TOWN OF BLACKSURG AGENDA MEMO DATE: TO: FROM: …

TOWN OF BLACKSURG AGENDA MEMO

DATE: February 7, 2018

TO: Town Council

FROM: Anne McClung, Planning and Building Director_____________

PREPARED BY: Kinsey O’Shea, Town Planner

TITLE: RZN17-0009/ORD1858 - Request to rezone approximately 0.69 acres at 712

Church Street SE (Tax Parcel 257-4SEC 3 9*) from R-5 Transitional Residential to

PR Planned Residential for 7 income-restricted townhomes. Request is made on

behalf of Blacksburg Presbyterian Church Trustees (owner) by Habitat for

Humanity of the New River Valley (applicant).

Background: The attached is a request to rezone approximately 0.69 acres in the R-5 Transitional

Residential Zoning District at 712 Church Street SE for the construction of seven (7) income-

restricted townhomes. Additionally, the applicant requests an exception to the Use and Design

Standards for Townhomes, in order to eliminate the required open space. The Planning Commission

heard these requests at the February 6, 2018 public hearing, and recommended approval of these

requests as submitted.

Considerations: See attached staff report.

Action: Place on first reading and schedule public hearing for March 13, 2018.

Attachments:

Planning Commission to Town Council Memo

Staff to PC memo dated February 2, 2018

Staff Report with attachments dated January 12, 2018

Application dated January 1, 2018, and revised January 31, 2018 with proffer statement dated

January 29, 2018

MEMORANDUM TO: Town Council FROM: Planning Commission DATE: February 6, 2018 SUBJECT: RZN17-0009-Request to rezone approximately 0.69 acres at 712 Church Street SE (Tax

Parcel 257-4SEC 3 9-*) from R-5 Transitional Residential to PR Planned Residential for 7 income-restricted townhomes. Request is made on behalf of Blacksburg Presbyterian Church Trustees (owner) by Habitat for Humanity of the New River Valley (applicant).

* * * * * * *

Planning Commission Recommendation:

APPROVAL for the requested Exception to Use & Design Standards for Townhouse §4231(a)(11) for the modification or elimination of required open space

For: Colley; Davis; Kassoff; Langrehr; Moneyhun; Sutphin Against: Abstain: Absent: J. Jones; M. Jones

APPROVAL for the rezoning request RZN17-0009, and modification to Town standard sidewalk to eliminate the required 4’ vegetated buffer between the curb and sidewalk

For: Colley; Davis; Kassoff; Langrehr; Moneyhun; Sutphin Against: Abstain: Absent: J. Jones; M. Jones In so recommending approval of this rezoning application and associated exception to use and design standards, the Planning Commission finds the request to be in conformity with the Comprehensive Plan, the Zoning Ordinance, and to have minimum adverse impact on the surrounding neighborhood or community.

RZN17-0009 Habitat for Humanity PC update memo 02-02-18

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TO: Planning Commission

FROM: Kinsey O’Shea, AICP, Development Administrator_____________

TITLE: RZN17-0009-Request to rezone approximately 0.69 acres at 712 Church Street

SE (Tax Parcel 257-4SEC 3 9-*) from R-5 Transitional Residential to PR Planned

Residential for 7 income-restricted townhomes. Request is made on behalf of

Blacksburg Presbyterian Church Trustees (owner) by Habitat for Humanity of the

New River Valley (applicant).

DATE: February 2, 2018

At the January 16, 2018 Planning Commission Work Session, there was discussion regarding several aspects of the application and site design. In general, the topics were the following:

Setbacks

Right-of-way dedication at time of subdivision

Storage for units & covered bike parking

Handicap parking

Sidewalk The applicant has submitted a revised application, plan, and architectural renderings dated January 29, 2018, and date-stamped January 31, 2018, with the following changes:

Application changes o The applicant has revised the side setbacks from 10’ to 15’ to match the proposed

public utility easements. o The layout of the buildings has been shifted toward the rear to accommodate the

dedication of 5’ of right-of-way that would be required at the time of subdivision, should the applicant wish to subdivide into individual townhome parcels in the future. The front yard setback would still be 15’, even after the dedication of the right-of-way.

o The applicant has provided accommodation for additional storage space in units 2-6 (interior units) underneath the proposed rear decks. This storage area is proposed to be covered by the deck, and will allow the placement of trash/recycling carts, as well as other personal items such as bicycles or grills. Units 1 and 7 do not have decks, and so a screened storage area has been provided off the rear of the building for those two units.

o The applicant has provided additional information regarding the handicap parking. The original application shows that the proposed handicap parking will be located within the public right-of-way along Church Street. The applicant brought a request to the Town Traffic Committee to request that two of the onstreet parking spaces be designated as handicap parking. The committee considered the request, and the recommendations were provided in the staff report dated January 12, 2018. The applicant has looked at the options to provide handicap parking in the parking lot at the rear of the site, but states that providing this parking in the rear would necessitate the construction of an elaborate ramp and handrail system due to the grade change.

KO

RZN17-0009 Habitat for Humanity PC update memo 02-02-18

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Per the building code, none of the units are required to be fully-handicap accessible, as they are multi-story dwelling units. The applicant has chosen to provide master bedroom/bathroom and other accessible features in the two end units to be more conducive to aging-in-place. Because there is no requirement for fully-accessible units, there is no requirement for the provision of handicap parking. Due to these circumstances, the applicant has chosen not to relocate the handicap parking onsite, but rather to proceed with the request to the Traffic Committee for onstreet handicap parking.

o There was also some discussion regarding the provision (or not) of a 4’ planted bufferstrip between the back of the curb and the sidewalk along the public rights-of-way.The applicant has chosen to continue the request to eliminate this requirement andprovide sidewalk adjacent to the back of the curb without a planted strip. Thejustification for this request is found in the cover memo from the applicant datedJanuary 29, 2018. Analysis regarding the design of the sidewalk without a planted stripwas provided in the staff report dated January 12, 2018.

