17SN0791
CASE NUMBER: 17SN0791
APPLICANTS: Joseph Ziadeh Santana
CHESTERFIELD COUNTY, VIRGINIA
MIDLOTHIAN DISTRICT
STAFF’S ANALYSIS
AND RECOMMENDATION
Board of Supervisors Hearing:
FEBRUARY 28, 2018
BOS Time Remaining:
365 DAYS
Applicants’ Contact:
JOSEPH SANTANA (804-790-9020)
Planning Department Case Manager:
DARLA ORR (804-717-6533)
6.9 Acres – 11188 Robious Road
REQUEST
Conditional Use to permit a group care facility in an Agricultural (A) Zoning District.
Note:
A. Conditions may be imposed or the property owner may proffer conditions.
B.Proffered conditions and exhibits are located in Attachments 1 – 3.
SUMMARY
An assisted living and memory care facility is planned. Specifically, care for up to 132 individuals is
planned in a two-story facility as identified in the Conceptual Site Layout and Elevations in Exhibits A
and B in Attachments 3 and 4.
RECOMMENDATIONS
PLANNING APPROVAL
COMMISSION
STAFF PLANNING – DENIAL
While the applicant has proffered conditions that add quality components to the
development comparable to surrounding area development, the proposed
zoning and land use do not comply with the recommendations of the
Comprehensive Plan as it fails to aggregate surrounding properties.
TRANSPORTATION – APPROVAL
As conditioned, the traffic impact of the development will be addressed.
Providing a FIRST CHOICE community through excellence in public service
SUMMARY OF IDENTIFIED ISSUES
Department Issue
Failure to aggregate surrounding properties will likely not achieve the
PLANNING
highest and best land use suggested by the Plan.
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Comprehensive Plan
Classification: MEDIUM-HIGH DENSITY RESIDENTIAL
The designation suggests the property is appropriate for minimum 4.0 to 8.0 dwellings per acre.
Surrounding Land Uses and Development
Belvedere apartments
Ballard Oaks& Greenfield
Subdivisions
Sunrise Assisted Living
Vacant
Cranbeck Road
Single-family uses
Vacant
Robious Road
Clairmont at Chesterfield
apartments
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PLANNING
Staff Contact: Darla Orr (804-717-6533) orrd@chesterfield.gov
Proposal
The applicant plans to demolish the existing structures on the request property and construct a
132-bed group care facility. The applicant has indicated that the facility will provide resident
services and memory care to elderly adultsrequiring rehabilitation or personal services. A group
care facility is first permitted in a Neighborhood Office (O-1) Zoning District. The subject property
is zoned Agricultural (A). Approval of a Conditional Use is required to permit a group care facility in
an Agricultural (A) District.
The applicant worked with area property owners to finalize the proposal, offering conditions to
address their questions/concerns relative to:
Buffers and prohibiting access to Ermavedo Drive
Maximum building height and facility size (number of beds)
Parking, hours, and lighting
Drainage
The following provides an overview of the development standards offered by the applicant :
General Overview
Requirements Details
Development will generally conform to plan
Conceptual Plan
Existing buildings to be demolished
Exhibit A and Proffered Conditions 6 and 7
Maximum of 132
Number of Beds
Proffered Condition 5
Except where Agricultural (A) standards are greater, will meet
Development Standards
Emerging Growth District Standards for office use
Proffered Condition 4
50-foot buffer along northern property boundary (adjacent to
Ballard Oak subdivision)
Buffers
25-foot wide buffer along side property boundaries
Proffered Condition 8
Compatible with elevations in Exhibit B
Buildings not exceed 2 stories
60% of front facades and side or rear facades visible to public
Architecture
streets shall be brick or stone
Vinyl, plywood and metal siding not permitted
Proffered Conditions 10 and 11
Required parking and drives paved as required by Ordinance
Overflow parking may use permeable pavement
Parking and Lighting
Freestanding light fixtures maximum height of 15 feet
Proffered Conditions9 and 15
Solid waste storage areas cannot be serviced between 8 p.m.
Servicing Hours Limitation
and 7 a.m.
Proffered Condition 14
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USE AND COMPREHENSIVE PLAN
Area properties are zoned for a mix of office and single and multi-family residential uses, or
area zoned Agricultural and occupied by single-family dwellings or remain vacant. Two (2)
vacant properties to the west (11230 and 11240 Robious Road, containing 3.6 acres) and three (3)
properties to the east (2001 Ermavedo Drive and 11160 and 11170 Robious Road containing 5.7
acres) all have development potentialwith a combined area of 9.3acres
The Comprehensive Plan suggests the block, including the subject property, fronting the north
line of Robious Road between Cranbeck Road to the west, Ballard Oaks subdivision to the
north, and Greenfield subdivision to the east, as an area appropriate for medium-high density
residential development.
