ARLINGTON COUNTY, VIRGINIA

Transcription

1 ARLINGTON COUNTY, VIRGINIA County Board Agenda Item Meeting of July 10, 2004 DATE: June 24, 2004 SUBJECT: A. GP GENERAL LAND USE PLAN AMENDMENT from Semi- Public (Country Clubs and semi-public recreational facilities. Churches, private schools and private cemeteries (predominant use on block)) to Medium Density Mixed-Use (3.0 F.A.R. with special provision for up to 1.0 F.A.R. for residential) for the block bordered by North Highland Street, North Hartford Street, and 13th Street North in the Clarendon Metro station area. B. Z REZONING from C-3 General Commercial Districts and R- 5 One-Family, Restricted Two-Family Dwelling Districts to C-R Commercial Redevelopment Districts or C-3 General Commercial Districts; premises known as 1210 N. Highland St. (RPC # ). C. SP #384 SITE PLAN for approximately 118 dwelling units, and parking garage; premises known as 1210 N. Highland St. (RPC # ). Applicant: 1210 North Highland Street Arlington, Virginia By: Arlington Partnership for Affordable Housing 2704 North Pershing Drive Arlington, Virginia C.M. RECOMMENDATION: Defer the following items to the September 7, 2004 Planning Commission meeting and the September 18, 2004 Count Board meeting: A. Consideration of the General Land Use Plan Amendment from Semi-Public to Medium Density Mixed-Use. County Manager: County Attorney: Staff: Freida Wray, Planning Division, DCPHD Jennifer Smith, Planning Division, DCPHD David Cristeal, Housing Division, DCPHD David Goodman, Planning Division, DES PLA-3729

2 B. Consideration of the rezoning request from C-3 General Commercial Districts and R-5 One-Family, Restricted Two-Family Dwelling Districts to C-R Commercial Redevelopment Districts or C-3 General Commercial Districts. C. Consideration of the site plan request for approximately 118 dwelling units, and parking garage. ISSUES: What type of development would most appropriately further County plans and policies for land use, building form and preservation, and affordable housing? SUMMARY: The proposes to redevelop the church site to construct an approximately 103-foot tall mixed use church and residential development that would preserve the existing church steeple and narthex, reconstruct the church, and provide 118 rental units of which approximately 45 percent would be affordable to households earning 60% of the area median income. The site plan also includes the retention of the existing educational building and day care uses on the northern portion of the block adjacent to 13 th Street. Associated with this site plan is a request to amend the block's General Land Use Plan (GLUP) designation from "Semi-Public" to "Medium Density Mixed Use", and to rezone the block from "C-3" and "R-5" to "C-R". This report is intended to present the project as proposed by the applicant in the context of relevant County plans and policies, and to establish the parameters for the appropriate building form if it is determined that redevelopment is appropriate for the site. The issues that will be further discussed include: Land use and zoning Building form, design and preservation Affordable housing Additionally, this project is coming forward while the County is involved in a major review of the Clarendon Sector Plan. Staff recommends that the proposal be deferred to allow additional time needed to evaluate the issues, and to allow the applicant time to respond to the issues. Therefore, it is recommended that the proposed GLUP Amendment, rezoning and site plan be deferred to the Planning Commission meeting on September 7, 2004 and the County Board meeting on September 18, BACKGROUND: The (FBCC) has served the Clarendon community for 95 years. The existing church sanctuary, located adjacent to North Hartford and Highland Streets, was built in the early 1950 s. The educational wing located adjacent to 13 th Street was built in the early 1960 s. The is desirous of expanding its ministry to serve the broader needs of the Arlington community through the provision of a mixed-income market rate and affordable residential development. This proposal would also enable the church to continue its mission in the Clarendon area. In order to accomplish this, the applicant is proposing to amend the General Land Use Plan (GLUP) from Semi-Public to Medium Density Mixed-Use and rezone the block from C-3 and R-5 to C-R. The proposed site plan would include a new GP , Z & SP #

3 multi-story residential development with approximately 45 percent of the units at affordable rental levels, construction of a new church sanctuary including retention of the existing church steeple and narthex, and retention of the existing 3-story educational building adjacent to 13 th Street which houses seminary/christian education and day care/child development uses. The following provides additional information about the site and location: Site: The site is located in the triangular block bounded by North Hartford, Highland and 13 th Streets. Adjacent to the site include the following: To the north: Across 13 th Street, the Lyon Village residential neighborhood, designated Low Residential (1-10 units/acre) on the GLUP and zoned R-6. To the west: Across North Hartford Street, the Hartford mixed-use office (9 stories) and residential (6 stories) site plan, designated Medium Density Mixed- Use on the GLUP and zoned C-R ; a park and single family dwelling, designated Public on the GLUP and zoned C-3. To the east: Across North Highland Street, a 7-story office building currently occupied by the Arlington County Department of Human Services, designated Medium Density Mixed-Use on the GLUP and zoned C-3 ; and a 2-story commercial structure, designated Low Residential (1-10 units/acre) on the GLUP and zoned R-5. To the south: The Wilson Boulevard intersection and the Clarendon Metro Station across Wilson Boulevard. Zoning: The site is currently zoned a combination of C-3 (southern portion of block) and R-5 (northern portion of block adjacent to 13 th Street). The applicant s original request was to rezone the block to either all C-3 General Commercial Districts or all C-R Commercial Redevelopment Districts. The applicant has since amended its request to rezone the block to C-R. Land Use: The site is designated on the GLUP as Semi-Public (Country clubs, semi-public recreational facilities, churches, private schools and private cemeteries) and is located within the Clarendon Metro Station area. The applicant has requested a GLUP amendment to Medium Density Mixed-Use (3.0 FAR with special provision for up to an additional 1.0 FAR for residential). Neighborhood: The site is located within the Lyon Village Citizens Association. However, several other civic associations are in close proximity including Lyon Park Citizens Association, Ashton Heights Civic Association and Clarendon-Courthouse Civic Association. GP , Z & SP #

