PLANNING COMMISSION PUBLIC HEARING

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1 DEPARTMENT OF PLANNING Date of Hearing: AND ZONING STAFF REPORT PLANNING COMMISSION PUBLIC HEARING SUBJECT: ZMAP , SPEX , Continuing Care Facility, Adult Assisted Living SPEX , Continuing Care Facility, Nursing Home SPEX , Storage, Mini-warehouse SPEX , Animal Hospital ZMOD , Parking & Building Setbacks and Buffers ELECTION DISTRICT: Ashburn CRITICAL ACTION DATE: January 23, 2017 STAFF CONTACTS: APPLICANT: Judi Birkitt, Project Manager, Dept. of Planning & Zoning Ricky Barker, AICP, Director, Dept. of Planning & Zoning Allan McKelvie, Goose Creek Retail, LLC PURPOSE: To consider rezoning approximately acres of the 141-acre Goose Creek Village North from Planned Development Office Park (PD-OP) and Planned Development Commercial Center Community Center (PD-CC-CC) to Planned Development Mixed Use Business (PD-MUB). To consider four Special Exceptions: adult assisted living, nursing home, mini-warehouse storage, and animal hospital. The proposed development program consists of up to 402,680 square feet of retail, office, and continuing care uses. The subject property is located in the southwest quadrant of Belmont Ridge Road and Sycolin Road. RECOMMENDATION: Staff supports the Planning Commission forwarding these applications to a work session, when the Applicant has appropriately addressed the outstanding issues, for further discussion for the following reasons: 1) The following topics need additional review and discussion: a. Is the proposed increase of residential uses and decrease of employment uses appropriate, even though it is not fully consistent with the Revised General Plan? b. Is a mini-warehouse storage use a compatible and appropriate use within a walkable, mixed-use environment? Additional design commitments (building CONTENTS OF THIS STAFF REPORT Section Page Section Page Section Page Motions 2 Land Use 16 Utilities/Public Safety 25 Application Information 3 Compatibility 18 Zoning Analysis 25 Context 4 Environmental/Heritage 20 Zoning Modifications 26 Proposal 7 Transportation 20 Conclusions 29 Outstanding Issues 12 Fiscal/Capital Facilities 23 Conditions 30 Policy Analysis 15 Attachments 32

2 Page 2 elevations and pedestrian level streetscape treatments) would help promote compatibility. c. Staff s cursory review of the submitted Design Guidelines (April 2016) reveals that more robust commitments are needed to ensure the high-quality built environment required by the PD-MUB zoning district regulations. d. Are the proposed and surrounding existing amenities and services adequate to serve the proposed independent and assisted living residents? e. Enhanced buffering (along Sycolin Road or elsewhere on the property) and an evergreen hedge to screen parking and/or berming (along Belmont Ridge Road) would help offset the requested Zoning modifications/buffer Yard and setback reductions. f. Staff are currently reviewing the status of the proffers associated with ZMAP and ZCPA to ensure that superseding those proffers would not result in unfilled proffers or a loss of previously proffered contributions/ improvements. 2) Staff are currently reviewing the Applicant s revised submission and Proffer Statement (April 19, 2016) and developing recommended Conditions of Approval. Staff acknowledges that the applications respond to emerging trends for mixed-use development and the declining office market. The proposed applications are not fully consistent with the overall goals and intent of the Business community. SUGGESTED MOTIONS: 1. I move that the Planning Commission forward ZMAP , SPEX , SPEX , SPEX , SPEX , and ZMOD ,, to a work session for further discussion. OR 2. I move that the Planning Commission forward ZMAP , SPEX , SPEX , SPEX , SPEX , and ZMOD ,, to the Board of Supervisors with a recommendation of denial.

3 Page 3 I. APPLICATION INFORMATION APPLICANT Goose Creek Retail, LLC Allan McKelvie, President of DIDC didc@aol.com REPRESENTATIVE Bowman Consulting Group, Ltd. Packie Crown, Principal pcrown@bowmancg.com REQUEST 1. Rezone approximately acres from the PD-OP (Planned Development-Office Park) and PD-CC(CC) (Planned Development Commercial Center (Community Center)) zoning districts under the Revised 1993 Zoning Ordinance to the PD-MUB zoning district under the Revised 1993 Zoning Ordinance in order to develop up to 436,680 square feet of nonresidential uses and up to 367,862 square feet of residential uses with a proposed density of 1.10 Floor Area Ratio (FAR); 2. Special Exception to permit a continuing care facility, adult assisted living in the PD-MUB zoning district; 3. Special Exception to permit a continuing care facility, nursing home in the PD-MUB zoning district; 4. Special Exception to permit a storage, mini-warehouse in the PD-MUB zoning district; 5. Special Exception to permit an animal hospital in the PD-MUB zoning district. The proposed uses are listed as Special Exception uses under Section , Table The Applicant also requests the following Zoning Ordinance modifications: Zoning Ordinance Section Proposed Modification 5-900(A)(9)(a) and (b) Building and Parking Setbacks From Roads, Other Arterial Roads, Building and Parking. Road (A)(10)(a) and (b), Building and Parking Setbacks From Roads, Other Major Collector Roads, Building and Parking. Table (B) of , Buffer Yard and Screening Matrix. Reduce the minimum building setback from 100 feet to 90 feet and reduce the minimum parking setback from 75 feet to 25 feet, respectively, along Belmont Ridge Reduce the minimum building setback along Sycolin Road from 75 feet to 3 feet and reduce the minimum parking setback along Sycolin Road from 35 feet to 12 feet. Modify the minimum required Type 3 Front Buffer Yard width and plantings along Sycolin Road and provide a Type 1 Front Buffer. Modify the minimum required Type 2 Side/Rear Buffer Yard width and plantings along the property boundary that adjoins PIN# (Park and Ride Lot) and provide a 10 Type 1 Side/Rear Buffer. Eliminate the minimum required Type 1 and Type 2 Side/Rear Buffer Yards along the property boundaries that adjoin PIN# (Place of Worship). Eliminate the minimum required Type 1 Side/Rear Buffer Yard along the property boundary that adjoins PIN# (Office).

