ARLINGTON COUNTY, VIRGINIA County Board Agenda Item Meeting of July 10, 2004 DATE: July 1, 2004 SUBJECTS: A. Consideration of consent concerning whether to include Hillside Park within the site plan area of Site Plan #369, in conjunction with its consideration of Site Plan #369; premises known as Hillside Park located on the corner of N. Pierce St. and N. 16 th Rd. (RPC #17-003-010, -012, -299, -011, -300, 298) B. GP-289-04-1 General Land Use Plan Amendment to designate 1531 North Pierce Street as a Special Affordable Housing Protection District and add Note 13. C. SP #369 SITE PLAN for approximately 238 dwelling units with modification of use regulations for exclusion of HVAC rooms, below grade storage from GFA, and parking; premises known as 1531 N. Pierce St., Hillside Park bounded by 16th Rd. and N. Pierce St., and a portion of vacated N. 16th St. (RPC #17-003-001, -002, -010, -011, -012, -298, -299, - 300) Applicant: Arlington Partnership for Affordable Housing 2704 Pershing Drive Arlington, Virginia 22201 By: Paradigm Development Company 1415 North Taft Street, Suite 100 Arlington, Virginia 22201 C.M. RECOMMENDATIONS: A. Consent to the inclusion of Hillside Park within the site plan area of Site Plan #369, and direct the County Manager to allocate funds required to be paid to Arlington County Manager: County Attorney: Staff: Freida Wray, Planning Division, DCPHD Betts Abel, Housing Division, DCPHD David Robinson, Planning Division, DES Carole Ann Perovshek, Planning Division, DPRCR
County for the value of the Hillside Park density, pursuant to Condition #72 of Site Plan #369, as follows: a. Fifty percent of the funds will be paid to the Department of Parks, Recreation and Cultural Resources Greater Rosslyn Parks Trust in Agency Account (099-682-0599) and shall be utilized for the future acquisition, development, and redevelopment of parks which support the greater Rosslyn neighborhood. b. Fifty percent of the funds will be paid to the Arlington County Housing Reserve Fund. B. Adopt the attached resolution to designate a Special Affordable Housing Protection District and add Note 13 for the property located at 1531 North Pierce Street. C. Approve the site plan, with modifications of use regulations for exclusion of below grade storage from the GFA, and a parking reduction, subject to the conditions of the staff report. ISSUES: None. SUMMARY: The applicant proposes to develop a 15-story, 238-unit residential building in the Rosslyn Metro Station area. The project would include a substantial affordable housing component, totaling 95 units, or 40% of the total number of units in the building. The affordable units would be available to low- and moderate-income households earning up to 60% of the Area Median Income for a minimum of 60 years. The proposed development represents an extraordinary opportunity to gain a significant number of affordable dwelling units within the Metro Corridor in close proximity to a Metro Station. In a separate report, staff is requesting authorization from the County Board to allocate up to $1,800,000 in County funding (Affordable Housing Investment Fund and Rosslyn Fund) to this project. The proposed site plan is also consistent with the site s zoning classification and General Land Use Plan designations. Inclusion of the Hillside Park within the site area allows accomplishment of the significant affordable housing program, while at the same time preserves the Park as open space for the life of the site plan. Additionally, the applicant proposes to achieve, at a minimum, a LEED Certified building under the US Green Building Council rating system, although commercially reasonable best efforts will be made to achieve a Silver-rated building. These attributes have resulted in the site plan being recognized by the Smart Growth Alliance as a Smart Growth Project (see Attachment). The applicant has agreed to a number of improvements, including pay back to the County of the appraised value of the Hillside Park density and an upfront contribution of $500,000 towards planning and improvements to Hillside Park. Therefore, staff recommend that the County Board consent to the use of public property, Hillside Park, as a part of the site plan, approve the GLUP Amendment to add Note 13 designating the APAH property as a Special Affordable Housing Protection District, and approve the proposed site plan subject to the conditions in the staff report. BACKGROUND: In November, 2002, the applicant filed a site plan to construct a 20-story, 196-foot tall building containing 267 residential units on the portion of the site owned by the Arlington Partnership for Affordable Housing (APAH). Since the initial filing, this proposal has been revised to reduce the building s overall height to 15 stories and 136 feet, and the total number of units to 238, including 95 affordable dwelling units representing 40 percent of the GP-289-03-1 & SP #369-2-
total number of units. The APAH property is zoned RA-4.8 and designated High Medium Residential on the General Land Use Plan (GLUP). A GLUP Amendment to add a note designating the property as a Special Affordable Housing Protection District (SAHPD) would be required. Hillside Park is zoned RA-4.8 and designated Public on the GLUP. The following provides additional information about the site and location: Site: The site is located in the block bounded by North Pierce Street, 16 th Road, Fairfax Drive and Fort Myer Drive. It includes the property owned by APAH (1531, 1531A, 1536 and 1538 North Pierce Street, and Outlot A) and Hillside Park (including Outlots B, C and D). In 1970, the County Board vacated a portion of 16 th Street right-of-way to a line extending 150 feet east from North Pierce Street. Outlot A consists of one-half of the vacated right-of-way (3,750 square feet), and was conveyed in fee to the previous owner of the APAH property. Outlots B, C and D comprise the balance of the vacated right-of-way (3,750 square feet). The County retained ownership of those