COUNTY OF PRINCE WILLIAM 5 County Complex Court, Prince William, Virginia 22192-9201 PLANNING (703) 792-7615 FAX (703) 792-4758 OFFICE Internet www.pwcgov.org Christopher M. Price, AICP Director of Planning February 7, 2014 STAFF REPORT Comprehensive Plan Amendment #PLN2013-00184, Reserve at Cannon Branch (Coles Magisterial District) I. Background is as follows: Planning Commission Public Hearing: February 19, 2014 Staff Recommendation: Approval A. Comprehensive Plan Amendments Under the Code of Virginia, the Board of County Supervisors can initiate amendments to the adopted Comprehensive Plan. The Board of County Supervisors initiated CPA #PLN2013-00184, Reserve at Cannon Branch, on March 12, 2013 as part of the annual comprehensive plan amendment (CPA) initiation process. B. Request To change the Long-Range Land Use designation in the Comprehensive Plan of ±10.7 acres from NC, Neighborhood Commercial, to SRL, Suburban Residential Low. The subject property encompasses a total area of ±14.4 acres, of which ±10.7 acres are being affected through this CPA request. The existing ±3.7 acres of Environmental Resource (ER) designation on the balance of the property will be retained. This CPA request is being processed concurrently with REZ #PLN2013-00372, Reserve at Cannon Branch. LRLU Classification Existing Acreage Proposed Acreage with CPA Neighborhood Commercial (NC) ±10.7 0 Suburban Residential Low (SRL) 0 ±10.7 Environmental Resource (ER) ±3.7 ±3.7 (no change) Total ±14.4 ±14.4 Note: Subject area for this CPA request is only affecting ±10.7 acres (NC to SRL designation) An Equal Opportunity Employer
February 7, 2014 Page 2 The following chart summarizes the usage, demographic, and transportation impacts of the application based on the average development density of the commercial vs. residential use designations: Commercial Development (current B-2 zoning, with approved site plan) Suburban Single-Family Detached Residential Units Trips per Day Existing NC/ER Proposed SRL/ER Difference 43,900 SF retail 11,900 SF office N/A 3,200 SF drivethru bank N/A Density of 1 to 4 d.u. / acre (10 to 43 d.u.) 4,696 VPD 435 VPD 4,261 (weekdays) (weekdays) (over 90% reduction) C. BOCS Initiation On March 12, 2013, the Board of County Supervisors initiated this Comprehensive Plan Amendment (CPA) request with an area encompassing approximately 11 acres as part of the annual 2013 CPA initiation process. As initiated, the CPA proposes to change the Long-Range Land Use designation of 11 acres of Neighborhood Commercial and Environmental Resource to Suburban Residential Low and Environmental Resource. D. Site Location The subject property for the CPA request is located on the south and west side of Godwin Drive at its intersection with Hastings Drive and just outside of the City of Manassas. The site is identified on County maps as two parcels, which have a total area of ±10.7 acres with GPINs 7695-72-7899 (portion) and 7695-72-9468 (see Attachment A for maps). E. Existing Zoning and Land Use The property is currently zoned B-2, Neighborhood Business, and A-1, Agricultural, and has a planned land use designation of NC, Neighborhood Commercial, and ER, Environmental Resource. The site is located within the Airport Safety Overlay District (ASOD). F. Companion Rezoning This proposed CPA for a map amendment has a companion rezoning application (REZ #PLN2013-00372, Reserve at Cannon Branch). The proposal seeks to rezone ±14.4 acres from B-2, Neighborhood Business, and A-1, Agricultural, to R-4, Suburban Residential. The subject property is to be developed with up to 26 lots for single-family detached homes under the Suburban Cluster provision.