Master Plan changeso Changes outlined in the January 29, 2018 letter that affect the physical development of

the site have been reflected on the master plan: setbacks, right-of-way area to bededicated, and exterior storage areas.

CONSIDERATIONS Any motion made should reference the date of the revised application, graphics, and proffer statement.

1 - RZN17-0009 Habitat for Humanity Townhome PRD 712 Church Street SE 12JAN2018 KJO

MEMORANDUM

To: Planning Commission

From: Kinsey O’Shea, AICP, Town Planner for Current Development & Development Administration

Date: January 12, 2018

Subject: RZN17-0009-Request to rezone approximately 0.69 acres at 712 Church Street SE (Tax Parcel

257-4SEC 3 9-*) from R-5 Transitional Residential to PR Planned Residential for 7 income-

restricted townhomes. Request is made on behalf of Blacksburg Presbyterian Church Trustees

(owner) by Habitat for Humanity of the New River Valley (applicant).

SUMMARY OF REQUEST

Property Location 712 Church Street SE

Tax Parcel Numbers 257-4SEC 3 9*

Parcel(s) Size 0.692 acres

Present Zoning District R-5 Transitional Residential

Present Use Vacant Adjacent Zoning District Northeast: R-4 Low Density Residential (across Church St.)

Southeast: R-4 Low Density Residential (across Hemlock St.)

Southwest: R-5 Transitional Residential

Northwest: R-5 Transitional Residential

Adjacent Uses Northeast: Church (across Church St.)

Southeast: Single-family residential (across Hemlock St.)

Southwest: Multifamily residential

Northwest: Single-family residential

Adopted Future Land Use Medium-Density Residential

Proposed Use 7 Three-bedroom townhomes

Proposed District Standards

Maximum Height 30'

Minimum Setbacks Front: 15' along Church Street

Side: 10’ along Hemlock Drive

Side: 10’ along interior lot line

Rear: 25'

Maximum lot coverage 55% impervious

Proposed Density 21 Bedrooms (31 bedrooms per acre)

Proposed Density 7 Units (11 units per acre)

Proposed Parking 2 spaces per unit


BACKGROUND Steve Semones of Blazer & Associates, representing the applicant, Habitat for Humanity of the New River Valley, has applied to rezone four parcels owned by the Blacksburg Presbyterian Church from R-5 Transitional Residential to PR Planned Residential. The total parcel size is approximately 0.69 acres. The parcels are currently vacant. The applicant proposes 7 three-bedroom townhomes which will be income-restricted affordable housing. CRITERIA FOR EVALUATION There are a number of analysis points for evaluation of a request to rezone a property within Town. The policies and maps in the Comprehensive Plan lend guidance to the Town’s vision of growth in the future, while specific codes and requirements in the Zoning Ordinance, Subdivision Ordinance, and the Town Code ensure that the development meets all applicable regulations. In many cases, these guidelines and regulations overlap. In instances where there are multiple regulations governing a particular characteristic, such as parking or building orientation, additional code section references are provided in order to combine the analysis of the application into topical groups. Section 1151 of the Zoning Ordinance requires the Commission to study all rezoning requests to determine:

1) Whether the proposed amendment conforms to the general guidelines and policies contained in the Comprehensive Plan.

2) The relationship of the proposed amendment to the purposes of the general planning program of the Town, with appropriate consideration as to whether the change will further the purposes of [the Zoning Ordinance] and the general welfare of the entire community.

3) The need and justification for the change. 4) When pertaining to a change in the district classification of the property, the effect of the change, if any,

on the property, surrounding property, and on public services and facilities. In addition, the Commission shall consider the appropriateness of the property for the proposed change as related to the purposes set forth at the beginning of each district classification.

Section 1162 of the Zoning Ordinance states that proposals for rezoning to a planned zoning district constitute an application for conditional zoning. Section 1160 of the Zoning Ordinance states that the owner of the land may proffer conditions, which may be accepted by the Town if they meet the following standards:

1) The rezoning itself must give rise for the need for the conditions 2) The conditions shall have a reasonable relation to the rezoning 3) The conditions shall be in conformity with the Comprehensive Plan 4) The conditions must be clearly understood and enforceable 5) The conditions must not require or allow a design or standard that is less restrictive than the general

provisions of this ordinance. EVALUATION OF APPLICATION This staff report is divided into topical areas of evaluation. Many of the overarching principles in the Comprehensive Plan, the Residential Infill Guidelines, and the Zoning Ordinance overlap into key topical focus areas. To aid in review of the staff report each topic or focus area is covered only once. The analysis is contained in the staff report. The pertinent text sections from the Comprehensive Plan, the Residential Infill Guidelines, and the Zoning Ordinance have been included as an appendix to this report. Area Neighborhood and Existing Conditions The property is located at the corner of Hemlock Drive SE and Church Street SE, one half-block back from South Main Street. The property backs up to the Little River apartments that front on South Main Street. Adjacent to the northwest is a single-family home. Across Church Street is the parking lot for the Blacksburg Presbyterian