4 Page 4 PARCELS/ACREAGE Tax Map Number PIN Number Acreage /78//86/////D/ acres (2.47-acre portion) /78/F12///PHE/ acres(14.02-acre portion) /78/F/2////CE/ acres Total Acreage ACCEPTANCE DATE October 13, 2015 ZONING ORDINANCE Revised 1993 POLICY AREA Suburban Policy Area (Ashburn Community) acres LOCATION Southwest quadrant of Belmont Ridge Road and Sycolin Road, north of the Dulles Greenway EXISTING ZONING PD-OP (Planned Development-Office Park) PD-CC-CC (Planned Development (Commercial Center- Community Center)) Quarry Notification (QN) Overlay District - Luck N (Luck Note Area) - portion PLANNED LAND USE Business at a recommended Floor Area Ratio of between 0.40 and 1.0. II. CONTEXT Location/Site Access The subject property is located in the southwest quadrant of Belmont Ridge Road and Sycolin Road, north of the Dulles Greenway. The Dulles Greenway is located approximately 500 feet from the southeastern corner of the subject property. Two entry points from Sycolin Road currently provide access to proposed Century Corner: one full intersection at Century Corner Drive and a second intersection located at Generation Drive that allows for right-in/right-out movements to and from the project. No additional access points are proposed. No access exists or is proposed along Belmont Ridge Road or the Dulles Greenway. Existing Conditions To date, the portion of the originally approved Goose Creek Village North located on the south side of Sycolin Road has developed with a 19,297 square foot office building, a 32,609 square foot church, and a daycare; the current applications exclude these developed buildings. The subject property sits on a ridge above Goose Creek to its west and is visible from long distances east and west. The subject property has largely been cleared and graded in preparation for construction. Portions of the subject property have been improved with surface parking, internal sidewalks, landscaping, and some site lighting. Sidewalks exist along the Sycolin Road property frontage, and an existing multipurpose trail is located along the Belmont Ridge Road property frontage. The southern property boundary, adjacent to the Dulles Greenway entrance ramp, is forested. A utility easement is situated south of the forested area and extends from Loudoun Water s treatment facility west of Sycolin Road to existing water mains on the east side of Belmont Ridge Road.

5 Page 5 Existing Conditions. Figure 1. Belmont Ridge Road, facing west towards the site with a view of existing buildings excluded from this rezoning. Figure 2. Existing surface parking and site improvements, facing west. Figure 3. Existing sidewalk along Sycolin Road frontage and. multi-purpose trail along Belmont Ride Road frontage, facing south. Figure 4. Generation Drive, facing south towards the proposed continuing care facility. Table 1. Surrounding Properties Direction Existing Land Use Existing Zoning North Sycolin Road & Goose Creek Village Retail Center (Harris Teeter, PD-CC(CC) Walgreens, hair salon, restaurants, and other retail and service uses) South Dulles Greenway & residential (Goose Creek Village South and Goose R-1 & PD-H4 Creek Preserve) East Belmont Ridge Road & residential (Ashburn Farm) PD-H4 West Goose Creek Village Business Park (Office, Place of Worship and Day Care) PD-OP

6 Page 6 Directions - From Leesburg, take Route 7 east to Belmont Ridge Road (Route 659) south. Take Route 659 south to Sycolin Road. The property is on the right side of Sycolin Road and extends to the Dulles Greenway. Background - In 2005, the Board of Supervisors approved ZMAP , Goose Creek Village North, which is located on both the north and south sides of Sycolin Road, and extends from the Goose Creek to Belmont Ridge Road. The approval rezoned 141 acres from PD-IP (Planned Development-Industrial Park) to five (5) zoning districts: PD-IP (Planned Development-Industrial Park), PD-OP (Planned Development-Office Park), PD- CC(CC) (Planned Development Commercial Center (Community Center)), R-24 (Multifamily Residential-24), and R-16 (Townhouse/ Multifamily Residential-16). The approved mix of uses consisted of 564 residential units (264 multi-family stacked units/two-