outlots, and conveyed an easement to the Belvedere for a 22-foot wide vehicle travel way. The APAH property is located contiguous to the site s south boundary line and east of North Pierce Street. It is currently developed with a 3-story brick garden apartment building built in 1950 and containing 22 units. Hillside Park is located contiguous to the site s north boundary line, south of 16 th Road and east of North Pierce Street. Development adjacent to the site includes: To the north: To the west: To the east: To the south: Contiguous to the north of Hillside Park is North 16 th Road. Across 16 th Road to the north and northeast are the 12-story Oakwood Apartments (formerly Cascade Apartments) and several garden apartment buildings zoned RA4.8 and designated High-Medium Residential on the GLUP. Across North Pierce Street, several 3- and 4-story older, brick garden apartment complexes, including the Arlington Boulevard and Pierce-Queen Apartments, all of which are zoned RA6-15 and designated Medium Residential (37-72 units/acre) on the GLUP. Contiguous to the east of the APAH property is the 2-story Iwo Jima Quality Inn Motel, zoned RA-H and designated High-Medium Residential on the GLUP. Located northeast of the APAH property and contiguous to the east of Hillside Park is a 4-story garden apartment building zoned RA4.8 and also designated High-Medium Residential on the GLUP. Further east is the 18-story Belvedere Condominiums, also zoned RA4.8 and designated a combination of High-Medium and High Residential on the GLUP. Contiguous to the south of the APAH property is the 4-story garden apartment building, the Williamsburg Apartments, built in 1951, zoned RA4.8, and designated High- Medium Residential on the GLUP. Zoning: The site is zoned RA-4.8 Multiple Family Dwelling Districts. Land Use: The APAH property is designated High Medium Residential on the General Land Use Plan (GLUP), which permits up to 3.24 FAR. A GLUP Amendment to add a note designating the property as a Special Affordable Housing Protection District (SAHPD) would be required. Hillside Park is designated Public on the GLUP. Neighborhood: Radnor-Fort Myer Heights. GP-289-03-1 & SP #369-3-
RA-4.8 Density Allowed Maximum Development (91,750 sf) By-Right 24.2 units/acre 50 units Site Plan 3.24 FAR 297,270 sf residential GFA GP-289-03-1 & SP #369-4-
Proposed Development: The following table sets forth the statistical summary for the project. SITE AREA APAH property Hillside Park Density Total Residential G.F.A. Management/Tenant Storage G.F.A. Net Residential G.F.A. "RA-4.8" Permitted G.F.A. Net Residential F.A.R. "RA-4.8" Permitted F.A.R. Total Residential Units 91,750 SF (2.106 acres) 30,000 sf 61,750 sf 269,489 sf 3,611 sf 265,878 sf 297,270 sf 2.9 F.A.R. 3.24 F.A.R. 238 units Affordable Dwelling Units 95 units (40%) Building Height Average Site Elevation 142.49 feet Main Roof Elevation 274 feet Main Roof Height 131.51 feet Penthouse Roof Elevation 278.49 feet Penthouse Roof Height 136 feet Number of stories 15 stories "RA-4.8" Permitted Height 136 feet 1 Parking Standard 187 spaces Compact 27 spaces Tandem 24 spaces Total Parking with Tandem Spaces 238 spaces Total Parking without Tandem Spaces 214 spaces Residential Parking Ratio with Tandem 1 space per unit Residential Parking Ratio w/o Tandem.899 space per unit Compact Parking Ratio (non-tandem spaces) 12.6% "RA-4.8" Required Parking 238 spaces "RA-4.8" Required Parking Ratio 1 space per unit LEED Score 26 points Density and Uses: The applicant proposes to develop a 15-story residential building containing 231 apartment units (92 affordable) and seven (7) 2-story townhouse units (3 affordable). The apartment units would consist of 14 studios (six [6] affordable), 138 one-bedroom units (55 affordable), 66 two-bedroom units (26 affordable), and 13 three-bedroom units (5 affordable). Each of the townhouse units would contain three (3) bedrooms. The townhouse units would be situated along the building s east elevation and have private landscaped pedestrian entrances and interior access from the building s basement level. The building amenities would include a health club and outdoor amenity area on the first floor, and a party room and outdoor swimming pool on the 15 th floor. The outdoor amenity area would contain 1,360 square feet of terraced 1 Maximum permitted height includes penthouses and parapet walls measured from the average elevation of the site. GP-289-03-1 & SP #369-5-
space located above the garage ramp. It would be designed as a passive area for small parties and events, and would be improved with decorative hardscape and railing, as well as landscaping and furnishings. The proposed building would have three (3) levels of below-grade parking, with garage access from North Pierce Street. Site and Design: The L-shaped building would be constructed of brick and precast masonry. The building would step down at the 14 th floor adjacent to 16 th Street. The building would have a defined base, middle and top, with the top s materials consisting of ariscraft stone, the middle of red brick, and the base of predominantly stone with an interplay of brick masonry. While the building tower would be set back approximately 26 feet from the south property line, the garage would abut the south property line and approximately 20 feet of the wall would be exposed due to the slope of the site. The wall is adjacent to the garage ramp, and the terraced amenity area is located on the roof of the ramp. The exposed wall would consist of red brick. To add interest and break up the wall, the applicant proposes recessed masonry with ornamental grilles. The two-story townhouse units located adjacent to the east elevation would have a treatment that differentiates them as townhouse units, but blends in material and design with the rest of the building. A vehicular court would be constructed in front of the building and would provide an area for drop-offs and short-term, convenience parking (3 spaces). The court would