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04SN0286-Sept21.pdf July 19,2005 CPC August 16, 2005 CPC September 21, 2005 BS STAFF'S REQUEST ANALYSIS AND RECOMMENDATION 04SN0286 MTV Development Company, LLC Clover Hill Magisterial District Reams Elementary, Providence Middle and Monacan High School Attendance Zones South line of Reams Road REQUEST: Rezoning from Agricultural (A) to Residential (R-12). PROPOSED LAND USE: A single family residential subdivision with a minimum lot size of 12,000 square feet and an overall average lot size of 13,500 square feet is planned. Proffered Condition 7 limits development to a maximum of eighteen (18) lots yielding a density of approximately 2.2 units per acre. PLANNING COMMISSION RECOMMENDATION RECOMMEND APPROVAL AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON PAGES 2 AND 3. AYES: MESSRS. LITTON, BASS AND GULLEY NAYS: MESSRS. WILSON AND GECKER STAFF RECOMMENDATION Recommend approval subject to the applicant adequately addressing the impact of this development on capital facilities. This recommendation is made for the following reasons: A. The proposed zoning and land uses conform to the Northern Area Plan which suggests the property is appropriate for medium density residential use of 1.51 to 4.0 units per acre. Providing a FIRST CHOICE community through excellence in public service B. While the applicant has offered a contribution (Proffered Condition 2) to assist in defraying the cost of this proposed development on road infrastructure with the Traffic Shed, the remaining proffered conditions do not adequately mitigate the impact of this development on other capital facilities, as outlined in the Zoning Ordinance and the Comprehensive Plan. Therefore, the proffered conditions do not adequately mitigate the impact on these capital facilities and thereby do not assure that adequate service levels are maintained as necessary to protect the health, safety and welfare of County citizens. (NOTE: THE ONLY CONDITION THAT MAYBE IMPOSED IS A BUFFER CONDITION. THE PROPERTY OWNER(S) MA Y PROFFER OTHER CONDITIONS. THE CONDITIONS NOTED WITH "STAFF/CPC" WERE AGREED UPON BY BOTH STAFF AND THE COMMISSION. CONDITIONS WITH ONLY A "STAFF" ARE RECOMMENDED SOLELY BY STAFF. CONDITIONS WITH ONLY A "CPC" ARE ADDITIONAL CONDITIONS RECOMMENDED BY THE PLANNING COMMISSION.) PROFFERED CONDITIONS (STAFF/CPC) (CPC) (STAFF/CPC) (STAFF /CPC) (STAFF/CPC) (STAFF/CPC) 1. Public water and wastewater systems shall be used. (U) 2. Prior to recordation of each subdivision plat, the developer shall pay to Chesterfield County $11,500.00 for each lot to be recorded with such plat. In addition, prior to recordation of the initial subdivision plat, the developer shall pay $30,000.00 to Chesterfield County. These payments shall be used for road improvements within Traffic Shed 4, such as at the Reams Road! Adkins Road intersection, or for road improvements that provide relief to that Traffic Shed. (T & BM) 3. Except for timbering approved by the Virginia State Department of Forestry for the purpose of removing dead or diseased trees, there shall be no timbering on the property until a land disturbance permit has been obtained from the Environmental Engineering Department and approved devices have been installed. (EE) 4. The minimum gross floor area for all dwelling units shall be 1800 square feet. (BI & P) 5. All exposed portions of the foundation of each dwelling unit and all exposed piers supporting front porches shall be faced with brick or stone veneer. (BI & P) 6. All streets within the development shall be constructed with curb and gutter. (P & EE) 2 04SN0286-SEPT21- BOS (STAFF/CPC) (STAFF/CPC) (STAFF /CPC) (STAFF/CPC) (STAFF/CPC) (STAFF/CPC) (STAFF/CPC) Location: 7. A maximum of eighteen (18) dwelling units shall be permitted on the property. The overall average lot size shall be thirteen thousand five hundred (13,500) square feet. (P) 8. Manufactured homes shall not be permitted. (P) 9. There shall be no access to Reams Road except for the driveway which serves Tax ID 749-701-9156. (T) 10. Prior to recordation of the initial subdivision plat, the Reams Road at Adkins Road turn lane project shall be complete, as determined by the Transportation Department. (T & P) 11. Within the fifty (50) foot buffer required along Reams Road, a minimum four (4) foot high berm with 3: I maximum side slopes and Perimeter Landscape C shall be provided. The grading and landscaping plan for such buffer area shall be submitted to the Planning Department for approval in conjunction with the tentative plat review. (P) 12. In conjunction with the recordation of the initial subdivision plat or within thirty (30) days of a request by the Transportation Department, whichever occurs first, thirty-five (35) feet of right- of-way on the east side of Adkins Road and forty-five (45) feet of right-of-way on the south side of Reams Road, measured from the centerlines of those roads immediately adjacent to the property, shall be dedicated, free and unrestricted, to and for the benefit of Chesterfield County. (T) 13. Direct access from the property to Adkins Road shall be limited to one (1) public road. The exact location of this public road shall be approved by the Transportation Department. (T) GENERAL INFORMATION: Fronts the south line of Reams Road across from Heppel Road, also