RC ; Reclassification The Garrison at Stafford Proffer Amendment (formerly Stafford Village Center)

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1 Board of Supervisors Robert Bob Thomas, Jr., Chairman Laura A. Sellers, Vice Chairman Meg Bohmke Jack R. Cavalier Wendy E. Maurer Paul V. Milde, III Gary F. Snellings Anthony J. Romanello, ICMA CM County Administrator 3 July 13, 2016 MEMORANDUM TO: FROM: Stafford County Planning Commission J SUBJECT: RC ; Reclassification The Garrison at Stafford Proffer Amendment (formerly Stafford Village Center) ATTACHMENTS: 1. Proposed Ordinance and Resolution 2. Proposed Proffers, dtd 5/16/16 3. Option 1 Generalized Development Plan, dtd 5/17/16 4. Ordinance O15-27 with Proffers and original Rezoning Plan 5. Application and Related Materials ISSUE: Consider the request to amend proffered conditions on Tax Map Parcel No , consisting of acres, zoned P-TND, Planned Traditional Neighborhood Development. BACKGROUND: Location: Election District: Parcel Size: Applicant/Property Owner: Agent: South side of Garrisonville Road, at the intersection with Travis Lane Garrisonville acres Route 606-Reston, LLC Bowman Green Drive Reston, VA H. Clark Leming, Esq. Leming & Healy, P.C Courthouse Road, P. O. Box 339, Stafford, VA Phone: (540) Fax: (540)

2 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 2 of 9 Location Map Current Use: Proposed Use: Undeveloped Mixed-use development with commercial retail and service uses and multifamily residential units Application Date: May 20, 2016 (complete application June 7, 2016) Advertisement Dates: June 28, 2016 and July 5, 2016 Time Limit: October 21, 2016 Staff Project Manager: Comprehensive Plan: Michael Zuraf, AICP Commercial Corridor within Suburban Future Land Use Designations Abutting Properties: Location Zoning Use Comprehensive Plan North B-2, Urban Commercial Shopping Center Commercial Corridor / B-1, Convenience Commercial Restaurants Suburban Offices South R-1, Suburban Residential Residential Suburban R-3, Urban Residential High Density

3 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 3 of 9 East B-2, Urban Commercial Shopping Center Commercial Corridor / R-1, Suburban Residential Office Suburban Residential West R-1, Suburban Residential Residential Commercial Corridor / R-3, Urban Residential High Suburban Density Zoning Districts Future Land Use Plan Utilities: Roads: Schools: Parks and Recreation: Proffer Valuation: The proposal would connect to existing public water and sewer utility lines. There are existing 12-inch water mains located along Garrisonville Road and bisecting the site from north to south. The project will tie into these lines with on-site water mains that will loop through the site to support adequate fire protection. Existing sewer mains run along Garrisonville Road to a 10-inch sewer main that runs along the western stream valley on the site south to the Whitson s Run interceptor sewer and ultimately Aquia Wastewater Treatment Facility. The subject property is located on the south side of Garrisonville Road and northern terminus of Highpointe Boulevard. Garrisonville Road, in this location, is a 4-lane divided facility with a painted median, a posted speed limit of 40 miles per hour, and estimated traffic volume of 74,000 vehicle trips per day. Highpointe Boulevard is a 2-lane undivided facility with a posted speed limit of 25 miles per hour and estimated traffic volume of 2,500 vehicle trips per day. There would be no change to the impact to the County School system. There would be no change to the impact on the County Park system. A proffer statement has been submitted with this application. No new monetary proffers are included with this request.