have a decorative design utilizing masonry pavers. A low-rise masonry wall fabricated of red brick with a precast stone header would screen the vehicular area and frame the street along the North Pierce and 16 th Street frontages. LEED Scorecard: The applicant commits to achieving a minimum of 26 LEED points, which would qualify the project for the LEED Certified rating. The sustainable elements that the applicant proposes to implement include, but are not limited to, a green roof; construction waste management and recycling; use of local and regional materials and certified wood; and use of low-emitting paints, carpet and wood. The applicant desires to achieve a LEED Silver rating and will use its best efforts to accomplish that. Condition #64 addresses the applicant s LEED scorecard and implementation of green building measures in the proposed project, including the provision of Energy Star appliances and fixtures. Affordable Housing Plan: The developer proposes to include affordable dwelling units in a rental apartment project with market-rate dwelling units. The affordable units in the proposed new residential building would be available to those earning up to 60 percent of the Area Median Income (AMI). The following chart provides a statistical summary of the proposed affordable housing plan: GP-289-03-1 & SP #369-6-
% of Net 1 Number Unit Area Median Monthly Affordability Units Type Income Rent Term 6 Eff. 60% $858 60 years 55 1-br 60% $911 60 years 26 2-br 60% $1,089 60 years 5 3-br 60% $1,243 60 years 3 3-br TH 60% $1,243 60 years Among the affordable units, five (two efficiencies and three 1-bedroom units) will be maintained as fully accessible to persons with physical disabilities. Tenants leasing the affordable units would be subject to customary fees, as applicable, charged for garage parking, application/credit check fee, move-in fee, pet deposit/fee, etc. Amenities would be included in the rents. The indicated rents are indexed to 2004 area median incomes as published by the U.S. Department of Housing and Urban Development (HUD) for the Washington, D.C. Metropolitan Area (MSA). If the HUD Median Income figure increases between the time of project approval and lease-up of the units, the rents would increase but would remain affordable to households at the same income tiers. The rents could therefore rise to the maximum allowable rent under the HUD Median Income guidelines (less the utility allowance) for the agreed upon affordability level (i.e., 60 percent of median income). These affordability levels would be secured under the terms of tenants' leases and would be included as a provision in the Committed Affordable Housing program agreement between the County and the developer/owner. The affordable rent schedule, as adjusted, would remain in effect for the duration of the term of the affordability period. At the end of the term, the units could transition to market rate rents; however, it is the applicant s desire, given its mission, to seek to keep them affordable. The developer has not submitted a detailed marketing plan at this point, but has indicated that it will coordinate with the County on a standard marketing plan subject to approval by the County Manager or his designee as consistent with the County s criteria for such marketing plans. Marketing plans approved in recent projects call for advertising and marketing of the affordable units for 45 days prior to initial occupancy; thereafter, the units would be marketed for 30 days. The owner and/or management agent will be responsible for providing an annual schedule to the County indicating the unit number, tenant, number of occupants, monthly rent, lease commencement, lease expiration, annual income, and type of income certification (W-2, tax return, employer, etc.). Transportation: The Master Transportation Plan Part 1 classifies North Pierce Street as a neighborhood principal street and 16 th Street North (west of North Pierce Street) as a neighborhood minor street. The Department of Environmental Services does not collect regular 1 The above rents do not include utilities, which would be individually metered and paid by the tenants. The County s standard Section 8 utility allowance factor has been deducted from the maximum rents allowed under the program, which is why the above rents are labeled net rents. GP-289-03-1 & SP #369-7-
traffic volume data for either North Pierce Street or 16 th Street North in the immediate vicinity of the site. Traffic volume data was recently collected for evaluation of a Four Way Stop request for the intersection of 16 th Street North and North Pierce Street in June, 2004. The analyses indicated that the warrants were not met and the intersection does not qualify for a Four Way stop. Traffic volume data for the four approaches to the intersection are detailed below. Direction of Approach North Pierce Street - northbound - southbound 16 th Street North - westbound - eastbound 24-Hour Volume 1,339 vehicles 1,292 vehicles 195 vehicles 278 vehicles Trip Generation: A Traffic Impact Analysis (TIA) submitted by the applicant and prepared by Kimley-Horn & Associates, Inc. in January 2003, assessed the impacts of the development on the adjacent street system. The proposed development is estimated to generate approximately 65 AM peak hour vehicle trips and 79 PM peak hour vehicles trips. The critical intersections in the vicinity of this project provide an acceptable Level of Service (LOS) during the AM and PM peak hours. The signalized intersection of Clarendon Boulevard and North Pierce Street currently operates at LOS C during the AM peak hour and LOS D during the PM peak hour. The two unsignalized intersections immediately north and south of the site (16 th Street and North Pierce Street, and North Fairfax Drive and North Pierce Street), operate at LOS A during the AM and PM peak hours. The impacts of this project will not significantly adversely affect the LOS for the intersections close to the project. The