Church. Southeast of the property, across Hemlock Drive, are two single-family homes. The parcels are currently vacant, and slope from Church Street down toward the rear of the property. There is currently a dumpster serving the Presbyterian Church on the north corner of the property, across from the entrance to the church parking lot. The dumpster will need to be relocated onto the church property. Development Proposal The development proposal entails the construction of seven three-bedroom townhomes along the Church Street frontage. The end unit along Hemlock Drive will have an entrance that faces Hemlock Drive. The townhomes are proposed to be two-story units. The two end units will be designed and constructed as fully-handicap accessible and will contain a master bedroom and bathroom on the main level, as well as a zero-step entry from the public sidewalk. The interior units will also feature a number of accessible design features such as zero-step entries, wider doorways, and a bathroom on the main floor that will be accessible in a wheelchair. A shared parking area will be accessed off Hemlock Drive, and provide access to the rear entry of the interior units. The end units do not have a rear entry. The rear yard of the units between the building and the parking lot will allow for a reasonably-sized rear yard. The development also includes the construction of stormwater management facilities to handle the onsite stormwater for the development and the applicant is working jointly with the Town to correct an existing stormwater management issue affecting this parcel and adjacent parcels. The site slopes from Church Street down towards Main Street, and based on the building renderings and other information provided, it seems that a large amount of fill will be required to construct the buildings as shown. The renderings depict what appears to be the grade at the front of the units, however, units will be accessed by “bridges” from the public sidewalk to the zero-step entry, while the ground falls away under the bridge to the foundation of the building. The renderings do not adequately convey this grade change. The application and renderings should be revised to more accurately depict the final grading of the site to ensure that there will be no retaining walls required and to give an accurate picture of the ground plane around the buildings. If retaining walls are needed they need to be shown on the binding master plan. The property will be developed in such a way as to enable future subdivision of townhome parcels, if that is a desired ownership model for the applicant in the future. At the time that subdivision is contemplated, however, the applicant will need to dedicate additional right-of-way to meet the Town’s requirement of 50’ of right of way on Church Street. The master plan should be revised to accommodate the additional ROW that is required. Development Standards The characteristics of physical site development are regulated by the zoning district standards. In a Planned Residential zoning district the applicant may propose most of the individual standards for the proposed development. The layout and standards if the development is approved are binding. Since the applicant proposes the standards in the PRD, the evaluation of the proposed standards is different. The evaluation should be based on how well the proposed standards, when applied, fit into the existing character of the surrounding area. The Planning Commission and Town Council evaluate each Planned Residential development on its own merit. There is a great deal of flexibility in proposing the development’s standards, but the standards should not be so out of scale or character or different from the surrounding districts as to create an incompatibility in use or

physical layout.


The following table illustrates the proposed district standards:

Proposed Use 7 Two-story townhouse units

Proposed District Standards Maximum Height 30’

Minimum Setbacks Front: 15' along Church Street Side: 10’ along Hemlock Drive

Side: 10’ along interior lot line

Rear: 25'

Maximum Density 7 units = 11 units per acre; 21 bedrooms = 31 bedrooms per acre

Minimum Open Space 19.5%; modification is requested; 20% required Proposed Parking 2 spaces per unit

Building Orientation, Scale, Massing, Height The building orientation, scale, massing, height, style and materials of a development are elements affecting how a proposed development fits into an existing neighborhood. This is particularly important when considering infill development. Infill developments should blend with the existing neighborhoods and uses around them, rather than being so discordantly different that the fabric of a neighborhood is negatively affected. There are a number of standards and principles in Town regulations that give guidance on how to design infill development and can be found in the staff report appendix. The application shows a row of seven two-story townhomes. The townhomes’ front facades are varied approximately 3’. Each unit will have a wide front porch that faces the sidewalk. The end unit along Hemlock Drive will face Hemlock. The roofline of the structures is varied to provide interest. The apartment building to the rear of the property is three stories. The neighboring single-family home at the corner of Eakin St. and Church St. faces Church St. and is one story. The homes across Hemlock Drive are a mix of one- and two-story dwellings. The church is a large structure with a number of wings, and is two to three stories with a steeply pitched roof. The proposed structures are compatible with the mix of building sizes and types in the neighborhood. Setbacks Setbacks or required yards provide areas on a property that are to remain free from structures. This allows for both landscaping and open space around buildings for light and air circulation, but it also provides areas generally where public utilities may be installed. In many cases, public utility easements are established around the interior of lot lines, within the setbacks to allow for both Town public utilities, but also for private utilities such as telecommunications, gas, and power. The setbacks on a property also keep buildings from crowding one another across property lines. Consistent setbacks in a neighborhood can help maintain a sense of regular rhythm and uniformity while also allowing for landscaping and open space. The application calls out a 15’ front yard setback, a 10’ side yard setback on both the street and interior sides, and a 25’ rear yard setback. For comparison, the surrounding R-5 zoning district requires a 35’ front yard setback (which may be reduced to 25’ for parking in the rear); 10’ side yard setback on interior lots, or 20’ side yard setback where the side abuts a public street; and 25’ rear yard setbacks.


