attachment i - albemarle county, virginia to amend the ... the reduction in the size of the pocket...

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ATTACHMENT I COUNTY OF ALBEMARLE PLANNING STAFF REPORT SUMMARY Project Name: ZMA 2010-00013, Hollymead Town Center, Area A-2 Staff: Judith Wiegand, Senior Planner Planning Commission Public Hearing: February 8, 2011 Board of Supervisors Public Hearing: Not scheduled Owner(s): Route 29, LLC Applicant: Wendell Wood, Nena Harrell Acreage: 44.29 acres Rezone from: NMD to NMD to allow changes to the Proffers. TMP: TMP 03200000004500, 03200000005000 Location: These two parcels are located west of US 29 and are accessed from Towncenter Drive. They are between Area A- 1 where the Kohl’s is now under construction and the Forest Springs Mobile Home Park.(See Attachment A) By-right use: The Hollymead Town Center, Area A-2 is zoned Neighborhood Model District (NMD), which allows a mixture of residential and commercial uses. Magisterial District: Rio Proffers: Yes Proposal: To amend the proffers for Hollymead Town Center, Area A-2 to make substantive changes relating to open space, phasing, and road improvements. Requested # of Dwelling Units: A maximum of 1222 dwelling units is allowed in HTC A-2. This rezoning does not change the maximum number of units. DA (Development Area): Community of Hollymead Comp. Plan Designation: Town Center, Urban Density Residential, and Parks and Greenways Character of Property: The property has been graded, but is undeveloped. Some steep slopes remain at the edges of the two vacant parcels. Use of Surrounding Properties: Hollymead Town Center Area B containing the Harris Teeter/Target Shopping Center is located to the northeast. A Kohl’s is under construction to the east in Area A-1, which will be nonresidential when developed. The Abington Place townhome development is located in Area D to the north across Towncenter Drive. The Forest Springs Mobile Home Park is located to the west. The Powell Creek Greenway is located to the south. Factors Favorable: 1. The change in the phasing (Proffer 11) to allow fewer residential building permits to be issued prior to issuance of a commercial building permit is more realistic in this economic climate than it was when the original zoning was approved. Factors Unfavorable: 1. The reduction in the size of the Pocket Park removes an important amenity which was identified by the Planning Commission at an earlier public hearing. 2. The dedication and construction of the remaining segment of Meeting Street has not been proffered. RECOMMENDATION: Staff does not recommend approval of the rezoning unless the substantive and technical changes identified in this staff report are addressed.

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ATTACHMENT I

COUNTY OF ALBEMARLE PLANNING STAFF REPORT SUMMARY

Project Name: ZMA 2010-00013, Hollymead Town Center, Area A-2

Staff: Judith Wiegand, Senior Planner

Planning Commission Public Hearing:

February 8, 2011

Board of Supervisors Public Hearing:

Not scheduled

Owner(s): Route 29, LLC Applicant: Wendell Wood, Nena Harrell

Acreage: 44.29 acres Rezone from: NMD to NMD to allow changes to the Proffers.

TMP: TMP 03200000004500, 03200000005000

Location: These two parcels are located west of US 29 and are accessed from Towncenter Drive. They are between Area A-1 where the Kohl’s is now under construction and the Forest Springs Mobile Home Park.(See Attachment A)

By-right use: The Hollymead Town Center, Area A-2 is zoned Neighborhood Model District (NMD), which allows a mixture of residential and commercial uses.

Magisterial District: Rio Proffers: Yes

Proposal: To amend the proffers for Hollymead Town Center, Area A-2 to make substantive changes relating to open space, phasing, and road improvements.

Requested # of Dwelling Units: A maximum of 1222 dwelling units is allowed in HTC A-2. This rezoning does not change the maximum number of units.

DA (Development Area): Community of Hollymead

Comp. Plan Designation: Town Center, Urban Density Residential, and Parks and Greenways

Character of Property: The property has been graded, but is undeveloped. Some steep slopes remain at the edges of the two vacant parcels.

Use of Surrounding Properties: Hollymead Town Center Area B containing the Harris Teeter/Target Shopping Center is located to the northeast. A Kohl’s is under construction to the east in Area A-1, which will be nonresidential when developed. The Abington Place townhome development is located in Area D to the north across Towncenter Drive. The Forest Springs Mobile Home Park is located to the west. The Powell Creek Greenway is located to the south.

Factors Favorable:

1. The change in the phasing (Proffer 11) to allow fewer residential building permits to be issued prior to issuance of a commercial building permit is more realistic in this economic climate than it was when the original zoning was approved.