Ballard Oaks
subdivision
Greenfield
subdivision
While the Plan would not suggest O-1 zoning, a district where agroup care facility is first
permitted, with the aggregation of properties within this block, staff believes the proposed use
may be appropriate in achieving land use transitionbetween Robious Road and single family
residential use to the north and east. Land aggregation is encouraged by the Plan where
development of individual parcels would be constrained in size or shape in consideration of
compliance with ordinance development standards and compatibility or transition. Without
aggregation, development of the remaining properties (3.6 acres and 5.7 acres east and west of
the subject property) will be adversely impacted due to their size and separation. Staff is
unable to support this request.
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COUNTY DEPARTMENT OF TRANSPORTATION
Staff Contact: Jim Banks (804-748-1037) banksj@chesterfield.gov
The applicant plans to develop a group care facility with a maximum of 132 beds (Proffered
Condition 5). Based on trip generation rates for assisted living, development could generate
approximately 330 average daily trips. Traffic generated by development of the property would
be initially distributed along Robious Road.
Robious Road is a major arterial with a recommended right of way width of 90 feet, as
identified on the County’s Thoroughfare Plan. Robious Road is afour-lane divided facility. In
2015, the traffic count on Robious Roadwas 20,316vehicles per day (Level of Service ‘B’).
Section 19.1-231 of the County Code outlines the general requirements to meet the needs of
the traffic generated by a proposed development, including acceptable levels of service. The
applicant has offered:
Right of Way Dedication (Proffered Condition 1)
45 feet along Robious Road for the property frontage
Vehicular Access Control (Proffered Condition 2)
One (1) accessand one (1) emergency access to Robious Road.
To address citizen concerns, applicant has proffered no access to Ermavedo Drive.
Road Improvements (Proffered Condition 3)
Right turn lane at the approved access to Robious Road.
Staff supports the request.
VIRGINIA DEPARTMENT OF TRANSPORTATION
Staff Contact: Jonathan Phillippe (804-674-2560) jonathan.phillippe@vdot.virginia.gov
To date, no comments have been received.
FIRE AND EMERGENCY MEDICAL SERVICES
Staff Contact: Anthony Batten (804-717-6167) battena@chesterfield.gov
Mission
The mission of Fire and Emergency Medical Services (EMS) is to protect life, property and the
environment through a comprehensive fire and life safety program that ensures an adequate
and timely response to emergencies.
Nearby Facilities
The Midlothian Fire Station, Company Number 5
The Forest View Volunteer Rescue Squad
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Additional Fire and EMS Comments
A second access will be required for the development. To address concerns of area citizens, no
access from the property is permitted to ErmavadoDrive. Both accesses are planned to
Robious Road. Since the spacing of the entrances will not meet separation distances required
by Transportation and VDOT, the FireDepartment will support an emergency access as the
second entrance. The emergency access will have to meet Fire and EMS standards. (Proffered
Conditions 2 and7)
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.
UTILITIES
Staff Contact: Jamie Bland (804-751-4439) blandj@chesterfield.gov
The proposal’s impacts on the County’s utility system are detailed in the chart below:
Water and Wastewater Systems
Currently Size of Closest Connection Required by County Code?
Serviced? Existing Line
Water No 16” & 8”Yes
Wastewater Yes and No 15”Yes
Additional Information
Both parcels are located in the mandatory water and wastewater connection areas for non-
residential development and thus connection to public water and wastewater is required. Water
and wastewater are both available in Robious Road.
The owner/developer has proffered the use of public water and wastewater. (Proffer Condition
#12).
The existing building located at 11188 Robious Road is currently connected to the public water and
wastewater systems. After demolition, the proposed new building(s) may require an increase to
the existing water service and water metersize. If a larger water service/meter is needed, a new
service line and meter box will need to be installed and the difference in connection fees would be
required prior to setting a new meter. Existing water services and laterals not utilized as part of the
proposed development must be abandoned per the Water and Sewer Specifications and
Procedures.
The existing building located at 11210 Robious Road is currently connected to the public water
system. There is a wastewater lateral installed to the property however it does not appear the
structure was ever connected. Any new construction on this property will be required to connect
to both public water and wastewater. The proposed use may require an increase to the water
service and water meter size. If a larger water service/meter is needed, a new service line and
meter would need to be installed and the difference in connection fees would be required prior to
setting the new meter. Existing water services and laterals not utilized as part of the proposed
development must be abandoned per the Water and Sewer Specifications and Procedures.
Utilities supports this case.
