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97SN0222 - - May 20, 1997 CPC JullC 17, 1997 CPC July 23, 1997 BS REQUEST ANALYSIS AND RECOMMENDATION 97SN0222 Richmond Better Housing Coalition Matoaca Magisterial District South line of Price Club Boulevard REQUEST: Conditional Use to permit multiple-family dwellings in a Community Business (C-3) District. Specifically, the request property was zoned in 1989 as a part of an 84.8 acre Community Business (C-3) tract (Case 89SN0402). Multiple-family dwellings are permitted within C-3 Districts subject to restriction that no more than thirty (30) percent of the gross acreage of the C-3 tract be developed for multiple- family dwelling uses and that such uses be incorporated into an integrated schematic plan. Further, multiple-family dwellings cannot be developed until at least fifty (50) percent of the C-3 tract is developed for non-residential uses, must be located in projects of twenty-five (25) acres or more and must conform to the requirements of the Zoning Ordinance for Multi-Family Residential (R-MF) Districts, with the exception that density can increase to a maximum of fourteen (14) units per acre. Currently, existing or approved multiple-family projects within the property zoned C-3 with the approval of Case 89SN0402 comprise thirty (30) percent of the acreage of the project. The applicant wishes to develop multiple-family dwellings on more than thirty (30) percent of the gross acreage of the property zoned C-3 with the approval of Case 89SN0402. In addition, the applicant wishes to modify requirements of the Zoning Ordinance for such multiple-family dwellings to: increase the number of dwelling units on anyone (1) level of any building from ten (10) to a maximum of thirty (30) units; and to reduce the number of required parking spaces from two (2) to 1.3 parking spaces for each dwelling unit. The applicant has proffered to restrict occupancy of the multiple-family dwellings to the elderly. PROPOSED LAND USE: A maximum of eighty-three (83) multiple-family dwellings for the elderly are planned. PLANNING COMMISSION RECOMMENDATION RECOMMEND APPROVAL SUBJECT TO THE CONDITIONS ON PAGES 3 AND 4 AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON PAGE 4. THE COMMISSION NOTED THAT THE APPLICANT HAD NOT PROFFERED TO ADDRESS THE IMPACTS OF THIS REQUEST AS CAPITAL FACILITIES AND THAT SINCE THIS WAS A UNIQUE SENIOR CITIZEN PROJECT, THE BOARD MAY WISH TO ADDRESS THE POLICY IN THEIR CONSIDERATION. IT WAS ALSO NOTED THAT THE APPLICANT NEEDS TO ADDRESS THE POllCE DEPARTMENT'S CONCERNS THROUGH THE DESIGN OF THE SITE PLAN. AYES: MESSRS. SHEWMAKE, CUNNINGHAM AND MARSH. ABSTENTIONS: MESSRS. GULLEY AND MILLER. STAFF RECOMMENDATION Recommend approval subject to the applicant addressing the impacts on capital facilities, consistent with the Board of Supervisor's policy. This recommendation is made for the following reasons: A. Although the Northern Area Land Use and Transportation Plan suggests that the request property is appropriate for residential use of 1.51 to 4.0 units per acre, the request property is part of a mixed use development consisting of commercial uses along Hull Street Road and multiple-family dwelling units south of Hull Street Road, along Price Club Boulevard. Specifically, adjacent properties to the northwest and west of the request property have been developed, or approved through site plan review, for multiple-family development. Further, adjacent property to the east is zoned for townhouse development. The flan suggests that property south of the request property is appropriate for residential use of 1.51 to 4.0 units per acre; therefore, higher density residential development on the request property, as well as on adjacent properties to the northwest, east and west of the request property provides a transition between existing and anticipated commercial development, north of the request property, and anticipated lower density residential development south of the request property. Approval of additional multiple-family dwelling units on the request property would complete this transition. B. The request to increase the number of dwelling units on anyone level of any building would allow the project to be designed in a manner th~t facilitates security for the residents. Specifically, the building could be designed with one (1) principal entrance/exit, which could be monitored. 