7 Page 7 over-two s and 300 single-family attached), 164,500 square feet of retail commercial, and up to 1 million square feet of office uses. The portion of the originally approved Goose Creek Village North located on the north side of Sycolin Road has generally builtout with residential units and retail space including multi-story retail uses fronting on Sycolin Road using mainstreet design features such as on street parking and plazas. To date, the portion of the originally approved Goose Creek Village North located on the south side of Sycolin Road has developed with 19,297 square feet of office, 32,609 square feet of church uses, and a daycare facility. Figure 6. ZMAP , Goose Creek Village. The subject rezoning is the first application seeking to use the newly revised PD-MUB (Planned Development-Mixed Use Business) zoning district regulations. The Board of Supervisors substantially revised the PD-MUB district regulations with adoption of ZOAM on December 16, Community Meetings/Public Comments - The Applicant has scheduled a meeting with Ashburn Farm and Belmont Ridge on May 3, 2016, and with the Goose Creek Village Residential Home Owners Association (HOA) on May 10th. Before the Planning Commission public hearing, the Applicant also plans to meet individually with the adjacent churches and retail tenants within Goose Creek Village. No members of the public have provided comments regarding these applications on Loudoun Online Land Applications (LOLA) or by , phone, or in person. III. PROPOSAL Zoning Map Amendment Petition The Applicant seeks to rezone the acre subject property from Planned Development Office Park (PD-OP) and Planned Development Commercial Center Community Center (PD-CC-CC) to Planned Development Mixed Use Business (PD-MUB) in order to develop up to 355,350 square feet of retail, office, and continuing care uses and 312 residential units (80 independent living and 232 multi-family).

8 Page 8 Proposed FAR (Floor Area Ratio) is Proposed Residential density is DU/A (Dwelling Units per Acre). One phase of development is planned. Table 2. Summary of Applicant s Development Program. Land Use Maximum Total Nonresidential 355,350 sf Employment 1 132,500 sf 80 Assisted Living or Nursing Home Units 100,000 sf Other Employment Uses 32,500 sf Commercial Retail and Service 222,850 sf Self-storage 124,000 sf Parking Garage 50,000 sf Other Commercial Retail and Service Uses 48,850 sf Total Residential 312 units 367,862 sf Independent Living 80 units 100,000 sf Multi-family Residential (1,000 sf per unit) 232 units 267,862 sf Amphitheaters, pocket parks, plazas & other amenities 81,330 sf TOTAL (Nonresidential, Residential & Parks/Plazas) 804,542 sf According to the Applicant s Statement of Justification, the development is envisioned as a compact, pedestrian-friendly, walkable community where residents can live, work, and play, and easily access transit services. The Sycolin Road streetscape is envisioned as the Main Street with office and commercial uses aligning the street. The employment and commercial uses are proposed to occupy the first floor of Buildings 1-3 and all of Buildings 5 and 6 (Century Corner II Building). At least fifty percent of the buildings within the project would be mixed-use, with uses from at least two different use categories. For example, retail would occupy the first floor and residential apartments would occupy the upper floors or a 4-story self-storage would be situated over a 2-story parking garage. The Applicant proposes to provide both surface and garage parking at Century Corner. The Applicant anticipates entering into a shared parking agreement for the benefit of the various uses on the subject property. As required by Revised 1993 Zoning Ordinance (Zoning Ordinance) Section (F), the Applicant has submitted a Shared Parking Analysis with this rezoning application. The Analysis finds that peak parking occupancy for the uses proposed within the Goose Creek PD-MUB district, occur at different times of the day, allowing for the sharing of parking spaces among uses. On-street parking is proposed adjacent to all new buildings. Parallel parking is planned along Generation Drive. The surface parking lot that serves the church and office buildings would remain but would ultimately be shielded from view of Generation Drive by a non-residential building. Proffered 1 Examples of Permitted Employment Uses: Office, Research and Development, Day Care, Medical or Dental Office, Bank, Business Service Establishment (such as advertising, management and consulting services; travel agent, equipment rental and leasing, or quick print shop). Examples of Special Exception Employment Uses: Hospital, Flex-industrial uses, Manufacturing/ processing/fabrication/assembly of products, and Public transit facilities. Source: Revised 1993 Zoning Ordinance, PD-MUB District Regulations.

9 Page 9 minimum building heights for Buildings 1, 2, and 3 are 45 feet with the potential to reach 100 feet. Figure 7. Illustrative of Proposal. Generation Dr. Century Corner Dr.