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ENVIRONMENTAL ENGINEERING
Staff Contact: Rebeccah Ward (804-748-1028) wardr@chesterfield.gov
Geography
The majority of the subject properties drains north and northeast into the existing Ballard Oaks
subdivision and then into an existing storm sewer system in the Greenfield subdivision. The
storm sewer outfalls into the headwaters of Powhite Creek. The front portions of the
properties drain into the existing storm sewer system along Robious Road, which outfalls into
an unnamed tributary to Pocoshock Creek. The northern 65% of the subject properties is
located within the Powhite Creek Watershed. The southern 35% is located within the Falling
Creek Watershed.
Environmental Features
A Resource Protection Area Designation (RPAD) must be approved by the Environmental
Engineering-Water Quality Section prior to the submittal of anysite plans.Wetlands shall not
be impacted without approval from the U.S. Army Corps of Engineers and/or the Virginia
Department of Environmental Quality.
Drainage
A portion of the subject properties currently drains north and east towards and into existing
residential lots in the Greenfield and Ballard Oaks subdivisions. The existing ditches and culverts
within these subdivisions are older systems which were not designed to handle runoff from a high
intensity commercial development; therefore, to the maximum extent practicable, drainage shall
be diverted into the existing storm sewer system along Robious Road. In addition, drainage shall
be designed so that runoff from buildings, sidewalks, driveways, and other impervious surfaces is
directed away from these existing lots. The applicant has offered Proffered Conditions 13.A and
13.B to address this impact.
The existing roadside ditches and culverts in the Ballard Oaks subdivision should be evaluated
to verify that existing private properties will not be negatively impacted by increased
stormwater runoff created by the development. For the portion of the property which drains
to the Ballard Oaks subdivision, the maximum post-development discharge rate for the 10-year
storm shall be based on the maximum capacity of the existing roadside ditches and culverts
along Ermavedo Drive. In addition, the 2-year and 100-year post-development peak discharge
rates shall not exceed the 2-year and 100-year pre-development peak discharge rates,
respectively. The applicant has offered Proffered Condition 13.C to address this impact.
To protect downstream properties from flooding in the event of a dam failure, any detention
facility serving the development shall be a dry facility constructed below the existing ground,
such that no manmade compacted embankment is required. If some level of manmade
embankment is necessary, a dam failure analysis will be required to verify that no homes will be
detrimentally impacted. The dam embankment design should include, but is not limited to, a
clay core and/or a syphon structure. The applicant has offered Proffered Condition 13.D to
address this impact.
Stormwater Management
The development of the subject property will be subject to the Part IIB technical criteria of the
VSMP Regulations for water quality and quantity. Any areas of forest/open space used for
stormwater quality compliance must be recorded within an easement prior to issuance of a
building permit.
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CASE HISTORY
Applicant Submittals
2/14/17 Application submitted
12/1, 12/6 Proffered conditions and exhibits submitted.
and
12/21/17
Community Meetings
3/16/17Issues Discussed:
Access into request property and potential emergency access
8/7/17 Issues Discussed:
Plans to remodel and use existing building
Proposed new building – reduce height and provide elevations
Use of Ermavedo Drive for emergency access; possibility of emergency
access to Robious Road in addition to main access
On-site and overflow parking
Stormwater run-off
Potential to reduce proposed number of beds
Buffer adjacent to neighborhood and property values
10/16/17 Issues Discussed:
No access to Ermavedo Drive
Demolition of existing structures
Architectural standards to include 60% of front facades constructed with
brick or stone masonry
Building height
Buffer along the northern property boundary
Planning Commission
10/17/17 Action – DEFERRED TO NOVEMBER 21, 2017 ON ITS OWN MOTION WITH THE
APPLICANT’S CONSENT.
11/21/17 Action – DEFERRED TO JANUARY 16, 2018 ON ITS OWN MOTION WITH THE
APPLICANT’S CONSENT.
1/16/18Citizen Comments:
A citizen requested confirmation that all of the existing buildings will be
demolished.
Commission Discussion:
Mr. Jones expressed support for the case noting that the applicant had worked
to address concerns of area citizens.
Recommendation – APPROVAL SUBJECT TO THE PROFFERED CONDITIONS IN
ATTACHMENT 1
Motion: Jones Second: Sloan
AYES: Sloan, Jackson, Freye, Jones and Wallin
The Board of Supervisors on Wednesday, February 28, 2018, beginning at 6:00 p.m., will
consider this request.
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ATTACHMENT 1
PROFFERED CONDITIONS
(December 21, 2017)
Note: The following proffered conditions are recommended by the Planning Commission.