The plan shows that the front face of the building along Hemlock Drive will be located approximately 22’ from the property line, but that the porch would extend to approximately 15’ from the property line. The proposed setbacks are shallower than the surrounding R-5 district in the front and the street side. However, the reduction of the front setback allows all of the parking to be placed behind the buildings, and still allow for a generous rear yard for the units, and between the parking and the property line. The shallower street-side and interior side yard setback is actually proposed to be less than the public utility easement that the application shows as well. No structures are allowed to be constructed within public utility easements. The lesser side yard setback than the PUE may be misleading, as it may appear that structures may be placed 10’ from the property line, when in fact that is not the case. The application should be revised to state that the side yard setback shall be no less than 15’ so that there is no confusion between buildable area and public utility easement. Buffering/Landscaping There is no specific buffer yard requirement for the Planned Residential district, because the proposed developments can vary so widely. However, each application should be evaluated with regards to buffering to determine the appropriateness of the proposal as it relates to the surrounding uses and neighborhood. No specific buffer yards have been called out for this proposed development. The application states that landscaping will be provided per Town ordinances which will include an overall site canopy standard, street trees, and parking lot trees. These landscaping elements can be designed and reviewed at the site plan stage, as the application states that they will comply with the ordinance. Within the R-5 district, the use and design standards for townhomes require that townhomes shall provide a 10’ buffer yard adjacent to properties zoned R-5. This would mean that a 10’ buffer yard would be required along the interior side property line. The application further states that there are a number of mature trees on the neighboring property to the northwest (the interior property line), and due to the distance from the proposed townhomes to the existing residence, additional landscaping may not be required as there will be minimal impact. However, it should be noted that the single family home lot encompasses four parcels, but that the home is located on two of the lots. It is possible that additional infill development could occur between the proposed townhomes and the existing single family residence, though nothing has filed to date. The application further states that any trees along the southwestern portion of the site will be maintained if grading permits. It is not anticipated that there will be significant adverse impacts that could be otherwise mitigated by landscaping. Bicycle and Pedestrian Improvements Many individual policies and regulations address streetscape, bike and pedestrian improvements as being a high priority to encouraging walkability and contributing to a high quality of life in Town. Providing enhanced pedestrian and bicycle facilities will encourage alternate-transportation behavior and lead to less dependency on personal vehicle trips. These facilities may include wider sidewalks, separation between the street and the sidewalk with a vegetated buffer strip, covered bike parking, and other elements to provide a pleasant and safe streetscape experience. Often, private development serves an important role in providing missing links in the sidewalk and trail network throughout Town, as there is not enough funding within the Town’s budget to complete all the sidewalk projects as the Town grows. There is existing sidewalk on Hemlock Drive from South Main Street to the site property line. The application shows that new sidewalk will be constructed to match the existing sidewalk along Hemlock Drive and along the Church Street frontage. Town code requires that a 4’ vegetated planting strip be installed behind the back of curb in front of the sidewalk. Modifications to this requirement may be appropriate given certain circumstances. The applicant is not proposing to install the vegetated planting strip. In this instance, the following should be taken into consideration:

● The sidewalk along Hemlock Drive is not constructed with a planting strip


● The provision of a planting strip along Church Street would further limit developable area within the site. Care has been taken in the design to provide adequate green space within the site for the residents’ use.

● Providing a planting strip adjacent to the parallel parking on Church Street may pose a difficulty for people with mobility issues to access the sidewalk from a parked vehicle.

Parking and Circulation The Planned Residential District allows applicants to choose a parking ratio that is different from the standards in the zoning ordinance with information to indicate why the proposed ratio is appropriate and will not have any negative effect on surrounding uses. The standard ratio is 1.1 parking spaces per bedroom for townhouse developments. However, in certain situations, a different ratio may be appropriate given the development’s proximity to transit, the University, services, or the target market demographic. Providing the right amount of parking for a development is critical for the safety and convenience of the development’s residents, but also for the safety and convenience of the surrounding neighborhood. Without adequate parking, residents and guests may overflow into the neighborhoods, where there may already be pressure for parking due to the rental tenancy, or small lot size. The applicant is proposing a parking ratio of 2 spaces per unit, or 0.67 spaces per bedroom. There is currently on-street parking allowed on Church Street within the public right-of-way, but parking in the ROW is available for all public, and not to be counted toward available spots. Additionally, the use of the ROW for parking is at the Town’s discretion as there may be other conflicting priorities of improvements within existing ROW or other factors. The application states that typically, residents of Habitat for Humanity developments are one-car families. The application state that while some tenants may be two-car families, it is unlikely that many residents in a 3-bedroom unit would have 3 vehicles, as the units are typically occupied by couples, or families with young children. Additionally, in considering a reduction in the typical parking requirement, it is important to note that the site is located a half-block off Main Street where there are a number of Blacksburg Transit bus stops. The site is located in close proximity to the Downtown area, the University, and other services. It is also relatively close to the South Main Street commercial area with Kroger, restaurants, and the First and Main shopping center. The applicant has made a request to the Town’s traffic committee to designate two of the on-street parking spaces on Church Street as handicap spaces to provide accessibility to the two end townhome units. The traffic committee heard the request, and generally felt that there was no negative impact to the Town’s on-street parking by designating two handicap-accessible spaces, but that there were several things that should be considered. As parking within the public right-of-way, the Town would not grant exclusive use to any individual or resident, and would be available on a first-come, first-served basis. This would allow additional accessible parking for the Church, or other residents wishing to utilize the spaces as well. However, it would mean that there would be no guarantee that a space would be available if a handicap resident needed it, and it were filled. Secondly, as mentioned above, the availability and provision of on-street parking is at the Town’s discretion. Lastly, and perhaps most importantly, the applicant is proposing that these on-street parking spaces are the only handicap-accessible spaces to the site. The grade between the front door and the parking lot of the units does not lend itself to creating an accessible route, and these units do not have a rear entrance. The traffic committee suggested that perhaps two pull-off parallel parking spaces could be created alongside the town’s right-of-way, but be located onsite. This would require revision of the proposed site layout. The applicant will have to address how handicap accessible parking is being provided for the development. Density & Occupancy, Lifestyle Conflicts Not only does the physical development of the property affect the neighborhood compatibility, but also the lifestyle of the target market for the project. There are a number of Town policies and goals that encourage the