Factors Unfavorable:

1. The reduction in the size of the Pocket Park removes an important amenity which was identified by the Planning Commission at an earlier public hearing.

2. The dedication and construction of the remaining segment of Meeting Street has not been proffered.

RECOMMENDATION: Staff does not recommend approval of the rezoning unless the substantive and technical changes identified in this staff report are addressed.

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 2

STAFF PERSON: Judith Wiegand, AICP PLANNING COMMISSION: February 8, 2011 ZMA 2010-00013, Hollymead Town Center, Area A-2 PETITION PROJECT: ZMA 2010-00013 Hollymead Town Center (A-2) PROPOSAL: Rezone 44.29 acres from Neighborhood Model District zoning district which allows residential (3 – 34 units/acre) mixed with commercial, service and industrial uses to Neighborhood Model District zoning district which allows residential (3 – 34 units/acre) mixed with commercial, service and industrial uses, in order to amend the existing proffers. PROFFERS: Yes EXISTING COMPREHENSIVE PLAN LAND USE/DENSITY: Town/Village Center—compact, higher density area containing a mixture of businesses, services, public facilities, residential areas and public spaces, attracting activities of all kinds (6.01-34 dwelling units per acre) in the Hollymead Development Area. ENTRANCE CORRIDOR: No LOCATION: Hollymead Town Center Area A-2, the southwest quadrant of Seminole Trail (US 29) and Towncenter Drive to the west of Area A-1 in the Hollymead Development Area TAX MAP/PARCEL: 03200000004500, 03200000005000 MAGISTERIAL DISTRICT: Rio CHARACTER OF THE AREA The location of the rezoning is shown on Attachment A. Area A-2 is part of the larger Hollymead Town Center development, a mixed use development that, when complete, will include retail, commercial, and residential uses. The area to the northeast that includes the Harris-Teeter and Target stores is built, the Abington Places townhomes have been constructed. Area A-1 to the east will be the site of the new Kohl’s and other nonresidential uses now under construction. The southern edge of the Town Center is formed by the Powell Creek Greenway. SPECIFICS OF THE PROPOSAL On November 10, 2010, the Board approved ZMA 2010-00006, Hollymead Town Center, Area A-2, that permitted changes to the Code of Development, the Application Plan, and nonsubstantive changes to the Proffers. This ZMA is the applicant’s request to make modifications to two of the Proffers: to reduce the size of the Pocket Park and to reduce the number of dwelling units for which a building permit must be issued before a building permit can be issued for any commercial space. The proposed Proffers are included in Attachment B. APPLICANT’S JUSTIFICATION FOR THE REQUEST In the application, the Applicant states:

At the time the original proffers were made in 2007, the subject property was owned by others and the economic climate was strong. There were proffers made at that time that cannot be achieved today (although I do not believe they could have been economically feasible in 2007 either). After financial hardship, the property has been taken back by the Seller through a Deed in Lieu of Foreclosure.

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 4

2. Parks and Open Space. If approved, the proposed change to Proffer 6, Pocket Park, would mean that the open space provided no longer meets the 20% requirement for open space in Area A-2, as stated in the Code of Development (Table E). (See Staff Comment below) This principle is not met.

3. Mixture of Uses. In 2007, Area A-2 was rezoned to allow both residential and nonresidential

uses. Proffer 11, Phasing Plan, required that a portion of the residential units be built before commercial uses, in order to ensure that both the residential units and the commercial buildings would be built. Changing the proffer language to allow the indoor theater building permit to be pulled after building permits are issued for a smaller number of residential units maintains the intended expectation for both residential and nonresidential uses. (See Staff Comment below) This principle is met.

STAFF COMMENT Staff will comment on each of the proposed Proffer changes: Proffer 6, Pocket Park, Proffer 11, Phasing Plan, and Proffer 2, Road Improvements. Proffer 6. Pocket Park. The Applicant would like to amend this proffer to decrease the required size of the Pocket Park from “approximately 10,000 square feet,” as approved with the original rezoning in 2007, to “approximately 4,500 square feet.” This substantive change would be necessary in order to allow development to take place according to the Application Plan approved on November 10, 2010 (ZMA 2010-00006). The November 2010 rezoning was approved with the understanding that the existing proffer from 2007 still governed, and it would have to be changed for the park to be built at the size shown on the Application Plan. The Planning Commission discussed this item at its meeting on September 21, 2010, when the Block B Application Plan change was requested (ZMA 2010-00006). The Commission directed specifically that the parks and public spaces should be labeled on the Application Plan and should be generally consistent with the size and number shown on the original Application Plan. There was significant discussion at that meeting about the need for this amenity because of the amount of development included in this area of the Town Center. While much of the open space for Area A-2 is in the Greenway, the Commission noted the difficulty of access to the Greenway and directed that the trail should be shown on the other (south) side of the Greenway with a bridge to allow access to the trail. One of the features of the Neighborhood Model District is the requirement for 20% open space and 20% amenity space (these can overlap). The original application, approved in 2007, met this requirement. This requested change will not. Table E from the current Code of Development shows:

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 3

We are requesting that Proffer 11, Phasing Plan, be amended to allow commercial development upon the issuance of 31 residential building permits rather than 100 residential building permits as stated in the original proffer. We are also requesting that the size of the Pocket Park be amended to 4,500 SF. The parking required for the proposed development will not allow the Park as originally proffered.

PLANNING AND ZONING HISTORY A detailed history was provided in the staff report for ZMA 2010-00006 (approved on November 10, 2010), which amended the Code of Development to allow an indoor theater in Block B, to change the alignment of the midblock road in Block B on the Application Plan, and to amend the Proffers to make certain nonsubstantive changes that were essential to the rezoning. COMPREHENSIVE PLAN Land Use Plan: In 2001, the Board of Supervisors approved a Comprehensive Plan Amendment (CPA) for the entire Hollymead Town Center development, including A “Conceptual Master Plan & Guidelines for Hollymead Town Center” (the “Guidelines”). During the original rezoning for Area A-2 (2007) the proposed development was evaluated for conformity with the Land Use Plan in the Comprehensive Plan and was found to be in compliance. However, in evaluating this ZMA, the Applicant’s proposed change to the size of the Pocket Park (Proffer 6) does not conform to the size and purpose of the “Public Space” that is shown on the Master Plan in the Guidelines and described in the text. The Guidelines recommend a Park of approximately 10,000 square feet at each end of a “Main Street” (now named Lockwood Drive) that would serve as a communal gathering space for the residents living nearby—which, ultimately, could be as many as 1,222 residences. The Applicant’s proposed change to the phasing (Proffer 11) and the County’s requested change to the road improvements (which would be part of Proffer 2) would both be in compliance with the Comprehensive Plan. Proposed Places 29 Plan: The proposed Places 29 Master Plan retains the key features of the 2001 Comprehensive Plan amendment. The proposed change to the Proffer 6, Pocket Park would not be in compliance with Places29 because the Guidelines remain in effect. The proposed changes to Proffer 11, Phasing Plan, and Proffer 2, Road Improvements, would be in compliance with the draft Places 29 Master Plan. The Neighborhood Model: Three Neighborhood Model principles are relevant to the proposed proffer amendments for Area A-2:

1. Interconnected Streets and Transportation Networks. Meeting Street from the intersection with Town Center Drive south to the southern boundary of Area A-2 will be essential to provide safe and convenient access to uses in the Hollymead Town Center and to provide connections to other parts of the County’s transportation network. The timing for dedication and construction of the portion of Meeting Street related to construction of the uses in Area A-1 was taken care of with ZMA 2010-00014, approved on January 12, 2011. A similar change is needed for Meeting Street in Area A-2 to allow for the timely connection of Berkmar Drive Extended into Hollymead Town Center.

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 6

retain the designated amenity areas. Staff suggests the minimum number of units be lowered from 30 to 25. A comparison of the approved (2007) language and the proposed (2010) language:

2007 Rezoning Language Proposed 2010 Language

1

Required:

30 dwelling units

For:

Up to 75,000 SF of commercial/office space

2

Required:

100 dwelling units

For:

Any commercial/ office space

Required:

100 dwelling units

For:

Up to 200,000 SF of commercial/office space

3

Required:

600 dwelling units

For:

Over 200,000 SF commercial/ office space

Required:

600 dwelling units

For:

Over 200,000 SF of commercial/office space

Changing the phasing plan is not expected to have any impact on nearby and surrounding properties, although constructing the indoor theater in conjunction with fewer dwelling units may mean that residents of dwelling units constructed later would not have to deal with the impacts of theater construction. Proffer 2. Road Improvements. As part of this rezoning, staff feels the Applicant should make a commitment to provide for dedication and construction of the segment of Meeting Street from just south of the intersection of the unnamed road that provides access to Area A-1 (the Kohl’s) and Area A-2 (the indoor theater) to the southern property line of Area A-2, upon request of the County. The segment of Meeting Street the County requested is shown within the oval on the map below. Staff understood the Applicant to agree to make this change during the amendment to the Hollymead Town Center A1 and A2 proffer discussions. The absence of this commitment creates a barrier to efficient provision of the extension of Berkmar Drive Extended into the Hollymead Town Center as has been intended with the original Hollymead Town Center CPA and Places29 Master Plan.