4 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 4 of 9 Noise Impacts: Light Impacts: Although the proposal modifies the location of buildings and parking areas on the site, there are no changes proposed to proffered transitional buffers. The buffers should minimize noise impacts. Although the proposal modifies the location of buildings and parking areas on the site, there are no changes proposed to proffered transitional buffers, which should minimize light impacts. Zoning History The property was rezoned from R-1, Suburban Residential to P-TND, Planned Traditional Neighborhood Development in October 12, 2015 with proffers (see Attachment 4). The original development scheme and associated proffers were reflective of a mixed-use development with up to 500,000 square feet of commercial uses and 453 multi-family residential units. Since zoning approval, frontage improvements have begun in concert with the widening of Garrisonville Road. No other development internal to the site has occurred to-date. Existing Conditions The site primarily consists of forested landcover, with a smaller proportion of open field. The forested areas, on the southern half of the site and along the two streams, consist of mature deciduous trees. The open field areas are located generally in the northern portion of the site along Garrisonville Road and between the two streams. One single-family dwelling exists on the property and fronts on Garrisonville Road. Aerial View

5 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 5 of 9 COMMENTS: The proposal is to amend proffered conditions on the subject property to provide alternative building and parking layouts, in addition to the originally approved layout. Also, amendments would modify the way building heights are measured on the site. The original Generalized Development Plan (GDP) identified one primary access road with the uses located within multiple buildings that surrounded a centralized parking lot. The site design is reflective of a conventional suburban center. Original GDP The applicant is proposing an Option 1 GDP, which illustrates a site layout that is reflective of a more traditional design and more closely aligns with the intent of the P-TND zoning district. Buildings are proposed to front on the principal street that bisects the property and will include parallel or angled parking. The bulk of the parking is to the rear of the building in surface parking lots and parking garages. Three parking garages are shown, behind buildings 4 and 5 and adjacent to building 8. The buildings

6 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 6 of 9 located along the principal street may include a mix of commercial and residential uses. At the terminus of the street is a proposed 70,000 square feet mixed use building that may be utilized as a movie theatre. The proposed Option 1 GDP site layout may be used in combination with the original site layout. Proposed Option 1 GDP Staff notes that the applicant is requesting that the County Code section regarding parking in all transect zones be amended to allow flexibility in the type of on-street parking to also include angled parking along the principal street. In addition, the applicant is proposing to delete the reference to the Traditional Neighborhood Development (TND) element of the Comprehensive Plan (now referred to as the Neighborhood Design Standards Plan (NDS Plan)), regarding classification of streets in a P-TND Zoning District. Lastly, the applicant is proposing to delete standards that require travel aisles with on-street parallel parking meet VDOT or County street requirements pursuant to County Code Sec (e). The proposed ordinance amendment is being processed separately.

7 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 7 of 9 Proffers The proposed amendments to the existing proffers are summarized below. The proposed proffer document is included in Attachment 2: Add a new generalized development plan (GDP), serving as Option 1 GDP, with a new development layout which would permit flexible building areas. The Original GDP remains, as well; Allow the site layout to use all or any portion of the layouts shown on the Option 1 GDP and Original GDP, and the Option 1 GDP buildings to be relocated within permitted building areas; and Modify building height language to require buildings to be measured at the midpoint of the northernmost side of such building, rather than from the top of the slab of the first floor that is in the closest proximity to the abutting ground level parking area and/or roadway. EVALUATION: The following is an evaluation of the proffer amendments. Generalized Development Plan (Proffer I.A.) The new Option 1 GDP illustrates a site layout that more closely resembles a traditional neighborhood and meets the intent of the P-TND zoning district. Staff notes that the proffer language provides flexibility in the ultimate design, which is in conflict with the current zoning ordinance that requires development within a P-TND district shall be in conformance with the applicable GDP approved by the BOS at the time of rezoning. The intent of this ordinance was to ensure the site developed in accordance with the plan presented with the application. This proffer amendment would offer flexibility in the site design for this specific site. The developer will have the option to develop the site: (1) in accordance with the original GDP and that site layout, (2) the newly proposed GDP Option 1, or (3) any combination of the two GDP s. Although staff would prefer the specific design provided in the Option 1 GDP, any modification of the original GDP, to incorporate elements from the new Option 1 GDP would be viewed favorably. The site layout is not changing along the eastern property line, where the greatest potential impact was identified, adjacent to single-family residential uses. Also, the applicant is not proposing any amendments to the Regulating Plan or Neighborhood Design Standards. Building Height Measurement (Proffer III) Proffer 3 requires buildings not exceed 60 feet or 5 stories in height. The applicant is proposing that all buildings be measured from the midpoint of the northernmost side of each building. The applicant is proposing this because the site generally slopes from north to south across the site and there are several buildings that extend longer distances from north to south, such as buildings 4 and 5. For buildings located where the ground slopes down from north to south, the southernmost point of the building may be taller than 60 feet, but in no circumstance, may the building exceed 5 stories. This amendment is contrary to the recently adopted amendment to the building height measurement definition, which requires the measurement from the midpoint of the front of each building. Not all of the buildings frontages are on the

