterfield Avenue, the first floor shall
incorporate features that create a pedestrian scale
streetscape to include but not necessarily limited to:
i. arcades created through the use of awnings and
canopies,
ii. recessed entries,
iii. storefront windows no closer than eighteen (18) to
thirty-six (36) inches to the finished grade,
iv. exterior wall space shall not exceed ten (10) lineal
feet along the front facade without windows or
entrances (P)
(STAFF/CPC) 4. Building Orientation and Access. Buildings shall front, and be
adjacent tq sidewallcs along Chesterfield Avenue, except as to
accommodate foundation plantings. First floor business tenant
spaces shall have individual entrances directly to the sidewallc area.
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(STAFF/CPC) 5. Off Street Parlcin~.
a. Where buildings are constricted, parking shall be located
to the rear of buildings.
b. Where parking is provided in locations in which there is no
building between the parking and Chesterfield Avenue,
parking shall be set back to a depth equal to or greater than
one-half the depth of the parcel, but in no case closer than
the rear facade of the nearest building. Views of parking
areas from Chesterfield Avenue shall be minimized by low
decorative walls, fencing, evergreen hedges or a
combination thereof. Walls and fences shall be installed,
and hedges planted and maintained, at a height of between
three (3) and four (4) feet. Unless the area between the
parking and Chesterfield Avenue is hardscaped as a
pedestrian amenity, as determined by Planning Department,
4 14SN0~1Ei-20141_~N22-BC)S-RPT
such walls, fencing or hedges shall be located at the
minimum building setback line from Chesterfield Avenue.
Where the hardscaped pedestrian amenity is provided, the
walls, fencing or hedges shall be located contiguous to the
parking area. (P)
(STAFF/CPC) 6. Setbacks.
a. There shall be no rear yard setback requirement for parking
b. The maximum separation between buildings shall be ten
(10) feet
c. Canopies and awnings that create pedestrian arcades shall
be permitted to encroach into the required front yard
setback a maximum of six (6) feet. (P)
(STAFF/CPC) 7. Sidewallcs and Pedestrian Amenities. The required building
setback along Chesterfield Avenue shall accommodate a sidewallc
and pedestrian amenities. These improvements shall be subject to
review and approval by the Planning Department prior to site plan
approval. Prior to any site plan approval, a public easement,
acceptable to the Planning Department, shall be recorded across
the property to allow public use of the proposed private sidewallc,
located generally parallel to Chesterfield Avenue.
a. Sidewallcs shall be a minimum of twelve (12) feet in width.
Four (4) feet of the sidewallc contiguous to the building (s)
shall accommodate amenities, to include but not be limited,
foundation plantings, street furnishings (benches, bike
racks, trash receptacles), space for outdoor sales and dining
areas, as required by the Planning Department.
b. Sidewallcs shall incorporate design features such as brick
walls, pavers, landscaping, decorative concrete, curves in
concrete and other elements to enhance visual interest. (P)
(STAFF/CPC) 8. Street Trees. Deciduous street trees shall be planted along
Chesterfield Avenue. Each tree shall be planted within a grated
tree well. The location, spacing and species of trees and tree well
design shall be reviewed and approved by the Planning
Department prior to site plan approval (P)
(STAFF/CPC) 9. Pedestrian-Scale Lighting. Decorative pedestrian-scale street
lighting shall be installed along Chesterfield Avenue. The location,
spacing and design of street lighting shall be subject to review and
14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
approval by the Planning Department prior to site plan approval.