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 7

This commitment would also:

Provide access between Hollymead Town Center and adjacent properties without using US 29.

Provide the remaining link in a major parallel road to US 29, which will be a major part of the County’s transportation network.

Staff notes that the alignment and cross section of the road are not being changed from what was originally anticipated with the 2007 rezoning. PROFFERS: Outstanding Issues Staff believes that the following substantive issues should be addressed before the proposed Proffers can be approved: Proffer 6, Pocket Park. As previously stated, staff believes either the full 10,000 square feet should be provided in the area shown on the original (2007) Application Plan or another Pocket Park with at least 5,500 square feet should be provided within walking distance of the residential units in Block B. Staff notes that the original layout of uses in Block B has changed since the indoor theater was added. At this time, the Pocket Park is an amenity that will serve theater patrons primarily. Therefore, staff would support creation of another Pocket Park, 5,500 square feet in size, located where it would serve the residential uses planned in Block B. If the applicant declines to add 5,500 square feet of public space in another part of the developemnt, then the Code of Development must be revised to reflect the decrease and to be in agreement with the proffer. Proffer 11, Phasing Plan. In order to allow flexibility for the developer to provide different sizes of dwelling units and retain amenity areas, staff suggests that the minimum number of units required for issuance of a building permit for 75,000 SF of commercial/office space be 25 instead of the 30 now listed in this proffer. Proffer 2, Road Improvements. The southernmost segment of Meeting Street, from just south of the intersection with the unnamed road that provides access to Area A-1 (Kohl’s) and A-2, Block B (indoor theater) to the southern boundary of Area A-2 should be included in Proffer 2, Road Improvements, with language that would permit the County to request dedication and construction of the road at the time it is needed. Technical Changes Needed: At present, the Proffers are not in agreement with the Code of Development. Prior to an action by the Board, changes will be needed. If the Board believes that the 5,500 SF needs to be provided in another part of Area A-2, then the Code of Development, Application Plan, and Proffers will all need to be revised prior to action by the Board. In addition to the substantive issues listed above, there are several changes to the proffers which staff has requested to clarify questions which have been raised with site plans, clarify the status of proffers made in 2007, and to provide ease in understanding and enforcement of the proffers. These technical changes have been provided to the applicant. SUMMARY Staff has identified the following factors that are favorable to this rezoning request:

1. The change in the phasing (Proffer 11) to allow fewer residential building permits to be issued

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 8

prior to issuance of a commercial building permit is more realistic in this economic climate than it was when the original zoning was approved.

Staff has found the following factors unfavorable to this rezoning:

1. The reduction in the size of the Pocket Park removes an important amenity which was identified by the Planning Commission at an earlier public hearing.

2. The dedication and construction of the remaining segment of Meeting Street has not been proffered.

RECOMMENDATION Staff does not recommend approval of the rezoning unless the substantive and technical changes identified in this staff report are addressed. ATTACHMENT A – Location Map ATTACHMENT B – Proposed Proffers, as submitted with this application ATTACHMENT C – Staff Report, ZMA 2010-00006, Hollymead Town Center, Area A-2 ATTACHMENT D – Excerpt from Planning Commission minutes, September 21, 2010.

ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 5

Table E

Minimum Green Space, Civic and Amenity Area

Total Area (sq. ft.)

Block A

Powell Creek Greenway 143,750

Block B

Powell Creek Greenway 148,100

Pocket Park 14,500

Neighborhood Center 38,000

Block C

Linear Park 41,600

Powell Creek Greenway 39,200

Block D

Linear Park 12,600

Central Plaza 30,000

Total 467,750

Total Area = 10.7 acres = 20% Area A-2

From this table, one can see that the Powell Creek Greenway provides 70 percent of the amenity area for the development. As was discussed at the September 21 meeting, the amenity aspect of the greenway is minimal. When the greenway acreage is removed from the 20 percent “Minimum Green Space, Civic and Amenity Area,” what is left as central public space is about 6 percent of the entire development. If the Applicant is not required to replace this 5,.500 SF, public space will be taken away from future residents who need communal amenity areas in such a dense development. Staff acknowledges the character of Block B is changed with the addition of the theater. While the full amount of 10,000 square feet amenity area may not be needed at this location, staff believes it should be made up in another part of the Town Center that is easily accessible to residents. Proffer 11. Phasing Plan. The Applicant would like to amend this proffer to permit issuance of the first building permit for commercial space after issuance of building permits for fewer residential units than required in the original proffer. The Applicant proposes a three-tiered phasing plan to replace the original two-tiered plan. This three-tiered plan is more realistic in today’s market. The proposed Proffer language reads:

11. Phasing Plan. Prior to building permits that would authorize up to 75,000 square feet of commercial/office, building permits shall have been issued for at least 30 residential units. Prior to building permits that would authorize up to 200,000 sq ft of commercial/office, building permits shall have been issued for at least residential units (total). Prior to building permits that would authorize more than 200,000 sq ft of commercial/office, building permits shall have been issued for at least 600 residential units.

The changes proposed to Proffer 11, Phasing Plan, would be in compliance with the purpose and intent of the NMD which is to ensure a mixture of uses. However, staff believes a slightly lower number of units would allow flexibility to provide different sizes of dwelling units and allow more opportunity to

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ATTACHMENT I

COUNTY OF ALBEMARLE PLANNING STAFF REPORT SUMMARY

Project Name: ZMA 2010-00013, Hollymead Town Center, Area A-2

Staff: Judith Wiegand, Senior Planner

Planning Commission Public Hearing:

February 8, 2011

Board of Supervisors Public Hearing:

Not scheduled

Owner(s): Route 29, LLC Applicant: Wendell Wood, Nena Harrell

Acreage: 44.29 acres Rezone from: NMD to NMD to allow changes to the Proffers.

TMP: TMP 03200000004500, 03200000005000

Location: These two parcels are located west of US 29 and are accessed from Towncenter Drive. They are between Area A-1 where the Kohl’s is now under construction and the Forest Springs Mobile Home Park.(See Attachment A)

By-right use: The Hollymead Town Center, Area A-2 is zoned Neighborhood Model District (NMD), which allows a mixture of residential and commercial uses.

Magisterial District: Rio Proffers: Yes

Proposal: To amend the proffers for Hollymead Town Center, Area A-2 to make substantive changes relating to open space, phasing, and road improvements.

Requested # of Dwelling Units: A maximum of 1222 dwelling units is allowed in HTC A-2. This rezoning does not change the maximum number of units.

DA (Development Area): Community of Hollymead

Comp. Plan Designation: Town Center, Urban Density Residential, and Parks and Greenways

Character of Property: The property has been graded, but is undeveloped. Some steep slopes remain at the edges of the two vacant parcels.

Use of Surrounding Properties: Hollymead Town Center Area B containing the Harris Teeter/Target Shopping Center is located to the northeast. A Kohl’s is under construction to the east in Area A-1, which will be nonresidential when developed. The Abington Place townhome development is located in Area D to the north across Towncenter Drive. The Forest Springs Mobile Home Park is located to the west. The Powell Creek Greenway is located to the south.

Factors Favorable:

1. The change in the phasing (Proffer 11) to allow fewer residential building permits to be issued prior to issuance of a commercial building permit is more realistic in this economic climate than it was when the original zoning was approved.

Factors Unfavorable:

1. The reduction in the size of the Pocket Park removes an important amenity which was identified by the Planning Commission at an earlier public hearing.

2. The dedication and construction of the remaining segment of Meeting Street has not been proffered.

RECOMMENDATION: Staff does not recommend approval of the rezoning unless the substantive and technical changes identified in this staff report are addressed.

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ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 2