February 7, 2014 Page 3 G. Adjacent Land Uses The subject property is located on the south and west side of Godwin Drive at its intersection with Hastings Drive and just outside of the City of Manassas. To the north of the site is the City of Manassas and partially vacant or single-family detached residential. The Great Oaks residential subdivision with single-family detached residential is located to the south. The City of Manassas, larger lot single-family detached residential, and George C. Round Elementary School is across Godwin Drive and to the east. West of the site is an open space buffer area which abuts the Glen Gery Corporation, a brick manufacturing and clay quarry facility, which is zoned for heavy industrial. II. Current Situation is as follows: A. Planning Office Recommendation The Planning Office recommends approval of, for the following reasons: The proposed use designation of SRL, Suburban Residential Low, is compatible with the use designation to the south and the abutting uses to the north and west in the City of Manassas. The use change will align with the residential character of the area and provide a definitive transition between residential communities to the east and north and the nonresidential development and uses to the west toward the Route 28 corridor. There is a surplus of NC, Neighborhood Commercial, uses in the area. The existing NC designation should not be nearer than one mile from any other retail designation. Existing retail projects at the intersection of Godwin Drive and Nokesville Road are less than ¾ mile from the subject property and should be sufficient to satisfy retail needs of the community. There is other nearby commercial/retail development within both the County and City of Manassas as well. Thus, replanning the designation from NC to SRL is favorable at this location and creates a more desirable mixture of uses. The proposed residential infill development is a land use that would be consistent with the character of the other surrounding residential areas. The proposed SRL use designation will result in a substantial reduction in overall traffic impacts when compared to the current options for by-right commercial uses under the current NC use designation. From the perspective of reduced traffic, changing the planned use designation to SRL is favorable. B. Planning Commission Public Hearing A public hearing before the Planning Commission has been advertised for February 19, 2014.
February 7, 2014 Page 4 III. Issues are as follows: A. Policy What are the broad policy and Comprehensive Plan implications if this CPA request is approved? B. Zoning and Site Development What zoning districts would be consistent with this CPA? C. Community Input Have members of the community raised any issues? D. Other Jurisdictional Comments Have other jurisdictions raised any issues? E. Legal What are the pertinent legal issues associated with this proposal? F. Timing Is there a time limit for the Planning Commission to take action on this proposal? IV. Alternatives are as follows: A. Recommend approval of. Policy If the subject property is redesignated to SRL, Suburban Residential Low, and ER, Environmental Resource, it could be rezoned to allow a residential density up to 4 units per acre. The primary use in the SRL use would be single-family detached residential dwellings in a suburban layout and density. The proposed SRL designation for the site could allow up to 43 units and would generate up to 435 daily weekday vehicle trips generated by development of the site. Also, at this location, SRL would allow a continuity of residential uses and would create a viable and efficient transition of uses against in industrial uses to the west and commercial to the north. Zoning and Site Development The existing zoning of the subject site is B-2, Neighborhood Business, and the site would have a new use designation as SRL, Suburban Residential Low. The zoning would no longer implement the Comprehensive Plan. A companion rezoning application (REZ #PLN2013-00372, Reserve at Cannon Branch) has been submitted to rezone ±14.4 acres from B-2, Neighborhood Business, and A-1, Agricultural, to R-4, Suburban Residential. Through the rezoning proposal the subject property is to be developed with up to 26 lots for single-family detached residential through the R-4 zoning Suburban Cluster development option.