4 Proposed General Land Use Plan Amendment: The General Land Use Plan is the primary policy guide for the future development of the County. Since its original adoption in 1961, the Plan has been updated and periodically amended to more clearly reflect the intended use for a particular area. The Plan may be amended either as part of a long-term planning process for a designated area or as a result of an individual request for a specific change. Prior to 1974, the General Land Use Plan designated this block as General Commercial. In 1974 the County Board approved a GLUP Amendment designating this block as Semi- Public to recognize the existing church uses on the site. The applicant has requested a General Land Use Plan Amendment from Semi-Public (Personal and business services generally one to three stories, maximum 1.0 F.A.R.) to Medium Density Mixed-Use (3.0 FAR with special provision for up to an additional 1.0 FAR for residential). The following table summarizes the maximum development permitted under the existing Semi-Public designation and the proposed Medium Density Mixed-Use designation. Existing GLUP Density Allowed Maximum Development Semi-Public The General Land Use Plan designation does not set forth parameters for development density. The designation lists types of uses and associated zoning districts ( S-3A and S-D ). As regulated by: S-3A zoning district 45 height limit (35 for single family dwellings); 56% coverage; 6,000 sf minimum lot area (3 acres for single family dwellings). S-D zoning district 45 height limit; 56% coverage; 1 acre minimum lot area (6,000 sf for one-family 1.0 FAR; 1.5 FAR for nursing homes, elderly housing by site plan. Proposed GLUP Density Allowed Maximum Development Medium Density Mixed-Use 3.0 FAR with Special Provision for up to an additional 1.0 FAR for residential 170,668 sq. ft. Proposed Rezoning: The subject site is currently zoned both C-3 General Commercial Districts and R-5 One-Family, Restricted Two-Family Dwelling Districts. The area zoned C-3 (17,602 sq. ft.) permits commercial development based on the form and placement of development rather than an amount calculated by density or floor area ratio. The C-3 district permits commercial development at a height not to exceed 75 feet, except by site plan. The floor area shall not exceed the number of square feet that results from compliance with the requirements stated in the Zoning Ordinance with no less than nine (9) feet between GP , Z & SP #

5 floors, except by site plan. Ten percent of the total site area is required to be landscaped open space. Further, parking would be required at one space per 250 sq. ft. of area on the first floor and one space per 300 sq. ft. of area in the basement and floors 2-5. The area zoned R-5 (25,065 sq. ft.) permits one-family dwellings at a maximum density of 8.7 units per acre with a minimum lot size of 5,000 square feet, a height not to exceed 35 feet, and two (2) parking spaces per dwelling unit. The applicant originally requested rezoning the R-5 portion of the site to either C-3 or C-R Commercial Redevelopment Districts. The applicant has amended the rezoning request and has requested to rezone the entire site area to C-R, which would permit a maximum density of 3.0 FAR for commercial uses and up to 4.0 FAR if residential uses are provided. Both zoning districts are consistent with the proposed Medium Density Mixed- Use GLUP designation. The following table summarizes the maximum development permitted under the existing and proposed zoning classifications. Existing Zoning Density Allowed Maximum Development C-3 (17,602 sf) By right: Commercial development up to 75 feet in height without an FAR regulation and/or up to 7 residential units per acre at 6,000 sq. ft. per lot. By right: Approximately 74,250 sf commercial development (as indicated by the applicant), or 2 dwelling units. R-5 (25,065 sf) By site plan: 3.0 FAR with Special Provision for up to an additional 1.0 FAR for residential. By right: One-family dwellings at 8.7 units/acre (5,000 sq. ft. per residential lot) By site plan: The site area does not meet the threshold for site plan development, with is a minimum site area of 20,000 sf. Residential Density: 5 units Applicant Proposed Zoning Density Allowed Maximum Development C-R (42,667 sf) 3.0 FAR with Special Provision for up to an additional 1.0 FAR for residential 170,668 sq. ft. Proposed Development: The following table sets forth the statistical summary for the project. SITE AREA C-3 R-5 Density Residential G.F.A. Residential F.A.R. Day Care/Educational Uses 42,667 Square Feet (.98 acre) 17,602 square feet (.40 acre) 25,065 square feet (.58 acre) 102,981 square feet F.A.R. 42,208 square feet GP , Z & SP #