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(STAFF/CPC) 10. Maintenance. Maintenance of street trees, including those located
in the right-of--way, lighting, sidewallcs and pedestrian amenities
shall be the responsibility of the property owner through an
agreement. (P)
(STAFF/CPC) 11. 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, thirty-five (35) feet of right-
of-way on the east side of Chesterfield Avenue, measured from the
centerline of that part of Chesterfield Avenue immediately adjacent
to the property, shall be dedicated, free and unrestricted, to and for
the benefit of Chesterfield County. (T)
(STAFF/CPC) 12. Vehicular Access. The Transportation Department may allow one
(1) direct vehicular access to Chesterfield Avenue, if access to
Chesterfield Avenue cannot be obtained through adjacent
properties. The exact location of this access shall be approved by
the Transportation Department. (T)
(STAFF/CPC) 13. Bicycle Lanes. In conjunction with initial development of the
property, atwo-way bicycle facility shall be constricted along
Chesterfield Avenue for the entire property frontage. The exact
length and design of this improvement shall be approved by the
Transportation Department. The developer shall dedicate to
Chesterfield County, free and unrestricted, any additional right-of-
way (or easements) required for this improvement. (T)
(STAFF/CPC) 14. Utilities. Water service for the commercial and residential uses
shall be metered separately. (U)
(STAFF/CPC) 15. Stormwater. The management of stormwater shall occur through a
combination of onsite detention and conveyance to facilities to the
northeast, which are a part of the multipurpose development, to the
extent that the quantity of stormwater that may be conveyed in the
direction of Chesterfield Avenue shall not require the installation
of storm sewer in Chesterfield Avenue. (EE)
(STAFF/CPC) 16. Cash Proffer. For each dwelling unit, the applicant, sub-divider, or
assignee(s) shall pay the following to the County of Chesterfield,
prior to the issuance of a building permit for infrastnicture
improvements within the service district for the property, provided
however that for the period through June 30, 2017, the applicant,
sub-divider, or assignee(s) shall pay the following to the County of
Ei 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
Chesterfield, immediately after the completion of the final
inspection.
a. $2,000 per dwelling unit, if paid prior to July 1, 2017, to
be allocated among the facility costs as follows: $957 for
schools, $126 for parks, $33 for libraries, $72 for fire
stations and $812 for roads; or,
b. If paid after June 30, 2017, and before July 1, 2018, $2,000
per dwelling unit, adjusted for the four year cumulative
change in the Marshall and Swift Building Cost Index
between July 1 of the fiscal year in which the case was
approved and July 1 four years later. Thereafter, the per
dwelling unit cash proffer amount shall be automatically
adjusted, annually, by the annual change in the Marshall
and Swift Building Code Index on July 1 of each year. (B
& M)
GENERAL INFORMATION
T ncatinn•
The request property is located on the east line of Chesterfield Avenue, 215 feet north of
Randolph Street. Tax IDs 795-611-7196, 7592, 7987, 8283, 8679, 9075, 9270, and 9466;
and 796-611-0464, 0858 and 1053.
Existing Zoning:
R-12, C-2 and C-3
Size:
3.2 acres
Existing Land Use:
Single-family residential or vacant
Adjacent Zoning and Land Use:
North - C-2; Vacant
South - C-3; Single-family residential
East - R-7; Single-family residential or vacant
West - C-2; Single-family residential or vacant
7 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
UTILITIES
Public Water Svstem:
The request site is located within the Matoaca water pressure zone. There is a twelve (12)
inch water line located along Chesterfield Avenue. A planned sixteen (16) inch water line
extension, to be constricted in conjunction with the planned expansion and
redevelopment area for Virginia State University, will boost pressure in the twelve (12)
inch water line.
The use of the public water system is required by County Code. The applicant has
proffered that water service for the commercial and residential uses will be metered
separately (Proffered Condition 14). Any water and wastewater service lines to existing
residential strictures (to be demolished) that will not be used for the new stricture must
be completely abandoned. If space for water meters, fire detector check vaults, etc. will
be linuted on the Chesterfield Avenue side of the stricture, a new water line could be
constricted along the rear of the stricture. Commercial uses such as restaurants, coffee
shops, dry cleaners, laundries, medical clinics and pharmacies will require installation of
a water baclcflow prevention device which must be tested annually.
Public Wastewater Svstem:
The request site is located within the Ettrick service area. There is an eight (8) inch
wastewater line located along Chesterfield Avenue.
The use of the public wastewater system is required by County Code. Commercial uses
such as restaurants, coffee shops, dry cleaners, laundries, medical clinics and pharmacies
will require installation of a monitoring manhole to permit observation, measuring and
sampling of the wastewater discharge exclusively from that site.
ENVIRONMENTAL
In order to minimize the impact of the extension of the Virginia State University campus into the
Ettriclc community, management of stormwater from this site should occur through a
combination of onsite detention and conveyance to facilities to the northeast, to the extent that
the quantity of stormwater conveyed in the direction of Chesterfield Avenue will not require the
installation of storm sewer in Chesterfield Avenue. (Proffered Condition 15)
PUBLIC FACILITIES
The need for schools, parks, libraries, fire stations, and transportation facilities in this area is
identified in the County's adopted Public Facilities Plan, Thoroughfare Plan and Capital
Improvement Program and further detailed by specific departments in the applicable sections of
this request analysis.