fronts the east line of Adkins Road south of Reams Road. Tax ID 750-701-2244 (Sheet 6). Existing Zoning: A Size: 8.1 acres 3 04SN0286-SEPT21-BOS Existing Land Use: Vacant Adjacent Zoning and Land Use: North and South - R-7; Single family residential or vacant East and West - A; Single family residential or vacant UTILITIES Public Water System: There is a sixteen (16) inch water line extending along the north side of Reams Road opposite this site. In addition, a sixteen (16) inch water line extends along the western side of Adkins Road opposite this site. Use of the public water system is intended and has been proffered. (Proffered Condition 1) Public Wastewater System: An eight (8) inch wastewater collector line extends along Kendrick Road, approximately 150 feet south of this site. Use of the public wastewater system is intended and has been proffered. (Proffered Condition 1) ENVIRONMENTAL Drainage and Erosion: The property drains south/southwest through The Colony subdivision and then via storm sewers through tributaries of Falling Creek. The property is heavily wooded and should not be timbered without first obtaining a land disturbance permit from the Environmental Engineering Department (Proffered Condition 3). There are currently no, onsite or offsite, drainage or erosion problems with none anticipated after development. Although there are currently no offsite, adjacent drainage or erosion problems in The Colony subdivision, the existing easements and storm sewers may not be adequate to address the anticipated runoff. These potential concerns will be reviewed in conjunction with the tentative subdivision. PUBLIC FACILITIES The need for fire, school, library, park and transportation facilities is identified in the Public Facilities Plan, the Thoroughfare Plan and the Capital Improvement Program and further detailed by specific departments in the applicable sections of this "Request Analysis." This request will have an impact on these facilities. 4 04SN0286-SEPT21- BOS Fire Service: The Public Facilities Plan indicates that fire and emergency medical service (EMS) calls are expected to increase forty-four (44) to seventy-eight (78) percent by 2022. Six (6) new fire/rescue stations are recommended for construction by 2022 in the Plan. In addition to the six (6) new stations, the Plan also recommends the expansion of five (5) existing stations. Based on fifteen (15) dwelling units, this request will generate approximately three (3) calls for fire and emergency medical services each year. The applicant has not addressed the impact on fire and EMS. Proffered Condition 2 designates that all cash proffered is to be used for road improvements. The Fire Department does not support this proffer. Based on eighteen (18) lots, the Fire Department's share of cash proffers should be $7,650. The Wagstaff Fire Station, Company Number 10, and Manchester Volunteer Rescue Squad currently provide fire protection and emergency medical service. When the property is developed, the number of hydrants, quantity of water needed for fire protection, and access requirements will be evaluated during the plans review process. Schools: Approximately nine (9) students will be generated by this development. Currently this site lies in the Reams Elementary School attendance zone: capacity - 651, enrollment - 586; Providence Middle School zone: capacity - 1,101, enrollment - 1,008; and Monacan High School zone: capacity - 1,692, enrollment - 1,672. This site lies in the Clover Hill Magisterial District. This request will have an impact on the schools involved. There are eight (8) trailers at Providence Middle. The trailers are used for additional programs. The applicant has not addressed the impact of this development on school facilities. Libraries: Consistent with Board of Supervisors policy, the impact of development on library services is assessed Countywide. Based on projected population growth, the Public Facilities Plan identifies a need for additional library space throughout the County. Development of the property noted in this case would most likely affect the existing La Prade Library or a proposed new library in the Reams/Gordon area. The applicant has not offered measures to assist in addressing the impact of this development on library facilities. Parks and Recreation: The Public Facilities Plan identifies the need for three (3) new regional parks, seven (7) community parks, twenty-nine (29) neighborhood parks, and five (5) community centers 5 04SN0286-SEPT21- BOS by 2020. In addition, the Public Facilities Plan identifies the need for ten (10) new or expanded special purpose parks to provide water access or preserve and interpret unique recreational, cultural or environmental resources. The Plan also identifies shortfalls in trails and recreational historic sites. The applicant has not offered measures to assist in addressing the impact of this proposed development on these Parks and Recreation facilities. Transportation: The property, approximately eight (8) acres, is currently zoned Agricultural (A), and the applicant is requesting rezoning to Residential (R-12). The applicant has proffered a maximum density of eighteen (18) dwelling units (Proffered Condition 7). Based on single-family trip rates, development could generate approximately 220 average daily trips. These