6 Church Offices & Sanctuary 24,662 square feet Total non-residential G.F.A. 66,870 square feet Total non-residential F.A.R F.A.R. Total Residential and Non-Residential G.F.A. 169,851 square feet Total Residential and Non-Residential F.A.R F.A.R. C-R Total Permitted G.F.A. (by site plan) 170,668 square feet "C-R" Total Permitted F.A.R. (by site plan) F.A.R. Total Residential Units 118 units Affordable Units 53 units Building Height Average Site Elevation feet Main Roof Elevation feet Main Roof Height feet Penthouse Roof Elevation feet Penthouse Roof Height feet Number of stories 10 stories "C-R" Permitted Height 125 feet by site plan 2 Parking 157 spaces Total Residential Parking 118 spaces Residential Compact Parking 0 Residential Parking Ratio 1 space per unit "C-R" Required Residential Parking 118 spaces "C-R" Required Residential Parking Ratio 1 space per unit Total Day Care/Ed./Church Parking 39 spaces 3 Day Care/Ed./Church Compact Parking 0 C-R Required Church/Ed. Parking 1 space per 5 sanctuary seats. 4 Use Permit Required Day Care Parking Coverage 65 percent LEED Score 19 points Density and Uses: The proposed site plan includes a mixed use development that would retain the church use and existing educational facilities, and incorporate a new residential structure. A new church would be constructed, but would preserve the existing church steeple and narthex. The new church sanctuary would be two (2) stories in height, have fewer seats (reduced from 1 The maximum permitted FAR is 4.0 FAR. The maximum permitted office FAR is 3.0 FAR. 2 Under the by-right provisions of Section 27A.D.1., the height may be increased to 110 feet to achieve a taper in height from adjacent R or RA zoning districts: When a structure is greater than 165 feet from an R or RA zoning district, height may be increased by one foot for every 3 feet beyond 165 feet, up to a maximum of 110 feet. Under Section 27A.I, the County Board may vary the Zoning Ordinance by-right standards for height: for office buildings when a site plan includes an entire block; and when a site plan preserves a building in accordance with Subsection D.2., which is designated as a contributing building eligible for preservation in an adopted revitalization district. 3 These spaces would be dedicated to residential visitors, church, educational and day care uses in a shared parking arrangement. 4 Notwithstanding other sections of the Zoning Ordinance, required parking for churches may be located on a parking lot which is accessory to another principal use which is not open or operating on the days of the week on which the church sanctuary is regularly used if said lot is either located within 600 feet by the shortest route of effective pedestrian access GP , Z & SP #

7 800 to 300 seats), and would be ADA accessible. The existing 3- to 4-story educational building located at the rear of the site adjacent to 13 th Street would also be preserved. The building would continue to house seminary and Christian education programs. The use permit (U ) that currently exists on the site for day care and child development programs for 185 children would continue. The new residential structure would be constructed above the 2-story church base. It would contain eight (8) floors and 118 mixed-income rental units (60% market-rate and 40% affordable). The total project density is 3.98 FAR. The proposal includes 157 parking spaces located in four (4) levels of underground garage. Site and Design: The applicant recently submitted revised drawings of the site plan in response to comments received at the Site Plan Review Subcommittee (SPRC) and the Historic Affairs and Landmark Review Board (HALRB) meetings. The revisions have not been fully analyzed by staff or reviewed by the SPRC and HALRB. The existing church and educational buildings currently cover the entire site. In the revised drawings the buildings would be connected by a transparent corridor that also provides access to the internal courtyard located between the buildings. The courtyard would also serve as open space for the child development center. There are a number of pedestrian entries to the buildings from all surrounding streets. The primary entrance to the church would be from the narthex located adjacent to the intersection of North Hartford and Highland Streets. The narthex and steeple (approximately 40 feet in depth) would be preserved. The balance of the structure would be designed to take advantage of the existing building s placement to the street. The building s 2-story base would be designed to complement the existing church frontage, and its façade would consist of red brick. The residential component above the base would be constructed to a height approximately four (4) feet shorter than the church steeple, while the penthouse structure appears to be of similar height as the steeple. In the revised drawings the residential tower is set further back from the steeple (the dimension of the set back is not provided) and steps up to the main roof. The building height remains approximately 103 feet. Vehicular access to the site would be from one curb cut adjacent to North Hartford Street. The proposal would improve the streetscape to the current standards (13-foot wide sidewalks including 5-foot wide planting strips or tree pits). LEED Scorecard: With this proposal, the applicant indicated 19 LEED points on the scorecard. Transportation: The Master Transportation Plan classifies 13 th Street and Highland Street as neighborhood-principal streets and Hartford Street as a neighborhood-minor street. There is onstreet parking adjacent to the site along all three frontages. On-street parking is currently prohibited along the easternmost portion of Hartford Street across from the site. Trip Generation: A Traffic Impact Analysis (TIA) submitted by the applicant, prepared by Wells & Associates, dated February 12, 2004, assessed the impacts of the development on the adjacent street system. The proposed 118 unit development, along with 66,870 sf. of church, education and day-care, is estimated to generate 27 more AM and 37 more PM peak hour vehicle trips than existing traffic. (However, the proposal generates 98 fewer AM and 92 fewer PM peak trips than GP , Z & SP #