2 97SN0222/WP/JUL Y23L - - C. The request to reduce the number of required parking spaces would be appropriate only if provisions are made to provide additional parking, should parking become a problem. D. The proffered conditions do not address the impacts of this development on necessary capital facilities, as outlined in the Zoning Ordinance and Comprehensive Plan. Specifically, the need for parks, libraries and fire stations is identified in the County's adopted Public Facilities Plan and FY 1997-2001 Capital Improvement Prollram and the impact of this development is discussed herein. The proffered conditions do not mitigate the impact on capital facilities, thereby insuring that adequate service levels are maintained to protect the health, safety and welfare of County citizens. (NOTE: CONDITIONS MAYBE IMPOSED OR THE PROPERTY OWNER MAY PROFFER CONDITIONS. THE CONDmONS 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.) CONDITIONS (STAFF/CPC) (STAFF ICPC) (STAFF) 1. A fifty (50) foot buffer shall be maintained along the southern boundary of the request property. This buffer shall conform to the requirements of the Zoning Ordinance for fifty (50) foot buffers. (P) 2. A maximum of thirty (30) dwelling units shall be permitted on any one (1) floor level of a building. (P) 3. Parking shall be provided on the basis of 1.3 spaces per unit. In addition, facilities shall be designed to provide land area of sufficient size, location and configuration to provide for an additional 0.7 parking space per dwelling unit should additional parking be required to accommodate the number of vehicles on the property, as determined by the Planning Department. At the time of site plan submission, the location and design of this additional parking shall be submitted to the Planning Department for review and approval. The additional parking shall be installed within 180 days of notification by the Planning Department that additional parking is required, unless the Planning Department agrees to an extension of the 180 day period. (P) 3 97SN0222nNP/nJLY23L (CPC) 3. Parking shall be provided on the basis of 1.5 spaces per unit. (CPC) (NOTE: Except as modified by these conditions, multiple-family dwelling units must conform to the requirements of the Zoning Ordinance for such units within Community Business (C-3) Districts.) PROFFERED CONDITIONS (STAFF/CPC) (STAFF/CPC) 1. The public water and wastewater systems shall be used. 2. Except for one dwelling unit which may be occupied by a resident manager and their immediate family, dwelling units shall be designed for elderly retirement housing. Such units shall meet the occupancy requirements for "age 62 or over" housing as set forth by the Department of Housing and Urban Development's Section 202 Grant Program and the occupancy requirement that no person under 19 years of age shall reside in these units. (STAFF/CPC) 3. No building shall exceed a height of three (3) stories. GENERAL INFORM A TION Location: South line of Price Club Boulevard, east of Genito Road. GPIN 748-683-Part of Parcel 2867 (Sheet 14). Existin~ Zonin~: C-3 with Conditional Use ~: 5.9 acres Existin~ Land Use: Vacant 4 97SN0222/WP/JUL Y23L - - ..- Adjacent Zoninll & Land Use: North - C-3 with Conditional Use; Vacant South - A; Single family residential East - R-TH with Conditional Use Planned Development; Vacant West - C-3 with Conditional Use; multiple-family dwellings UTILITIES Public Water System: There is an existing twelve (12) inch water line along Price Club Boulevard adjacent to the request site. Use of the public water system is intended and has been proffered by the applicant. (Proffered Condition 1) Public Wastewater System: There is an existing fifteen (15) inch wastewater trunk line extending along Horners Run approximately 250 feet north of the request site. Use of the public wastewater system is intended and has been proffered by the applicant. (Proffered Condition 1) ENVIRONMENTAL Drainalle and Erosion: The request property drains to Price Club Boulevard, then via storm sewers to Horners Branch and ultimately to Swift Creek. No existing on- or off-site drainage or erosion control problems. POLICE Crime Prevention Throullh Environmental Desi~n (CPTED): Chesterfield County, through the Police Department, has incorporated Crime Prevention Through Environmental Design (CPTED) into the planning process. CPTED is the implementation of strategies to reduce the frequency, severity and/or fear of crime through manipulation of the physical environment. The Police Department, upon reviewing this request, has identified a number of concerns that may be addressed through the implementation of CPTED strategies. These concerns include access, lighting, landscaping, site layout and fencing. 