10 Page 10 The employment and commercial space is proposed to be no more than 305,350 square feet, excluding a 50,000 square foot structured parking garage. A commercial miniwarehouse storage is planned to be developed adjacent to a parking garage. The parking garage would serve residents and visitors to Century Corner employment and commercial uses and to the amphitheater proposed to be located at the western edge of the subject property (across from the County Park and Ride lot). Half of the Continuing Care facility building proposed for the southeast quadrant of the subject property is planned to contain Assisted Living and Nursing Home units, which are also classified as commercial uses in the PD-MUB district. Figure 7. Proposed Assisted Living and Nursing Home Special Exceptions. SPEX , Continuing Care Facility, Adult Assisted Living and SPEX , Continuing Care Facility, Nursing Home 2 - The Applicant proposes to develop up to eighty (80) units that would be either assisted living or nursing home. Within the proposed PD-MUB zoning district, both uses are permitted by special exception. The Applicant also proposes eighty (80) independent living units, which are permitted byright within the proposed PD-MUB zoning district. The 80 independent living units and the 80 either adult assisted living or nursing home units (total 160 units) would be located within the same building situated at the southern terminus of Generation Drive, in Building 7, south of the 80 Independent Living & 80 either Assistant Living or Nursing Home 75 parking spaces acres 2 Continuing Care Facility: May consist of three (3) types of care, or any one or two types: a. Congregate Living Facility [Independent Living]: a facility that provides independent living that may be affiliated with or located near health care facilities [considered a residential use in the PD-MUB zoning district]. b. Adult Assisted Living: a facility for people who cannot live independently and who need assistance with daily chores and housekeeping [considered an employment uses in the PD-MUB zoning district]. c. Nursing Home: a facility for individuals who require specialized nursing care on a regular basis but who do not need to be hospitalized housekeeping [considered an employment uses in the PD-MUB zoning district]. (Revised 1993 Zoning Ordinance, Chapter 8, Definitions.)

11 Page 11 existing stormwater management pond/future open space and civic space area. The building is planned to be a minimum of 3 stories. The SPEX Plat provides seventy-five (75) parking spaces within this 4.6-acre Special Exception area. SPEX , Storage, Miniwarehouse The Applicant proposes 125,400 square feet of mini-warehouse storage uses. Within the PD-MUB zoning district, mini-warehouse storage uses are permitted by special exception and subject to Section of the Zoning Ordinance, which requires such uses to be contained within a minimum 3-story building and to be designed so that no individual unit may be accessed directly from the exterior of the building. Figure 8. Proposed Mini-Warehouse Storage Gated The mini-warehouse storage use is proposed to be located at the southern end of Generation Drive, west of the exiting stormwater management pond/future open space/park. All individual storage unit access will be accessed from elevators located on the interior of the building. Access to the storage facility office and indoor loading area will be provided from a gated area at the west and rear of the building. The miniwarehouse storage special exception does not include building 4B, which is proposed as structured parking, up to 5 stories. SPEX , Animal Hospital The Applicant proposes to locate an animal hospital on the subject property. The Zoning Ordinance defines an animal hospital as, A place for the medical care of animals; a veterinary hospital. The boarding of animals at an animal hospital is limited to that incidental to the hospital use. Within the PD-MUB zoning district, an animal hospital is considered a Retail Sales and Service use and is permitted upon Board approval of a Special Exception (Section , Table ). As proposed, the animal hospital could be located anywhere on the subject property where retail sales and service uses are proposed on the Concept Development Plan. ZMOD , Revised 1993 Zoning Ordinance Modifications - The Applicant seeks approval of the following Zoning Ordinance modifications to allow: A reduction in the building setback along Belmont Ridge Road from 100 to 90 feet A reduction in the parking setback along Belmont Ridge Road from 75 to 25 feet A reduction in the building setback along Sycolin Road from 75 to 3 feet A reduction in the parking setback along Sycolin Road from 35 to 12 feet 4A 4B

12 Page 12 An elimination of various buffer yard requirements Staff provides an evaluation of the zoning modifications under the Zoning Analysis section of this staff report. Figure 9. Proposed Zoning Modifications. 90 IV. OUTSTANDING ISSUES These applications were submitted before the Board adopted the revised PD-MUB zoning district regulations. At Staff s request, the Applicant agreed to place the applications on

13 Page 13 hold pending approval of the of the PD-MUB regulations and with the understanding that Staff would make every effort to proceed to the May Planning Commission public hearing. As a result, Staff has not yet completed a full review of the 1st submission proffer statement. Staff has identified the following topics for further discussion. The Applicant has indicated a willingness to address the majority of the following topics with proffers and conditions. Forwarding the applications to a work session should allow the necessary time for review and refining proffers and conditions. 1. Land Use Staff has identified three key land use topics for discussion: a. Land use mix and reduction of nonresidential development potential within an area planned for Business uses Staff recognizes that the application is responding to a declining office market and emerging trends towards mixed-use development. The proposed land use mix is inconsistent with the Comprehensive Plan, which calls for the subject property to develop as a Business Community with a minimum of 50 percent of the project land area to be dedicated to office uses. Retail and light industrial to complement that office space is expected to comprise no more than 20 percent of the total land area. Some high-density residential is envisioned within Business Community. Multi-family residential is not intended to exceed 25 percent of the total land area. The application includes 82 independent living units and 232 multi-family residential units (312 total). The rezoning would change the development pattern currently contemplated by the Plan from predominantly office and light-industrial supported by up to 25 percent residential to mixed-use with up to 50 percent residential. While parts of the application contribute to a mixed-use vision, the application relies on assisted living and mini-warehouse storage uses to provide 225,000 of the 306,350 square feet (73%) of total employment and commercial uses, whereas the Plan envisions office and employment uses as the primary use. b. Compatibility of Mini-warehouse Storage in Mixed-use Pedestrian Environment Mini-Warehouse Storage Facility - The Commission will want to consider whether a mini-warehouse storage use would be a compatible and appropriate use within a walkable, mixed-use environment. Greater attention to the following would help ensure compatibility within the proposed mixed-use development: i. Elevations - Given the proposed proximity of the mini-warehouse storage facility to residential uses, the high visibility from Belmont Ridge Road, and the need to integrate the storage facility into the urban fabric, proffered design guidelines for the mini-warehouse storage facility would need to be strengthened so that they promote the image of a high quality visual environment with similar material and design elements as the rest of the project.