signalized intersection of Clarendon Boulevard and North Pierce Street is forecast to operate at LOS D and LOS E during the AM and PM peak hours in the future as a result of background growth in through traffic resulting from future planned development in the Rosslyn-Ballston Corridor. Parking: The proposed 238-unit building provides a total of 238 vehicle parking spaces, providing a parking ratio of 1 parking space per dwelling unit when 24 tandem spaces are included in the calculation. The developer has agreed to develop a parking management plan to address the efficient utilization of the tandem parking spaces and coordination between tenants. The applicant proposes to access the site s loading dock and parking garage from North Pierce Street. The loading dock area does not provide the necessary vertical clearance to permit overhead front loading solid waste collection to occur within the confines of the building. The developer has agreed to utilize rear loaded solid waste collection vehicles that can operate within the loading dock area. Streets: North Pierce Street, as it exists today, is generally constructed to a 26-foot-wide crosssection, providing two 11.5-foot-wide travel lanes. The developer has proposed to narrow North Pierce Street adjacent to the site frontage to a 23-foot-wide cross-section to comply with the County s urban street standards, providing two 10-foot wide travel lanes plus curb and gutter on both sides of the street. Traffic Mitigation Program: Consistent with site plan development and the County's adopted Transportation Demand Management (TDM) Policy, staff recommends that the applicant implement a TDM Program to discourage single occupant vehicle commuting to and from the site to lessen the impact of the development on the local transportation system. The applicant GP-289-03-1 & SP #369-8-
has submitted a TDM plan that is consistent with the recently approved Woodbury site plan, a similar project with an affordable housing component and a tight parking supply. The applicant s TDM proposal is detailed in Condition #48. Pedestrian Access: The developer s proposed streetscape section along the North Pierce Street frontage of the site consists of a 14.5-foot-wide sidewalk with 5 x12 tree pits adjacent to the back of curb, providing a minimum 8-foot clear sidewalk. The public sidewalk would be constructed of brick pavers along the full length of the sidewalk, including the garage and loading dock entrances. Between the sidewalk and the doors to the garage and loading dock, the treatment would consist of concrete with brick paver banding to coordinate in design and color with the treatment of the public sidewalk. A private sidewalk, also constructed of brick pavers, is proposed along the northern property line of the APAH property adjacent to the vehicle travel way located within the easement area. It would provide access to the townhouse units. This streetscape section would vary between 7.5 and 11.5 feet in width. Adjacent to the vehicular court, the developer has incorporated an 11.5- foot-wide sidewalk with ornamental trees adjacent to the back of curb. From the front edge of the building to the east property line, the developer has incorporated a 4-foot-wide sidewalk with a 3.5-foot wide landscaped buffer between the curb and the sidewalk. Pedestrian Safety: The applicant has agreed to design streetscape improvements along North Pierce Street adjacent to Hillside Park between 16 th Road North and the vehicle travel way. The final design would be reviewed and approved as an element of the Hillside Park planning process and constructed by the County. The streetscape design would incorporate a driveway entrance to the vehicle travel way and would provide a continuous and uninterrupted sidewalk across the driveway entrance along North Pierce Street. New curb ramps would be constructed on both sides of North Pierce Street perpendicular to the curb. A painted pedestrian crosswalk is proposed across North Pierce Street, south of the vehicle travel way. Bicycle Access: The site is conveniently located for accessing the County s bicycle transportation facilities. On-street bike lanes have been implemented along Wilson and Clarendon Boulevards from North Oak Street towards Clarendon. Bike routes are also signed on-street and off-street along Fairfax Drive to the south of the site and provide connections to other trails and routes towards the Potomac River crossings and the Mount Vernon Trail. To accommodate the bicycle parking/storage needs for the residents of this development staff is recommending that the applicant incorporate 84 bicycle parking/storage spaces into this project. Public Transit: The site is located within convenient walking distance of the Rosslyn Metrorail Station which is served by the Orange and Blue Metrorail lines. Metrobus service is also available nearby along Arlington Boulevard, Clarendon and Wilson Boulevards and at the Rosslyn Metrorail Station. Metrobus routes 4A, B, E, H, & S provide service between the Culmore/Seven Corners areas in Fairfax County and the Rosslyn Metrorail Station. Metrobus route 38B provides service between the Ballston Metrorail Station and the Farragut Square Metrorail Station in the District. Many other bus routes are also available at the Rosslyn Metrorail Station for service along the Lee Highway corridor and other destinations in northern Virginia. Utilities: Adequate water and sanitary sewer capacity is available to serve the planned development. Local improvements will be required to provide service to the development and GP-289-03-1 & SP #369-9-