5 97SN0222nNP/nJL Y23L These concerns include: · The adjacent property (Mallard Cove) already has some existing crime concerns for their residents. The number of calls for service in January 1997 was up 71 % over the same time period in 1996. Note that during this same time frame, the number of residents has also increased. · Desian and Public Safety states "Housing that is too dense can be a powerful factor in creating crime problems within the housing and surrounding neighborhood. " Although there are no specific thresholds as to how much is 'too dense,' the decision of 'too dense' must be based on local conditions. · The targeted population for this project is more likely to be at risk for crimes against persons. Mitigation of these concerns can be accomplished through the implementation of the following: · Provide a wrought iron fence or wall along the south and west property lines. · Incorporate CPTED principles in final design and work with Police staff to address safety concerns prior to, or in conjunction with, site plan review. If this request is approved, staff will work with the developer to have these concerns addressed prior to, or in conjunction with, site plan review. PUBLIC FACILITIES The need for fire, school, library, park and transportation facilities is identified in the Public Facilities Plan, the Thorou~hfare Plan and the FY1997-2001 Capital Improvement Program. This development will have an impact on these facilities. Fire Service: The Public Facilities Plan indicates that Emergency Services calls are expected to increase forty-five (45) percent by the year 2015. Eight (8) new fire/rescue stations are recommended for construction by the year 2015 in the Public Facilities Plan. This property is currently served by the Wagstaff Circle Fire/Rescue Station, Company Number 10 and Manchester Rescue Squad. The applicant has not addressed the impact that this development will have on fire/rescue services. 6 97SN02221WP/JUL Y23L - - ~- Fire hydrants, with adequate water flow must be provided in compliance with nationally recognized standards (i.e. National Fire Protection Association and Insurance Service Office). When the property is developed, the number of hydrants and quantity of water needed for fire protection will be evaluated during plans review process. Also, the need for ingress/egress for emergency equipment and designation of fire lanes will be determined during the review of the aforementioned plans. Based on eighty-three (83) multiple-family dwellings, this request could generate approximately fourteen (14) emergency calls for fire and rescue services per year. Schools: The applicant has proffered that occupancy will meet the requirements for "age 55 or over" housing, as set forth in the Fair Housing Act, and that the occupancy requirement that "no person under 19 years of age shall reside in these units" (Proffered Condition 2). Under this scenario, the proposed development will have no impact on the public school system. Libraries: The Public Facilities Plan identifies the need for five (5) new libraries and expansion of eight (8) existing libraries by the year 2015. There is currently an unmet demand for 18,280 square feet of space Countywide. Without additional construction, this unmet demand will increase to 84,600 feet by the year 2015. The proposed development is located such that residents could easily make use of the La Prade Library, the Clover Hill Library or the proposed new Lucks Lane Library. The Public Facilities Plan (1995) identifies a need for 12,000 additional square feet of space at La Prade Library and 5,000 additional square feet of space at Clover Hill Library by the year 2000. Additionally, continued development in this area of the County will begin to make it desirable to build a new branch in the vicinity of Lucks Lane sometime between the years 2000 and 2015. Even with the construction of the new La Prade Library scheduled for FY99/2000 and possible expansion of Clover Hill Library, there is a projected 6,000 square feet of unmet demand for library space in the Lucks Lane area by the year 2000. The applicant has not addressed the impact the proposed multiple-family units will have on library facilities. Parks and Recreation: The Public Facilities Plan identifies the need for two (2) new regional parks. In addition. there is currently a shortage of community park acreage in the northern area. The Public Facilities Plan identifies a need for 120 acres of community park space by 2015. The 7 97SN0222nNP/JUL Y23L applicant has not offered measures to assist in addressing the impact of this proposed development on these facilities. Transportation: In 1989, the Board of Supervisors approved the rezoning of eighty-five (85) acres for development of a mixed-use project adjacent to Hull Street Road (Route 360) and Genito Road (Case Number 89SN0402). In conjunction with that rezoning, the Board of Supervisors accepted transportation related proffered conditions that address maximum density of development, right-of-way dedication, access control and construction of mitigating road improvements. The required road improvements for this project are complete except for the installation of a traffic signal at the Price Club Boulevard/Genito Road intersection and the widening of Genito Road to four (4) lanes. According to the conditions, both of these improvements are required when warranted. Subsequent