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CASE NUMBER: 15SN0596 APPLICANT: Colony Village LLC
ADDENDUM
CHESTERFIELD COUNTY, VIRGINIA Magisterial District: BERMUDA
Board of Supervisors (BOS) Public Hearing Date:
NOVEMBER 19, 2014 CPC Time Remaining:
365 DAYS Applicant’s Agent:
Carrie Coyner (804-748-3600) Applicant’s Contact:
George Emerson (804-536-5868)
Planning Department Case Manager: Darla Orr (804-717-6533)
APPLICANT’S REQUEST
Amendment of conditional use (Case 07SN0292) to increase the number of multifamily residential units. Specifically, amendment of Textual Statement Section II Item I of Case 07SN0292 is proposed to increase the permitted number of multi-family residential units. An additional sixty-five (65) apartments are planned which would increase the number of units from the 275 permitted with Case 07SN0292 to 340 units, yielding a density of approximately 20.2 dwelling units per acre. (Proffered Condition)
ADDENDUM The purpose of this Addendum is to advise the Board of the Planning Commission’s action.
RECOMMENDATIONS
PLANNING COMMISSION (11/18/2014)
DEFERRED REQUEST TO THEIR DECEMBER 16, 2014 PUBLIC HEARING.
Providing a FIRST CHOICE community through excellence in public service
CASE HISTORY
Applicant Submittals 8/22/14 Application submitted
Community Meetings 10/27/14 Issues Discussed
• Quality architecture & appearance of development • Drainage issues • Discarded material • Proximity of new buildings to adjacent property to the south • Impact of sidewalks along Jefferson Davis Highway
Planning Commission Meetings 11/18/14 On their own motion, the Commission deferred this case to their December 16,
2014 public hearing.
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CASE NUMBER: 15SN0596 APPLICANT: Colony Village LLC
STAFF’S ANALYSIS
AND RECOMMENDATION
CHESTERFIELD COUNTY, VIRGINIA Magisterial District: BERMUDA
Board of Supervisors (BOS) Public Hearing Date:
NOVEMBER 19, 2014 CPC Time Remaining:
365 DAYS Applicant’s Agent:
Carrie Coyner (804-748-3600) Applicant’s Contact:
George Emerson (804-536-5868)
Planning Department Case Manager: Darla Orr (804-717-6533)
APPLICANT’S REQUEST
Amendment of conditional use (Case 07SN0292) to increase the number of multifamily residential units. Specifically, amendment of Textual Statement Section II Item I of Case 07SN0292 is proposed to increase the permitted number of multi-family residential units. An additional sixty-five (65) apartments are planned which would increase the number of units from the 275 permitted with Case 07SN0292 to 340 units, yielding a density of approximately 20.2 dwelling units per acre. (Proffered Condition) (NOTES: A. Conditions may be imposed or the property owner may proffer conditions.
B. Proffered conditions are located in Attachment 1.
RECOMMENDATIONS
PLANNING COMMISSION (11/18/2014)
THE PLANNING COMMISSION IS SCHEDULED TO HEAR THIS CASE AT THEIR MEETING ON TUESDAY, NOVEMBER 18, 2014. STAFF WILL ADVISE THE BOARD OF THE COMMISSION’S ACTION AFTER THEIR MEETING.
STAFF
RECOMMEND DENIAL
• Does not offer integration with surrounding area • Offers option not guarantee for mixed use development • Fails to address development impacts
Providing a FIRST CHOICE community through excellence in public service
SUMMARY OF IDENTIFIED ISSUES
Department Issue
PLANNING
Development not integrated with area uses and offers mixed use as an option not guarantee. Conditions of zoning only offer a timing for a
space to be reserved for commercial use, not occupancy by commercial uses
BUDGET AND MANAGEMENT
Fails to address impacts on capital facilities in accordance with Board’s policy
FIRE Fails to address impacts on fire facilities in accordance with Board’s policy
PARKS AND RECREATION
Fails to address impacts on parks facilities in accordance with Board’s policy
LIBRARIES Fails to address impacts on library facilities in accordance with Board’s policy
SCHOOLS Fails to address impacts on school facilities in accordance with Board’s policy
CDOT Commitments to address the traffic impact have not been offered
VDOT
UTILITIES
ENVIRONMENTAL ENGINEERING
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Map 2: Comprehensive Plan – The (Northern) Jefferson Davis Highway Corridor Plan Classification: GENERAL AND COMMUNITY COMMERCIAL The designation suggests the property is appropriate for community scale commercial, motor vehicle oriented commercial and light industrial uses..