8 the by-right office use.) Development of this project will not significantly change the existing levels of service for the affected intersections. Streets: Highland Street varies in width adjacent to the site, from approximately 46 feet face-ofcurb to face-of-curb for its southern half to 35.5 feet for its northern half. The existing street section includes 15 feet of travel lanes each way, with 8 feet of parallel parking on both sides, including gutter. The applicant proposes changing the northern portion from 35.5 feet to 34 feet by narrowing the parking lane. At its bulb-out location it will be narrowed to 28.5 feet. The southern portion s proposed section will be reduced from 46 feet to 36 feet by the creation of an extended bulb-out with street trees. (see: Pedestrian Access, below). This section will include 7- foot parallel parking lanes and 11-foot travel lanes. North Hartford Street measures approximately 35.5 feet from face of curb to face of curb. The existing street section includes 10 feet of southbound lanes and 8 feet of parallel parking including gutter adjacent to the dog park, with no parking posted adjacent to the Hartford residential building, and 10 feet of northbound lanes and 8 feet of parallel parking including gutter. The applicant proposes narrowing the street s mid-block dimension from 35.5 feet to 34 feet by narrowing the parking lanes. The street will be narrowed an additional 5.5 feet to 28.5 feet at bulb-out locations. (see: Pedestrian Access, below). North 13 th Street eastbound measures between 23 feet and 24 feet from face of curb to the median adjacent to the site. The existing street section includes 15.5 feet of eastbound lanes and 8 feet of parallel parking including gutter. The applicant proposes narrowing the eastbound travel lane to 10 feet next to a 1-foot shy zone adjacent to the median and narrowing the parking lane to 7 feet. The remaining space will be used to widen the existing sidewalk, (see: Pedestrian Access, below). This proposed redesign can be further developed to include a completely rebuilt street section consistent with the long term redevelopment plan for 13 th Street N. as a standard residential street by removing the median and bringing its northern curb in to match the eastbound travel and parking lane dimensions. Pedestrian Access: Highland Street: On the west side, the existing sidewalk width varies from 3.5 to 4.5 feet with utility poles embedded along the curb. The east side has a combination of 8.5-foot wide sidewalk on its southern portion and 4.5 feet on its northern portion. The applicant proposes constructing a sidewalk width adjacent to the property of 12.5 feet (4.5-foot wide tree well and 8-foot wide clear walkway), including Carlyle lights. The applicant would also construct a bump-out at the corner of N. Highland Street at 13 th Street N. and an extended bump-out approximately 160 feet long along its southern portion adjacent to the property. In addition, the applicant would construct a handicap ramp and a 12-foot wide crosswalk of materials approved by the County, between the DHS parking garage and surface lot across N. Highland Street at the extended bump-out. Hartford Street: Adjacent to the site, the existing sidewalk width varies from 3.0 to 4.5 feet. The opposite side has a 10-foot wide sidewalk including street trees, plus a 1.5-foot wide landscaped zone. The applicant proposes constructing a sidewalk adjacent to the property of 10.5 feet (4.5- GP , Z & SP #

9 foot wide tree well and 6-foot wide clear walkway), including Carlyle lights. The applicant would construct a bump-out for the corner of N. Hartford Street at 13 th Street N. and an extended bump-out approximately 160 feet long along its southern portion adjacent to the property. The applicant would also construct handicap ramps and 12-foot wide crosswalks of materials approved by the County, across N. Hartford Street at the 13 th Street N. bump-out and at the extended bump-out to the north side of Festival Street, as well as at the southern corner, crossing in a direction parallel to Highland Street. 13 th Street: Adjacent to the site, the existing sidewalk width varies from 4 feet to 5 feet. The applicant proposes constructing a sidewalk adjacent to the property of 10.5 feet (4.5-foot wide tree well and 6-foot wide clear walkway), including Carlyle lights. The applicant would construct bump-outs at the corners of N. Highland Street and N. Hartford Street. The applicant would also construct a handicap ramp and 12-foot wide crosswalk of materials approved by the County, across 13 th Street N. at the easternmost bump-out. The applicant proposes to provide a time-restricted vehicular drop-off zone in the parallel parking spaces adjacent to the property on the southbound side of N. Highland Street to accommodate the day care use, which staff supports. Access to the underground parking garage would be restricted to a 22-foot wide curb cut on N. Hartford Street and access to the off street service and loading area would be restricted to a 16-foot wide curb cut on N. Hartford Street. Space would be provided between the parking and service access zones to accommodate one parallel parking space. Public Transit: Metrorail orange-line service is available approximately 450 feet (.085 miles) from the site at the Clarendon Metro Station. Public bus transportation is also available adjacent to the site on Wilson Boulevard. Metrobus 38B provides service to Farragut Square and route 24P provides service to the Pentagon Metro Station, while ART 41 provides services to Court House and to Columbia Heights. ART 66 provides a free lunchtime shuttle to Courthouse and ART 67 provides a free lunchtime shuttle to Virginia Square and Ballston. Bicycle Access: An on-street bicycle route is signed along Hartford Street to the north and nearby Wilson Boulevard has designated on-street bike lanes. Utilities: Adequate sanitary sewer capacity is available to serve the proposed development. A new 12 sewer line in 13 th Street N. would need to be connected to the existing line at North Herndon Street to accommodate this development. The applicant would also need to construct a new 8 water supply line along N. Hartford Street from 13 th Street N. to N. Highland Street. The applicant has agreed to design and construct these additional water and sewer lines. DISCUSSION: Adopted Plans and Policies: The General Land Use Plan, Clarendon Sector Plan, and Clarendon Sector Plan-Addendum A guide development on this site. GP , Z & SP #