provision of housing for a variety of different citizens with different lifestyle needs. Blacksburg has been identified as both a great place to retire, as well as a good place to raise a family. While the University is actively growing, the Town does have a need for non-student housing to meet a wide range of market demands including recent graduates/young professionals; starter families; workforce and middle-income housing, as well as retiree/empty-nesters. Affordable Housing Affordable housing remains an ongoing issue in the Town. This development is intended to provide housing for an underserved population in town. There is a demonstrated need for affordable housing to serve non-students in the community. The application goes into detail about the real estate market and the income characteristics of the community. In short, there is very little affordable housing available for families and middle-income workers, because the same market is enticing to investors to purchase for undergraduate student rentals. The neighborhood surrounding the proposed development is not characterized by any one demographic; there is a mix of occupants in the area. There are some single-family rental units, as well as owner-occupancy. The Little River Apartments are not typically characterized as an undergraduate student housing area, though there may be students living in the apartments and the rental units. It is not anticipated that there will be lifestyle conflicts that would negatively impact the neighborhood as a result of this proposed development. Density Density is one characteristic of a development proposal that contributes or detracts from its compatibility with the surrounding neighborhood. The existing zoning designation of R-5 Transitional Residential allows for up to 10 units, or 20 bedrooms per acre, whichever is less. Under R-5 single family homes or duplexes could be constructed. The development proposal requests a density of 31 bedrooms per acre, which is an increase of 50% above the surrounding R-5 density. One of the goals of requesting additional density was to increase the number of units of affordable housing in the development while still keeping in mind fitting into the overall context of the area. Open Space The provision of open space is so important to the health and function of residential communities that it is included as a requirement for nearly every type of residential development. The Planned Residential Zoning District Standards and the Use & Design Standards for Townhouse §4231(a)(11) require a minimum of 20% open space for developments. It is important that the open space be meaningful in its size and function and geared toward the use of the residents in the development. The Planned Residential Zoning District Standards section 3113 (b)(1) allows an applicant to request a modification or reduction in the open space requirements for projects less than 2 acres in size. There are a number of criteria for evaluating these requests:

1. Maximizing developable area: The development does not fully build out every square foot of space on the parcel, but rather maintains a lot coverage and development area similar to the surrounding neighborhood to maintain compatibility with the neighborhood. The proposed lot coverage of 55% is equivalent to the surrounding R-5 district standard.

2. Proximity to downtown: The parcel is located approximately 3 blocks from the southern end of the Downtown area.

3. Walking distance to services and transit: The project is located approximately a half a block from the nearest BT stop, which is near the corner of Hemlock Drive and South Main Street, on South Main Street. Restaurants, retail, professional services, and entertainment venues are found downtown within walking distance, and approximately a mile to the Kroger on South Main Street.


4. Density and intensity of use in relation to the neighborhood context: The surrounding R-5 zoning allows up to 20 bedrooms per acre. The proposed 31 bedrooms per acre represents a 50% increase in density above the surrounding neighborhood.

5. Demonstrated access to nearby public open space: The location of the proposed development is nearby to the Huckleberry Trailhead on Miller Street, as well as several urban parks in the downtown area. Additionally, the site is within a mile of several other parks such as Graves Park, Wong Park, and The Hill golf course.

6. Alternative recreation space: The proposed development is located across the street from the Presbyterian Church playground, which may be available for residents to use. Additionally, each townhouse unit will have its own back yard space, as well as additional green space around the site.

7. Proposed improvements to the adjoining streetscape: The application shows the construction of new sidewalk along Church Street and Hemlock Drive, where there is currently no sidewalk.

The request to modify or eliminate the required open space should be evaluated against the above criteria, taking into consideration the amount of open space that is being provided for the development as well. Zoning Ordinance Evaluation of Application Intent of Districts There is a statement of purpose for each district in the Zoning Ordinance.

Planned Residential §3110 The purpose of this district is to provide for the development of planned residential communities that incorporate a variety of housing options as well as certain limited commercial and office uses designed to serve the inhabitants of the district. This district is intended to allow greater flexibility than is generally possible under conventional zoning district regulations by encouraging ingenuity, imagination and high quality design to create a superior living environment for the residents of the planned community. The PR district is particularly appropriate for parcels which contain a number of constraints to conventional development. In addition to an improved quality of design, the PR district creates an opportunity to reflect changes in the technology of land development, provide opportunities for new approaches to home ownership, and provide for an efficient use of land which can result in reduced development costs.

It is the burden of the applicant to prove that the design submitted meets the intent of the Planned Residential District. In some cases, a development application for a PR district provides the Town with a housing model or type that is not found elsewhere in town, such as the Shadowlake Village Co-Housing Community PR district. In other instances, the PR district allows an applicant to put forward housing for an underserved population and proffer limitations to ensure the need is met as with the Grissom Lane Senior Housing development. In all cases, these applications are reviewed singularly by the Planning Commission and Town Council for their merits on a case-by-case basis. The applicant states that their proposal meets and implements the Residential Infill Guidelines, which, according to the Comprehensive Plan, is a Land Use Objective & Policy. Furthermore, provision of affordable housing to serve an unmet need in the community may be considered to meet the intent of the Planned Residential District by providing both an efficient use of land for reduced development costs, and provide additional opportunities or approaches to home ownership. COMPREHENSIVE PLAN Comprehensive Plan Map Series Evaluation of Application In evaluating whether the proposed use conforms to the general guidelines and policies contained in the Comprehensive Plan, all applicable sections of the Plan should be included in the review of the application. The Comprehensive plan offers a wide range of guiding principles for the future of development with Town. There


was a concerted effort in the 2012 Comprehensive Plan update to strengthen the need for maintaining neighborhood character, giving guidance on development form, encouraging an expansion of housing types to serve different segments of the housing market other than undergraduate students, and continuing to promote alternate means of transportation. Many of these principles, goals and objectives address non-student housing as a need in Town to appeal to a variety of market segments, demographics, and price ranges. The topical areas of this staff report call out specific sections in the Plan as major points of analysis, but the merits of the application can be compared with many more sections of the Plan as well. Future Land Use Designation In evaluating whether the proposed planned residential development conforms to the general guidelines and policies contained in the Comprehensive Plan, the Future Land Use designation of the subject property shall be considered. The subject property is designated as Medium Density Residential which is defined as:

Up to and including 10 dwelling units per acre; or up to 20 bedrooms per acre, whichever is less. Typical implementing zoning districts: Transitional Residential (R-5); Old Town Residential (OTR); Planned Residential (PR); Planned Manufactured Home (PMH).