Map 3: Surrounding Land Uses & Development
Jefferson Davis Hwy
Velda Rd
Single family dwellings in Central Park
General commercial, light industrial use or vacant
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PLANNING Staff Contact: Darla Orr (804-717-6533) [email protected]
ZONING HISTORY Case Number BOS Action Request 64-65 A Approved
(07/1964) Conditional Use to enlarge a 39 unit mobile home park to 65 units
98PD0243 Accepted CPC Determination (04/1998)
Substantial Accord to permit 199’ communications tower
07SN0292 Approved (05/28/2008)
• Conditional Use to permit multi-family residential use and Conditional Use Planned Development to permit exceptions to ordinance requirements
• Mixed use development with multi-family use to include over-shop housing and commercial uses
Attachment 2 10SN0252 Approved
(07/25/2010) • Rezoning from R-7 to C-3 of 1.2 acres with
Conditional Use to permit multi-family residential uses (proposed for parking and storage facilities for multi-family residential use
• Amendment of Conditional Use Planned Development (Case 07SN0292 to reduce setbacks
PROPOSAL The applicant is requesting amendment of Case 07SN0292 to permit an increase in the number of multi-family residential units as outlined in the chart below. The applicant indicates that the additional units will be developed as a forth (4th) floor on three (3) buildings remaining to be built within the project.
General Overview Requirement Existing Zoning Current Proposal
Density
• Maximum of 275 apartments yielding a density of approximately 16.97 units per acre
• Maximum of 16 units per floor Textual Statement Section II Item I
• Maximum of 340 apartments yielding a density of approximately 20.23 units per acre
• Maximum of 16 units per floor Proffered Condition
Development History and Additional Apartment Units While the (Northern) Jefferson Davis Highway Corridor Plan suggests the property is appropriate for commercial use, zoning to permit the development was approved in 2008 with anticipation of
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the positive influence the development, proposed as a mixed use development with apartments, over-shop housing and commercial uses, may have to encourage reinvestment in the Jefferson Davis Corridor. The development was approved with an architectural style and materials similar to Chester Village Green. In addition, consideration was given to the improvement the development would provide over the previous manufactured home park use on the property. Occupancy permits for buildings within development were first issued in December 2013. The attention to architectural detailing and quality materials on building facades is evident, as anticipated with the conditions of the 2008 zoning approval. Any new buildings must provide this same level of detail and quality, as they are required to be compatible with existing buildings. The applicant has indicated that there are currently no commercial uses within the development. With the increased number of apartments, staff continues to believe a mix of commercial uses with the apartments is important to ensure supporting commercial uses are available for sustainable multi-family development. The automobile-oriented, general commercial and light industrial uses existing on properties surrounding the development do not offer these commercial service uses. Condition 6 of Case 07SN0292, which would remain in effect if this request is approved, is intended to offer the mix of residential and commercial uses within the development. However, this condition only requires a building permit be issued for commercial space, not occupancy of the space by a commercial use. In addition, the reservation for eighteen (18) months of half of the first floor of the portion of any building fronting or oriented towards Jefferson Davis Highway and located within 120 feet of the ultimate right of way of the highway is not an assurance that the development will be mixed use. Given the approved plans and existing development design, this condition would offer this reservation in one (1) of the proposed additional apartment buildings (10501 Colony Village Way as shown on Attachment 2). Staff suggests that a mix of uses should be guaranteed. Integration Colony Village has been developed as a gated multi-family residential development. While attention has been given to a pedestrian scale design and pedestrian areas within the development, there is no integration of the development with surrounding properties or public rights of way. This interconnectivity is important as efforts should be made such that this development, proposed as a spark for revitalization efforts in the area, will be part of, not isolated from, the community. At a minimum, the developer should agree to provide a sidewalk along Jefferson Davis Highway where the development fronts.
