PRIVATE COUNTY OF ALBEMARLE

PLANNING STAFF REPORT SUMMARY

 

Project Name:  ZMA 05-007 Haden Place

Staff:  Rebecca Ragsdale

Planning Commission Public Hearing: 

July 11, 2006

 

Board of Supervisors Public Hearing:

August 2, 2006 (tentatively)

OwnersWendell W. Gibson, Gibson Homes

Applicant: Rivanna Engineering & Surveying, represented by Kelly Strickland

Acreage: 6.69 acres

Rezone from: R2 Residential (existing zoning) to NMD Neighborhood Model District

TMP:   TM 55 Parcel 69 & TM 56 Parcel 9

Location: Between Haden (Rt. 1209) & Killdeer Lanes (Rt. 1215), south of Jarman's Gap Road

By-right use:  13 single family units, up to 20 units with bonus provisions

Magisterial District:  White Hall

Proffers:     Yes            

Proposal:  20 single family homes, including 6 cottages, and 14 townhouses at a net density of 6.35 dwelling units/acre; Requesting critical slopes waiver, private street request, and planting strip waiver

 

Requested # of Dwelling Units:  34

DA (Development Area): Community of Crozet

 

Comp. Plan Designation: Community of Crozet--  Crozet Master Plan- Neighborhood CT 3 Urban Edge: predominantly single family residential uses at densities of 3.5-4.5 units/acre and up to 6.5units/acre if accessory units are added for 50% of the units

Character of Property:  Fairly level meadow with one existing house and a small wooded area in the southwest corner of the property

Use of Surrounding Properties:  Low density single family residential and some agricultural uses

Factors Favorable:

  1. The project positively addresses the principles of the Neighborhood Model with specific emphasis on a pedestrian orientation, neighborhood friendly streets and paths, parks and open space, and relegated parking.
  2. Density is in keeping with the Crozet Master Plan, at the upper end of the range suggested in the Plan.
  3. The property relates to two centers---Downtown Crozet and the future Old Trail Village Center and the property is located within walking distance to Downtown Crozet. The property fits within the context of the existing and emerging fabric of the western part of Crozet.

 

 

Factors Unfavorable:

1.      Proposed moderately priced housing does not meet the County’s current adopted definition of affordable housing.

2.      Revisions are needed to the code of development, application plan, and proffers.

 

RECOMMENDATION:  If the Planning Commission and Board of Supervisors agree with staff’s interpretation of affordability and density, then staff recommends approval with the following provided:  the affordable housing proffer modified to conform with the County’s Affordable Housing Policy in the Comprehensive Plan and recommended technical changes are made to the application plan, code of development and proffers.


 

 

 

 

STAFF PERSON:                                                                  REBECCA RAGSDALE

PLANNING COMMISSION:                                                  JULY 11, 2006

BOARD OF SUPERVISORS:                                               AUGUST 2, 2006

 

ZMA 2005-0007 Haden Place

Waivers requested to Section 4.2 Critical Slopes, Section 14-222 Planting Strip, and Section 14-233 private street approval

 

 

PETITION

PROJECT: ZMA 2005-07 Haden Place

PROPOSAL:  Rezone 6.69 acres from R-2 Residential (2 units/acre)  to NMD Neighborhood Model District - residential (3 - 34 units/acre) mixed with commercial, service and industrial uses for 20 single family homes and 14 townhomes

PROFFERS:  Yes

EXISTING COMPREHENSIVE PLAN LAND USE/DENSITY:  Community of Crozet; CT-3 Urban Edge: single family residential (net 3.5-6.5 units/acre) supporting uses such as religious institutions and schools and other small-scale non-residential uses

ENTRANCE CORRIDOR: No

LOCATION: Between Haden (Rt. 1209) & Killdeer Lanes (Rt. 1215), south of Jarman's Gap Road

TAX MAP/PARCEL: TM 55 Parcel 69 & TM 56 Parcel 9

MAGISTERIAL DISTRICT: White Hall

 

CHARACTER OF THE AREA

The majority of the Haden Place site is a fairly level meadow but there are some steep slopes and a wooded area in the southwest corner of the site. In the northeast corner of the site is a single family dwelling constructed c. 1882 which is surrounded by mature specimen trees. The site is located between two state roads, Haden and Killdeer Lanes, which both connect to Jarmans Gap Road north of the project site.  Along Haden and Killdeer Lanes are existing single family homes zoned R-2 and consisting of a range of lot sizes, some half-acre lots to 1-2 acres.  Ballard Field town homes and an undeveloped remainder of land in Ballard Field are located south of Haden Place in Old Trail and are zoned R-6. Also across Haden Lane to the east is a 27.58 acre property under easement with the Nature Conservancy that does abut Haden Place and is used for agricultural purposes.  (Attachment A)

 

SPECIFICS OF PROPOSAL

The applicant is proposing a mixed-housing development with three residential types. Lots and residential units would be accessed via a hierarchy of public streets (Haden Lane, Killdeer Lane, and the proposed Connector Road between the two), a private street (proposed Haden Place) and two alleys that provide access to the rear loaded parking for all units. Haden Place would consist of single family homes along Haden and Killdeer Lanes, with townhouses and the affordable single family cottage units central to the site around the street called Haden Place. Haden Place is proposed as a private road with a green planting strip median and a community green at the end. An east-west public road connection is proposed from Haden to Killdeer Lane. The applicant has also made provisions in the proffers, although not illustrated on the plans, for a connection to Summerford Lane to the south in Ballard Field as the Planning Commission requested at the work session in September 2005. (Attachment G,H)

 

 

Amenities in the development would include the community green at the end of Haden Place, a passive pocket park with a conservation area in the southwest corner of the site and an integrated stormwater management pond, a garden lot, and playground. The conservation area is currently shown on the application plan as “tree preservation” which is not appropriate given the provisions for possible street interconnections through the area and disturbance that will occur for stormwater facilities and sidewalks along Killdeer Lane. Staff is requesting revisions from the applicant to address this issue. 