The request for 31 bedrooms per acre represents a 50% increase above the envisioned density under the Future Land Use Designation, however, the scale of the project itself is small. Greater densities than shown on the Future Land Use map may be appropriate to approve under Planned Residential requests if additional goals and policies from the Comprehensive Plan are met through provisions in the application and plan. In this case, the proposed project will provide affordable housing which is need in Blacksburg and integrate the housing into an existing neighborhood. The parcel is also one block from South Main Street close to both employment opportunities and daily services. It is unusual to find such as desirable location for affordable housing. Mixed Use Areas and Urban Development Areas This property is not with a Mixed Use area as designated on the Future Land Use map nor is it within a designated Urban Development Area. UDAs and Mixed-Use Areas are intended to serve as focal points for commercial and residential growth in town. However, the designation of UDA does not prevent developments outside a UDA, nor obligate the Town to approve rezoning or conditional use permit applications within a UDA. The designation of a UDA does not affect zoning, nor does it mandate a specific type of development. Neighborhood, Employment and Service Areas Map The development is designated as an Urban/Walkable Neighborhood on the Neighborhood, Employment and Service Areas Map. The proposed development is an infill housing project in keeping with goals of a walkable neighborhood and providing affordable housing units with easy access downtown, the University and services on South Main Street. It is also located one block from a Blacksburg Transit stop on South Main Street. Paths to the Future Map There are no identified routes adjacent to the property on the Paths to the Future Map. South Main Street is considered an existing route. Completion of sidewalk along Church Street and Hemlock Drive will provide connection from the site to the public sidewalk along South Main Street. This enhances connectivity in a high volume pedestrian area. EVALUATION OF IMPACTS In evaluating the potential effect on public services and facilities that this rezoning would have, the Town Engineering department has reviewed the Master Plan and application and the following comments are provided.


Sanitary Sewer Town engineering staff has reviewed the request with respect to public sanitary sewer and has provided comments regarding the specific design of the sanitary sewer system. These comments do not affect the overall site design, and therefore can be addressed at the site plan stage. The sanitary sewer model indicates that there are no capacity issues as a result of the proposed development. Water Town engineering staff has reviewed the request with respect to public water and has no comments for this request. Stormwater Management Town engineering staff has reviewed the stormwater management concept plan. The concept plan is approved as submitted. Traffic & Transportation Town engineering staff has reviewed the request with regard to traffic and transportation. There were several concerns that were expressed and included in the analysis in this staff report:

Location of handicap parking in the right-of-way

Right-of-way conveyance during subdivision of land

Parking ratio less than 1.1 spaces per bedroom

Location/relocation of existing dumpster

Site grading Blacksburg Transit Blacksburg Transit staff has reviewed the request with respect to transit service and provides the following comments:

To improve access to the existing bus stops on Main Street, we support any improvements/additions of sidewalk along Church Street to connect to Eakin Street and/or Hemlock Drive to help people more easily access the Main Street sidewalk and bus stop(s). This will also help support a more walkable, accessible Town.

As a consideration, as bikeshare amenities will soon be offered within the Town through a contractor, future developments may want to consider becoming a bikeshare station or sponsor bikeshare bicycles, in addition to the requirements currently in place for space for regular bicycle racks. With an anticipated launch date of April 2018, details should be available soon via Blacksburg Transit who is managing the bikeshare project. If a bikeshare station is to be considered, the location would need to make sense and be connected to reasonable, safe bicycle amenities such as bike-friendly roadways with low speeds (e.g. under 25 mph) and/or other pathways.

NEIGHBORHOOD MEETING A neighborhood meeting was held on January 3, 2017. There were many citizen attendees as well as staff and representatives from the applicant team. Meeting notes and the sign-in sheet are attached. SUMMARY The Planning Commission is asked to consider and make a recommendation of approval or denial of the proposed Rezoning request. If the request is approved, the property will be rezoned Planned Residential with any proffers offered by the applicant and accepted by Town Council. Any changes to the master plan would be required to be reviewed through the public hearing process to amend this PR district. If denied, the property will continue to be zoned R-5 and any such subsequent development application will have to adhere to all the


minimum standards found therein. The decision to grant or deny the rezoning request is a discretionary decision, and should be made according to the criteria outlined in §1151, and with the analysis provided.

PROFFER STATEMENT Proffers, generally, submitted with application, signed November 27, 2017, and dated December 1, 2017:

1) The property shall be developed in substantial conformance with the application dated December 1,2017.

2) The development will require an income qualification of 30% - 80% AMI to rent or own the units.3) Townhomes 1 and 7 will be designed and constructed as Accessible Type Units; townhomes 2-6 shall be

designed and constructed as Visitable Type Units.

ATTACHMENTS Staff Appendix Staff GIS Maps Neighborhood Meeting Notes & Sign-In Sheets

RZN17-0009 Habitat for Humanity Townhomes PRD Staff Appendix 12JAN2018 1

RZN17-0009 Habitat for Humanity Townhome PRD

Staff Appendix

This appendix is provided to give additional supporting information from the Comprehensive Plan, the

Residential Infill Guidelines, and the Zoning Ordinance in order to allow the staff report to focus on the analysis

of the application.

Physical Site Development Building Orientation, Scale, Massing, Height

Comprehensive Plan Land Use Policy LU.6: Consider the compatibility of development with surrounding uses. Utilize strategies such as landscaping or other buffering techniques along with modification of site design to minimize impacts and facilitate compatibility

LU.11: Encourage residential infill in the Downtown area. Support the addition of a mix of uses and services that will attract and support a downtown residential population

Residential Infill Guidelines Best Practice #1: Respect neighborhood context and enhance community character

Residential Infill Guidelines Best Practice #2: Provide…transitions…of building scale, building design, form and color…Complementary architectural design, materials, scale, massing and the use of landscape, screening, and open space are strategies to achieve compatibility within the neighborhood and the Town.