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FINANCIAL IMPACT ON CAPITAL FACILITIES
Budget and Management Staff Contact: Natalie Spillman (318-8767) [email protected]
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 Adopted Capital Improvement Program and further detailed by specific departments in the applicable sections of this request analysis. 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 $21,261 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. The applicant has not proffered conditions to adequately address the impact of the request on capital facilities. The applicant has requested amendments to case 07SN0292 that would increase the density approved in the original case by 65 units; the original case allowed 275 multi-family units and the new request is for a total of 340 units. The Board’s cash proffer policy allows the County to assess the impact of all dwelling units in previously approved zoning cases that come back before the Planning Commission and Board of Supervisors using the calculated capital facility costs in effect at the time the case is reconsidered. As such, staff has evaluated the impact of 178 units (comprised of those units permissible, but not yet built, under the terms of 07SN0292 and the 65 additional requested units). Recognizing the importance of revitalizing older communities and characteristics of successful multifamily development, staff has evaluated this request within the parameters of the Board of Supervisor’s cash proffer policy allowing for flexibility to consider unique circumstances about a proposed development. The policy notes that after the Board’s review of the case, the Board could consider approval of this request with a reduced cash proffer, as was done when approving case 07SN0292 without a cash proffer. At the time Case 07SN0292 was approved, the applicant maintained that the proposed development, now commonly known as Colony Village, would serve as a catalyst for the revitalization of other areas along Jefferson Davis Highway, north of Route 288. The work completed on the existing project is an improvement over the previous conditions. The blighted structures have been removed and are now being replaced with apartments where existing assessed values are approximately 5 percent (approximately $4,000) above the countywide average for multi-family development. It is however, premature to gauge if this project is a catalyst for additional area improvements or revitalization as the existing units have only recently opened in 2013 and 2014.
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Case 07SN0292 was approved with a provision requiring a portion of the first floor space in certain buildings to be occupied with Community Business C-3 uses, thus allowing for a mix of uses on the same site. However, the provision further allowed for the C-3 space to convert to residential multi-family uses within 18 months of obtaining the first certificate of occupancy for a dwelling unit. That 18 month window before all residential uses could occupy the space is set to expire in approximately six months. The applicant has not proffered any modification to that condition that would extend this period of time or guarantee commercial use with this current case. The mixed use design element, whether as part of the existing property or through connections to a mixture of uses on adjacent/nearby properties is another factor that contributes favorably to the success of multi-family projects. With the expiration of the mixed use component on this property after the eighteen (18) month period, this development becomes further isolated from area community uses as there are no provisions for sidewalks along the property frontage thereby interrupting pedestrian access to adjacent or nearby sites that could provide ancillary services in the future. The estimated student generation rates at this property are approximately one-fifth of the overall countywide average however there is no restriction on the allowable number of bedrooms for any of the units. While the project is an improvement over the property conditions it replaced, it fails to adequately address its impacts on capital facilities. The incremental assessed value in the dwelling units is inadequate to offset the impact on capital facilities through increased real estate taxes paid over a 20 year period. Further, the incremental assessed value of commercial development in the area deemed to be a spin-off of this development would need to be approximately $17.5 million, to offset over a 20 year period the requested $3.3 million reduction in cash proffers associated with 178 units; if evaluated on the additional 65 units alone, the incremental assessed value of such commercial development would need to be $6.4 million to offset the requested $1.2 million reduction in cash proffers. Circumstances relevant to this case, as presented by the applicant, have been reviewed, and staff feels that it is appropriate to accept the maximum cash proffer of $18,966 for each dwelling unit in this case.
Per Dwelling Unit Impact on Capital Facilities 178*
Potential Units
Facility Categories
FY15 Calculated Impact
Current BOS Maximum
Applicant Proposal
Variance from Maximum
Schools $9,376 $8,364 $0 ($8,364) Parks $1,327 $1,184 $0 ($1,184) Libraries $340 $303 $0 ($303) Fire Stations $786 $701 $0 ($701)
Roads $9,432 $8,414 $0 ($8,414) Total $21,261 $18,966 $0 ($18,966)
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Overall Impact on Capital Facilities Schools $1,668,928 $1,488,792 $0 ($1,488,792) Parks $236,206 $210,752 $0 ($210,752) Libraries $60,520 $53,934 $0 ($53,934) Fire Stations $139,908 $124,778 $0 ($124,778)
Roads $1,678,896 $1,497,692 $0 ($1,497,692) Total $3,784,458 $3,375,948 $0 ($3,375,948)
*Based on proffered density of 340 units, less the 162 built as of 10/6/14.
PUBLIC FACILITIES
FIRE SERVICE Staff Contact: Greg Smith (706-2012) [email protected]
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. The Public Facilities Plan, as part of the Comprehensive Plan, indicates:
1 With the aging of population, medical emergency incidents are expected to increase faster than the rate of population growth over time.