8 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 8 of 9 north side. Should the proffer amendment be adopted, the proposed method of building measurement would be unique to this site. EVALUATION CRITERIA: Section of the Zoning Ordinance lists twelve (12) criteria to be considered at each public hearing for reclassification. A summary of each criteria are as follows: 1. Compliance of the request with the stated requirements of the district or districts involved - With the amendments, the site layout may be more consistent with the intent of the P-TND zoning district and in compliance with most of the stated requirements, with the exception of the requirement that the site be developed in conformance with a specific approved GDP. In addition, the method of building height measurement would be inconsistent with the current requirements. 2. The existing use and character of the property and the surrounding property - The property is currently undeveloped. The adjacent properties include highway commercial and office uses to the northeast and northwest, and multi-family and single-family residential development to the southeast and southwest. 3. The suitability of the property for various uses - The conditions of the site make it suitable for a variety of uses. Although the site includes perennial streams, there are areas outside of these sensitive resources that allow for the creation of large development pads. 4. The trend of growth and development in the surrounding area - The area is a mix of a variety of commercial uses along Garrisonville Road and residential uses set back from the highway corridor. 5. The current and future requirements of the county for land - Proffers already require the dedication of right-of-way, consistent with the County s Plans to widen Garrisonville Road to 6 lanes. 6. The transportation requirements of the project and the county, and the impact of the proposed land use on the county transportation network - The impact of the proposed transportation improvements are being mitigated with existing proffers. This amendment does not increase the impact to the transportation network. 7. Requirements for schools, parks, recreational lands and facilities, and other public services, potentially generated by the proposed classification - The proposal would not have any increased impact on public facilities. 8. The conservation of property values in the surrounding area - Staff believes that the amendments would not have a negative effect on any property values in the surrounding area. The development plan is not changing where there would be the greatest potential impacts. 9. The preservation of natural resources and the impact of the proposed uses on the natural environment - The amendment are not increasing impacts to sensitive natural resources.

9 Memorandum to: Stafford County Planning Commission July 13, 2016 Page 9 of The most appropriate use of land - The amendment does not change the previously approved use of the site. 11. The timing of the development of utilities and public facilities and the overall public costs of the development - The amendments do not change the fact that the cost of connecting to the existing utilities and transportation improvements will be borne by the applicant. 12. The consistency, or lack thereof, of the proposed rezoning with the Stafford County Comprehensive Plan as in effect at that time - With the amendments, the proposal is still consistent with the Comprehensive Plan Land Use recommendations. SUMMARY OF POSITIVE AND NEGATIVE FEATURES: POSITIVE: 1. The amendment allows the potential for a development pattern that more closely resembles a traditional neighborhood and meets the intent of the P-TND zoning district. 2. Although building heights may allow for greater than 60 feet heights, the 5 story limit should minimize overall heights. 3. Amendments maintain the proffered amount of development. 4. Amendments maintain the development s consistency with adjacent properties. NEGATIVE: 1. Allowing for a flexible GDP is not consistent with the zoning ordinance requiring more certainty in the design of a site. 2. The proposed building measurement criteria is inconsistent with recently adopted standards. RECOMMENDATION: On balance, staff believes the positive aspects outweigh the negative aspects and supports the amendments. Ordinance O16-35 reflects approval of the request with the proposed amended proffers. JAH:mz Attachments (5)