10 General Land Use Plan: The subject site is designated as Semi-Public on the General Land Use Plan to recognize the existing church uses on the site. The typical uses identified under this designation include country clubs, semi-public recreational facilities, churches, private schools, and private cemeteries (as the predominant use on the site). The applicant is requesting a change to the General Land Use Plan from Semi-Public to Medium Density Mixed-Use. Although the was not officially included in the Clarendon Revitalization District boundary or designated as Medium Density Mixed-Use on the GLUP, it does not preclude the County Board from considering the proposed change. At this time, staff is reviewing this request to determine if this is an appropriate land use designation for this site. Staff will be considering the types of uses, form, character, and density this land use plan designation creates and its compatibility with surrounding land uses Clarendon Sector Plan: The County Board adopted the Clarendon Sector Plan in May 1984, to guide future development in the Clarendon Metro Station Area. Foremost among the issues investigated was the commercial zoning district C-3. Following the creation of the Medium Density Mixed Use GLUP designation in 1982, the C-R district was adopted on May 13, 1984, to encourage medium density mixed use development, to recognize existing commercial rights, and to provide tapering of heights between higher density office development and lower density residential uses. The district was available for use in areas designated Medium Density Mixed-Use and zoned C-3. In 1984, the Clarendon Sector Plan included the property in the C-R Area Boundary. The boundary was intended to indicate where the future C-R Zoning District could be applied. Building heights and tapering guidelines were indicated in the 1984 plan and indicated a 55 height limit for the southern portion of the church property. However, in July 1984, when amendments to the GLUP were identified for many of the core areas of Clarendon to Medium Density Mixed-Use per the Sector Plan recommendation, the property was not included among those changes and therefore the County Board did not approve any changes to the GLUP for the church site Clarendon Sector Plan Addendum: The County Board adopted the Clarendon Sector Plan Addendum on May 19, It establishes the guidelines for creation of an urban village in Clarendon. On July 7, 1990, the General Land Use Plan was amended to create the Clarendon Redevelopment Overlay District (later renamed Clarendon Revitalization District), which provides the framework for achieving the refined vision and goals of the urban design concept plan for Clarendon. Also on July 7, 1990, the County Board approved amendments to the C-3 and C-R zoning districts. The amendments to the C-3 district introduced a new site plan option which included C-R regulations as a base and added incentives and new urban design requirements. The amendments to the C-R district included urban design criteria within the by-right development requirements and added a new site plan option as a means to achieve the redevelopment goals for the area. The 1990 Clarendon Sector Plan Addendum indicates the Semi-Public GLUP designation for this block. When the Clarendon Revitalization Overlay District was formally created on the GLUP, the site was not included. The Sector Plan Addendum GP , Z & SP #