Residential Infill Guidelines Site Design & Parking: o Buildings oriented toward streets are a key characteristic of Blacksburg’s residential

neighborhoods. o Locate the primary entrance towards the street o Clearly define the primary entrance of the structure by using a front porch or stoop, and other

architectural details. o Retain space in front of the structure to relate to the street or sidewalk without intervening

elements such as parking. o Entry porches and porticoes in two-story homes should be one story to minimize the

appearance of bulk. o The scale and style of porch and portico elements should be consistent with the scale and style

of the home, and should strive to respect the scale and style of porch and portico elements in the other homes on the block.

o Buildings should be designed to fit within the context of the surrounding structures and provide visual interest to pedestrians.

Residential Infill Guidelines Building Design: o The mass and scale of new infill residential buildings should appear to be similar to the building

seen traditionally in the neighborhood. o The width of a building face of an infill project should not exceed the width of a typical

residential structure on adjacent lots. o Building roof forms that are similar to those seen traditionally in the neighborhood, such as

gabled and hip roofs, should be used. o Buildings should be designed to fit within the context of the surrounding structures and provide

visual interest to pedestrians.


Townhouse Use & Design Standard for building orientation §4231 (b)(5): o The principal orientation of all townhouses shall be the street or parking area on which the lot

has frontage. There shall be at least one entrance facing the street and the principal windows of the townhouse shall also face this street

Setbacks, Lot Coverage, Buffer Yards & Landscaping

Comprehensive Plan CCP.16: Responsible site design and development practices will minimize environmental impacts within the town

Comprehensive Plan Environment Objective E.17: As a part of the development review process, the Town will evaluate a proposed development’s impact and proposed mitigation measures for the following:

o Open Space o Urban forest canopy o Watershed

Residential Infill Guidelines Best Practice #2: Provide transitions

Residential Infill Guidelines Site Design and Parking: o Streets [that] feature consistent front building setbacks…help define neighborhood character. o Provide a front yard consistent with those found on the block facing the street. o Front porches are encouraged and may extend into the required front yard setback. o In residential neighborhoods, multi-family housing should adopt the predominant setback, but

should also vary the building façade to relieve the appearance of mass. o Setbacks should be proportional to the height and mass of a building o The “green edge [landscaped setbacks between the…buildings and sidewalks]” provides

residential streets with a clearly identifiable character; [landscaping] and fences are often used for transition between public and private space; provision of open space is critical for multifamily developments…

o Natural features and existing trees should be retained o Parking lots should be generously landscaped to provide shade, reduce glare, and provide visual

interest o All site areas not covered by structures, walkways, driveways, or parking spaces should be

landscaped o Street trees and planting strips also help buffer pedestrians from vehicle traffic.

Comprehensive Plan Sustainability Objectives & Policy S.6: Promote, protect and enhance the Town’s urban forests through Town initiatives and in the development review process. Minimize site disturbance to protect existing tree canopy, native vegetation, and pervious surfaces to encourage open space.

Streetscape, Bicycle and Pedestrian Improvements

Comprehensive Plan CCP.1: Well-designed pedestrian and bicycle friendly routes and facilities are essential to the Town’s identity as a walkable and bikeable community.

CCP.14: Transit connections and bus stop facilities are important components to support transit as a viable transportation option in town. These elements should be part of the design of new developments and be coordinated with Blacksburg Transit regarding service availability.

Comprehensive Plan Transportation Objective & Policy T.10: Complete the construction of a connected sidewalk system.

T.12: Maintain and improve the aesthetic quality of the pedestrian environment by planting street trees


and other landscaping, and installing street furniture where appropriate.

T.28: During the development review process, ensure that transit service and access to/from the transit stop and the development are provided.

Residential Infill Guidelines Best Practice #3: Create a pedestrian friendly streetscape

Residential Infill Guidelines Site Design & Parking: o The design of the space between the edge of the curb and the front of a building is essential for

encouraging pedestrian activity and promoting safety and security. o [Sidewalks] contribute to the character of the neighborhoods by providing safe places for people

to travel and interact with one another. o Walkways should connect public sidewalks and parking areas to all main entrances on the site.

For townhouses…fronting on the street, the sidewalk may be used to meet this standard

Residential Infill Guidelines Streetscape: o Neighborhood streets should include an interconnected system of sidewalks. o Neighborhood streets should include a sidewalk design that reflects the existing pattern in the

neighborhood o Primary streets should have planting strips and streetscape to separate sidewalks from the

street’s edge o While Blacksburg has an extensive sidewalk system on many neighborhood streets, gaps remain

in some locations. Infill projects can help to fill these gaps.

Townhouse Use & Design Standard for sidewalks§4231 (b)(4): o Sidewalks shall connect each townhouse to the parking area serving that townhouse, to other

buildings within the site, and to other buildings or uses on adjacent lots

Site Development Plans Minimum Standards and Improvements Required §5120(d)(1): o Sidewalks meeting the design standards of the Subdivision Ordinance shall be provide on public

or private land along all parts of a site abutting a developed public street where such sidewalks do not exist as of the date of the application for site plan approval. The provision of these sidewalks will advance the goal of the Blacksburg comprehensive plan of development of “a network of walkways in the Town to increase the safety and convenience of pedestrian travel.” The Town Council finds that the need for such sidewalks in this Town is substantially generated by the development

Parking and Circulation

Residential Infill Guidelines Best Practice #4: Minimize visual impacts of parking

Residential Infill Guidelines Site Design & Parking: o Parking should not obstruct the building frontage; rather, it should be located behind, to the

rear or side of the principle structure o Deep front setbacks can compromise the ability to provide backyard space and/or rear parking,

particularly at higher densities. o Parking spaces should not dominate the street scene. Instead, parking should be located to the

rear of the lot or building or screened from the public way with landscaping, low fencing, or garage orientation.

o Parking should not disrupt the quality of common spaces or pedestrian environments of multi-family development

o Reduced or no onsite parking can greatly simplify the design of infill development with no need to find space to fit vehicle areas onto small infill sites, and entirely avoids the problem of how to minimize the visual and environmental impacts of parking.