to the rezoning, the Transportation Department approved a phasing plan that established a specific density that could be developed within the mixed-use project without providing these road improvements. The subject property is part of that mixed-use project. The approval of this Conditional Use will not affect the existing zoning conditions for the development of the subject property . The application intends to develop an eighty-three (83) unit senior citizen apartment complex. Based on apartment trip rates, development could generate approximately 510 average daily trips. These vehicles will be distributed along Route 360 and Genito Road which had 1996 traffic counts of 29,140 and 9,684 vehicles per day, respectively, and along Price Club Boulevard which had a 1995 traffic count of 3,225 vehicles per day. At time of site plan review, staff will evaluate the specific land use and density of development compared to the approved phased density to determine if this proposed development will require installation of road improvements as outlined in Case 89SN0402. Fiscal Impacts: A. Non-Elderly Units PER UNIT Potential Number of New Dwelling Units 1* 1.00 Population Increase 2.80 2.8 Number of New Students Elementary 0.28 0.28 8 97SN0222/WP/JUL Y23L - ""'~ 0.131 0.16 Middle High 0.13 0.16 TOTAL 0.57 0.57 Net Cost for Schools 2,154 2,154 Net Cost for Parks 546 546 Net Cost for Libraries 230 230 Net Cost for Fire Stations 221 221 Average Net Cost for Roads 0 0 Sub-Total Net Cost 3,151 3,151 B. Elderly Units PER UNIT Potential Number of New Dwelling Units 82 * 1.00 Population Increase 229.60 2.8 Number of New Students Elementary 0.00 0.00 Middle 0.00 0.00 High 0.00 0.00 TOTAL 0.00 0.00 Net Cost for Schools 0 0 Net Cost for Parks 44,772 546 Net Cost for Libraries 18,860 230 Net Cost for Fire Stations 18,122 221 Average Net Cost for Roads 0 0 Sub-Total Net Cost 81,754 997 TOTAL NET COST (A. + B.) 84,905 *Based on a theoretical density for Conditional Use in a C-3 District. 9 97SN0222/WP/nJL Y23L The need for schools, parks, libraries, and fire station facilities in this area is identified in the County's adopted Public Facilities Plan and FY1997-2001 Capital Improvement Program and further detailed by specific departments in the applicable sections of this request analysis. As noted, this proposed development will have an impact on capital facilities. Staff has calculated the fiscal impact of every new dwelling unit that is not designated for the elderly, on schools, parks, libraries, and fire stations at $3151 per unit. Staff has calculated the fiscal impact of every new elderly dwelling unit on parks, libraries, and frre stations at $997 per unit. The applicant has been advised that a maximum proffer of $3151 per non-elderly unit, and $965 per elderly unit would defray the cost of the capital facilities necessitated by this proposed development. The applicant has not adequately addressed the impact of this proposed zoning on such capital facilities. Under this scenario, an additional $82,281 will have to be identified to help address the need for parks, libraries, fire stations, and schools. Otherwise, the County's ability to provide these capital facilities to it's 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 would be appropriate to accept a cash proffer in the amount of $3151 per non-elderly unit, and $965 per elderly unit in this case. The Planning Commission and the Board of Supervisors, through their consideration of this request, may determine that there are unique circumstances relative to this development which may justify acceptance of a cash proffer below the maximum amount. LAND USE Comprehensive Plan: Lies within the boundaries of the Northern Area Land Use and Transportation Plan which suggests the request property is appropriate for residential use of 1.51 to 4.0 units per acre. Area Develoj)ment Trends: The request property is part of an 84.8 acre tract zoned Community Business (C-3) and being developed for a mix of commercial and multiple-family dwellings. Specifically, portions of this C-3 property fronting Hull Street Road north of the request property has developed as the Price Club, while portions fronting the north and south lines of Price Club Boulevard, northwest and west of the request property, have developed for multiple- family dwellings (Mallard Cove) or are planned for multiple-family dwellings (Genito Glen). Properties to the east and south of the request site are zoned Residential- 10 97SN0222IWP/JUL Y23L - - ....... Townhouse (R-TH) and Agricultural (A) and are vacant or are occupied by single-family residences on acreage parcels. Zoninll History: On October 25, 1989, the Board of Supervisors, upon a favorable recommendation by the Planning Commission, approved rezoning from Agricultural (A) and General Business (B- 3) to Community Business (C-3) with