will be determined at the time of final engineering. The developer will be required to comply with both the Stormwater Detention Ordinance and the Chesapeake Bay Preservation Ordinance before construction commences. Staff will review the final site engineering plan to ensure that the storm water runoff does not impact the adjacent residential properties. Consistent with previous site plan practice and the adopted Underground Utility Plan map, developers are required 1) to contribute to the Underground Utility Fund, and 2) to remove or relocate existing aerial utilities to underground facilities. Applicants are responsible for removing overhead utilities, including electric, telephone, cable television and other communication cable (including traffic signal communication cable), that are located along the periphery and within the interior of the site. The relocation shall not result in the placement of any new utility poles either on or off-site. There are no overhead utility lines located along the site periphery. There is an existing guy pole located on-site adjacent to North Pierce Street which supports the aerial lines running down 16 th Street west of North Pierce Street and the lines running down the west side of North Pierce Street. Staff is working with the applicant to relocate the pole across North Pierce Street from the site. If it cannot be relocated across North Pierce Street, then staff recommends that the pole be relocated to APAH s northern frontage adjacent to the vehicle travel way. The applicant would be required to maintain the pole. The developer has also agreed to contribute to the Underground Utility Fund at a rate of $50,000 per acre of site area necessary to support the number of market rate dwelling units provided on-site (calculated on a pro-rata basis for all units above 60% AMI). The contribution to the Underground Utility Fund totals $63,180 and is detailed in Condition #5. STAFF ANALYSIS AND DISCUSSION Adopted Plans and Policies: The site s General Land Use Plan designation and zoning classification guide development on the site. The proposed site plan also meets many of the criteria of the County s affordable housing goals and targets. General Land Use Plan and Zoning: The redeveloped portion of the site (APAH property) is designated High-Medium Residential on the GLUP, and zoned RA-4.8 which is consistent with the GLUP designation and permits up to 3.24 residential F.A.R. Hillside Park is designated Public on the GLUP (planned uses include parks, parkways, major unpaved rights-of-way, and libraries and cultural facilities) and zoned RA-4.8. The proposed development s density of 2.9 F.A.R. and height of 136 feet are consistent with the standards of the RA-4.8 zoning district. By concentrating density within the site plan, from the park to the redeveloped portion of the site, the Public GLUP designation and park use would be preserved. The Special Affordable Housing Protection District (SAHPD) was developed as a mechanism to replace affordable housing demolished for redevelopment in a manner consistent with long term planning goals for the Metro Corridors. The intent of this District is to ensure that existing low- and moderate-income apartment units remain or are replaced where development density shown on the GLUP is 3.24 F.A.R. or more, and is higher than allowed by-right under zoning applicable to properties considered for the SAHPD designation at the time of request for rezoning or site plan. In instances where redevelopment of these sites is proposed, the higher densities shown on the GLUP are intended to be achieved through on-site preservation or replacement of existing affordable low- and moderate-income housing units, either on the site or a similar off-site location as part of the redevelopment proposal. Since the GLUP designation for the APAH property GP-289-03-1 & SP #369-10-
calls for 3.24 F.A.R. of density, designating the property as a SAHPD would establish the mechanism needed to require the replacement of the existing affordable dwelling units. The applicant has proposed an affordable housing plan that goes beyond replacement of existing units, to the provision of significantly more affordable units in the site plan. Staff analysis has concluded that the property s existing GLUP designation, and the proposed GLUP Amendment designating the property as a SAHPD and adding Note 13, are appropriate for this location and recommend that the GLUP Amendment be approved. Affordable Housing Program: A table illustrating how the proposal meets the County s Housing Policy Goals is attached as an appendix to this report. Staff evaluated the affordable housing plan to ensure that it meets the minimum requirements of the Housing Policy Goals: Term: 60 years Eligible Income: The plan would limit eligibility for leasing the 95 new affordable units to households at or below 60 percent of area median income. Unit/Bedroom Mix: The plan provides affordable units as follows: 6 efficiencies, 55 one-bedroom, 26 two-bedroom, 5 three-bedroom apartments and 3 three-bedroom townhouses. Location: The new affordable units will be dispersed throughout the building. Design and Layout: The affordable units will be architecturally compatible with the market-rate units. Households living in the affordable units will have access to all common areas equal with persons in market rate units. Financial Assistance: Based on this proposal combining market-rate rental units with affordable rental units, the applicant is requesting financial assistance from the County up to $1,800,000. A request for the authorization of these funds is the subject of a separate report. The County has engaged O Neill and Associates, L.C., an MAI certified real estate appraisal firm, to value the rent subsidy program for 95 affordable units. The appraiser measured the difference in net operating income (NOI) including the rent differential between 95 affordable units with 60 percent of the median income affordable subsidized rents and 95 market-rate units with market-rate rents. The affordable housing program is valued at $9,900,000. Value of Hillside Park Density: The County s appraiser used recent comparable land sales for rental apartment projects at close-in Metro locations in determining the value of $32/gsf of density from Hillside Park. APAH proposes to repay the value of $5,230,400 (total value of $5,730,400 minus the $500,000 upfront contribution towards Hillside Park planning and improvements) to the County over time on a residual receipts basis. Value of Housing Plan and Density Value of Developer s Housing Plan @ 60% of $9,900,000 Median Family Income Total Land Value of Additional Density from ($5,730,400) Hillside Park ($32 per FAR square foot of added density) Differential (Net additional value to County) $4,169,600 GP-289-03-1 & SP #369-11-