 

The applicant has offered the following proffers: Construction of off-site road improvements; future reservations for connectivity to Ballard Field and properties on the west side of Killdeer Lane; cash proffers to be distributed for education, emergency services, recreation, transportation, down payment assistance for “affordable/moderately- priced” housing units in Haden Place and other projects in Crozet as identified in the CIP; 8 “affordable/moderately-priced” single family detached units; historic resources documentation; an over-lot grading plan; interconnectivity of green space; and minimum standards for on-site amenities. (Attachment D)

 

APPLICANT’S JUSTIFICATION

The applicant has indicated that this project will create housing (including affordable housing) in a central location in a designated growth area; interconnections to streets are provided; upgrades to existing streets will be provided; and the project will blend new architecture with existing in this area of Crozet. The applicant has also provided a justification in the Code of Development which shows the proximity of this project to Downtown and other places of interest in Crozet. (Attachment G)

 

PLANNING AND ZONING HISTORY

The property has been zoned R2 since the adoption of the Zoning Map in 1980. Prior to 1980, the property was zoned Agricultural. A final subdivision plat for single family homes was submitted based on the by-right R2 zoning in September 2004 for 13 lots but approvals were never finalized by the applicant. (SUB 2004-0281)

 

Planning Commission Background and Changes to Plan

The applicant submitted a rezoning application in May 2005 and a work session was held with the Planning Commission in September 2005. (PC Minutes-Attachment C) The applicant has provided the application plan reviewed by the Commission at that work session. (Sheet A10-Attachment H) The work session addressed the following issues:

 

 

Since the work session, the applicant submitted revisions to the plan that revised the layout and has made other provisions to address Planning Commission comments from

 

 

the September 2005 work session.  The applicant has reduced the total number of units proposed from 40 to 34 since the work session. The analysis provided by staff in September 2005 did not include the proposed net density of the project. Analysis of density in Crozet is now calculated based on net density, which is specified for the density ranges in Table 1 “Master Matrix” Crozet Place Types and Design Guidelines of the Crozet Master Plan. 

 

 

 

The applicant has provided the full frontage improvements as requested and proposes widening the travelway on both Haden and Killdeer Lanes to 18 feet. This is acceptable to the County Engineer and VDOT. A proffer has been proposed to allow for possible future interconnection of Haden Place to Summerford Lane. However, the applicant has been asked to revise the application plan so that illustrations are consistent with the proffers. A conceptual road diagram prepared by the County Engineer has been provided to illustrate how interconnections can be made within Block J of Haden Place from Killdeer and the proposed Connector Road into Ballard Field. (Attachment F)

 

 

The applicant proposes to remove all mature trees and the existing house on the property. (See sheet A3 Existing Conditions/Demolition Plan-Attachment H) The applicant has proffered to have the existing house documented to Department of Historic Resources’ standards.

 

COMPREHENSIVE PLAN

 

Crozet Master Plan

Haden Place is located in Neighborhood 6 as shown on the Crozet Master Plan. Neighborhoods are described in the Plan as discernible places with a focal point and boundary that maintains and fosters social, cultural, and economic activities. The intensity of land use and density are intended to decrease from the center to edge of the neighborhood. Individual centers within the Crozet Development Area will serve as the foundation for walkable neighborhoods supporting both residential uses and local economic activity. (Attachment B)

 

 

 The property is designated Neighborhood/Village Edge (CT3) in the Crozet Master Plan. The Edge areas are intended to support the neighborhood center with predominantly residential uses, especially single family detached. Lot sizes of 10,000 square feet are recommended in CT3 areas with 1-2 story \structures at street level. A road connecting Haden and Killdeer Lanes is shown on the master plan in this neighborhood.

 

Net residential density recommended in the plan for CT3 areas is 3.5-4.5 units per acre. The plan provides a recommendation of up to 6.5 units per acre if accessory apartments are added for 50% of the residential stock.

 

In the Strategies for Implementation section of the Master Plan (page 23-24), the following are excerpted comments:

 

Because such “accessory units” are but one form of affordable housing, staff has advised that "affordable housing" could take other forms (single family detached and attached, townhouses, flats, etc.) and that the terms "affordable" and "accessory" meet a very similar intent.  The Commission concurred with this conclusion in its support of Wickham Pond I, especially considering that "accessory apartments" meeting the definition of the County's zoning ordinance (which are different from “accessory units” as they are described in the Crozet Master Plan in that they must be within the structure of a single family detached dwelling) do not count towards density and are by-right in all residential districts, thus being possible in all single-family detached units. 