Conditional Use to permit exceptions to gross floor area restrictions for outside storage and exceptions to minimum acreage requirements for multiple-family developments, on the request property and surrounding area to the north and west (Case 89SN0402). With the approval of Case 89SN0402, multiple-family dwellings were permitted subject to the limitations set forth in C-3 Districts for such use, with the exception that as little as ten (10) acres of the C-3 tract could be developed for multiple-family dwelling use. On December 19, 1989, the Planning Commission approved a schematic plan for development on the property which was the subject of Case 89SN0402. (Case 89PS0239) Site Desi2n: The development standards of the Zoning Ordinance for multiple-family dwellings within C-3 Districts address density, access, parking, landscaping, architectural treatment, setbacks, provision of recreational facilities, signs, utilities, buffers and screening of dumpsters. As noted herein, the applicant has requested exceptions to R-MF standards to: increase the number of dwelling units on anyone (1) level of any building, from ten (10) to a maximum of thirty (30) units; and to reduce the number of required parking spaces from two (2) to 1.3 parking spaces for each unit. As noted herein, a maximum of eighty-three (83) multiple-family dwellings could be developed on the request property. The applicant has proffered that occupancy of the dwellings would be restricted to elderly residents (age fifty-five (55) and over) (Proffered Condition 2). The applicant has indicated that the requested exception to numbers of units per level of any building would allow a building design that facilitates security for the residents by allowing the proposed eighty-three (83) dwelling units to be developed in one (1) building with one (1) principal entrance/exit which could be monitored. (Condition 2) The applicant has also requested reduction in the required number of parking spaces, from two (2) spaces per unit to 1.3 spaces per unit. The applicant has indicated that in similar developments, where occupancy is restricted to the elderly, fewer parking spaces are needed to accommodate residents and visitors. Staff can support the reduction only with the provision that the additional 0.7 spaces be provided should they prove to be needed. (Condition 3) 11 97SN0222nNP/JUL Y23L Buffers & Screenin~: The Zoning Ordinance requires that solid waste storage areas (Le., dumpsters, garbage cans, trash compactors, etc.) be screened from view of adjacent property and public rights of way by a solid fence, wall, dense evergreen plantings or architectural feature. Adjacent properties to the south are zoned Agricultural (A), are occupied by single family residences and are designated on the flan for residential use of 1.51 to 4.0 units per acre. The Zoning Ordinance does not require a buffer between these properties and the proposed multiple-family dwellings, unless imposed. However, the Zoning Ordinance would typically require a fifty (50) foot buffer on property zoned Multi-family Residential (R- MF) where adjacent to property zoned for less dense residential use. Given that the Elan designates these adjacent properties for residential use of less density than that allowed on the request property, imposition of a fifty (50) foot buffer between the proposed multiple- family development on the request property and these adjacent properties would be appropriate. (Condition 1) Adjacent property to the east is zoned Residential-Townhouse (R-TH) and is currently vacant. The Zoning Ordinance would require a minimum fifty (50) foot buffer between multiple-family development on the request property and this adjacent R- TH property. At the time of site plan review, the Planning Commission may modify required buffers under certain circumstances. CONCLUSIONS Although the Northern Area Land Use and Transportation Plan suggests that the request property is appropriate for residential use of 1.51 to 4.0 units per acre, the request property is part of a mixed use development consisting of commercial uses along Hull Street Road and multiple-family dwelling units south of Hull Street Road, along Price Club Boulevard. Specifically, adjacent properties to the northwest and west of the request property have been developed or approved through site plan review for multiple-family development, and adjacent property to the east is zoned for townhouse development. Existing and planned higher density residential development to the northwest, east and west of the request property provides transition between existing and anticipated commercial development, north of the request property, and anticipated lower density residential development to the south. Approval of additional multiple-family dwelling units on the request property would complete this transition. As noted