February 7, 2014 Page 5 Community Input Notice of the Comprehensive Plan Amendment has been transmitted to property owners within 200 feet of the site. Also, the applicant has provided over 50 letters of support from citizens in the adjacent Great Oaks residential community, which were supportive of the CPA initiation and development for suburban residential development. As of the date of this staff report, there has been no noted opposition to this CPA request from the community. Other Jurisdictional Comments The project area abuts the City of Manassas to the north and east, across Godwin Drive. As of the date of this staff report, the City of Manassas has expressed no objection to this CPA request. Legal Approval of this proposal would change the Long-Range Land Use designation of ±10.7 acres from NC, Neighborhood Commercial, to SRL, Suburban Residential Low. Legal issues resulting from Planning Commission action would be addressed by the County Attorney. Timing The Planning Commission does not have a deadline for acting on this CPA request. However, staff has a policy to bring initiated CPAs forward to the Planning Commission and Board of County Supervisors at the same time as the concurrent rezoning. B. Recommend denial of. Policy The CPA study area would retain the current NC and ER use designations and the existing B-2, Neighborhood Business, and A-1, Agricultural, zoning districts would continue to implement these land use designations. Zoning and Site Development If the existing B-2 zoning district would remain in place, the property could be developed as commercial to serve the surrounding neighborhoods. The subject property already has an approved site plan for commercial development, which is compatible with the B-2 zoning and NC use designation. Community Input Notice of the Comprehensive Plan Amendment has been transmitted to property owners within 200 feet of the site. Also, the applicant has provided over 50 letters of support from citizens in the adjacent Great Oaks residential community, which were supportive of the CPA initiation and development for suburban residential development. As of the date of this staff report, there has been no noted opposition to this CPA request from the community.
February 7, 2014 Page 6 Other Jurisdictional Comments The project area abuts the City of Manassas to the north and east, across Godwin Drive. As of the date of this staff report, the City of Manassas has expressed no objection to this CPA request. Legal Denial of this proposal would not change the current Long-Range Land Use designation of NC, Neighborhood Commercial. Legal issues resulting from Planning Commission action would be addressed by the County Attorney. Timing The Planning Commission does not have a deadline for acting on this CPA request. However, staff has a policy to bring initiated CPAs forward to the Planning Commission and Board of County Supervisors at the same time as the concurrent rezoning. V. Recommendation is that the Planning Commission accept Alternative A and recommend approval of. Staff: Scott F. Meyer, x 6876 Attachments: A. Area Maps B. Staff Analysis C. BOCS Initiating Resolution
Attachment A Maps VICINITY MAP Page A-1
Attachment A Maps AERIAL MAP Page A-2
Attachment A Maps EXISTING ZONING Page A-3
Attachment A Maps EXISTING LONG-RANGE LAND USE Page A-4
Attachment A Maps PROPOSED LONG-RANGE LAND USE Page A-5
Attachment B Staff Analysis COMPREHENSIVE PLAN CONSISTENCY ANALYSIS The following is a staff analysis of the proposal s consistency with the Comprehensive Plan. This analysis is based on the relevant Long-Range Land Use Plan objectives. These objectives are used as the criteria in determining appropriateness of a Comprehensive Plan Amendment. REQUEST This is a proposed amendment to the Comprehensive Plan to change the Long- Range Land Use designation of ±10.7 acres from NC, Neighborhood Commercial, to SRL, Suburban Residential Low. The adjacent area of the property designated as ER, Environmental Resource, which encompasses approximately 3.7 acres, will remain unchanged. General Characteristics of Area The following table summarizes the area characteristics (see maps in Attachment A): Direction Land Use Long-Range Land Use Map Designation North South East West Across Godwin Drive; City of Manassas; partially vacant and singlefamily detached residential Suburban single-family detached residential (Great Oak subdivision) Across Godwin Drive; City of Manassas; Larger lot single-family detached residential and partially vacant; George C. Round Elementary School to east of existing residence Glen Gery Corporation facility (brick manufacturing/clay quarry); Industrial City of Manassas Zoning City of Manassas SRL R-4 City of Manassas City of Manassas EI M-1 The property affected by this proposed CPA is located on the south and west side of Godwin Drive at its intersection with Hastings Drive and just outside of the City of Manassas. The site is identified on County maps as two parcels, with GPINs 7695-72-7899 (portion) and 7695-72- 9468, and is located within the Airport Safety Overlay District and the Development Area. Page B-1