 

Regarding the statement in Table 1 of the Master Plan that "6.5 units/acre if accessory apartments added for 50% of the residential stock", staff has interpreted this to mean that half of the additional units would need to be accessory or "affordable" in order to take advantage of the density bonus.  If 50% of all units would have to be accessory or affordable, there would be little incentive to provide accessory or affordable units as all of the additional density plus part of the density that is otherwise available without such units would have to be accessory or affordable.  In addition, half of the additional units equated to approximately 15% of the total housing which was in keeping with the County's affordable housing policy.  Here is an example:

 

If statement in Table 1 of the Master Plan is applied literally—

 

10 acres x 4.5 units/acre = 45 units (maximum density allowed without accessory units)

10 acres x 6.5 units/acre = 65 units (maximum density allowed with accessory units)

65 units x 50% = 32 (or 33) accessory units required to achieve 6.5 units/acre, leaving

32 (or 33) market units

 

If staff interpretation is applied—

 

65 units – 45 units = 20 units x 50% = 10 affordable units/65 units = 15% affordable units 

 

During the Board of Supervisor's review of the Liberty Hall project last month, the Board took the more literal interpretation of the statement in Table 1 of the Master Plan, establishing 4.5 units/acre as the maximum density for CT 3 unless 50% of all units are accessory.  This interpretation was affirmed when the Board approved Liberty Hall in which the CT3 section did not exceed 4.5 units/acre and no accessory or affordable units were provided in that section of the development.

 

Therefore, the appropriate density for the CT3 sections in Haden Place and other Crozet developments will be different depending on which interpretation is applied and the number of accessory or affordable units that are provided.  Application of staff’s interpretation means that this project falls within the density guidelines of the Master Plan.  Application of the more literal interpretation means that it does not.

 

The table below indicates the range of suggested dwelling units based on the recommended density in the Master Plan. The maximum density suggested by the Plan if the 50% accessory apartments are not provided is indicated as Mid/Max in the table and is 24 units. Based on the Board’s requested changes in interpretation of the 6.5 units/acre density provision, expectations in density for Haden Place beyond 4.5 units/acre would mean 17 units, half of the proposed units for the development, should be provided as affordable/accesory. The applicant proposes that eight units would be proffered as “moderately priced units.” Six units provided as “affordable”, under current the current definition of “affordable”, would meet the 15% policy goal.

 

 

Revised Plan June 13, 2006

 

 

 

 

 

 

 

 

 

Haden Place Residential Density

 

 

Crozet Master Plan

Haden Place

 

 

 

Crozet Transect Density

Acres

Net Acres

Min

Mid/Max

Max Plan Units*

Units

Net Density

 

 

CT 3 (Min 3.5, Mid 4.5, Max*6.5/acre)

6.69

5.35

19

24

35

34

6.35

 

 

Notes: Net acreage is 80% project area. *Maximum densities of 6.5 units/acre if 50% added for affordable/accessory units.

Gross density is 5 dwelling units per acre.

 

 

 

 

 

 

 

 

 

Members of the public have raised concerns about the rate at which Crozet is growing and staff has provided a summary of potential dwelling units in Crozet as a “status report” on approved developments and developments under review in Crozet. (Attachment I) The Crozet Master Plan does not specify which neighborhoods should

develop first in Crozet. However, the plan does place an emphasis on the redevelopment and invigoration of the downtown area of Crozet as an immediate focus.

 

In the Crozet Master Plan, the Community of Crozet is considered as three geographic sectors in which future development and redevelopment projects are focused: Downtown, the area West of Crozet Avenue and the area East of Crozet Avenue. Applicable statements from the Crozet Master Plan for the western geographic sector of Crozet relevant to this site are identified below in italics.  Staff comments relative to this project and the recommendations of the Crozet Master Plan follow each statement:

 

Development in the area west of Crozet Avenue should emphasize neighborhood related road creation and other improvements. Specific recommendations and tasks for Crozet-West include the following:

 

Encourage mixed use development in the center of the western area.

 

The center for the western area is located within the approved Old Trail Village development to the south of Haden Place and will have a mix of uses, including retail.

 

Implement improvements to Jarman’s Gap Road

 

This is a VDOT project and public hearings were held in March. The Board of Supervisors has approved the design of this project and the road project will be reviewed by the Commonwealth Transportation Board next.  Advertisement for construction is not expected until 2009. 

 

Encourage development of western area starting from the south up (from Route 250).

 

The first rezoning approved following the adoption of the Crozet Master Plan was Old Trail Village, which was consistent with this recommendation. However, by-right development has been occurring from Jarmans Gap Road southward with the construction of Ballard Field.

 

Establish Western Park with public/private collaboration.

 

The land for Western Park was proffered as part of the Old Trail Village Rezoning.

 

Other road improvements are key to the short, medium, and long-range success of the Master Plan including Jarman’s Gap Road sidewalk/bike lane improvements, downtown sidewalks, and other Crozet Avenue issues, including safety improvements and possibly a modified entrance at the Meadows.

 

Roads in need of improvement that would serve Haden Place are Haden and Killdeer Lanes. The applicant has proffered off-site improvements to these roads that would include pavement widening only and would not include sidewalks or bike lanes. Improvements along the frontage of the property on both Haden and Killdeer will include curb, gutter, planting strips, and sidewalks.

 

Streets within residential/mixed-use areas should be pedestrian-friendly, developed according to site development guidelines of this Master Plan, and funded and constructed as a part of private development. The gridded neighborhood street pattern indicated on the Place-Type Map is intended to emphasize the expectation that inter-connections will be a part of future

neighborhood block and street design, and should not be considered a plan for specific street locations or interconnections.

 

For the Haden Place project area, the interconnection suggested by the Master Plan from Haden Lane to Killdeer Lane has been provided and will be built to Master Plan guidelines for streets.

 

The Neighborhood Model: Staff has found that this proposal is in general conformity with the 12 principles of the Neighborhood Model based on analysis in the table below. 