Issues: Through the review process, many concerns and issues have been raised with this site plan. This list is not intended to be all inclusive. Use of Hillside Park density: The question has been raised by citizens regarding the use of density from County park land to support the proposed site plan. It is not standard County practice to incorporate park density into adjacent site plan projects. However, where such inclusion will enable the County to achieve significant goals, with minimal adverse impact on adjacent properties, staff may recommend consent to include County parks in site plans. The County views the inclusion of Hillside Park in the site plan, and the use of density from the park, as an opportunity to achieve an important community goal the provision of substantial affordable housing within the Metro corridor and near a Metro station. The County has chosen to retain the zoning on this and two other parks (Oakland Park zoned C- 2 and R-5, and the North Quincy Street Extension Park zoned C-M and RA8-18 ) so that they might be used as opportunities to achieve significant community objectives. Hillside Park has long been viewed as playing a key role in the provision of an affordable housing project in Rosslyn. Hillside Park was part of a previous proposal whereby the County was considering a land swap between Queen s Court (located at 1801 North Quinn Street and also owned by APAH) and Hillside Park, which would have allowed expansion of the Rosslyn Highlands Park and locating residential density on Hillside Park. The Queen s Court site was designated as open space on the Open Space Master Plan. One of the goals for Rosslyn was to expand active open space by linking the Queen s Court site to the Rosslyn Highlands Park through closure of a section of 18 th Street. When APAH acquired Queen s Court in 1995, with the aid of County Housing Fund Contingent (HFC) funds, County staff was working with APAH to achieve a possible future land exchange between Queen s Court and Hillside Park. However, recent studies have concluded that the land exchange would have conflicted with other County goals and the proposal was dropped. The Market Common Site Plan is one example whereby the County leveraged the vacation of various public streets and alleys in exchange for approximately 44,000 square feet of public open space consisting of a linear park located in the neighborhood and an urban public park located in front of the development, as well as a main street style development with a substantial retail component. Another example is the Stuart Park Site Plan, in which the County leveraged two small parcels of public land (a small park and excess right-of-way) by allowing them to be included in the site plan in order to achieve a substantially larger, oneacre park dedicated in easement to the County in perpetuity. Inclusion of Hillside Park in the site plan, and use of density from the park, would not only contribute to the provision of a substantial affordable housing development, but would also preclude future redevelopment of the Park and preserves the provision and use of the Park as public open space for the life of the site plan. Utilization of the Park density would have no substantial adverse effect on adjacent properties. It has resulted in no additional height on the redeveloped site beyond the maximum permitted by the zoning and GLUP. The proposed building form provides the taper appropriate for the site as the height transitions from the east to the west. The Hillside Park density has been valued at $5,730,400. The applicant proposes to GP-289-03-1 & SP #369-12-
contribute $500,000 upfront towards the planning and implementation of improvements to Hillside Park. The balance of the park density value ($5,230,400) would be paid back over time on a residual receipts basis (Condition #72). Staff is recommending that the County Board direct the County Manager to allocate the pay back funds as follows: Fifty percent of the funds would be paid to the Department of Parks, Recreation and Cultural Resources Greater Rosslyn Parks Trust in Agency Account and would be utilized for the future acquisition, development, and redevelopment of parks which support the greater Rosslyn neighborhood; and Fifty percent of the funds would be paid to the Arlington County Housing Reserve Fund. Concentration of site plan density on the APAH portion of the site: The issue has been raised by citizens regarding the transfer of density rights from Hillside Park to the APAH property and the resultant building mass and form. Virginia law does not permit the transfer of density rights, and a density transfer is not being proposed as a part of this request. Instead, as the County frequently does in site plan projects, along with this site plan request the County is considering consenting to inclusion of Hillside Park within the site plan area. Density, as well as the average site elevation, would then be calculated over the entire site. Density would be concentrated on one part of the site, thus preserving open space on another. Through this proposal the County would benefit from the developer s contribution toward improvements to Hillside Park, the provision of a greater number of affordable housing units on the redeveloped property than currently exists, and preservation of the park for the life of the site plan. It is not unusual for the County to locate density in one part of a larger site plan area in order to preserve open space in another. This was accomplished with the examples cited above in both the