14 Page 14 ii. iii. Ground-floor Streetscape Because the mini-warehouse storage facility is proposed along a key pedestrian corridor within the project, proffered design guidelines would need to be strengthened to help ensure compatibility with the pedestrian environments. Special attention should be given to the streetscape and ground floor of the facility to create a visually interesting experience for pedestrians walking along this use. Mitigation of Impacts - Since the proposed mini-warehouse storage is proposed adjacent to residential development, conditions of approval need to be developed to limit the potential for noise and visual impacts associated with truck traffic and from loading and unloading activities. c. Continuing Care Facility/Access to Amenities - The location of the proposed independent living and assisted living components of the project is consistent with the Comprehensive Plan. The Revised General Plan sets forth specific amenities and services that should be provided for retirement communities to ensure the safe and convenient access to amenities and services such as private clubhouses, meetings spaces, recreational facilities, retail uses, health or fitness centers, active recreation space, religious facilities, and medical facilities (Revised General Plan, Chapter 2, Amenities and Services Policies, Policies 1 and 2). Century Corner proffers to include an amphitheater and walking trails around the stormwater management pond. To bring the proposal more into conformance with the Revised General Plan, the Applicant will want to consider providing : i. On-site Facilities and Amenities for the assisted living and independent living residents. Examples would be a club house, meeting space, and fitness center. Such a proffer would include the minimum number, floor area, and range of types of amenities. 2. Design Guidelines - The PD-MUB district regulations require Design Guidelines that ensure high-quality design and construction within the district. Staff recognizes that the project will need to have design flexibility. Some of the language in the Applicant s Design Guidelines will need to be strengthened to ensure construction of the envisioned high-quality architectural environment with plazas, an amphitheater, and iconic elements. Commitments to the exterior building elevations for the parking garage and mini-warehouse storage should be strengthened. 3. Traffic Signals - The Applicant s Traffic Impact Analysis indicates that traffic signals will be warranted with the proposed development at the two site entrances (Century Corner Drive and Generation Drive). Based on previous proffers and improvements associated with the original Goose Creek Village rezoning, Staff needs additional time to determine whether the Applicant should be required to conduct traffic signal warrant studies at these two intersections and, if warranted, install the traffic signals subject to VDOT approval, unless traffic signals have already been installed by others at these locations. The Applicant advises that he has already made a contribution ($175,000) for the signal at Century Corner Drive. The current signal cost is $350,000.

15 Page Zoning Modifications - Overall, Staff supports the Planning Commission s (Commission) approval of the modifications with reservations. a. Proposed reduced setbacks from Belmont Ridge Road (building: from 100 to 90 ; parking: from 75 to 25 ) are adjacent to a proposed residential building with a pool and other residential amenities that could be adversely affected by noise and traffic if shifted closer to the roadway. These potential impacts could be mitigated with sufficient screening, which may include berming, solid fencing, and/or evergreen trees and shrubs. b. Regarding the proposed reduced parking setback (from 75 to 25 ) along Belmont Ridge Road, an evergreen hedge and/or berm would help screen the parking area from Belmont Ridge Road. c. Regarding reduced setbacks along Sycolin Road and deletion of internal buffers between uses, providing additional plantings somewhere on the subject property would help offset these reductions. Sheet 7 of the CDP includes some typical buffers; these buffers do not clearly commit to providing specific enhanced buffering beyond what is required by the proposed modification in any particular location on the subject property. 5. Proffers ZMAP and ZCPA The Applicant proposes that any unfulfilled proffers associated with ZMAP and ZCPA be superseded by the proffers submitted with the subject applications. Staff s review of the proffers is underway; the goal is to ensure that approval of the subject applications would not result in the County losing any previously proffered improvements or contributions. Staff will provide the Commission an update on this topic during the public hearing. 6. Proffer Statement and Conditions Staff s review of the Applicant s Proffer Statement and Staff s development of recommended Conditions of Approval are currently in progress. Staff will provide the Commission an update on the status of the proffers and conditions during the public hearing. These applications are not yet ready for Planning Commission action. Staff supports the Commission forwarding these applications to a work session when the Applicant has appropriately addressed the outstanding issues. This would allow sufficient time to discuss the topics listed above and to review proffers and fully develop conditions. V. POLICY ANALYSIS Zoning Map Amendment Petition (ZMAP) Criteria for Approval - Zoning Ordinance Section (E) of the Revised 1993 Zoning Ordinance states that if an application is for a reclassification of property to a different zoning district classification on the Zoning Map, the Planning Commission shall give reasonable consideration to six (6) factors or