 

Pedestrian Orientation

Sidewalks are provided throughout the development and along the frontage of the Haden Place property on Haden and Killdeer Lanes. No sidewalks are planned with the proposed off-site improvements to Killdeer and Haden Lanes for pedestrians to reach Jarmans Gap Road. The Jarmans Gap Road project will include a sidewalk on one side of the road to reach Downtown Crozet. This principle is met.

Neighborhood Friendly Streets and Paths

Low speed limits and sidewalks buffered with street trees will help create a safe environment throughout the new streets within Haden Place. This principle is met.

Interconnected Streets and Transportation Networks

The applicant is providing an interconnection from Haden to Killdeer Lane and has made provisions on the plan and in the proffers so that it can be aligned with possible future connections to adjoining properties across Killdeer Lane  and into the remainder of Old Trail. As requested by the Planning Commission, provisions have been made to connect to Summerford Lane in Ballard Field townhouses, immediately adjacent to Haden Place to the south. This principle is met.

Parks and Open Space

 

 

 

 

The applicant is proposing to provide 3.83 acres in green space and amenities that would include passive recreation, a playground, and garden area.

 

These amenities will take the form of a passive pocket park in the southwest corner of the site, a community green at the northern

 

end of Haden Place, a playground lot, and a garden lot.  The types of open space provided are consistent with the recommendations in the Crozet Open Space table of the Crozet Master Plan for neighborhood blocks which include a close, community garden, pocket park, playground, yards/gardens. Future Western Park is also located within walking distance of this proposal. This principle is met.

 

 

 

Neighborhood Centers

 

 

Haden Place is located entirely in a CT 3 edge area and is not expected to provide a center.  Nearby centers for this development are Downtown Crozet, future Western Park, and future Old Trail Village center.  This principle is met.

Buildings and Spaces of Human Scale

 

 

Building heights are proposed at 35 feet and in the townhouse blocks are proposed as 45 feet. Staff does not support 45 feet and has recommended to the applicant that height be changed to 35 feet in those blocks as well to be in keeping with the Crozet Master Plan. The applicant has indicated this was a typo error in the Code of Development and it will be corrected.

 

Setbacks/built-to lines are proposed between 25-30 feet for the front setback from Haden and Killdeer Lanes for the village homes, 10 feet for townhouses, and 6 feet for the cottages and one block of townhouses from Haden Place. Side setbacks are between 8 feet and 6 feet for the detached single family units with the exception of corner lots, which have greater setbacks. Rear setbacks vary for the blocks based on housing type from 20-40 feet from the rear alleys. Staff believes that this principle is met, however for ease of administration, Zoning is requesting the applicant add a setback table to the Code of Development.  

 

Relegated Parking

 

 

The majority of the residences will have parking in garages and all required parking for the residences is rear loaded from the proposed alleys. There will also be some additional on-street parking available. This principle is met.

Mixture of Uses

 

This area is not expected to have a significant non-residential component and it is appropriate that the development be primarily residential. Staff has requested revisions to the applicants table of uses in the Code of Development to correctly identify residential and non-residential uses as defined in the Zoning Ordinance.

Mixture of Housing Types and Affordability

The variety of housing types within this development including two types of single-family detached units, conventional units “village homes” and “cottages”, and townhouses. The proffer for affordable housing does not meet the County’s established definition of affordable housing. This is discussed later in the report.

Redevelopment

This project is an example of a greenfield project so this principle is not applicable.

Site Planning that Respects Terrain

The site is fairly level, except for a small area of critical slopes that will be disturbed. The wooded southwest corner, which will be preserved, also has some critical slopes. 

 

 

Clear Boundaries with the Rural Areas

 

 

The project site is entirely within the Crozet Development Area boundaries.  

 

 STAFF COMMENT:

 

Relationship between the application and the purpose and intent of the requested zoning district

The purpose and intent of the Neighborhood Model (NMD) district is to establish a planned development district in which traditional neighborhood development, as established in the County’s Neighborhood Model, will occur. The NMD provides for compact, mixed-use developments with an urban scale, massing, density and an infrastructure configuration that integrates diversified uses within close proximity to each other within the development areas identified in the comprehensive plan. Staff believes this proposal meets the intent of the NMD district.

 

Anticipated impact on natural, cultural, and historic resources

A single family dwelling constructed in c. 1882, located on Tax Map 55, Parcel 69, was identified as historic (fifty years or older) by the Historic Preservation Planner. The Historic Preservation Planner noted that it possesses local significance as it contributes to the historic character of the Village of Crozet. The building is also considered an integral member of a distinct neighborhood established along Haden Lane. This neighborhood consists of mature hardwood and evergreen trees and shrubs surrounding an eclectic mixture of homes with similar setbacks, scale, massing and architectural characteristics that reflect Crozet’s period of historic significance (c. 1870 to c. 1950) and broad socio-economic background.

 

The renovation of the historic farmhouse located within the project area and the retention of specimen trees and mature vegetation in order to maintain the character of Haden Lane was preferred, but was not recommended due to the condition of the building. Documentation was recommended and the applicant has included proffers to address this recommendation. 

No natural resources identified on the Open Space Plan or Crozet Green Infrastructure Map are within the project area.