STAFF PERSON: Judith Wiegand, AICP PLANNING COMMISSION: February 8, 2011 ZMA 2010-00013, Hollymead Town Center, Area A-2 PETITION PROJECT: ZMA 2010-00013 Hollymead Town Center (A-2) PROPOSAL: Rezone 44.29 acres from Neighborhood Model District zoning district which allows residential (3 – 34 units/acre) mixed with commercial, service and industrial uses to Neighborhood Model District zoning district which allows residential (3 – 34 units/acre) mixed with commercial, service and industrial uses, in order to amend the existing proffers. PROFFERS: Yes EXISTING COMPREHENSIVE PLAN LAND USE/DENSITY: Town/Village Center—compact, higher density area containing a mixture of businesses, services, public facilities, residential areas and public spaces, attracting activities of all kinds (6.01-34 dwelling units per acre) in the Hollymead Development Area. ENTRANCE CORRIDOR: No LOCATION: Hollymead Town Center Area A-2, the southwest quadrant of Seminole Trail (US 29) and Towncenter Drive to the west of Area A-1 in the Hollymead Development Area TAX MAP/PARCEL: 03200000004500, 03200000005000 MAGISTERIAL DISTRICT: Rio CHARACTER OF THE AREA The location of the rezoning is shown on Attachment A. Area A-2 is part of the larger Hollymead Town Center development, a mixed use development that, when complete, will include retail, commercial, and residential uses. The area to the northeast that includes the Harris-Teeter and Target stores is built, the Abington Places townhomes have been constructed. Area A-1 to the east will be the site of the new Kohl’s and other nonresidential uses now under construction. The southern edge of the Town Center is formed by the Powell Creek Greenway. SPECIFICS OF THE PROPOSAL On November 10, 2010, the Board approved ZMA 2010-00006, Hollymead Town Center, Area A-2, that permitted changes to the Code of Development, the Application Plan, and nonsubstantive changes to the Proffers. This ZMA is the applicant’s request to make modifications to two of the Proffers: to reduce the size of the Pocket Park and to reduce the number of dwelling units for which a building permit must be issued before a building permit can be issued for any commercial space. The proposed Proffers are included in Attachment B. APPLICANT’S JUSTIFICATION FOR THE REQUEST In the application, the Applicant states:

At the time the original proffers were made in 2007, the subject property was owned by others and the economic climate was strong. There were proffers made at that time that cannot be achieved today (although I do not believe they could have been economically feasible in 2007 either). After financial hardship, the property has been taken back by the Seller through a Deed in Lieu of Foreclosure.

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ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 3

We are requesting that Proffer 11, Phasing Plan, be amended to allow commercial development upon the issuance of 31 residential building permits rather than 100 residential building permits as stated in the original proffer. We are also requesting that the size of the Pocket Park be amended to 4,500 SF. The parking required for the proposed development will not allow the Park as originally proffered.

PLANNING AND ZONING HISTORY A detailed history was provided in the staff report for ZMA 2010-00006 (approved on November 10, 2010), which amended the Code of Development to allow an indoor theater in Block B, to change the alignment of the midblock road in Block B on the Application Plan, and to amend the Proffers to make certain nonsubstantive changes that were essential to the rezoning. COMPREHENSIVE PLAN Land Use Plan: In 2001, the Board of Supervisors approved a Comprehensive Plan Amendment (CPA) for the entire Hollymead Town Center development, including A ―Conceptual Master Plan & Guidelines for Hollymead Town Center‖ (the ―Guidelines‖). During the original rezoning for Area A-2 (2007) the proposed development was evaluated for conformity with the Land Use Plan in the Comprehensive Plan and was found to be in compliance. However, in evaluating this ZMA, the Applicant’s proposed change to the size of the Pocket Park (Proffer 6) does not conform to the size and purpose of the ―Public Space‖ that is shown on the Master Plan in the Guidelines and described in the text. The Guidelines recommend a Park of approximately 10,000 square feet at each end of a ―Main Street‖ (now named Lockwood Drive) that would serve as a communal gathering space for the residents living nearby—which, ultimately, could be as many as 1,222 residences. The Applicant’s proposed change to the phasing (Proffer 11) and the County’s requested change to the road improvements (which would be part of Proffer 2) would both be in compliance with the Comprehensive Plan. Proposed Places 29 Plan: The proposed Places 29 Master Plan retains the key features of the 2001 Comprehensive Plan amendment. The proposed change to the Proffer 6, Pocket Park would not be in compliance with Places29 because the Guidelines remain in effect. The proposed changes to Proffer 11, Phasing Plan, and Proffer 2, Road Improvements, would be in compliance with the draft Places 29 Master Plan. The Neighborhood Model: Three Neighborhood Model principles are relevant to the proposed proffer amendments for Area A-2:

1. Interconnected Streets and Transportation Networks. Meeting Street from the intersection with Town Center Drive south to the southern boundary of Area A-2 will be essential to provide safe and convenient access to uses in the Hollymead Town Center and to provide connections to other parts of the County’s transportation network. The timing for dedication and construction of the portion of Meeting Street related to construction of the uses in Area A-1 was taken care of with ZMA 2010-00014, approved on January 12, 2011. A similar change is needed for Meeting Street in Area A-2 to allow for the timely connection of Berkmar Drive Extended into Hollymead Town Center.

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ATTACHMENT I

ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 4

2. Parks and Open Space. If approved, the proposed change to Proffer 6, Pocket Park, would mean that the open space provided no longer meets the 20% requirement for open space in Area A-2, as stated in the Code of Development (Table E). (See Staff Comment below) This principle is not met.