16 Page 16 criteria for approval. These criteria for approval are organized below by category, followed by Staff s analysis. Special Exception (SPEX) Criteria for Approval - Zoning Ordinance Section of the Revised 1993 Zoning Ordinance states that in considering a minor special exception or special exception application, six (6) factors shall be given reasonable consideration. These criteria for approval are organized below by category, followed by Staff s analysis. A. LAND USE ZO (E)(1) Appropriateness of the proposed uses based on the Comprehensive Plan, trends in growth and development, the current and future requirements of the community as to land for various purposes as determined by population and economic studies and other studies and the encouragement of the most appropriate use of land throughout the locality. ZO (1) Whether the proposed minor special exception or special exception is consistent with the Comprehensive Plan. (5) Whether the proposed special exception at the specified location will contribute to or promote the welfare or convenience of the public. Analysis The primary land use topics for consideration are: 1) Land use mix and reduction of employment development potential within an area planned for Business uses, 2) Compatibility of a mini-warehouse storage within a mixed-use pedestrian environment, and 3) Adequacy of amenities for the proposed congregate care facilities. 1. Land Use Mix The Revised General Plan (Plan) designates the project area for Business uses. Business communities are intended to be dominated by regional offices or light industrial uses but can have a mix of uses such that individuals can work, live, and have convenient access to shops and recreation (Revised General Plan, Chapter 6, Business Policies, text). For both regional offices and lightindustrial uses, high density residential development is intended to be limited to no more than 25% of land area. Figure 9. Land Use Plan The proposed application is not fully consistent with the specific land use mix envisioned within a Business community, but portions of the proposal are consistent with the overall goals

17 Page 17 and intent of the Business community. Staff acknowledges that the application responds to emerging trends for mixed-use development. The Applicant contends that development of the proposed pedestrian oriented mixed use project would help to synergize development of the remainder of the adjacent PD-OP development. As proposed, the residential development would exceed what was envisioned by the Plan, and office development would fall short of the Plan guidance. Plan policies anticipate a minimum of 50 percent of the project land area to be dedicated to office uses. Retail and light industrial to complement that office space is expected to comprise no more than 20 percent of the total land area. The proposed application would introduce additional residential development above what was envisioned under the Plan and would reduce levels of tax-generating employment (office and light-industrial). The rezoning would change the development pattern currently contemplated by the Plan from predominantly office and light-industrial supported by up to 25 percent residential to mixed-use with up to 50 percent residential. While parts of the application contribute to a mixed-use vision, the application relies on assisted living and mini-warehouse storage uses to provide 225,000 of 306,350 square feet (73%) of total employment and commercial uses, whereas the Plan envisions office to be the primary use. 2. Mini-Warehouse Storage Facility - The Commission will want to consider whether a mini-warehouse storage use would be a compatible and appropriate use within a walkable, mixed-use environment. The use is permitted within the PD-MUB zoning district upon approval of a special exception. The mini-warehouse storage use would provide convenient storage facilities to residents and proposed multi-family units and existing surrounding communities, as well as to tenants of the non-residential uses. Greater attention to the following would help ensure compatibility within the proposed mixed-use development: Elevations - Given the proposed proximity of the mini-warehouse storage facility to residential uses, the high visibility from Belmont Ridge Road, and the need to integrate the storage facility into the urban fabric, the mini-warehouse storage facility would need to promote the image of a high quality visual environment. Staff recommends that the Applicant provide greater commitments to the illustrative elevation drawings in the Design Guidelines. Such design guidelines should address the various facades of the building, more specifically address the types of iconic elements planned for this structure, and be included as part of a proffer statement or conditions of approval. Ground-floor Streetscape - The mini-warehouse storage facility is proposed along a key pedestrian corridor within Century Corner. Mini-warehouse storage facilities are often incompatible with pedestrian environments. To help ensure compatibility with a walkable community, the Applicant could provide commitments to streetscape conditions. Special attention should be given to the ground floor of the facility to create a visually interesting experience for pedestrians walking along this use.

18 Page 18 Mitigation of Impacts - Since the proposed mini-warehouse storage is proposed adjacent to residential development, conditions of approval need to be developed to limit the potential for noise, visual, and other impacts to residences. Noise can potentially result from truck traffic and from loading and unloading activities. Options that can potentially mitigate such noise include limitations on hours of operation or design treatments that ensure such noise and views of truck activity is blocked by walls. 3. Continuing Care Facility/Access to Amenities - The location of the proposed independent living and assisted living components of the project is consistent with the Comprehensive Plan; they are appropriately located in a Business Community where retail establishments and some amenities are located nearby. The use will be located an equidistance between Inova Loudoun Hospital in Lansdowne to the north and Stone Springs Hospital to the south. Assisted living and nursing home units will provide an opportunity for residents to age in place or locate near family residing in adjacent communities. The Revised General Plan (Plan) sets forth specific amenities and services that should be provided for retirement communities. These communities are to include or provide safe and convenient access to amenities and services such as private clubhouses, meetings spaces, recreational facilities, retail uses, health or fitness centers, active recreation space, religious facilities, and medical facilities (Revised General Plan, Chapter 2, Amenities and Services Policies, Policies 1 and 2). Century Corner proffers to include an amphitheater and walking trails around the stormwater management pond. To bring the proposal more into conformance with the Plan, the Applicant will want to consider providing such additional on-site facilities and amenities for the assisted living and independent living residents. Animal Hospital - Animal Hospital services are a logical complimentary service supported by both the employment and service policies of the Revised General Plan and the intent of the PD-MUB District. Staff are currently reviewing the revised application and developing conditions to address potential impacts associated with the animal hospital use. B. COMPATIBILITY ZO (E)(2) The existing character and use of the subject property and suitability for various uses, compatibility with uses permitted and existing on other property in the immediate vicinity, and conservation of land values. ZO (2) Whether the level and impact of any noise, light, glare, odor or other emissions generated by the proposed use will negatively impact surrounding uses. (3) Whether the proposed use is compatible with other existing or proposed uses in the neighborhood, and on adjacent parcels. Analysis The Applicant has worked with staff on site layout and building orientation to help promote compatibility and integration with Goose Creek Village North, on the north side of Sycolin Road. The overall design objective is to create a Main Street along Sycolin Road that mirrors the existing main street along the north side of Sycolin Road within Goose Creek Village North. As proffered, within the buildings along Sycolin Road, primary building