Attachment B Staff Analysis Long-Range Land Use Plan Analysis Through wise land use planning, the County ensures that landowners are provided a reasonable use of their land while the County is able to judiciously use its resources to provide the services for residents and employers needs. The Long Range Land Use Plan sets out policies and action strategies that further the County s goal of concentrating population, jobs, and infrastructure within vibrant, walkable, mixed-use centers serviced by transit. In addition to delineating land uses on the Long Range Land Use Map, the plan includes smart growth principles that promote a countywide pattern of land use that encourages fiscally sound development and achieves a highquality living environment; promotes distinct centers of commerce and centers of community; complements and respects our cultural and natural resources, and preserves historic landscapes and site-specific cultural resources; provides adequate recreational, park, open space and trail amenities that contribute to a high quality of life for county residents; and revitalizes, protects, and preserves existing neighborhoods. The following table summarizes the intended uses, characteristics, and densities intended for the NC, ER, and SRL use designations: Long-Range Land Use Plan Classification Neighborhood Commercial (NC) (Existing) Land Uses & Densities Intended The purpose of the Neighborhood Commercial classification is to provide commercial areas to serve surrounding residential neighborhoods. NC designated areas shall be planned and developed in a comprehensive, coordinated manner. NC projects shall not be nearer than one mile from any other NC area or project, or any GC or Convenience Retail (CR) area or project. The site orientation of an NC project shall be toward surrounding neighborhoods, with project access from primary neighborhoodserving roadways, rather than from roadways serving passthrough/pass-by traffic. Pedestrian access to and from the surrounding neighborhood, where appropriate, shall be encouraged. Primary uses in the NC classification are the retail and retail service uses permitted in the B-2, Neighborhood Business zoning district, and/or mixed-use buildings that combine retail/retail service uses on the first floor only and residential uses on no more than two additional floors, with a special use permit. In order that the neighborhood-serving function of NC uses can be maintained, maximum NC project size shall be 15 acres and the maximum size of non-residential uses shall be 120,000 gross square feet, with no single use (other than a grocery store, general store, or drug store) to be larger than 12,000 gross square feet. Page B-2
Attachment B Staff Analysis Suburban Residential Low (SRL) (Proposed) The purpose of the Suburban Residential Low classification is to provide for housing opportunities at a low suburban density. The housing type in this classification is single-family detached, but up to 25 percent of the total land area may be single-family attached. The density range in SRL projects is 1-4 units per gross acre, less the ER designated portion of a property. Cluster housing and the use of the planned unit development concept may occur, provided that such clustering and planned district development furthers valuable environmental objectives as stated in EN-Policy 1 and EN-Policy 4 of the Environment Plan, the intent stated in the Cultural Resources Plan and preserves valuable cultural resources throughout the County. Environmental Resource (ER) (Existing & Proposed) Area will remain unchanged with this CPA. This classification is explained in detail within the Environment Plan. Therein are located goals, policies, action strategies, and other Plan components designed to protect the sensitive nature of the identified resources. Environmental Resources include all 100-year floodplains as determined by the Federal Emergency Management Act (FEMA), Flood Hazard Use Maps or natural 100-year floodplains as defined in the Design and Construction Standards Manual, and Resource Protection Areas (RPAs) as defined by the Chesapeake Bay Preservation Act. In addition, areas shown in an environmental constraints analysis submitted with a rezoning or special use permit application with wetlands; 25 percent or greater slopes; areas with 15 percent or greater slopes in conjunction with soils that have severe limitations; soils with a predominance of marine clays; public water supply sources; and critically erodible shorelines and stream banks are considered part of the Environmental Resource Designation. Potential Effect of Proposed Reclassification Based on the current NC, Neighborhood Commercial, land use designation and the B-2, Neighborhood Business, zoning classification, the subject property has an approved site plan for a commercial development, with retail, office, and drive-thru bank uses. The total trips generated would have been up to 4,696 vehicles per day (VPD) on weekdays. With the potential traffic being generate and the associated impervious surfaces, the development would generate considerable impacts. Through this requested Comprehensive Plan Amendment to change the land use designation to SRL, Suburban Residential Low, the density range of housing units would be between 1 to 4 units per acre. In this case, the property could yield up to 43 residential units on the property. The resulting vehicular trips would be up to 435 VPD during weekdays, which is Page B-3