8 14SN0~1Ei-20141_~N22-BC)S-RPT
Fire Service:
The Public Facilities Plan as part of the Comprehensive Plan indicates that fire and
emergency medical service (EMS) calls increased by forty-four (44) percent from 2001 to
2011, significantly faster than the County's population increase of seventeen (17)
percent. Of the total incidents in 2011, nearly seventy-six (76) percent were medical
emergencies and twenty-four (24) percent were fire-related. It is expected with the
general aging of the population that medical emergency incidents will increase faster than
the rate of population growth over time. Five (5) new fire/rescue stations are
recommended for constriction by 2022 in the Plan. In addition to the five (5) new
stations, the Plan also recommends the replacement/revitalization of four (4) existing
stations.
Based on sixty-two (62) dwelling units, this request will generate approximately twelve
(12) calls for fire and emergency medical service (EMS) each year. The applicant has not
fully addressed the impact on fire and EMS due to reduced cash proffers. (Proffered
Condition 16)
The Ettrick Fire Station, Company Number 12, and Ettrick-Matoaca Volunteer Rescue
Squad currently provide fire protection and EMS. 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.
9 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
Schools:
Residential
Yield: 62
Student
Yield From Functional % of No. of
School Name Residential Membership Capacity Capacity Trailers
Development
:~
Elementary: Ettrick 13 496 552 90% 1
Middle: Matoaca 7 1,072 1,438 75%
High: Matoaca 9 1,860 1,771 105% 3
Total: 30
NOTE: The Student Yield is based on the FY2014 Cash Proffer Methodo logy as provided by the
Chesterfield County Finance Department.
NOTE: ** If a school is less than 90% of capacity and has trailers, those trailers are not identified
in the staff report.
Student Membership is based on membership as of 09-30-13.
School Capacity is based on the 2013-14 Space Utilization
Study.
After review of this request, the proposed rezoning case will have an impact on the
aforementioned schools involved. Over time this case, combined with other tentative
residential developments, infill developments and other zoning cases in the area, will
continue to push these schools to capacity and beyond capacity. The three (3) trailers at
Monacan High School are used for instnictional space. While the developer is offering a
partial cash proffer of $2,000 per dwelling unit for infrastnicture improvements within
the service district for the property, the aforementioned units should be subject to full
cash proffers, to mitigate the impact that this development would have on schools.
Libraries:
Residential development in this area of the County would likely impact the Ettrick-
Matoaca Library. The Public Facilities Plan identifies a need to expand or replace the
existing 8,000 square foot Ettrick-Matoaca Library with a 20,000 square foot library to
address service gap and demand issues related to anticipated population increases for this
10 14SN0~1Ei-20141_~N22-BOS-RPT
area of the county. Proffered Condition 16 does not meet the currently established cash
proffer to address impacts on library facilities.
Parks and Recreation:
The Public Facilities Plan identifies the need for three (3) regional parks totaling 600
acres, ten (10) community parks totaling 790 acres, nine (9) neighborhood parks totaling
180 acres, and three (3) water-based special purpose parks. The Plan also identifies the
need for urban parks within mixed use developments to compliment and provide linkages
to the county's park system. The Plan identifies the need for linear parks & trails and
resource-based special purpose parks (historical, cultural and environmental) and makes
suggestions for their locations. The need to expand existing park sites to meet level of
service standards and the need to improve access to blueways through the acquisition of
easements and properties are also identified in the Plan. Co-location with schools and
other compatible public facilities is desired.
The applicant has not fully addressed the impacts of this development on parks and
recreation facilities. (Proffered Condition 16)
County Department of Transportation:
The applicant is requesting to rezone the property (3.2 acres) to Community Business (C-
3) with conditional use planned development to permit a planned mixed-use project;
consisting of 24,170 square feet of retail and sixty-two (62) residential units. Based on
shopping center and apartment trip rates, development of the property could generate
3,110 average daily trips.