19 Page 19 entrances for first floor non-residential uses will face Sycolin Road, whereas primary building entrances for residential uses within such buildings will face the interior of the property. Generation Drive would serve as the most visually prominent internal street. Plazas would flank the Generation Drive/Sycolin Road entrance. Primary entrances for the two central buildings (Buildings 1 and 5) will face Generation Drive. The congregate care facility would be located at the southern terminus of Generation Drive. The primary entrance for the congregate care facility will also face interior to the site towards Generation Drive. 1. Design Guidelines The Zoning Ordinance requires Design Guidelines for rezonings to the PD-MUB zoning district to ensure a high-quality environment. The Applicant has submitted Design Guidelines (April 2016). According to the Design Guidelines, the exterior building designs, signage, and landscaping, shall be reviewed and approved by the Century Corner of Goose Creek Village Architectural Review Committee (CCGCV- ARC) in accordance with the Design Guidelines. Guidelines specify that side and rear walls visible from public roadways will not be flat, one-material elevations. The design guidelines include several photos showing building elevations and streetscape. However, these are illustrative only and not required. Staff recognizes that the Applicant will need to have design flexibility. However, to ensure that the project develops as intended as a high-quality community, the Design Guidelines will need to be strengthened to more specifically address and highlight elements of the photos that will be used in the proposed project. Examples that should be specifically addressed: Parking garage and mini-warehouse elevations Specific types and minimum number of iconic elements Sidewalk, crosswalk, and pavement markings type, width, potential materials Minimum number and size of amenities within parks and civic spaces Minimum number of street trees, landscaping, benches, etc. Table 6. Surrounding Residential Density. Residential Development Unit Type Density Zoning Goose Creek Village North 300 SFA ±15 DU/A R-16 & R MF Goose Creek Village South 92 SFA 4 DU/A PD-H4 Goose Creek Preserve (south) 202 SFD 128 SFA 170 MF 3.10 DU/A PD-H4 administered as R-8 Ashburn Farm (east) Proposed Century Corner at Goose Creek Village SFD = single-family detached SFA = single-family attached/townhouses MF = multi-family/apartments 1,724 SFD 1,340 SFA 766 MF 80 Assisted Living 232 MF stacked (2-over-2) 4 DU/A PD-H4 administered as PD-H24 PD-MUB

20 Page 20 The following table summarizes how the Applicant has addressed other compatibility topics. Table 7. Compatibility - Resolved Issues. Noise To address noise impacts upon residents, the Applicant has proffered to submit a noise study to ensure that noise impacts from Sycolin Road and Belmont Ridge Road are abated. There is a significant elevation difference of Century Corner above the Dulles Greenway. The entrance ramp from Belmont Ridge Road onto the Dulles Greenway just south of Century Corner is at a substantially lower elevation than the existing site, and therefore provides both a visual and noise separation between the proposed development and the future mixed use business development. Light/Glare The Applicant proffers that street lighting fixtures shall be full cutoff and fully shielded, and shall be directed inward and downward, and designed to prevent glare on adjacent properties and roadways. C. ENVIRONMENTAL AND HERITAGE RESOURCES ZO (E)(5) Potential impacts on the environment or natural features including but not limited to wildlife habitat, wetlands, vegetation, water quality (including groundwater), topographic features, air quality, scenic, archaeological, and historic features, and agricultural and forestal lands and any proposed mitigation of those impacts. ZO (4) Whether the proposed special exception or minor special exception adequately protects and mitigates impacts on the environmental or natural features including, but not limited to, wildlife habitat, vegetation, wetlands, water quality (including groundwater), air quality, topographic, scenic, archaeological or historic features, and agricultural and forestal lands. Analysis There are no outstanding environmental or heritage resource issues. Prior development approvals for the subject property allowed clearing and grading in preparation for construction, thus the subject property contains limited wildlife habitat and tree cover near the Dulles Greenway and no wetlands or significant topographic features. The application does not currently state whether the forest cover adjacent to the Dulles Greenway is planned to be retained. Table 8. Environmental and Heritage Resources Resolved Issues. Stormwater Management - In order to serve the proposed uses, the Applicant will retain and enhance the existing man-made stormwater area in the southeast corner of the subject property. The Applicant also proposes to improve the area around the SWM/BMP facility to provide pedestrian sidewalks and trails, benches, and planting areas. Scenic/Archaeological/Historic Features - An archaeological study was submitted during the review of ZMAP It found that although there had been items for consideration, their condition was such that no additional study is merited. D. TRANSPORTATION ZO (E)(3) Adequacy of sewer and water, transportation, and other infrastructure to serve the uses that would be permitted on the property if it were reclassified to a different zoning district [emphasis added]. ZO (6) Whether the proposed special exception can be served adequately by public utilities and services, roads, pedestrian connections and other transportation services and, in rural areas, by adequate on-site utilities [emphasis added].