3. Mixture of Uses. In 2007, Area A-2 was rezoned to allow both residential and nonresidential

uses. Proffer 11, Phasing Plan, required that a portion of the residential units be built before commercial uses, in order to ensure that both the residential units and the commercial buildings would be built. Changing the proffer language to allow the indoor theater building permit to be pulled after building permits are issued for a smaller number of residential units maintains the intended expectation for both residential and nonresidential uses. (See Staff Comment below) This principle is met.

STAFF COMMENT Staff will comment on each of the proposed Proffer changes: Proffer 6, Pocket Park, Proffer 11, Phasing Plan, and Proffer 2, Road Improvements. Proffer 6. Pocket Park. The Applicant would like to amend this proffer to decrease the required size of the Pocket Park from ―approximately 10,000 square feet,‖ as approved with the original rezoning in 2007, to ―approximately 4,500 square feet.‖ This substantive change would be necessary in order to allow development to take place according to the Application Plan approved on November 10, 2010 (ZMA 2010-00006). The November 2010 rezoning was approved with the understanding that the existing proffer from 2007 still governed, and it would have to be changed for the park to be built at the size shown on the Application Plan. The Planning Commission discussed this item at its meeting on September 21, 2010, when the Block B Application Plan change was requested (ZMA 2010-00006). The Commission directed specifically that the parks and public spaces should be labeled on the Application Plan and should be generally consistent with the size and number shown on the original Application Plan. There was significant discussion at that meeting about the need for this amenity because of the amount of development included in this area of the Town Center. While much of the open space for Area A-2 is in the Greenway, the Commission noted the difficulty of access to the Greenway and directed that the trail should be shown on the other (south) side of the Greenway with a bridge to allow access to the trail. One of the features of the Neighborhood Model District is the requirement for 20% open space and 20% amenity space (these can overlap). The original application, approved in 2007, met this requirement. This requested change will not. Table E from the current Code of Development shows:

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ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 5

Table E

Minimum Green Space, Civic and Amenity Area

Total Area (sq. ft.)

Block A

Powell Creek Greenway 143,750

Block B

Powell Creek Greenway 148,100

Pocket Park 14,500

Neighborhood Center 38,000

Block C

Linear Park 41,600

Powell Creek Greenway 39,200

Block D

Linear Park 12,600

Central Plaza 30,000

Total 467,750

Total Area = 10.7 acres = 20% Area A-2

From this table, one can see that the Powell Creek Greenway provides 70 percent of the amenity area for the development. As was discussed at the September 21 meeting, the amenity aspect of the greenway is minimal. When the greenway acreage is removed from the 20 percent ―Minimum Green Space, Civic and Amenity Area,‖ what is left as central public space is about 6 percent of the entire development. If the Applicant is not required to replace this 5,.500 SF, public space will be taken away from future residents who need communal amenity areas in such a dense development. Staff acknowledges the character of Block B is changed with the addition of the theater. While the full amount of 10,000 square feet amenity area may not be needed at this location, staff believes it should be made up in another part of the Town Center that is easily accessible to residents. Proffer 11. Phasing Plan. The Applicant would like to amend this proffer to permit issuance of the first building permit for commercial space after issuance of building permits for fewer residential units than required in the original proffer. The Applicant proposes a three-tiered phasing plan to replace the original two-tiered plan. This three-tiered plan is more realistic in today’s market. The proposed Proffer language reads:

11. Phasing Plan. Prior to building permits that would authorize up to 75,000 square feet of commercial/office, building permits shall have been issued for at least 30 residential units. Prior to building permits that would authorize up to 200,000 sq ft of commercial/office, building permits shall have been issued for at least residential units (total). Prior to building permits that would authorize more than 200,000 sq ft of commercial/office, building permits shall have been issued for at least 600 residential units.

The changes proposed to Proffer 11, Phasing Plan, would be in compliance with the purpose and intent of the NMD which is to ensure a mixture of uses. However, staff believes a slightly lower number of units would allow flexibility to provide different sizes of dwelling units and allow more opportunity to

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ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 6

retain the designated amenity areas. Staff suggests the minimum number of units be lowered from 30 to 25. A comparison of the approved (2007) language and the proposed (2010) language:

2007 Rezoning Language Proposed 2010 Language

1

Required:

30 dwelling units

For:

Up to 75,000 SF of commercial/office space

2

Required:

100 dwelling units

For:

Any commercial/ office space

Required:

100 dwelling units

For:

Up to 200,000 SF of commercial/office space

3

Required:

600 dwelling units

For:

Over 200,000 SF commercial/ office space

Required:

600 dwelling units

For:

Over 200,000 SF of commercial/office space

Changing the phasing plan is not expected to have any impact on nearby and surrounding properties, although constructing the indoor theater in conjunction with fewer dwelling units may mean that residents of dwelling units constructed later would not have to deal with the impacts of theater construction. Proffer 2. Road Improvements. As part of this rezoning, staff feels the Applicant should make a commitment to provide for dedication and construction of the segment of Meeting Street from just south of the intersection of the unnamed road that provides access to Area A-1 (the Kohl’s) and Area A-2 (the indoor theater) to the southern property line of Area A-2, upon request of the County. The segment of Meeting Street the County requested is shown within the oval on the map below. Staff understood the Applicant to agree to make this change during the amendment to the Hollymead Town Center A1 and A2 proffer discussions. The absence of this commitment creates a barrier to efficient provision of the extension of Berkmar Drive Extended into the Hollymead Town Center as has been intended with the original Hollymead Town Center CPA and Places29 Master Plan.

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ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 7

This commitment would also:

Provide access between Hollymead Town Center and adjacent properties without using US 29.

Provide the remaining link in a major parallel road to US 29, which will be a major part of the County’s transportation network.

Staff notes that the alignment and cross section of the road are not being changed from what was originally anticipated with the 2007 rezoning. PROFFERS: Outstanding Issues Staff believes that the following substantive issues should be addressed before the proposed Proffers can be approved: Proffer 6, Pocket Park. As previously stated, staff believes either the full 10,000 square feet should be provided in the area shown on the original (2007) Application Plan or another Pocket Park with at least 5,500 square feet should be provided within walking distance of the residential units in Block B. Staff notes that the original layout of uses in Block B has changed since the indoor theater was added. At this time, the Pocket Park is an amenity that will serve theater patrons primarily. Therefore, staff would support creation of another Pocket Park, 5,500 square feet in size, located where it would serve the residential uses planned in Block B. If the applicant declines to add 5,500 square feet of public space in another part of the developemnt, then the Code of Development must be revised to reflect the decrease and to be in agreement with the proffer. Proffer 11, Phasing Plan. In order to allow flexibility for the developer to provide different sizes of dwelling units and retain amenity areas, staff suggests that the minimum number of units required for issuance of a building permit for 75,000 SF of commercial/office space be 25 instead of the 30 now listed in this proffer. Proffer 2, Road Improvements. The southernmost segment of Meeting Street, from just south of the intersection with the unnamed road that provides access to Area A-1 (Kohl’s) and A-2, Block B (indoor theater) to the southern boundary of Area A-2 should be included in Proffer 2, Road Improvements, with language that would permit the County to request dedication and construction of the road at the time it is needed. Technical Changes Needed: At present, the Proffers are not in agreement with the Code of Development. Prior to an action by the Board, changes will be needed. If the Board believes that the 5,500 SF needs to be provided in another part of Area A-2, then the Code of Development, Application Plan, and Proffers will all need to be revised prior to action by the Board. In addition to the substantive issues listed above, there are several changes to the proffers which staff has requested to clarify questions which have been raised with site plans, clarify the status of proffers made in 2007, and to provide ease in understanding and enforcement of the proffers. These technical changes have been provided to the applicant. SUMMARY Staff has identified the following factors that are favorable to this rezoning request:

1. The change in the phasing (Proffer 11) to allow fewer residential building permits to be issued

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ZMA2010-00013

Planning Commission Public Hearing, February 8, 2011 Staff Report Page 8

prior to issuance of a commercial building permit is more realistic in this economic climate than it was when the original zoning was approved.

Staff has found the following factors unfavorable to this rezoning:

1. The reduction in the size of the Pocket Park removes an important amenity which was identified by the Planning Commission at an earlier public hearing.

2. The dedication and construction of the remaining segment of Meeting Street has not been proffered.

RECOMMENDATION Staff does not recommend approval of the rezoning unless the substantive and technical changes identified in this staff report are addressed. ATTACHMENT A – Location Map ATTACHMENT B – Proposed Proffers, as submitted with this application ATTACHMENT C – Staff Report, ZMA 2010-00006, Hollymead Town Center, Area A-2 ATTACHMENT D – Excerpt from Planning Commission minutes, September 21, 2010.

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ATTACHMENT I

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ATTACHMENT I

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ATTACHMENT I

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smallory
Text Box
ATTACHMENT I

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smallory
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ATTACHMENT I