 

Anticipated impact on public facilities and services

Streets and Roads: The most significant impact this project will have is on neighborhood streets The project site is located along two public roads that do not meet current road standards. At present, Killdeer Lane consists of about 12-14 feet of pavement width within a 30 foot prescriptive right-of-way. Haden Lane varies in pavement width but is 18 feet wide in some places within a 30 foot right-of-way. The intersections of both lanes with Jarmans Gap Road are planned for improvement with the Jarmans Gap Road improvement project on schedule for completion in 2010. The roads do not interconnect, however Haden Lane does provide a secondary road connection into Old Trail at the Ballard Field town houses. This access is blocked off and VDOT cannot approve the connection until improvements are made to Haden Lane.

 

VDOT has indicated that both Haden Lane and Killdeer Lane are not geometrically adequate to support the added traffic this development will create and will need to be improved. Also, the intersection of Killdeer Lane with Jarmans Gap Road is inadequate.

The connection will be corrected with the Jarmans Gap Road project which is scheduled for construction in 2010 at the earliest. There are also drainage issues the proposed

entrance onto Haden Lanes will create which should be addressed and may require installing some offsite drainage facilities within an existing easement on the adjoining

property. VDOT has requested the sight distance at the connections and at the intersections of Haden Lane and Killdeer Lane with Route 691 be shown on the final plans.

 

The applicant’s proposal would nearly triple the number of trips on Haden Place from around 140 to 400 trips. In addition, there are drainage issues along Haden Lane that should be addressed. The applicant has proffered pavement widening on Haden and Killdeer Lanes to 18 feet, drainage improvements on Haden Lane, and full frontage improvements on both Haden and Killdeer Lanes.  The off-site improvements to Killdeer Lane have not been shown on the application plan as requested, but have been provided on the Plan for Haden Lane.

 

Schools: The development is expected to generate approximately 12 students broken down as follows:  5 elementary school students, 3 middle school students, and 4 high school students.  These students would likely attend Crozet Elementary School, which is above capacity based on summer 2005 estimates; Henley Middle School, which was below capacity based on the summer 2005 estimates; and Western Albemarle High School, which was at capacity based on estimates.  For short-term capacity issues, the Schools division adds mobile units.  For long-term capacity problems, either redistricting or new schools are proposed.  Proffers for capital improvements for school facilities have been made for this development.

 

Fire, Rescue, Police:  The Crozet Volunteer Fire Station and the Western Albemarle Rescue Station provide fire and rescue services to the area.  The planned Ivy Area Station will also augment services provided by the two existing fire and rescue stations Crozet. Albemarle County 5th Street Office Building is contains the County’s Police Department, although the police patrol all areas of the County. Current policy of police services recommends an average response time of 10 minutes for all Development Areas. To this end, police satellite offices are recommended within a service sector to help achieve these desired response times to all police emergency calls. The possibility of an additional fire/rescue/police station is under consideration for the area in 2012.

 

Stormwater management: The applicant has proposed to manage the site’s stormwater runoff by constructing a 10,000 square foot stormwater pond in the southwest corner of the site and a 1100 square foot pond in the northern portion of the site. This is a conceptual plan that will not be fully engineered until the site planning process.

 

Utilities: Albemarle County Service Authority indicates that water and sewer service is available to serve the site.

 

Fiscal Impacts to Public Facilities: Attachment E contains the Fiscal Impact Analysis for the project.  The summary of the fiscal analysis reveals a negative net fiscal impact.  This situation is not unusual in that all projects with primarily a residential component result in a net negative fiscal impact.

 

 

Anticipated impact on nearby and surrounding properties

Surrounding properties are already experiencing a change in character as new development has already occurred around them with Old Trail. Some Crozet property owners are seeking to develop their property and move, as they prefer the more rural

character that existing when they first moved to the neighborhood. Others would like to remain in the neighborhood and have expressed concerns about development encroaching on their property. The Saul property is located across Killdeer Lane from Block J and the Saul’s have expressed concerns regarding the proposed stormwater management pond in that block. A tree preservation area is shown between Killdeer Lane and the pond, however some disturbance is likely in that preservation area and staff has requested the applicant provide for replanting to ensure screening of the pond from the neighbors.

 

Public need and justification for the change

The County’s Comprehensive Plan supports development in the designated development areas that is consistent with the density, use, and form recommended in the Plan.

 

 

PROFFERS

 

Proffer 1-Construction of Off-site improvements:  The applicant has committed to pavement widening to 18 foot travel lanes on both Haden and Killdeer Lanes and some drainage improvements to Haden Lane. The final design would be determined by VDOT, but would be accomplished within the existing right-of-way for each roadway. The proffer also stipulates that the proposed connector road between Haden and Killdeer would not be available to vehicular traffic until the Jarmans Gap Road improvement project is completed. With the Jarmans Gap Road project, sight distance, which is currently inadequate at Killdeer Lane and Jarman’s Gap Road, would be improved and VDOT could approve additional traffic on Killdeer Lane.

This proffer is acceptable to the County Engineer and VDOT with wording changes and language to indicate that the improvements would be built, not just bonded, in association with site plan or plat approval.                                                                                                             

 

Proffer 2-Future Reservations for Connectivity with Ballard Field and Jarman Hill : This proffer makes all of Block J available to the County upon demand to provide interconnections to Summerford Lane from Haden Place and also from Killdeer Lane. Staff recommends that the proffer be revised to indicate that only the area needed for future road connections would be dedicated to the County, not the entire green space and amenity area, at the County’s request.

 

Proffer 3-Cash Proffers: The County’s Community Facilities Plan, in conjunction with the Capital Improvements Program identifies the need for a library, schools, park, public safety and transportation improvements in Crozet.   A list of projects for Crozet is below.   The proposed development will generate part of the need for these facilities. Most

approved rezonings for residential developments include commitments in the form of cash proffers to help offset the impacts of the development. 