Attachment B Staff Analysis over 90% less than what could have been developed. Regardless of the reduction of traffic impacts, SRL development would be a compatible use type at this location. The companion rezoning would allow up to 26 lots with single-family detached homes through an R-4 suburban cluster provision, which would also preserve additional open space and provide a more compatible land use for this particular area. The proposed gross density would be 1.8 dwelling units per acre and the net density would be 2.7 dwelling units per acre. The proposed Long-Range Land Use Plan Map change to SRL will be a viable planned use for the site. It would allow the property to develop with single-family detached homes of comparable size and quality as those that exist in the Great Oaks community, in order to reinforce and expand the residential character of the area, preserve natural areas, and provide a definitive transition between the residential communities to the east and north and the non-residential development and uses to the west towards the Route 28 corridor. The subject property is situated adjacent and to the north of the existing Great Oaks development, a well-established residential community comprised of single family detached homes. The existing configuration of the property and natural features provide an opportunity to extend the residential pattern established to the east of the Winter's Run stream feature and to preserve the Resource Protection Area and 100-year floodplain as a natural transition area to more intense uses to the west. The SRL designation allows for residential densities ranging between 1 and 4 units per acre, which would allow a density range consistent with the residential densities throughout the area on the north side of the Route 234 Bypass in the County and with the residential densities to the north of the property in the City of Manassas. What follows on the next page is an analysis using Smart Growth principles as they are relevant to this proposed CPA. Page B-4
Attachment B Staff Analysis SMART GROWTH PRINCIPLES ANALYSIS 1. Mix of Uses Create vibrant communities that integrate places to work, shop, live and play. Contribute to a diversity of uses in an existing community. a. The purpose of the Suburban Residential Low (SRL) use classification is to provide for housing opportunities at a low suburban density with the primary housing type being single-family detached dwellings. Although not requested with the companion rezoning request, the SRL designation also allows for up to 25% of the project area to be developed with townhouse units. b. The property would not contain a mix of uses. The companion rezoning, if approved, would permit 26 single-family detached units in a suburban cluster configuration. However, intact areas of open space will be preserved on the western areas of the property, which will provide a transition to industrial uses to the west. c. The companion rezoning will have a single access point onto Godwin Drive. The property is not proposed to be directly integrated into the surrounding residential developments, such as Great Oaks, but will still be compatible and will create a continuity of similar uses. 2. Building Design Utilize compact, environmentally-friendly and energy efficient building design. Design communities in a way that permits more open space to be preserved and the construction of buildings at higher densities, which make more efficient use of land and resources. a. Typically, development occurring within proximity of Environmental Resource areas should have densities at the lower end of the density range. The companion rezoning would allow for a net density of 2.7 units per acre, which is in the middle of the density range for SRL development and compatible with surrounding residential. b. By utilizing the R-4 suburban cluster option for the residential development being proposed with the concurrent rezoning request, a fifty foot (50') wide buffer will be provided at the perimeter of the site along the road frontages and adjacent to the existing residential development. c. If SRL uses are developed, one of the options with a companion rezoning is a cluster arrangement, which would allow for smaller lots with greater intact areas of natural features and open space to be preserved. The companion rezoning is proposing R-4, Suburban Residential, development with the suburban cluster provision. Page B-5