Vehicles generated by this development will be initially distributed along Chesterfield
Avenue, which had a 2013 traffic count of 6,808 vehicles per day. The capacity of the
two-lane section of Chesterfield Avenue between Appomattox River and Hickory Road is
acceptable (Level of Service D) for the volume of traffic it currently carries.
The Thoroughfare Plan identifies Chesterfield Avenue as a collector with a recommended
right-of--way width of seventy (70) feet. The applicant has proffered to dedicate thirty-
five (35) feet of right of way measured from the centerline of Chesterfield Avenue for the
property frontage in accordance with that Plan. (Proffered Condition ll)
Development must adhere to the Development Standards Manual in the Zoning
Ordinance, relative to access and internal circulation (Division 1). Access to collectors,
such as Chesterfield Avenue, should be controlled. The applicant plans to access the
proposed development through adjacent properties to the west and north. If the applicant
cannot obtain that planned access, a proffered condition has been offered that would
allow the Transportation Department to approve one (1) direct vehicular access from the
property to Chesterfield Avenue (Proffered Condition 12). In addition, the applicant has
proffered to constrict a two (2) way bicycle facility along Chesterfield Avenue for the
entire property frontage. (Proffered Condition 13)
11 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
The applicant has proffered some cash payments for each dwelling unit (Proffered
Condition 16) to assist in mitigating the traffic impact of this proposed residential
development. The proffered amount is not consistent with the Board of Supervisors' Cash
Proffer Policy. Therefore, the Transportation Department cannot support the request.
Virginia Department of Transportation (VDOT):
The Chesterfield Avenue multimodal corridor right-of--way improvements must be
designed in accordance VDOT standards, as outlined in the Roadway Design Manual and
the National Association of City Transportation Officials (NACTO) Urban Bikeway
Design. This will be addressed at time of site plan review.
Fiscal Impacts on Capital Facilities
Per Dwelling
Unit
Potential Number of New Dwelling Units 62* 1.00
Population Increase 165.68 2.67
Number of New Students
Elementary 13.06 0.21
Middle 7.08 0.11
High 9.48 0.15
Total 29.62 0.48
Net Cost For Schools $ 585,590 $ 9,445
Net Cost for Parks $ 77,314 $ 1,247
Net Cost for Libraries $ 20,026 $ 323
Net Cost For Fire Stations $ 43,958 $ 709
Average Net Cost Roads $ 497,178 $ 8,019
Total Net Cost $ 1,224,066 $ 19,743
*Based on a proffered maximum yield of 62 units. (Proffered Condition l.c.i)
This property is currently zoned C-2, C-3 and R-12; the proposed development will be a mixed-
use development with commercial on the first floor and multifamily residential on the top floors,
zoned C-3. The applicant has proffered a maximum of sixty-two (62) dwelling units, each of
which shall have no more than two bedrooms (Proffered Condition l.c.i and ii). To address the
impact of these dwelling units on capital facilities, the applicant has proffered $2,000 per
dwelling unit to be split between each of the five (5) cash proffer categories (Proffered Condition
16). The proffer also includes language that would freeze the $2,000 contribution for a period of
four (4) years after which it would be escalated by the cumulative change in the Marshall and
Swift Building Code Index, a provision recently adopted by the Board of Supervisors.
As noted, this proposed development will have an impact on capital facilities. Staff has
calculated the fiscal impact of every new dwelling unit on schools, roads, parks, libraries and fire
12 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
stations at $19,743 per unit. The applicant has been advised that a maximum proffer of $18,966
per unit would defray the cost of the capital facilities necessitated by this proposed development.
Staff has carefully reviewed the specifics of this case, noting the Board's recent emphasis to
make an independent assessment of rezoning requests, while evaluating cases on their own
merits.
The subject property is located on the Virginia State University's property, though the
development itself will be marketed and open to the public at large. It has been viewed as a key
revitalization project of Chesterfield Avenue and Ettrick Village in general. This location is
within the Ettrick/Virginia State University special focus area established within the
Revitalization chapter of the Comprehensive Plan.