herein, the applicant has requested exceptions to R-MF standards to allow a maximum of thirty (30) dwelling units per floor and to reduce required parking to a minimum of 1.3 parking spaces per unit. The request to increase the number of dwelling units on anyone level of any building would allow the project to be designed in a manner 12 97SN0222/WP/JUL Y23L - -~ ........,~ that facilitates security for the residents. Specifically, the building could be designed with one (1) principal entrance/exit, which could be monitored (Condition 2). However, the request to reduce the number of required parking spaces would be appropriate only if provisions are made to provide additional parking, should parking become a problem. (Condition 3) The proffered conditions do not address the impact of this development on necessary capital facilities, as outlined in the Comprehensive Plan. Further, the need for parks, libraries, and ftre stations is identified in the County's adopted Public Facilities Plan which is a component of the Comprehensive Plan and FY 1997-2001 Capital Improvement Program and the impact of this development is discussed herein. The proffered conditions do not mitigate the impact on capital facilities, thereby. insuring that adequate service levels are maintained 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 on capital facilities. CASE HISTORY Planning Commission Meeting (5/20/97): On their own motion, the Commission deferred this case to June 17, 1997, to allow the applicant an opportunity to amend the request to include modification to Zoning Ordinance requirements relative to numbers of dwelling units of anyone (1) level of a building and numbers of parking spaces, as discussed herein. Staff (5/21/97): The applicant was advised in writing that any signiftcant new or revised information should be submitted no later than May 28, 1997, for consideration at the Commission's June 17, 1997, public hearing. Applicant (5/28/97): The applicant amended the request, as discussed herein. 13 97SN0222/WP/JUL Y23L Planning Commission Meeting (6/17/97): The applicant accepted the Planning Commission's recommendation. There was one citizen who expressed concerns relative to the age limit, the reduction in the required number of parking spaces and that the cash proffer policy does not give credit for installation of sprinkler systems. Mr. Gulley expressed concern that transportation would be required to provide access to any type services as the proposed facility would not be located within close proximity to them (i.e., dental/medical services, drugstores, libraries, hospitals, etc.) and, yet, the applicant was requesting a reduction in the parking space requirement. Mr. Miller expressed concern that the proffered conditions did not mitigate the impact on capital facilities to ensure that adequate service levels were maintained to protect the health, safety and welfare of County citizens and questioned why there was not such an organization in Chesterfield County. Mr. Gulley stated he was very much in favor of housing for the elderly as it was needed very much. He stated, although he realized there were positive benefits to locating this facility at this site, he was not certain the subject property was the appropriate location in that he felt such housing should be located in areas where there were services available to accommodate the residents' needs that did not require the use of a vehicle. He stated, without having arrived at a definitive decision, he planned to abstain on this matter. Mr. Shewmake stated he was very impressed with the organization and the previous proposal the applicant brought forward along the Jefferson Davis Highway corridor. He stated this organization was not only bringing a quality project into the County but also leaders from area communities and area planning directors and he strongly supported this project. On motion of Mr. Marsh, seconded by Mr. Cunningham, the Commission resolved to recommend approval of Case 97SN0222, subject to the conditions on pages 3 and 4 and acceptance of the proffered conditions on page 4; with a notation that the Board of Supervisors be advised that the applicant had not proffered to mitigate the impacts of this development on capital facilities; that since this was a unique senior citizens project, the Board may wish to address this policy consideration; and also, that the applicant needed to address Police Department concerns at the time of site plan approval. AYES: Messrs. Shewmake, Cunningham and Marsh. ABSTENTIONS: Messrs. Gulley and Miller. 14 97SN0222/WP/JUL Y23L - - """-. The Board of Supervisors, on Wednesday, July 23, 1997, beginning at 7:00 p.m., will take under consideration this request. 15 97SN0222/WP/JUL Y23L - c.u. SH. 14 / -... N .~ \ \ \ /' " ",' " I , I , ~'iS ~ ~ ... ~ ",,'" L; J};. ,...,~~ ..~., ~' Cf7SN02ZZ-j