11 recognized the existing church use and did not envision the block changing from its church use or as a site that would likely redevelop. Therefore, the Sector Plan Addendum does not indicate height limits or specify required retail frontage for this subject block. However, if the GLUP designation were changed to Medium Density Mixed-Use, the building height and tapering requirements of the sector plan and as set forth in the C-R or C-3 zoning districts would apply or would provide additional guidance to the County Board on an appropriate building form and character consistent with the contextual environment and the goals of the Clarendon Sector Plan and Addendum. The site plan proposal does not currently follow the tapering requirements outlined in the Addendum and would require modifications by the County Board. Clarendon Sector Plan Update: In late 2002, the County Board appointed a task force to lead the community process for the sector plan update. It is anticipated that this process would take approximately 12 to 18 months. A proposed sector plan update is anticipated go to the County Board for review and adoption in early Retail Action Plan: Although the Retail Action Plan, adopted by the County Board on May 19, 2001, indicates that retail uses are encouraged but not required along 12 th Street North, or referred to as Festival Street in the Clarendon Sector Plan Addendum, recent planning, design, and construction events have modified the intent of this new street. Recently, a stronger emphasis has been to refocus retail frontages along main streets such as Wilson Boulevard in this specific area. Zoning Ordinance: Two zoning districts, R-5 and C-3, exist on this subject site. Staff is currently analyzing if a rezoning is appropriate and if so, which zoning districts or combination of zoning districts would be appropriate. By-right redevelopment of the property is not desired because it does not afford the County and community the opportunity to review the proposed plans or the ability to obtain community benefits such as streetscape improvements, utility undergrounding, and affordable housing. However, if a change to the General Land Use Plan is approved, rezoning the subject site area or a portion of the site area may be appropriate to shape the proposed project in a manner consistent with the intent of the Clarendon Sector Plan and Clarendon Sector Plan Addendum. Issues: As indicated by the applicant, the objective of this redevelopment proposal is two-fold: to provide a mixed-income market-rate and affordable residential development, as well as an opportunity for the (FBCC) to address the diminished structural conditions and financial capacity to meet growing operating costs. The proposed site plan would re-build the church sanctuary and related uses, and retain the educational and day care uses within the existing older building located on the northern portion of the block. The costs of relocating the day care use and redeveloping the entire block would not be economically feasible for the church. Throughout the public review, the discussion has focused on three broad issues: land use and zoning; building form, design, and preservation; and affordable housing. The discussion below summarizes the issues and establishes the parameters for appropriate redevelopment of the site. GP , Z & SP #

12 Land Use: The County has established a long standing policy to concentrate the densest development nearest to the Metro station and to taper development up from existing singlefamily neighborhoods. For the Clarendon Metro station area, the County Board approved the Clarendon Revitalization District, the Medium Density Mixed-Use GLUP designation, and corresponding zoning districts ( C-R and C-3 Special Exception Site Plan options) to permit density in the form and character consistent with the vision and concepts expressed in the Clarendon Sector Plan and Clarendon Sector Plan Addendum. In evaluating the redevelopment of the property, staff would consider a form, character, and use mix that is compatible with adjacent properties and the goals and objectives of the General Land Use Plan, Sector Plan, and other adopted policies and objectives. Adjacent properties to the east and west along North Highland and Hartford Streets, respectively, are designated Medium Density Mixed-Use. This GLUP designation provides for the following: A mixed use development project. Medium density uses within close proximity to the Clarendon Metro station. Ability to utilize the site plan options in the C-R and C-3 zoning districts. Guidance on form, building height, step backs, setbacks, and parking requirements outlined in the Clarendon Sector Plan Addendum and Zoning Ordinance. A land use pattern and corresponding zoning districts that offer a transition in building height and density from single-family neighborhood districts to high-density office, apartment and hotel designations. In general, staff considers at this time that the Medium Density Mixed-Use GLUP designation on the subject site would provide a use and form that would be compatible with the adjacent properties. Zoning: While the 1984 Clarendon Sector Plan envisioned that the subject site would be included within the "C-R" Commercial Revitalization District, it was not adopted in the GLUP. Inclusion in the Commercial Revitalization District is not required for the site to be rezoned to C-R. However, the site must be designated Medium Density Mixed-Use on the GLUP. By right, C-3 permits commercial buildings up to 75 feet in height, and C-R permits a mix of uses up to 55 feet in height except that the building height may increase to 110 feet if the site falls under the tapering rules. By site plan, C-3 permits a height up to 110 feet if the tapering rules are applied, and the specific height requirements of the C-R district may be modified. For both C-3 and C-R, the County Board may vary the height and/or tapering requirements to achieve a maximum height of 125 feet. Under the tapering provisions, building heights may be increased by 1 foot for every 3 feet beyond 165 feet from a R or RA zoning line up to a maximum height of 110 feet. The subject block is bounded by the "R-6" zoning district to the north along 13 th Street and the "R-5" zoning district to the east along North Highland Street. The predominance of the block, with the exception of approximately 40 linear feet (out of 380 linear feet for the block face on North Highland Street) at the southern tip, falls within the 165-foot limitation from either direction of the "R" districts and thus would be limited to 55 feet in height if it followed the tapering GP , Z & SP #