 

Current CIP funded items, recommended by the Master Plan:

             

 

Items not yet funded but recommended by the Master Plan for inclusion in future CIP budgets:    

 

Items recommended for private sector funding: or public/private collaboration:

 

The applicant has proffered $2,750 for 28 residential units (excluding 6 of the “moderately-priced units”) and has specified how they would like the total amount of

$77,000 dispersed in the Community of Crozet for CIP projects and to contribute to services: $28,875 to schools for services, $5,000 to Crozet Volunteer Fire Department, $4,625 to Western Albemarle Rescue Squad, $5,000 to Claudius Crozet Park, $4,625 for the County’s Greenway program, $9,625 to sidewalk and pedestrian improvement projects, $13,250 for other Capital Improvement projects in Crozet, and $6,000 to the Housing fund for down payment assistance.

 

Rezoning

# of Units

Cash Proffer

ZMA 03-12 Stillfried Lane Townhouses

    26

$3000/unit for capital improvements or affordable housing programs; no physical improvements or land for future public facilities.

ZMA 05-14 Poplar Glen (currently scheduled for a BOS hearing on July 5, 2006)

   28

$3200/unit for capital improvements and $66,000 for affordable housing program in lieu of providing four affordable units; no physical improvements or land for future public facilities.

ZMA 04-24 Old Trail Village

2275

$50,000 Cash proffer for park projects, Cash proffer for schools: $1000/sfd unit; $500/th unit; $250/apt.; Cash proffer for public faculties:  $1000/sfd unit; $500/th unit; $250/mf unit; and physical improvements including completion of Western Avenue and dedication of land for Western Park.

ZMA 05-05  Liberty Hall

43

$3,200 per unit cash proffer for public facilities; no physical improvements or land for future public facilities.

ZMA  02-04  Cascadia (PROPOSED)

330

Cash proffer for schools and other public facilities: $2,000 /sfd, $1000/th, $500/mf unit.

ZMA  05-07 Haden Place (PROPOSED)

34

Cash proffer for schools and other public facilities/services: $2,750/ market-rate unit; off-site road improvements to Haden and Killdeer Lanes

ZMA 05-18 Wickham Pond II

(PROPOSED)

106

Cash proffer for schools and other public facilities: $3225/market-rate unit

ZMA  06-01 Westhall V (PROPOSED)

36

Cash proffer for schools and other public facilities: $1000/market-rate unit; $1500/market-rate unit for Eastern Avenue; Spot improvements to Park Road (apprx $7500); $3000 for a pedestrian bridge; on-site greenway trails, parking area for trailhead, and off-site temporary easement for greenway

 

 

Note: sfd = single family detached, th = townhouse, mfd = multifamily

 

Regarding adequacy of the proffers, staff believes that, based on its actions on recent residential rezonings, the Board has set an expectation for offsets to impacts caused by residential developments.  Different types and levels of rezonings will have different impacts.  The location of the proposed development also plays into the amount and type of offsets needed. As such, staff must rely on previous actions of the Board as guidance to applicants on expectations for off-sets to impacts of new development. 

 

Proffer 4-Affordable and Moderately-Priced Housing: The applicant is proffering 8 moderately-priced units to meet the affordable housing policy. The term “moderately-priced” is used because the units do not meet the County’s definition of “affordable housing.” The County’s definition of “affordable housing” relates to housing that is affordable to families with 80% of the median household income.  The applicant is proffering to provide housing that is affordable to families with up to 100% of the median household income.

 

Since the County’s affordable housing policy was adopted, all affordable housing proffers approved by the Board of Supervisors have met the County’s policy for providing 15% of the new units as “affordable” to families earning 80% of the County’s median household income. 

Recently, the applicant for North Pointe made a proffer for the Board of Supervisor’s review for for-sale single-family detached housing that is affordable to families in a range of 80 – 120% of the median household income.  In that case, the applicant termed the housing “work-force” housing.  Staff pointed out to the Board that the proposed proffer was not in conformity with the County’s adopted policy for affordable housing.

The Housing Director made a case to the Board for the need for “moderately priced” housing, which he presented to the Board at their June 7, 2006 meeting on North Pointe. In the report, the Housing Director suggests that, for North Pointe, a rated scale could be used to help “give credit” for housing that technically does not meet the definition of affordable housing, but, which provides housing for a sector of the population with incomes in excess of 80% of the median household income.  The Director of Housing relates household incomes to the maximum income for first-time homebuyers whose loans are made through the Virginia Housing Development Authority (VHDA). 

The Board indicated a willingness to consider the Housing Director’s report in its deliberations on the affordable housing proffers with North Pointe.  The applicant for Hade Place is hoping that the Board will consider the report with its review of Haden Place.  The Director of Housing is being requested to attend the July 11, 2006 Commission meeting to answer questions of the Commission related to the report and the proffers for affordable housing.

Staff would like to point out that, to date, no applicant has provided single-family detached housing as “affordable housing” meeting the County’s policy.  The Commission may wish to consider whether single-family detached housing warrants any special consideration in relation to the affordable housing policy.  Up until the recent report provided by the Housing Director, Haden Place had indicated a willingness to provide 6 cottages as affordable under current policy definitions and submitted revised proffers on June 27, 2006 which then proposed “moderately-priced” units.  Staff can only recommend approval, however, based on the County’s adopted policy.

 

Proffer 5:-Historic Resources: This proffer ensures documentation of the historic house to the Department of Historic Resources standards recommended by the Historic Preservation planner.