10 Attachment 1 Page 1 of 3 O16-35 PROPOSED BOARD OF SUPERVISORS COUNTY OF STAFFORD STAFFORD, VIRGINIA ORDINANCE At a regular meeting of the Stafford County Board of Supervisors (the Board) held in the Board Chambers, George L. Gordon, Jr., Administration Center, Stafford, Virginia, on the day of, 2016: MEMBERS: VOTE: Robert Bob Thomas, Jr., Chairman Laura A. Sellers, Vice Chairman M. G. Meg Bohmke Jack R. Cavalier Wendy E. Maurer Paul V. Milde, III Gary F. Snellings On motion of, seconded by, which carried by a vote of, the following was adopted: AN ORDINANCE TO AMEND AND REORDAIN THE STAFFORD COUNTY ZONING ORDINANCE BY AMENDING THE PROFFERED CONDITIONS ON TAX MAP PARCEL NO ZONED P-TND, PLANNED TRADITIONAL NEIGHBORHOOD DEVELOPMENT ZONING DISTRICT, WITHIN THE GARRISONVILLE ELECTION DISTRICT WHEREAS, Route 606-Reston LLC, applicant, submitted application RC requesting an amendment to proffered conditions on Tax Map Parcel No , zoned P-TND, Planned-Traditional Neighborhood Development, within the Garrisonville Election District; and WHEREAS, the Board carefully considered the recommendations of the Planning Commission and staff, and the public testimony, if any, received at the public hearing; and WHEREAS, the Board determined that the requested zoning and proffer amendments are compatible with the surrounding land uses and zoning; and WHEREAS, the Board finds that public necessity, convenience, general welfare, and good zoning practice require adoption of an ordinance to amend proffered conditions on the subject property;

11 Attachment 1 Page 2 of 3 O16-35 Page 2 NOW, THEREFORE, BE IT ORDAINED by the Stafford County Board of Supervisors on this the day of, 2016, that the Stafford County Zoning Ordinance be and it hereby is amended and reordained by amending the proffered conditions on Tax Map Parcel No zoned P-TND, Planned Traditional Neighborhood Development Zoning District, as specified in the final proffer statement entitled, Proposed Proffers, dated May 16, AJR:JAH:mz

12 Attachment 1 R Page 3 of 3 PROPOSED BOARD OF SUPERVISORS COUNTY OF STAFFORD STAFFORD, VIRGINIA RESOLUTION At a regular meeting of the Stafford County Board of Supervisors (the Board) held in the Board Chambers, George L. Gordon, Jr., Administration Center, Stafford, Virginia, on the day of, 2016: MEMBERS: VOTE: Robert Bob Thomas, Jr., Chairman Laura A. Sellers, Vice Chairman M. G. Meg Bohmke Jack R. Cavalier Wendy E. Maurer Paul V. Milde, III Gary F. Snellings On motion of, seconded by, which carried by a vote of, the following was adopted: A RESOLUTION TO DENY AN APPLICATION TO AMEND AND REORDAIN THE STAFFORD COUNTY ZONING ORDINANCE BY AMENDING THE PROFFERED CONDITIONS ON TAX MAP PARCEL NO ZONED P-TND, PLANNED TRADITIONAL NEIGHBORHOOD DEVELOPMENT ZONING DISTRICT, WITHIN THE GARRISONVILLE ELECTION DISTRICT WHEREAS, Route 606-Reston LLC, applicant, submitted application RC requesting an amendment to proffered conditions on Tax Map Parcel No , zoned P-TND, Planned-Traditional Neighborhood Development, within the Garrisonville Election District; and WHEREAS, the Board carefully considered the recommendations of the Planning Commission and staff, and the public testimony, if any, received at the public hearing; and WHEREAS, the Board determined that the requested zoning is incompatible with the surrounding land uses and zoning; WHEREAS, the Board has considered the criteria in Stafford County Code Sec and finds that the requested zoning and proffer amendment do not meet the standards of the Zoning Ordinance for a zoning and proffer amendment; NOW, THEREFORE, BE IT RESOLVED by the Stafford County Board of Supervisors on this the day of, 2016, that application RC be and it hereby is denied. AJR:JAH:mz

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