Market Common and Stuart Park Site Plans. In addition, the provisions of Section 36.H.5 of the Zoning Ordinance permit the County Board the flexibility to modify the uses permitted and the use regulations in harmony with the general purpose and intent of the district. It is by these provisions that the County Board can concentrate site density on one part of the site. Many of the existing parks in Rosslyn were achieved using this methodology. When spread out over the entire site, the resultant density is approximately 2.9 FAR, which is below the maximum permitted density of 3.24 FAR. The proposed building height is 136 feet, which is consistent with the RA-4.8 District and achieves the taper in height inherent in the land use and zoning for this area of Rosslyn. This was brought to bear in the height analysis conducted by staff. The analysis confirmed that the heights planned for in the GLUP and regulated by the zoning achieve an appropriate taper extending from the east to the west: from the High Office-Apartment-Hotel core of Rosslyn (with up to 300 feet of building height permitted under C-O-R ), to the High and High-Medium Residential designation of the Belvedere Site Plan located at the edge of the Rosslyn core and zoned a combination of RA-H-3.2 and RA-4.8 (with a building height of 180 feet), to the High-Medium Residential uses immediately east of North Pierce Street and zoned RA-4.8 and RA-H (with permitted building heights of 136 feet and 125 feet, respectively), to the Medium Residential uses immediately west of North Pierce Street and zoned RA6-15 (with permitted building heights of 70 feet by site plan). Easement over Vacated 16 th Street: In 1970, the County Board vacated a portion of 16 th Street North to a line extending 150 feet east from North Pierce Street, but retained ownership of the land. The vacation stipulated that the County be granted whatever easements are necessary in the future, the form of which shall be approved by the GP-289-03-1 & SP #369-13-
Commonwealth s Attorney. In 1986, the County Board approved, ratified and executed the Easement Agreement with the Belvedere for a 22-foot-wide ingress-egress easement along a portion of the vacated 16 th Street, from North Pierce Street to the line 150 feet east. The Deed of Easement was recorded in 1987, and was granted and conveyed to the Belvedere. It is described as an exclusive and perpetual easement and requires the Belvedere to construct and maintain the 22-foot wide vehicle travel way located within the easement. The County Board retained rights to use the easement area for any purposes not inconsistent with the rights of the Belvedere granted by the deed of easement. The Belvedere Condominium Unit Owners Association (BCUOA) has expressed its opposition to any site plan crossing the vehicle travel way located within the easement. While the proposed site plan has been designed to preclude vehicular or pedestrian use of the vehicle travel way, some residents of the Belvedere have suggested that any site plan contiguous to the vehicle travel way construct the following improvements: A wall the entire length of the site s frontage along the vehicle travel way to preclude pedestrians from crossing the vehicle travel way outside of crosswalks planned for the intersection at North Pierce Street; and, A gate at the entrance to the vehicle travel way at North Pierce Street to distinguish the vehicle travel way from a public street. Staff does not support this suggestion. The proposed design to wall-off adjacent development and preclude the flow of pedestrian traffic is not consistent with the goals of the urban village and is not reflective of good urban design. Furthermore, the applicant proposes to install a landscaped buffer adjacent to the sidewalk along APAH s northern frontage which provides a softer, more subtle approach to the potential issue of pedestrian conflicts. Finally, the vehicle travel way remains public land under the ownership of the County and would require approval by the County Board to make improvements outside of those permitted by the Deed of Easement. Proposed Construction Management Plan: Development of this small site, which has limited frontage adjacent to a narrow 26-foot wide street, poses challenging construction-related issues regarding the delivery and storage of construction equipment and supplies, public safety, convenience and construction costs. The developer has submitted for consideration a Construction Management Plan addressing the excavation and site construction of the proposed three levels of below grade parking and the 15-story residential building. The Construction Management Plan requests approval for the placement of two construction trailers on public right of way and that North Pierce Street be converted to a one-way street between 16 th Road North and Fairfax Drive. The developer has proposed to locate one construction trailer adjacent to Hillside Park, north of the vehicle travel way, and another trailer on the parking lane on the south side of 16 th Street North west of North Pierce Street. The first trailer is proposed to be located along the eastern edge of the North Pierce Street right of way, straddling the curb and gutter. Because of insufficient street width and space behind the curb, and conflicts with trees which would be required to be removed, this section of North Pierce Street would be converted to one-way operation for safety reasons. Placement of the second trailer in the parking lane on the south side of 16 th Street would result in the displacement of approximately three curb parking spaces. On-street parking is available along both sides of 16 th Street, west of North Pierce GP-289-03-1 & SP #369-14-