 

Proffer 6-Overlot Grading Plan: The applicant has proffered an over-lot grading plan to the satisfaction of the County Engineer.

 

Proffer 7-Interconnectivity of Green Space: This proffer is related to proffer #2 and dedicates the remainder of Block J portions not used for the road connections as in proffer 2 to the County so that it can be combined with the adjacent open space in Ballard Field.

While staff appreciates the offer to allow the open space in this area of Haden Place to be combined with open space from the adjoining subdivision, this part of the proffer is not necessary because nothing would preclude such a combination of property at a future date. The Open Space in Ballard Field was not approved on the subdivision plan to be dedicated to the County, so Ballard Field would have to agree. The Ballard Field open space adjacent to Block J is 0.098 acres in size and would not further enhance the amenity for the neighborhood since the area is so narrow.  The offer to dedicate the open space is appreciated. However, it is unlikely the County would ever accept this small area of parkland due to its size and lack of connections to greenways and other public park facilities.

 

Proffer 8-On-site Amenities: On previous application plans, the applicant did not specify what amenities would be provided in the development and has now included this proffer to specify at a minimum that it would meet the requirements of Section 4.16.2 of the ordinance. The applicant has now provided more specific information on the application plan, but has not incorporated any description into the Code of Development as requested. Typically, amenities are addressed in the Code and staff believes this information should be added to that section of the Code of Development.  

 

PROFFER SUMMARY

The affordable housing proffer does not meeting current adopted policy and is an outstanding issue. Wording changes, deletion of proffer 8, and final County Attorney review will be needed prior to the Board of Supervisors.

 

 

 

PRIVATE STREET REQUEST AND WAIVERS

 

Critical Slopes Waiver

Description of critical slope area and proposed disturbance:

This site has approximately 4970 square feet of existing critical slopes located in two clusters adjacent to Haden Lane and Killdeer Lane. (Sheet A3 Existing Conditions/Demolition-Attachment H) These critical slopes are to be disturbed

predominantly to construct frontage improvements (street widening, tree planting strips, and sidewalks) along the existing public streets.  The table below summarizes the critical slope data:

 

 

 

Areas

Acres

Total site

6.68

Critical slopes

4970 sf

1.7% of site

Critical slopes disturbed

4320 sf

87% of critical slopes

 

 

 

 

Compliance with Section 18-4.2 of the Zoning Ordinance:

 

movement of soil and rock”:  Proper slope construction, control of drainage, and vegetative stabilization will prevent any movement of soil.

 

“excessive stormwater runoff”:  Stormwater runoff will be managed by the stormwater management facilities designed and approved in accordance with the Water Protection Ordinance.

 

“siltation”:  Inspection and bonding by the County will ensure siltation control during construction. Proper stabilization and maintenance will ensure long term stability.

 

“loss of aesthetic resource”:  A portion of critical slopes that will be impacted by the street and pedestrian improvements are within a wooded pocket located in the southwestern corner of the property and adjacent to Killdeer Lane.  A potential realignment of Killdeer Lane that could improve interconnectivity between this development, the proposed Jarman Hill (to the west), and the undeveloped Ballard Field parcel (to the south) would have additional impact to the critical slopes and trees in this area (see attached map).  The critical slopes on this property are not identified in the Open Space Plan or Crozet Master Plan Green Infrastructure Map.

 

Summary

Based on the review above, there are minimal staff concerns for the disturbance of the critical slopes anticipated with this development and approval of this request will allow the provision of street widening, tree planting strips, and sidewalks along the existing public streets.  

 

Staff recommends approval of this modification of Section 4.2.3 with appropriate replanting standards if trees are lost to screen the adjoining property.

 

 

Planting Strips Waiver

A waiver to Section 14-422 D of the Subdivision Ordinance for planting strips is requested for the street section around the community green at the end of Haden Place. A planting strip is not provided between the sidewalk and curb, as required by the Subdivision Ordinance and a waiver is necessary to achieve this design. As authorized by Section 14-222F(2),  the commission shall consider certain criteria in granting the waiver.

 

In reviewing a request to waive any requirement for planting strips, the commission shall consider whether:

 

(i) a waiver to allow a rural cross-section has been granted;

 

The applicant is not requesting rural cross-sections for the private street called Haden Place.

 

(ii) a sidewalk waiver has been granted;

 

A sidewalk is provided along the street around the open space green and a waiver is not requested.

 

(iii) reducing the size of or eliminating the planting strip promotes the goals of the comprehensive plan, the neighborhood model, and the applicable neighborhood master plan; and

 

Eliminating the planting strip along the street circling around the green allows the applicant to achieve the unique design requested for Haden Place. A center planted median and community green are provided internal to the street as a substitution for the planting strip.

 

(iv) waiving the requirement would enable a different principle of the neighborhood model to be more fully achieved. In approving a waiver, the commission shall find that requiring planting strips would not forward the purposes of this chapter or otherwise serve the public interest; and granting the waiver would not be detrimental to the public health, safety or welfare, to the orderly development of the area, and to the land adjacent thereto.

 

Staff believes planting strips are not necessary along the street circling the community green given the unique character of the street in this location. Planting strips may also crowd this area. Staff believes that granting the waiver would not be detrimental to public health, safety, or welfare, affect orderly development, contradict sound engineering practices or negatively affect adjacent land.

 

Staff recommends approval of the planting strip waiver and recommends that pedestrian crossings be provided from the sidewalks on both sides of the community green, connecting to the green.