Townhouse Use & Design Standards for parking §4231(b)(6): o Only one yard, either the front or the rear yard, or in the case of an end unit, the side yard, shall

be improved with a driveway or parking spaces. All parking spaces shall be located behind the front building line.

Density & Occupancy, Lifestyle Conflicts, and Affordability

Comprehensive Plan CCP.2. Lifestyle conflicts are inherent in a college town, where neighborhoods may have a mix of students and non-students.

Comprehensive Plan Land Use Objective & Policy LU.7: Encourage developers to work with surrounding property owners and tenants to resolve community concerns prior to formalizing development plans.

Comprehensive Plan Jobs & Housing Objective & Policy J&H.37: Market Blacksburg as a place for young professionals to live and work.

J&H.38 Market Blacksburg as a good place to live to high school graduates entering the trade and service industries

J&H.48 Plan for the housing demands of a changing and diversifying population

J&H.49 Continue to provide affordable workforce housing in Blacksburg in accordance with the adopted Consolidated Plan.

J&H.50 Work with regional partners to promote affordable and sustainable housing in the New River Valley

J&H.51 Promote varying types of housing types needed, including: o Rental or starter homes for purchase by graduate students and young families o Young professional housing and services in the Downtown area o Workforce housing for those making 80% - 120% of AMI o Affordable workforce housing options for LMI families making less than 80% of AMI o Housing with universal design features to allow aging-in-place

J&H.52 As the active adult, retiree, and senior citizen population increases, promote varying types of housing needed. For example, provide smaller homes that retirees can downsize to such as townhomes or condos, as well as retirement communities and nursing home facilities.

Comprehensive Plan Sustainability Objectives & Policy S.8: Support the New River Valley Livability Initiative coordinated by the NRV Planning District Commission and other regional efforts.

Open Space

CCP.6. Creation of public and private parks and recreation amenities is an important part of land use development decisions

Residential Infill Guidelines Best Practice #5: Create usable outdoor spaces

Residential Infill Guidelines Site Design and Parking: o New developments should use open space and community facilities to provide social and design

focal points. o Multi-family development must provide…common open space for each unit o Common spaces and amenities should enhance the sense of community in multi-family projects o Play spaces for children are strongly encouraged and should be both secure and observable. o Provision of open space is critical for multi-family developments.

Townhome Use & Design Standard for open space, recreation, and trails §4231(b)(11)


o Except in the MXD and DC Districts, for any development of 5 or more townhouses a minimum of 20% of the gross land area shall be reserved as open space for community recreation use. A specific recreational activity area or areas shall be developed and maintained for the residents of the development as part of this open space, as follows:

The size, location, shape, slope, and condition of the land shall be suitable for a specific recreational activity

The amount of land devoted to recreation shall be a function of the population to be served. Consideration shall be given to the size of the development, number, and characteristics of expected residents, proximity to other available recreational facilities, topography, and natural features on the site.

Safety buffers shall be provided for users of recreational facilities and equipment using recognized engineering and recreation standards.

Indoor recreational areas may be used as a specific recreational activity area. The indoor recreational area shall count as a part of lot coverage, as regulated by the district standards.

2017 Aerials provided by PictometryTown of Blacksburg, P&B Dept.01-03-18

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RZN17-0009Habitat

for HumanityTownhomes

PRD

0 200 400 '

Subject PropertyParcels

Hemlock DriveSouth Main Street

OBMS

Church Street

Eheart Street

Draper Road


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RZN17-0009Habitat


PRD

0 200 400 '

Subject PropertyParcelsMixed Use AreaLow Density ResidentialMedium Density ResidentialPark Land / Open Space /Resource ProtectionCivicLow Impact CommercialHigh Impact CommercialUniversity


OBMS

Church Street

Future Land Use

Draper Road

Eheart Street


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RZN17-0009Habitat


PRD

0 200 400 '

Subject PropertyParcelsConditional ZoningOTR Old Town ResidentialR-4 Low DensityResidentialR-5 Transitional Residential

RM-27 Low DensityMultiunit ResidentialO OfficeDC Downtown CommercialRD Research andDevelopmentPR Planned Residential


OBMS

Church Street

Zoning Eheart Street

Draper Road

RZN17-0009 Habitat for Humanity Townhomes Rezoning-712 Church Street NE Neighborhood Meeting Notes Wednesday, January 3, 2018 6:00 pm Blacksburg Motor Company Production Room Town staff in attendance were Kinsey O’Shea and Kasey Thomsen. Steve Semones and Shelley Fortier were in attendance representing the applicant team. The meeting began at 6:02 pm. Kinsey O’Shea opened the meeting by explaining her role in the process and the project timeline in terms of review and decision dates. Steve Semones explained the scope and layout of the project and Shelly Fortier of Habitat for Humanity explained the history of the project, Habitat’s processes for purchases, and the clientele that they usually service, as well as other operational aspects of the organization. The meeting was then opened to any questions. A citizen asked if the property is sold, how will remain affordable housing? Who is the overseer for your deed restriction? Could a student or student’s parents buy these homes? A citizen wanted clarification that financing and deed restrictions are controlling factors in maintaining affordability. A citizen asked if these could be bought as vacation homes or rented out on AirBnB. A neighbor asked if Habitat HOA would have control over exterior curb appeal, landscaping and maintenance. A neighbor asked if she can pick the colors (for the exterior) since she looks at it every day. Several citizens asked about traffic flow at Hemlock? With two apartment complexes so close, it will be very tight and people already park on both sides. With the OBMS redevelopment, Church Street will get more use. Is there an ingress/exit planned on Eakin? A citizen asked about the projected timeline for the project. The meeting was adjourned at 6:48 pm.

Documents

TOWN OF BLACKSURG AGENDA MEMO DATE: TO: FROM: …