13 provisions. However, as indicated above, the County Board can modify the height and/or tapering requirements. The applicant is requesting to rezone the block to all C-R. Staff recommends that the applicant consider a split zoning to retain the C-3 zoning on the church or southern portion of the block and rezone the rear or northern portion from R-5 to C-R. This concept would have the least adverse impact on the neighborhood and would enable the applicant to redevelop the site. The by-right provisions under C-R would restrict the height to 55 feet and protect the neighborhood across 13 th Street. The by-right provisions under C-3 permit commercial development which staff believes would not be feasible from a financial or marketing perspective, and it would be difficult to meet the requirements for setback and parking. Staff views the split zoning option as being more beneficial for the community and the County, as it would most likely result in redevelopment through the site plan process rather than by right, which would allow greater control over redevelopment of the block. Both the C-3 and C-R site plan options would be consistent with the Medium Density Mixed Use GLUP designation. Staff Proposed Zoning Density Allowed Maximum Development C-3 (17,602 sf) By right: Commercial development By right: Approximately 74,250 up to 75 feet in height without an sf commercial development, or 2 FAR regulation (~74,250 sf) and/or dwelling units. up to 7 residential units per acre at 6,000 sq. ft. per lot (2 units). C-R (25,065 sf) Combined By right: 3.0 FAR with Special Provision for up to an additional 1.0 FAR for residential By site plan: 3.0 FAR with Special Provision for up to an additional 1.0 FAR for residential. 100,260 sf mixed use development C-3 site area subtotal: 70,408 sf C-R site area subtotal: 100,260 sf Total Allowable Development: 170,668 sq. ft. Building Form and Preservation: During the public review, concerns were raised that the proposed development does not fit within the fabric of the surrounding community, and that its transition or taper to the single family neighborhood to the north across 13 th Street was inappropriate. In addition, the church steeple was identified as an important element of the Clarendon Sector Plan area and the building design was viewed as adversely impacting the prominence of the church steeple. It was the consensus of the HALRB that the church steeple and narthex are worthy of preservation and any addition needs to respect the integrity of the preserved steeple and narthex. The HALRB, along with members of the SPRC, encouraged the applicant to redesign the building to adequately compliment and frame the steeple/narthex and the views to the steeple. The HALRB also recommended that the new structure utilize the colonial revival style vocabulary of the original structure and preserved steeple and narthex. The applicant has attempted to address these concerns in its revised drawings by setting the residential tower further back and stepping up to the main roof. However, the applicant has not GP , Z & SP #

14 reduced the building height because of impacts on the affordable housing program. Staff, the SPRC and the HALRB have not had an opportunity to fully evaluate the revised drawings. Staff analyzed the site in relation to surrounding development and the proposed affordable housing program. The height allowances within the existing C-3 zoning district allow a building height of 75 feet by right. Additionally, the southern portion of the site is located adjacent to the 3033 Wilson Boulevard commercial and Hartford residential buildings that have heights of 75 feet (7 stories) and 68 feet (6 stories), respectively. If one were to use distance from the Clarendon Metro station as a guide, these three areas are approximately the same distance from the Metro entrance. The proximity from Metro has been used as a policy guide by the County to determine the concentration of building density and tapering of building heights. Taking these factors into consideration, including the existing allowances in the C-3 zoning, it may be appropriate to consider building heights on the site that exceed the 55 feet height limitation. The County Board has the flexibility to approve heights up to 125 feet. For example, the County Board modified the height requirements to approve the Hudson Building at a height of 120 feet. At this time, staff would suggest to the applicant that a more appropriate building form for this site has a building height of seven (7) to eight (8) stories and a form that tapers down toward 13 th Street North in a similar way that buildings taper down on adjacent blocks to the west. Staff would also propose that tapering to Highland and Hartford Streets is also appropriate. This would provide a transition to the lowdensity building form across Highland Street. If the church steeple is preserved, this tapering along the side streets would also provide a form that is compatible with the tapering of the steeple. Affordable Housing Program: The applicant proposes a substantial affordable housing program that would result in the provision of 53 committed affordable rental units in close proximity to the Clarendon Metro Station. Nearly half of the units (26 of 53), would serve families with children (e.g. units with 2 or more bedrooms). The proposed affordable housing program meets Goals 1, 3, 5, and 6 of Arlington County s Affordable Housing Goals (adopted by the County Board on December 6, 2003): Goal 1, Target 1A (provide assistance to families with children) and Goal 5, Targets 5A and 5B (increase number of housing units with 2 or more bedrooms): 26 of the units would be available to families with children (19 2-bedroom and 7 3-bedroom units). Goal 3, Target 3B and 3C (expand the County s supply of housing and increase the supply of new committed affordable housing units): this development would result in 53 new, committed affordable housing units. Goal 6, Target 6A (distribute committed affordable housing within the County, neighborhoods and projects). The proposed units would be in Neighborhood Service Area (NSA) D (Target is for 60% of new, non-elderly, rental committed affordable housing units in NSA s D, E and H). In order to achieve the proposed affordable housing program, the applicant would need to secure public funds through a number of sources, including tax credits through the Virginia Housing Development Authority (VHDA), the Federal Home Loan Bank, and is requesting $3,998,000 in GP , Z & SP #