 

 

Private Street Request:

With this development, the applicant is requesting approval of a private street under Section 14-233 of the Subdivision Ordinance for the street referred to as Haden Place on the application plan.

 

According to Section 14-233 of the Subdivision Ordinance,

 

The Commission may authorize a subdivision to be developed with one (1) or more new private streets in the following circumstances:

 

1.      Neighborhood model development. The proposed private street(s) would enable the principles of the neighborhood model to be more fully implemented

 

 

2.      than could be achieved with a public street, without diminishing other principles of the neighborhood model, in the following circumstances:

 

(i) the subdivision would have a streetscape more consistent with the neighborhood model;

 

The private street serves the residential units internal to the development and allows the proposed median and open space green which are features that would be privately maintained by the homeowners association.

 

 

(ii) the subdivision design would allow it to better achieve the density goals of the comprehensive plan;

 

The subdivision design is not essential to obtain maximum density recommended by the Crozet Master Plan.

 

(iii) rear vehicular access to buildings would be provided so that the buildings may face a common amenity;

 

The applicant is proposing an amenity central to the private street which units would face. The applicant has designed Haden Place to create a “closed canopy” between blocks C and D as described in the Code of Development.

 

(iv) a significant environmental resource would be protected; 

 

No environmental resources are present at this location.

 

(v) or relegated parking would be provided to a greater extent than could otherwise be provided.

 

Relegated parking is provided on all lots and this criteria is met.

 

 

The agent and the commission may authorize one or more private streets in a subdivision if it finds that one or more of the circumstances described in sections 14-232 or 14-233 exist and it determines that:

 

1. The private street will be adequate to carry the traffic volume which may be reasonably expected to be generated by the subdivision.

The County Engineer assures that the private street will be adequate to carry the traffic volume expected but is subject to final design approvals from all agencies such as Fire Rescue.

 

2. The comprehensive plan does not provide for a public street in the approximate location of the proposed private street;

The Crozet Master Plan does not provide for a north-south public street at this location.

 

3. The fee of the private street will be owned by the owner of each lot abutting the right-of-way thereof or by an association composed of the owners of all lots in the subdivision, subject in either case to any easement for the benefit of all lots served by the street;

 

 

This requirement will be met.

 

1.      Except where required by the commission to serve a specific public purpose, the private street will not serve through traffic nor intersect the state highway system in more than one location; and

The proposed private street does not serve through traffic nor intersect a public street in more than one location. It will primarily serve visitors to Haden Place as resident parking will be provided from the rear alleys. It will connect with the street shown on the application plan as “Proposed Connector Road”, which will be a public street connecting Haden and Killdeer Lanes.

 

2.       If applicable, the private street has been approved in accordance with section 30.3, flood hazard overlay district, of the zoning ordinance and other applicable law.

The private street is not located in a flood hazard overlay district.

 

 

 

OUTSTANDING ISSUES

Revisions are needed in the Code of Development and Application Plan are needed to clarify and to provide additional information, such as setback regulations, block layout, land use information, identification of affordable units, labeling of street improvement, and to correct height limit regulations. The proffers do not meet current affordable housing policy and require further revisions. The latest revised version of the proffers has not been reviewed by the County Attorney.

 

 

SUMMARY

 

Staff has identified the following factors, which are favorable to the rezoning request:

  1. The project positively addresses the principles of the Neighborhood Model with specific emphasis on a pedestrian orientation, neighborhood friendly streets and paths, parks and open space, and relegated parking.
  2. Density is in keeping with the Crozet Master Plan, at the upper end of the range suggested in the Plan.
  3. The property relates to two centers---Downtown Crozet and the future Old Trail Village Center and it is located within walking distance to Downtown Crozet. The property fits within the context of the existing and emerging fabric of the western part of Crozet.

 

Staff has identified the following factors which are unfavorable to this request:

  1. Proposed moderately priced housing does not meet the County’s definition of affordable housing.
  2. Revisions are needed to the code of development, application plan, and proffers.

 

 

RECOMMENDATION

If the Planning Commission and Board of Supervisors agree with staff’s interpretation of affordability and density, then staff recommends approval provided: 

o        The affordable housing proffer is modified to conform with the County’s Affordable Housing Policy in the Comprehensive Plan.

o        The recommended technical changes are made to the application plan, code of development and proffers as listed in the reviewer comment letter to the applicant, Attachment J.

 

 

Waiver Recommendation:

Staff recommends approval of the two requested waivers for critical slopes and planting strip requirements around the street circling the community green at the end of Haden Place.

 

 

Private Street Request:

Staff recommends approval of the private street request for the street called Haden Place on the application plan.

 

 

 

 

 

 

 

 

ATTACHMENTS

 

A.      Location Map-Aerial/Topography

B.     Location Map-Crozet Master Plan

C.     Planning Commission Minutes for Haden Place Work Session-September 13, 2006 meeting

D.     Haden Place Proffers, dated June 27, 2006

E.     Fiscal Impact Analysis, dated June 29, 2006, prepared by Steven A. Allshouse, Fiscal Impact Analyst

F.      Diagram of Possible Future Road Interconnections

G.    Haden Place Code of Development, dated June 14, 2006, prepared by Rivanna Engineering and Surveying

H.     Haden Place Application Plan, revision date June 13, 2006, prepared by Rivanna Engineering and Surveying

I.        Summary of Existing and Potential Residential Units in Community of Crozet

J.      Letter to Kelly Strickland, dated July 6, 2006-Outstanding revisions needed to Haden Place Code of Development, Proffers, Application Plan

 

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