The proposed development will offer the location a unique, mixed-use development project. The
case includes certain proffered conditions that will elevate this development beyond what is
currently in place in the area and set the stage for future development:
• Minimum of two and maximum of four (4) stories, with no residential units on the first
story
• Maximum of two (2) bedrooms per dwelling unit
• Minimum of seventy-five (75) percent of Chesterfield Avenue building facade and
minimum of sixty (60) percent of the remaining building facades shall be red or earth
tone brick
• Building mass that is broken through certain appealing design features, which may
include masonry ornamentation or a second floor plaza
• First floor pedestrian scale streetscape along Chesterfield Avenue that may include
arcades created through the use of awnings and canopies, recessed entries, storefront
windows and a limitation of exterior wall space to ten (10) linear feet along the front
facade without windows or entrances
• Pedestrian features, including visually interesting sidewallcs, which may include
amenities like benches and bike racks, and decorative scale street lighting
• Two (2) way bicycle lanes along Chesterfield Avenue for the entire property frontage
• Street trees along Chesterfield Avenue
• Parking in the rear of buildings and, when there is no building between parking and
Chesterfield Avenue, parking that is set back and visually minimized through low
decorative walls, fencing or landscaping
Note that circumstances relevant to this case, as presented by the applicant, have been reviewed,
and it has been determined that while it is appropriate to accept the maximum cash proffer in this
13 14SN0~1Ei-20141_~N22-BC)S-RPT
case staff recommends that the Board give careful consideration to the uniqueness of this request
when malting its decision. The Planning Commission and the 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.
ECONOMIC DEVELOPMENT
Economic Development supports the VSU Foundation Mixed-Use Project with the following
key points:
• A mixed use development which contains appropriate commercial and retail space
• Apartments that are of a high quality and design
• Bike lanes, sidewallts and pedestrian amenities
With the planned expansion of Virginia State University, Ettrick and the surrounding area have
significant potential for retail, commercial, and/or mixed-use development providing services to
the University and surrounding community. With Amtrack's recent launch of a northeast
regional route, originating in Norfollt, Ettrick Station is poised for development. This mixed-use
project would be an asset for both new and existing businesses and can be a catalyst for
additional new investment and redevelopment in Ettrick.
T A NTl T TCF
Comprehensive Plan:
The Comprehensive Plan identifies the property as being appropriate for Community
Mixed Use. The Plan suggests appropriate uses include an integrated mixture of
concentrated commercial and higher density residential uses with public spaces. The Plan
suggests the majority of uses within these developments should be commercial and office
uses with residential uses developed in conjunction with commercial uses.
Relative to design of Community Mixed Use areas, the Plan suggests flexibility in typical
zoning standards to encourage innovative and creative design and higher quality
developments. The Plan suggests Urban or Traditional Neighborhood design standards,
such as a grid of frequently interconnected roads and alleys, sidewallts, public spaces, on-
street parlting and pedestrian scale streetscape and streetlight design should be employed
to ensure integration of uses.
The Plan identifies Ettriclt/Virginia State University (VSU) as a Special Focus and
Gateway Area. Specifically, Special Focus Areas are primarily aging business corridors
and centers, possibly including the neighborhoods immediately surrounding and
impacting the commercial areas, which are experiencing a transition. Gateways are
located within some Special Focus Areas, providing the "first impression" for those
entering the county.
14 14SN0~1Ei-20141_~N22-BC)S-RPT
The Plan establishes the Ettriclc/VSU study area as a Special Area Plan, being a
community with unique characteristics, history or challenges that warrants additional
planning efforts and extensive public involvement. The Ettriclc/VSU Special Area Plan is
currently under study as the first of several future Special Area Plan efforts.
The Ettriclc/VSU Area is also identified in the Plan as an Economic Development
Opportunity Site. Specifically, with the planned expansion of VSU, Ettrick and the
surrounding area have the potential for increased retail, commercial, and/or mixed use
development serving the University community. Development potential is further
enhanced with the location of the Ettriclc Station and the proposed expansion of
passenger rail service and high speed rail.
Area Development Trends:
Properties to the north and south along Chesterfield Avenue are zoned Neighborhood
Business (C-2) and Community Business (C-3) and are vacant. Residential (R-7) properties
to the east are occupied by single-family residential uses or are vacant. The majority of these
eastern properties have been acquired by the Virginia State University Board of Visitors in
preparation for expansion of the University. Properties to the west are zoned Neighborhood
Business (C-2) and are occupied by single-family residential and commercial uses or remain
vacant.