15 County AHIF loan funds. The requested AHIF/unit subsidy of $75,434 is among the highest of any recently funded project. Staff has discussed with the applicant several alternative development approaches, including provision of a condominium development. The applicant is unwilling to pursue a condominium option at this time. The table below summarizes the proposed development, as currently proposed. Project Size/# of Units: Unit Mix County AHIF AHIF/Unit Request 10 stories/103 feet/ 118 units 45% affordable $3,998,000 $75,434/unit The applicant has indicated that any type of development that does not provide a substantial amount of affordable rental housing is inconsistent with the church s mission. The applicant has indicated that in order to make the project financially feasible, the number of units should remain at 118, with a mix of 65 market rate and 53 affordable units. A 100% affordable proposal may require a smaller AHIF loan, but includes the assumption that APAH can secure a $5.6 million grant from the Federal Home Loan Bank (FHLB). In addition, the church is committed to providing a mixed-income housing environment rather than one that would be entirely affordable. There are several unresolved financial questions that staff continues to work with the applicant on. The applicant has indicated that it cannot redevelop the northern portion of the block because of the costs associated with relocating the day care use and building a new structure to house the day care and seminary uses. Staff is also working to determine the fair market value of the land portion of the housing component in order reach a reasonable County-funded loan amount for the project proportionate to the number of affordable units provided. The applicant is exploring other cost-saving measures, such as reducing the number of parking spaces and having the County explore a transportation package that could include Smart Card /Metro Passes and access to Zip Cars. Modification of Use Regulations: The applicant has requested a modification of use regulations for a parking reduction for church and community uses. Community Process: The Site Plan Review Committee (SPRC) reviewed this project three (3) times. The project was also reviewed once by the Historic Affairs and Landmark Review Board. PLANNING COMMISSION RECOMMENDATION The Planning Commission voted to defer the GLUP Amendment, rezoning and site plan requests to the Planning Commission meeting of September 7, 2004 and the County Board meeting of September 18, 2004, and recommended that the following issues be further explored: Construction phasing: The applicant was requested to provide a plan to address continuation of the existing day care center. Concerns were raised regarding the impact of construction on the day care center if it remained in its current location. Also, questions were raised about the potential of relocating the day care center during construction, and if so, then where. GP , Z & SP #

16 LEED Score: The applicant was requested to improve their LEED Score to a minimum of 21 points. Project s financial feasibility: The applicant was requested to clarify the financial feasibility of the proposed 10-story building and the staff recommended 7- to 8-story building. The applicant was also requested to clarify the financial impacts of continuing the day care center during construction, for both scenarios in its current location or a different location. Construction type: The applicant was requested to consider a stick-built construction type as a means of lowering the project s construction costs. Process: The question was raised as to whether another process should be utilized to consider the complexities surrounding this proposal. CONCLUSION: There are a number of issues that remain outstanding and require further public review and discussion. Resolution of the issues may require re-evaluation of the proposed affordable housing program and substantial redesign of the project. Additional time is needed to continue the analysis and the public review. Therefore, it is recommended that the proposed General Land Use Plan Amendment, Rezoning and Site Plan be deferred to the Planning Commission meeting of September 7, 2004 and the County Board meeting of September 18, GP , Z & SP #

17 PREVIOUS COUNTY BOARD ACTIONS: August 12, 1961 January 11, 1969 June 4, 1969 June 3, 1970 June 5, 1971 June 3, 1972 June 6, 1973 March 9, 1974 June 5, 1974 December 7, 1974 June 17, 1975 August 2, 1975 June 12, 1976 June 4, 1977 June 3, 1978 Adopts General Land Use Plan indicating General Commercial for the subject block. Approved a use permit (U ) for a child development center for up to 45 children with a review in June Continued use permit (U ) for one (1) year. Continued use permit (U ) for one (1) year. Approved a use permit (U ) to increase enrollment of the child development center to 75 children with a review in one (1) year. Continued use permit (U ) for one (1) year. Continued use permit (U ) for one (1) year. Approved a use permit (U ) for a nursery school for 95 children with a review in June Continued use permits (U ) and (U ) for one (1) year. Approved a General Land Use Plan Amendment from General Commercial to Semi-Public. Continued use permits (U ) and (U ) for one (1) year. Approved a use permit (U ) to increase enrollment for a child development center to 121 children with a review in one (1) year. Continued use permits (U ) and (U ) for one (1) year. Continued use permits (U ) and (U ) for one (1) year. Continued use permits (U ) and (U ) with no further review. GP , Z & SP #

18 September 13, 1980 August 25, 1981 August 7, 1982 August 13, 1983 August 15, 1984 August 15, 1987 August 11, 1990 May 16, 1992 November 14, 1992 November 22, 1993 Approved a use permit (U ) to operate a school from September 2, 1980 to December 22, Approved a use permit (U ) to operate graduate courses with review in one (1) year. Discontinued use permit (U ) to operate graduate courses. Approved use permit (U ) to increase enrollment of a child development center to 150 children. Continued use permit (U ) for a child development center for a maximum of 155 children with a review in three (3) years. Continued use permit (U ) for a child development center for a maximum of 155 children with a review in three (3) years. Continued a use permit (U ) for a child development center with a review in five (5) years. Approved a use permit amendment (U ) to increase enrollment from 155 to 185 children during summer months only to include a summer day camp, with a review in one (1) year. Approved a use permit amendment (U ) to increase year-round enrollment from 155 to 185 children, weekdays, 7:30 a.m. 6:00 p.m.; with a review in one (1) year. Continued a use permit (U ) for a child development center for 185 children with no further review. GP , Z & SP #