Attachment B Staff Analysis 3. Range of housing options Provide a diversity of housing unit types and sizes. Increase the choices available to households of all income levels. Suburban Residential Low (SRL) uses allow a mix of single-family detached and townhouse development, with single-family detached as the primary unit type. Lot layout and orientation should be proffered in association with any development in the SRL use designation. The companion rezoning is a request to rezone to the R-4, Suburban Residential, zoning district with a suburban cluster provision. Single-family detached homes will be constructed, which can be still compatible with surrounding community. However, the proposal does not provide a range of housing mix opportunities, nor does it directly address housing affordability. 4. Walkable Neighborhoods Create walkable neighborhoods designed at the human scale rather than for the automobile. Locate goods and services that a community resident or employee needs on a regular basis, within easy and safe walking distance. Mix land uses and build compactly, and ensure safe and inviting pedestrian corridors. Godwin Drive/Hastings Drive is an existing four-lane divided urban section road along the northern and eastern property frontage. This segment includes a posted 35 MPH speed limit along the site frontage which transitions to 25 MPH to the east adjacent to the George C. Round Elementary school. With the replanned residential use designation and as proffered with the proposed residential rezoning, a four foot (4') wide sidewalk along the Godwin/Hastings Drive frontage and a five foot (5') wide sidewalk along the Godwin Drive frontage will be constructed. These improvements will all contribute to the walkability component. Through the concurrent rezoning, a trail will also connect to the open space area on the western side of the development. 5. Distinctive Communities Foster distinctive, attractive communities with a strong sense of place. Create interesting, unique communities which reflect the values and cultures of the people who reside there. Enhance local architectural beauty and distinctiveness, especially in historically significant areas. Through this CPA and associated rezoning, the site will be able to be developed as Reserve at Cannon Branch, which will be a suburban cluster residential development with up to 26 lots, preserved open space, and perimeter landscape buffers. The concurrent rezoning proposes to utilize a suburban cluster design. Page B-6
Attachment B Staff Analysis 6. Preserve open space, farmland, cultural resources and critical environmental areas Benefit the general public by limiting impacts on watersheds, scenic vistas and agricultural areas needed for drinking water, farm and tourism revenues and a strong quality of life. The subject site has a 100-foot Resource Protection Area (RPA) area, open space, 100- year flood plain, and a proposed 50-foot perimeter landscape buffer. The existing Environmental Resource, ER, land use designation area will be unchanged. Development of the site shall include limits of clearing and grading and protection of critical environmental features. There were no cultural or historical resources of concern identified on the site. 7. Existing development and infrastructure Strengthen and direct development towards existing communities and infrastructure. Create opportunity for infill or redevelopment of under-utilized, abandoned and Brownfield sites. The proposed lower density residential in this area will allow the property to develop with single-family detached homes of comparable size and quality as those that exist in the adjacent Great Oaks community. However, this community will have a suburban cluster layout. This type of continuity in suburban residential will reinforce the residential character of the area and provide a definitive transition between the residential communities to the east and north and the nonresidential uses to the west towards the Route 28 corridor. 8. Transportation Choices Encourage development near existing or future transit corridors to develop in a transit-compatible manner, incorporating provision of transit services, facilities and commuter lots. Where appropriate, encourage higher densities/intensities and mixed uses near transit locations. a. The proposed change would result in a substantial decrease in generated vehicular trips from the previously-approved commercial development, which would have generated 4,696 weekday vehicle trips. Based on the DCSM trip rate of 10.1 trips per day per single family dwelling unit, the 26 single family dwelling units proposed under REZ PLN 2013-00372 for the property would generate 260 weekday vehicle trips. This represents a trip generation decrease of over 94%. In regard to public transit option, PRTC currently has no plans for bus service in the area. b. This site is not located in any specific Center areas of density, transit corridors, or revitalization areas. Recommendation: Staff recommends approval of CPA #PLN2013-00184, Reserve at Cannon Branch, as initiated by the Board of County Supervisors. Page B-7
Attachment C BOCS Initiating Resolution Page C-1
Attachment C BOCS Initiating Resolution Page C-2