A nuxture of commercial and higher density residential uses with public spaces, as well as
continued expansion of Virginia State University, is expected to continue in this area, as
suggested by the Plan.
Zoning HistorX:
On May 27, 1998, the Board of Supervisors approved Residential (R-12) zoning on a
portion of the property. (Case 98SN0191)
Development Standards:
The property is located within the Ettriclc Village Core. The purpose of the Ettriclc Village
Core District Standards is to promote high quality, well-designed projects that maintain and
reinforce the area's character, identity, and pedestrian scale by continuing and enhancing
existing patterns of development. Unless specifically regulated by the proposed proffered
conditions, the development of the site must conform to the requirements of the Zoning
Ordinance for Community Business (C-3) uses in the Ettriclc Village Core which address
parking, landscaping, external lighting, buffers and screening, setbacks and architectLiral
treatment.
Uses:
To ensure compatibility with the anticipated neighborhood-scale, pedestrian-oriented
uses along Chesterfield Avenue, Proffered Condition l.a1b limits commercial uses to
1 ~ 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
those uses permitted by right or with certain restrictions in the Neighborhood Business
(C-2) District, with some exclusions, plus fast food restaurants without drive in windows.
The Plan suggests that residential use should not be the predominate use within
Community Mixed Use Areas. As such, multifamily residential uses have been limited to
sixty-two (62) units, each containing two or fewer bedrooms. A minimum of 2,800
square feet of upper story indoor activity area has been offered to accommodate building
residents. In addition, no dwelling units are permitted on the first floor of any building so
as to reserve these street level spaces for non-residential occupancy. This vertical mix of
uses is consistent with development patterns typically found along urban neighborhood
streetscapes. These limitations do not preclude non-residential uses from being located on
the upper floors of any building. (Proffered Condition l.c.i, ii, iii and iv)
Mixed Use Guarantee and Phasing:
The Plan also suggests an integrated mixture of residential and non-residential uses
within Community Mixed Use Areas. To guarantee this mix, Proffered Condition 2
requires that the first building constricted on the property include a mix of residential and
non-residential uses, with a minimum of one-half the permitted residential units (thirty-
one) included in this initial building.
Architectural Treatment and Building Orientation, Access and Height:
Within the Ettrick Village Core, ordinance standards require new development to be
compatible with the pedestrian scale and character of Ettrick, with buildings generally
consistent in height, scale, massing (shape) and materials with existing strictures in the
village so as to insure functional and visual compatibility.
Proffered Condition 3 requires that buildings located on the property be consistent with
the elevations and renderings noted in Exhibit A. Important elements from these
elevations have been further identified in this proffer to ensure use of quality building
materials and details that add architectural interest and break up building mass. Specific
requirements include use of brick on all building facades such that all building exteriors
are of a consistent quality; masonry ornamentation; tower elements; a second floor plaza
facing Chesterfield Avenue; and varied rooflines that distinguish each building section.
Additional architectural elements have been identified to create a first floor pedestrian
scale streetscape along Chesterfield Avenue. These include arcades created through the
use of awnings and canopies; recessed entries; storefront windows; and limitations on the
length of exterior wall space along the front facade absent windows or entrances.
Buildings must front and be adjacent to sidewallcs along Chesterfield Avenue such that
individual first floor business entrances lead directly to these pedestrian areas (Proffered
Condition 4). While the proposed building height of four (4) stories exceeds the three (3)
story ordinance limitation, this height is in keeping with the traditional urban streetscape
design anticipated along Chesterfield Avenue and is tempered by the pedestrian elements
described herein.
1Ei 14SN0~1Ei-20141_~N22-BOS-RPT
Off-Street Parlcin~:
Within Ettrick, the ordinance currently permits a parking area to be located at or behind
the front line of the building, or absent a building at the minimum building setback with
the installation of a low hedge or partially transparent fence along the front setback line.
Proffered Condition 5 provides for the location of parking areas such that buildings
provide a barrier between these areas and Chesterfield Avenue to minimize the views of
parking areas from this road. Should parking be located absent a building between the
parking and Chesterfield Avenue, proffers would require additional setbacks for these
areas and a low decorative wall, fencing, evergreen hedges or a combination of these
features, to minimize the views of such areas from Chesterfield Avenue.