21 Page 21 Analysis Staff are currently reviewing the Applicant s revised Traffic Impact Analysis. In general, an adequate road network exists to serve the proposed rezoning and special exception uses. As shown on the trip generation table below, the proposed uses would generate approximately 178 fewer trips than the currently approved uses under ZMAP Vehicular access will be provided from Sycolin Road using Generation Drive and Century Corner Drive, internal private roadways. The Applicant has proffered to install an additional crosswalk across Sycolin Road, to double the size of the bus shelter at the County s Park and Ride lot, and to install additional bike racks. Before finalizing the proffers, Staff would like to verify if additional contributions for traffic signals are warranted. 1. Traffic Signals The Applicant s Traffic Impact Analysis indicates that traffic signals will be warranted with the proposed development at the two site entrances (Century Corner Drive and Generation Drive). Staff requests that the Applicant conduct traffic signal warrant studies at these two intersections and, if warranted, install the traffic signals subject to VDOT approval, unless traffic signals have already been installed by others at these locations. If a warrant study is conducted and traffic signals are not found to be warranted at these locations, the Applicant should commit to pay a cash-in-lieu for future installation of the signals (currently at a cost of $350,000 per intersection), less any contributions previously made by the Applicant for the subject intersections pursuant to the proffers accepted by the County as part of previous rezonings for Goose Creek Village. The Applicant advises that he has already made a contribution ($175,000) for the signal at Century Corner Drive. Staff will review this topic further and report to the Commission at the public hearing. Development Program Table 9. Trip Generation Comparison. ITE Code AM Peak Trips PM Peak Trips Weekday Total Trips Approved Use PD-OP 485,000 SF Office ,359 Approved Use PD-CC-CC 15,000 SF Specialty Retail Total Approved ,038 Proposed Use PD-MUB 125,000 SF Self-Storage Proposed Use PD-MUB 80 DU Independent Living Proposed Use PD-MUB 80 DU Nursing Home Proposed Use PD-MUB 48,850 SF Specialty Retail ,127 Proposed Use PD-MUB 32,500 SF Office Proposed Use PD-MUB 230 DU Apartment ,517 Total Proposed ,860 Difference (Proposed minus Approved)

22 Page 22 With ZMAP , Goose Creek Village North, the Applicant proffered and constructed improvements to the road network. Right-of-way was dedicated and specified improvements were constructed along both Belmont Ridge Road and Sycolin Road. Signals were either installed or a cash equivalent contribution made to the County for signals at the intersection of Belmont Ridge Road/Sycolin Road/Ashburn Farm Parkway, Belmont Ridge Road/Hay Road and the two Goose Creek Village intersections along Sycolin Road. As background, the future Ashburn Metrorail Station will be located approximately three (3) miles east of the subject property along the Dulles Greenway. Loudoun County operates an 83-space Park and Ride lot at Goose Creek Village North, immediately west of the subject property. The Applicant constructed this Park and Ride lot, as proffered under ZMAP Currently, transit service in the vicinity of the site is limited to commuter bus (Metro Connection) service, which serves workers leaving and returning home from employment; the services provides departure service only in the morning peak period and arrival service only in the afternoon peak period. The specific bus route travels to the Silver Line stations at Wiehle Avenue and Spring Hill, which then connect to Tysons Corner. Given its limited hours, this service likely would not be used for short shopping trips by any resident, employee, customer, or visitor. As of this writing, there are no plans to expand the transit services offered at this location. Transportation improvements associated with the current applications are summarized in the following table: Table 10. Proffered Transportation Improvements, Contributions, and other Mitigation Measures. Proffered Improvement or Contribution Sycolin Road Crosswalk - Subject to VDOT approval, the Applicant shall install a marked crosswalk connecting Creek View Plaza and Generation Drive, to connect the subject property to Goose Creek Village Commercial Center located on the north side of Sycolin Road. Two existing pedestrian crossings are located at the Generation Drive/Sycolin Road and Sycolin Road/Naismith Terrace intersections. Transit Contribution Rather than make a cash contribution, the Applicant proffers to build a second bus shelter or double the size of the existing bus shelter located at the existing County Park and Ride lot. DTCI staff recommended and support this contribution. Trigger Prior to occupancy permit issuance for Building 2 Prior to occupancy permit issuance for the first new building containing residential dwelling units. Traffic Noise Impact Study Per CTP policy, the Applicant agrees to submit a noise study to the County and implement recommended mitigation measures to mitigate traffic noise impacts (generated by Sycolin Road and Belmont Ridge Road) upon residents within the proposed community. Install any necessary noise attenuation measures prior to issuance of the first occupancy permit for any impacted structures on the subject property.