1 The financial impact of residential development on fire facilities is addressed in the “Financial Impact on Capital Facilities” section of the report.
County-wide Fire & EMS Service Information & Needs Recommendations for Fire Stations by 2022
New 5 Replacement/Revitalization 4
2011 Incidents as a percent of total 1 Fire 24% EMS (Emergency Medical Services) 76%
Fire/EMS Increases in Call Volume from 2001 and 2011 44%
County Population Increase from 2001 to 2011 17%
Fire Service - Project Impacts Estimated Number of Calls for Service Annually 39 additional calls with 65 additional units
Applicant’s Proposal to Address Impacts 1
Not Offered in Accordance with Policy
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Additional Information 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. Information relative to nearby fire and emergency service facilities can be found in Attachment 5. PARKS AND RECREATION Staff Contact: Brian Geouge (318-8720) [email protected]
The County supports a high-quality park system to provide residents and visitors with equitable access to active and passive recreation opportunities. The Public Facilities Plan, as part of the Comprehensive Plan, indicates:
County-wide Parks and Recreation Needs Park Type Number of New Parks Aggregate Acreage Regional 3 600 Community 10 790 Neighborhood 9 180 Special Purpose 3 1 - Urban 2 - - Linear 3 - -
1 The Public Facilities Plan notes facility recommendations for water-based parks. All other facilities are acquired and developed on a site-by-site basis. 2 Facilities are recommended in urban areas where there is limited acreage available for park development. 3 Facility needs are assessed on a site-by-site basis as recommended in the Public Facilities Plan.
1 The financial impact of residential development on parks facilities is addressed in the “Financial Impact on Capital Facilities” section of the report.
Additional Information Information relative to nearby parks and recreation facilities can be found in Attachment 5.
Parks and Recreation – Project Impacts
2012 County Level of Service 5.9 Acres of Regional, Community and/or Neighborhood parkland per 1,000 persons
Target Level of Service 9 Acres of Regional, Community and/or Neighborhood parkland per 1,000 persons
Applicant’s Proposal to Address Impacts 1
Not Offered in Accordance with Policy
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LIBRARIES Staff Contact: Debra Winecoff (751-4475) [email protected]
The public library system’s role in the county has expanded beyond its traditional function as a resource for information and materials, and now serves as a community gathering place for educational, cultural and informational services; community support during emergencies; economic development; and revitalization activities. The Public Facilities Plan, as part of the Comprehensive Plan, indicates:
County-wide Library Needs Facility Action County-wide Facility Needs Expand or Replace 5 Libraries Construction of New Facilities
• 5 Libraries • 1 Community Arts Center
Libraries - Project Impacts
2011 County Level of Service 0.45 square feet of library space per person Standard Level of Service 0.82 square feet of library space per person Applicant’s Proposal to Address Impacts 1
Not Offered in Accordance with Policy
1 The financial impact of residential development on library facilities is addressed in the “Financial Impact on Capital Facilities” section of the report.
Additional Information Information relative to nearby library facilities can be found in Attachment 5.
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SCHOOLS Staff Contact: Dr. Cynthia O. Richardson (318-8740) [email protected]
High performing, high quality public schools contribute to the quality of life and economic vitality of the County. The Comprehensive Plan suggests a greater focus should be placed on linking schools with communities by providing greater access, flexible designs and locations that better meet the needs of the communities in which they are located. The Public Facilities Plan, as part of the Comprehensive Plan, indicates:
County-wide School Needs School Types Facilities to Revitalize/Replace New Facilities Elementary 16 3 Middle 6 2 High 2 3 Technical - 1
Schools - Project Impacts
Average Student Yield
Elementary 37 Middle 20
High 27 Total 84
Applicant’s Proposal to Address Impacts 1
Not Offered in Accordance with Policy
1 The financial impact of residential development on school facilities is addressed in the “Financial Impact on Capital Facilities” section of the report. Additional Information After review of this request, based on current school assignments and student enrollment the proposed rezoning case will have an impact on schools. It is possible that over time this case, combined with other tentative residential developments and other zoning cases in the area will continue to push these schools to their capacity and therefore impact the capacity of facilities division-wide. Information relative to schools currently serving area can be found in Attachment 5.