vehicles will initially be distributed along Adkins Road, which had a 2004 traffic count of 2,789 vehicles per day (VPD), to Reams Road, which had a 2005 traffic count of 12,555 vehicles per day (VPD). The Thoroughfare Plan identifies Reams Road as a major arterial and Adkins Road as a collector with recommended right-of-way widths of ninety (90) feet and seventy (70) feet, respectively. The applicant has proffered to dedicate forty-five (45) feet of right-of- way along Reams Road and thirty-five (35) feet of right-of-way along Adkins Road, measured from their centerlines, in accordance with that Plan. (Proffered Condition 12) Access to major arterials and collectors, such as Reams Road and Adkins Road, should be controlled. There is one (1) driveway from the property to Reams Road that serves an existing dwelling unit. The applicant has proffered that no direct access, other than the existing driveway, will be provided from the property to Reams Road (Proffered Condition 9). The applicant has proffered to limit direct access from the property to Adkins Road to one (1) public road. (Proffered Condition 13) A high number of traffic accidents are occurring along this section of Reams Road, predominately at the intersections with Wadsworth Drive, Rosegill Road, Arch Hill Road and Adkins Road. Construction of turn lanes along Reams Road at these intersections would help address the accident problem. The Six-Year Improvement Plan includes a Phase I of this project, which will involve construction of a left turn lane on Reams Road at Adkins Road. Construction is anticipated to begin in Spring 2006. The traffic impact of this development must be addressed. Most area roads in this part of the County have little or no shoulders with poor vertical and horizontal alignments. The roads need to be improved to address safety and accommodate the increase in traffic generated by this development. Reams Road will be directly impacted by this development. Sections of Reams Road are twenty-two (22) feet wide with one (1) foot shoulders and substandard vertical and horizontal alignments. This road is at capacity (Level of Service E) for the volume of traffic it currently carries. 6 04SN0286-SEPT21- BOS The applicant has proffered to contribute cash, $11,500 for each recorded lot and an additional $30,000 towards improvements to area roads (Proffered Condition 2). Per Proffered Condition 2, the road improvements will be provided within Traffic Shed 4 or will provide relief to Traffic Shed 4. The money could be used towards road improvements along Reams Road. As development continues in this part of the County, traffic volumes on area roads will substantially increase. Additional funds will need to be identified to cover the cost of the improvements needed to accommodate the traffic increases. Other than the Reams Road turn lane project, no public road improvements in this part of the county are currently included in the Six-Year Improvement Plan. Financial Impact on CaQital Facilities: PER UNIT Potential Number of New Dwelling 18* 1.00 Units Population Increase 48.96 2.72 Number of New Students Elementary 4.07 0.23 Middle 2.27 0.13 High 2.88 0.16 TOTAL 9.22 0.51 Net Cost for Schools 99,576 5,532 Net Cost for Parks 14,202 789 Net Cost for Libraries 7,272 404 Net Cost for Fire Stations 7,650 425 Average Net Cost for Roads 79,182 4,399 TOTAL NET COST 207,882 11,549 *Based on a proffered maximum yield of eighteen (18) lots (Proffered Condition 7). Actual number of lots and corresponding impact may vary. 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 stations at $11,549 per unit. The applicant has been advised that a maximum proffer of $11,500 per unit would defray the cost of the capital facilities necessitated by this proposed development. The applicant has offered a transportation contribution of $11 ,500 for each recorded lot, payable prior to recordation of the subdivision plat. The applicant has further offered to pay $30,000 7 04SN0286-SEPT21-BOS prior to recordation of the initial subdivision plat to cover the costs of certain road improvements that normally would be constructed by the applicant. While the transportation contribution is greater than what would be appropriate to accept in this case had the applicant made a cash proffer under the county's policy, the proffered conditions fail to address the impact of this request on schools, parks, libraries and fire stations. Accordingly, the county's ability to provide adequate facilities to its citizens will be adversely impacted. Note that circumstances relevant to this case, as presented by the applicant, have been reviewed and it has been determined that it is appropriate to accept the maximum cash proffer in this case. Staff recommends the applicant fully address their impact on all categories of capital facilities. 