1.Dedication.Prior to any site plan approval, or within sixty (60) days of a written request
by the Transportation Department, whichever occurs first, forty-five (45) feet of right-
of-way on the north side of Robious Road, measured from the centerline of that part of
Robious Road immediately adjacent to the Property, shall be dedicated, free and
unrestricted, to and for the benefit of Chesterfield County. (T)
2.Access. Direct vehicular access from the Property to Robious Road shall be limited to
one (1) entrance/exit and one (1) emergency access. The exact location and design of
these accesses shall be approved by the Transportation Department and the Fire
Department. No direct vehicular access shall be permitted to Ermavedo Drive. (T and F)
3.Road Improvements. Prior to issuance of a certificate of occupancy on the Property, the
following road improvements shall be completed, as determined by the Transportation
Department:
a.Construction of an additional pavement along the westbound lanes of Robious
Road at the approved access to provide a separate right turn lane; and
b.Dedication to Chesterfield County, free and unrestricted, of any additional right-
of-way (or easements) required for the improvements identified above. (T)
4.Development Standards. Except where the underlying Agricultural (A) District standards
are more restrictive, development of the property shall conform to the Zoning
Ordinance requirements for Corporate Office (O-2) development within the Emerging
Growth Design District. (P)
5.Maximum Number of Beds. The assisted living/memory care facility shall be limited to a
maximum of 132 beds. (P and BI)
6.Demolition of Existing Structures. Prior to the issuance of a building permit for the
assisted living/memory care facility, all existing structures on the properties shall be
demolished. (P and BI)
7.Conceptual Plan. The plan, dated November 22, 2017 and last revised November 30
prepared by E. D. Lewis and Associates and identified as Exhibit A, shall be considered
the conceptual site plan. Development of the site shall generally conform with this plan.
(P)
8.Buffer.A fifty (50) foot wide buffer shall be provided along the northern property
boundary adjacent to Ballard Oak subdivision and twenty-five (25) foot buffers shall be
provided along the side property boundaries. Such buffers shall be inclusive of setbacks
and shall comply with ordinance standards for fifty (50) foot buffers.(P)
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9.Parking. A minimum of 42 parking space shall be provided in accordance with Zoning
Ordinance standards. Spaces provided in excess of ordinance required spaces shall be
permitted to be designed to incorporate the use of permeable pavement, such as, but
not limited to, permeable concrete, permeable asphalt or permeable paver systems. (P
and EE)
10.Building Height. Maximum height for all buildings shall be limited to two (2) stories. (P)
11.Architectural Standards. Architectural treatment of buildings shall be generally
compatible with Exhibit B, dated November 22, 2017 and last revised November 30
prepared by E. D. Lewis and Associates. In addition, buildings shall be subject to the
following:
A minimum of 60% of the front facades of all buildings shall be brick or stone
masonry. The side or rear façade of a building that is visible from public streets
shall have at least 60% brick or stone masonry. The height of the brick and stone
shall be permitted to vary to allow for a mixture of design features.
Measurement of the requirement for masonry façade treatment shall be
exclusive of roof gable ends, windows, doors, balconies, porches and sunrooms.
Horizontal lap siding shall be manufactured from natural wood or cement fiber
board. Vinyl, plywood and metal siding are not permitted. (P and BI)
12.Utilities. The public water and wastewater systems shall be used. (U)
13.Drainage/Stormwater.
To the maximum extent practicable, drainage shall be diverted to the existing storm
A.
sewer system along Robious Road.
No impervious areas shall sheet flow through the Greenfield and Ballard Oaks
B.
Subdivisions.
For the portion of the property which drains or will drain to the Ballard Oaks
C.
Subdivision, the maximum post-development drainage discharge rate for the 10-
year storm shall be based on the maximum capacity of the existing roadside ditch
and driveway culverts along Ermavedo Drive. In addition, the 2-year and 100-year
post-development peak discharge shall not exceed the 2-year and 100-year pre-
development peak discharge, respectively.
To protect downstream properties from flooding in the event of a dam failure, any
D.
detention facility serving the property should be a dry facility below the existing
ground so no manmade compacted embankment is required. If some level of
manmade embankment is necessary, a dam failure analysis will be required showing
no homes will be detrimentally impacted. The dam embankment design should
include, but not be limited to, a clay core or a syphon structure. (EE)
14.Servicing Hours Limitations. Solid waste storage areas shall not be serviced between
the hours of 8:00 p.m. and 7:00 a.m. A sign, not to exceed six (6) square feet in area,
designating the hours which such solid waste storage areas may be serviced shall be
prominently posted. (P)
15.Lighting: Freestanding light fixtures shall not exceed a height of fifteen (15) feet (P).
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ATTACHMENT 2
EXHIBIT A - CONCEPTUAL SITE LAYOUT
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ATTACHMENT 3
EXHIBIT B - CONCEPTUAL ELEVATIONS
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