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COUNTY DEPARTMENT OF TRANSPORTATION Staff Contact: Steve Adams (751-4461) [email protected]
The Comprehensive Plan, which includes the Thoroughfare Plan, identifies county-wide transportation needs that are expected to mitigate traffic impacts of future growth. The anticipated traffic impact of the proposal has been evaluated and recommendations are detailed in the chart below:
Recommendation Applicant’s Proposal Cash Proffer Policy Not Addressed
VIRGINIA DEPARTMENT OF TRANSPORTATION Staff Contact: Brian Lokker (674-2384) [email protected]
VDOT Land Use Regulations
Traffic Impact Analysis (24VAC30-155) - Access Management (24VAC30-73) - Subdivision Street Acceptance (24VAC30-91/92) - Land Use Permit (24VAC30-151) - Summary VDOT has no comment on this case. The
increase in dwelling units/density does not trigger the threshold for a Ch 527 TIA or have an impact on subdivision street acceptance.
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WATER AND WASTEWATER SYSTEMS Staff Contact: Jamie Bland (751-4439) [email protected]
The proposal’s impacts on the County’s utility system are detailed in the chart below:
Water and Wastewater Systems Currently
Serviced? Size of Existing Line Connection Required by County Code?
Water Yes 8” Yes Wastewater Yes 8” Yes
Map 5: Existing Water & Wastewater Systems
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ENVIRONMENTAL Drainage, Erosion and Water Quality
Staff Contact: Doug Pritchard (748-1028) [email protected] Environmental Engineering has not comment for this case.
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CASE HISTORY
Applicant Submittals 8/2214 Application submitted
Community Meetings 10/27/14 Issues Discussed
• Quality architecture & appearance of development • Drainage issues • Discarded material • Proximity of new buildings to adjacent property to the south • Impact of sidewalks along Jefferson Davis Highway
Planning Commission Meetings 11/18/14 This case is double advertised. If the planning commission acts on this case at
their November 18, 2014 public hearing, the case will be heard by the board of supervisors on Wednesday, November 19, 2014.
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ATTACHMENT 1
PROFFERED CONDITION
The Applicant in this case, pursuant to Section 15.2-2298 of the Code of Virginia (1950 as amended) and the Zoning Ordinance of Chesterfield County, for themselves and their successors or assigns, proffer that the property known as Chesterfield County Tax Identification Number 794-665-8176 and 794-666-6719 (“the Property”) under consideration will be developed according to the following amended proffer if, and only if, the request submitted herewith is granted with only those conditions agreed to by the Applicant. In the event this request is denied or approved with conditions not agreed to by the owner and Applicant, the proffer shall immediately be null and void and of no further force or effect. Textual Statement Section II Item I of Case 07SN0292 shall be amended as follows. All other conditions of Case 07SN0292 shall remain in force and effect:
Number of dwelling units. There shall be no more than sixteen (16) residential dwelling units per floor. The maximum number of dwelling units shall be 340 units. (P)
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ATTACHMENT 2 Case 11PR0102 Site Plan Overall
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ATTACHMENT 3
Case 07SN292
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ATTACHMENT 4
Case 10SN0252
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ATTACHMENT 5 SUPPLEMENTAL PUBLIC FACILITIES STATISTICS
Schools Currently Serving Area
Bellwood Elementary
School
Salem Church Middle School
Bird High School
Current and Projected Figures 2
Capacity Categories
Mem
bers
hip
Func
tiona
l Ca
paci
ty
% C
apac
ity
Mem
bers
hip
Func
tiona
l Ca
paci
ty
% C
apac
ity
Mem
bers
hip
Func
tiona
l Ca
paci
ty
% C
apac
ity
2013 458 498 92 853 1089 78 1843 2020 91 2014 466 - 94 854 - 78 1883 - 93 2015 474 - 95 849 - 78 1890 - 94 2020 465 - 93 865 - 79 1848 - 91
Trailers Number of Trailers 1 3 5
1 Trailers are not identified in the staff report for schools under 90% capacity. 2 Disclaimer: Please note that Projected Membership AND Functional Capacity are updated on an ANNUAL BASIS. They are based on the September 30 membership and Space Utilization Study Report for a given year. School boundary adjustments may be made to address over capacity levels.
Nearby Public Facilities Fire Station Centralia Fire Station, Company Number 17 EMS Facility Bensley-Bermuda Volunteer Rescue Squad Library Chester Library or Facility Proposed In Kingsdale/Hopkins Road
Area Parks & Recreation Fort Stevens
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