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 the proffers as offered for this case. LAND USE Comprehensive Plan: Lies within the boundaries of the Northern Area Plan which suggests the property is appropriate for medium density residential use of 1.51 to 4.0 units per acre. Area Development Trends: Surrounding properties are zoned Residential (R-7) and Agricultural (A) and are occupied by single family residential use within Poco shock Heights and The Colony Subdivisions or are vacant. Site Development: Proffered Condition 6 requires the development to be constructed with curb and gutter. Density and Lot 7: Proffered Condition 7 limits development of the property to a maximum of eighteen (18) lots yielding a density of approximately 2.2 units per acre. Further, the proffer requires an overall average lot size of 13,500 square feet. House Sizes and Foundation Treatment: Proffered Conditions 4 and 5 address minimum house SIzes and address foundation treatments. Phasing: Proffered Condition 10 prohibits recordation of the initial subdivision plat until the improvements to the Reams and Adkins Roads intersection are complete. 8 04SN0286-SEPT21- BOS Buffers and Screening: Proffered Condition 11 requires a landscaped berm to be constructed within the buffer required along Reams Road. Use Limitations: Proffered Condition 8 precludes manufactured homes. The Ordinance also precludes manufactured homes in residential zoning districts. The proffered condition has been offered by the applicant at the request of the Clover Hill District Commissioner in anticipation of a potential State Law change which may require localities to allow manufactured homes in residential districts. If the State law is amended, depending upon the adopted language, this proffered condition may not be enforceable in the future. CONCLUSIONS While the request complies with the Northern Area Plan which suggests the property is appropriate for medium density residential use of 1.51 to 4.0 dwelling units per acre, the proffered conditions do not adequately mitigate the impact of this development on capital facilities, as outlined in the Zoning Ordinance and the Comprehensive Plan. Specifically, the need for schools, parks, libraries, fire stations and transportation facilities is identified in the County's adopted Public Facilities Plan, the Capital Improvement Program and the Thoroughfare Plan and the impact of this development is discussed herein. Proffered Condition 2 varies from that which has consistently been accepted in accordance with the Board of Supervisors' Policy. While a cash contribution is offered to defray the cost of road improvements in an amount equal to the dollar value that would be appropriate to accept in this case had the applicant made a cash proffer under the County's policy, the proffered conditions fail to address the impact of this request on schools, parks, libraries and fire stations. Therefore, the proffered conditions do not adequately mitigate the impact on these capital facilities and thereby do not assure that adequate service levels are maintained as necessary to protect the health, safety and welfare of County citizens. Given these considerations, approval of this request is recommended, subject to the applicant addressing the impacts of this development on capital facilities in accordance with the Board of Supervisors' policy. CASE HISTORY Planning Commission Meeting (7/19/05): Citizens were present who expressed concerns relative to the impact on Reams and Adkins Road; density; and that the impact on libraries, fire, parks and schools were not being addressed. 9 04SN0286-SEPT21-BOS Messrs. Litton, Wilson and Gecker expressed concerns that with the exception of roads, the application fails to address the impact on capital facilities and does not provide for the typical road improvements along Reams and Adkins Roads. Messrs. Gulley and Bass indicated while there are funded road improvements in this areas, the allocation fails to provide for improvements at all intersection and that the proffered contribution could address those needs. It was also noted that the recent bond referendum addresses County-wide school needs and that area schools are not overcrowded. Mr. Gulley made a motion to approve this request. His motion was seconded by Mr. Bass. A vote on his motion was as follows: AYES: Messrs. Bass and Gulley. NAYS: Messrs. Wilson and Gecker. ABSTENTION: Mr. Litton. Because of the vote, the case was carried over to the Commission's August 16, 2005, public hearing. Staff (7/20/05): The applicant was advised in writing that any significant, new or revised information should be submitted no later than July 25, 2005, for consideration at the Commission's August 16,2005, public hearing. Staff (8/1/05): To date, no new information has been submitted. Applicant (8/4/05): Revised proffered condition 2 was submitted. Planning Commission Meeting (8/16/05): The applicant accepted the recommendation. Concern was expressed relative to the lack of infrastructure to support this development. Mr. Gulley noted the challenge between balancing the need for road improvements and the needs of other public facilities. 10 04SN0286-SEPT21-BOS Messrs. Wilson and Gecker expressed concern relative to allocating the entire cash proffer for road improvements; that this shift in allocation should be made at the Board level; and that the proposed allocation adversely impacts the County as a whole to provide capital facilities. Messrs. Bass and Litton indicated support for the request, noting transportation improvements as a priority. On motion of Mr. Gulley, seconded by Mr. Bass, the Commission recommended approval and acceptance of the proffered conditions on pages 2 and 3. AYES: MESSRS. LITTON, BASS AND GULLEY NAYS: MESSRS. 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