Street Trees and Lighting:
Deciduous street trees and decorative pedestrian-scale street lighting are proposed along
Chesterfield Avenue. As proffered, street trees will be planted within grated tree wells.
Currently, the ordinance limits the height of lampposts to twenty (20) feet (Proffered
Conditions 8 and 9). Proffered Condition 10 addresses maintenance provisions for these
amenities.
Pedestrian Design/Sidewallcs:
The Plan encourages new developments to incorporate quality design standards for
pedestrian ways that create unique and viable places. Useable public spaces with pedestrian
scale streetscape and streetlight design are critical to the integration of uses within urban
neighborhood developments, providing connections between buildings and streets, and
among neighboring projects. The proposal provides standards for sidewallc areas that add
high visual interest while facilitating pedestrian movement. Features include brick walls,
pavers, landscaping and decorative concrete, with areas contiguous to buildings to
accommodate street furnishings, outdoor dining and foundation plantings (Proffered
Condition 7). Proffered Condition 10 addresses maintenance provisions for these
amenities.
Setbacks:
Within Ettrick, the ordinance currently requires minimum front yard setbacks for
buildings and parking of fifteen (15) feet, with no side yard setback requirements.
Minimum rear yard setbacks are twenty (20) feet. To encourage buildings to locate closer
to Chesterfield Avenue with parking behind buildings, elimination of the rear yard
parking setback is proposed. Setbacks between buildings should be no further than ten
(10) feet to maintain a denser, urban neighborhood streetscape. Maintaining tighter
setbacks along Chesterfield Avenue is essential in linking buildings to the streetscape so
as to promote a cohesive, unbroken development pattern along this corridor.
17 14SN0 ~ 1 Ei-20141_~N 22-B ( )S-RPT
CONCLUSIONS
The development of a mixed use project containing vertically integrated uses and high quality
design with pedestrian and streetscape amenities would be an asset for both new and existing
area businesses, and encourage new investment and redevelopment in the Ettrick Community.
While the amount proffered is less than the Board's maximum cash proffer, staff recommends
that the Board give careful consideration to the uniqueness of this request, particularly as it
relates to a key site for initiating redevelopment efforts along Chesterfield Avenue as a gateway
into the County, when malting its decision.
The proposal seeks flexibility in typical zoning standards to support the planned urban
neighborhood development. The Plan suggests design details that ensure integration of uses
within the project and pedestrian connections within the surrounding community. The proposal
provides standards for pedestrian-scale streetscape, bicycle facilities and public spaces to ensure
a high quality project which will serve as a template for future area redevelopment activity.
Given these considerations, approval of this request is recommended.
CASE HISTORY
Planning Commission Meeting (11/19/13):
On their own motion and with the applicant's consent, the Commission deferred this case
to their December 17, 2013 public hearing.
Applicant and Staff (11/20/13):
A meeting was held to review details of the request and associated conditions.
Staff (11/21/13):
The applicant was advised in writing that any significant, new or revised information
should be submitted no later than November 25, 2013 for consideration at the
Commission's December 17, 2013 public hearing.
Applicant (11/25; 11/27; and 12/8/13):
New and amended proffered conditions were submitted.
18 14SN0~1Ei-20141_~N22-BC)S-RPT
Planning Commission Meeting (12/17/13):
The applicant accepted the recommendation. There was no one who spoke in opposition
to or in favor of the request.
Dr. Wallin noted the project is unique in that the applicants could have exempted
themselves from the local zoning process but chose to work with the County to assist
with, and promote the County's vision for future development in the Ettrick area. He
indicated they have agreed to pay a portion of the anticipated impact on capital facilities;
referenced the mixed use nature of the project; noted a minimum impact on area
infrastnicture; recognized the provision of much needed area housing; and a major step
towards area revitalization and economic development. The Commission noted their
concurrence with Dr. Wallin's assessment.
On motion of Dr. Wallin, seconded by Mr. Patton, the Commission recommended
approval and acceptance of the proffered conditions on pages 2 through 7.
AYES: Messrs. Brown, Wallin, Gulley, Patton and Waller.
The Board of Supervisors, on Wednesday, January 22, 2014 beginning at 6:30 p.m., will take
under consideration this request.
19 14SN0~1Ei-20141_~N22-BOS-RPT
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