Street and is unregulated. A possible alternative location for one of the trailers is the curb parking lane on the south side of 16 th Road North adjacent to the northern frontage of Hillside Park. The long term 12-hour metered parking spaces are currently used during the day by commuters and in the evening for retail/restaurant uses. The location is not as convenient as the requested two locations directly across the street, but would not require the narrowing of North Pierce Street to one way travel or take away valuable parking from the apartment residents on 16 th Street. The location is an open, grassy and relatively flat area which has no trees needing removal or trimming. The construction trailers would be removed from the public right of way after the contractor has received an occupancy permit to use the parking garage, which they estimate to be approximately nine months from the beginning of the site excavation. The proposed parking garage extends out to the property line on all four sides of the site leaving approximately six feet of space between the existing face of curb along the east side of North Pierce Street and the garage sheeting and shoring wall. The developer has proposed to restrict travel to one direction to provide additional width between the garage wall and travel lane for construction deliveries and material storage. The proposed one-way travel pattern would be for the duration of the construction which is estimated to be 18 months. Traffic volumes in the two directions (north- and southbound) are very similar and the oneway operation could be in either direction. Circulation in and out of the neighborhood for the restricted direction (one-way travel) is available by signing a detour using 16 th Street to North Quinn Street, one block to the west. Modification of Use Regulations: The applicant has requested modifications of use regulations to exclude GFA associated with below grade tenant and management storage and interior mechanical closets, and for a reduction in the required parking. Section 36.H.5 of the Zoning Ordinance allows the County Board to modify the uses permitted and use regulations in harmony with the general purposes and intent of the Zoning Ordinance. The applicant proposes to exempt a total of 3,611 square feet of residential tenant and management storage from the density calculations, which is consistent with a number of previous site plans. The applicant also proposes to exempt 5,925 square feet of interior mechanical closets from the density calculations, which staff does not support. County policy requires that exhaust systems be directed vertically to the roof so that the exterior façades of buildings would not be impacted. However, because of the proposed vegetated green roof, this proposal would direct the exhaust systems to the exterior facades. Inclusion of GFA for interior mechanical closets in the density calculation would not result in bonus density. The applicant proposes a parking ratio of.899 space per unit (or 214 spaces) exclusive of tandem spaces. With the tandem spaces, the parking ratio is 1 space per unit (238 spaces). The applicant has indicated that its experience with high rise rental properties shows that during peak occupancy (6:30 a.m.) there is a range of 15% to 33% availability of parking in any given garage. The availability is created by several factors, including residents without a vehicle, unit turnovers (typically 3-4%), and unit vacancies due to travel, vacations, etc. Also, the applicant proposes to manage the 24 tandem spaces by assigning the spaces to households with more than one vehicle. Staff supports the requested modification for a parking reduction. Based on the 2000 US Census Data, 26.5% of renters in Rosslyn do not own vehicles (See Attachment). With the Woodbury Park Site Plan, the County Board approved a reduction in the parking ratio for renters, recognizing that in the Metro Corridor and in locations close to Metro Stations, the GP-289-03-1 & SP #369-15-
percentage of renters that do not own vehicles is greater. The applicant proposes to implement a Transportation Demand Management (TDM) Plan to mitigate the lower parking ratio. As a part of the TDM Plan the applicant would be required to explore the use of a car-sharing service such as Zip Car or Flex Car. In addition, Condition #74 requires the developer to conduct a parking survey and analysis of parking demand and usage two years following issuance of the first Certificate of Occupancy for resident occupancy of the building. Community Process: The following public meetings have been held on this proposal: Site Plan Review Committee: Seven (7) meetings were held on January 23, 2003; February 25, 2003; April 2, 2003; June 24, 2003; July 22, 2003; April 8, 2004; and, May 27, 2004. Visit to the site: One (1) visit to the site and surrounding properties was conducted on April 23, 2003. Tenant-Landlord Commission: The Commission met on May 19, 2004. The Commission determined that the proposed site plan meets the Arlington County Tenant Relocation Guidelines and recommended that the County Board adopt the proposed relocation plan (See Attachment). Park and Recreation Commission: The Commission met on September 23, 2003, June 3, 2004 and June 22, 2004. For the June, 2004 meetings, the Commission s comments include, but are not limited to, the following (see Attachment): o The revised plan would be acceptable under the previous policy position adopted by the Commission for usage of density on Arlington County Parks so long as the funds received from the repayment of the value of the density went to open space/parks. The repayment of the value of the density should be used specifically to improve and enhance parks above and beyond what should be expected to be standard maintenance under the County s current budget, with certain priorities. o The Commission encourages the County to plan comprehensively, so as to ensure that increases in density are accompanied by additional expansion of parks and open space. o The Commission strongly opposes the use of Hillside Park for construction staging for the development, given its heavily wooded nature and the possibility that mature trees will be harmed. Housing Commission: The Commission met on October 2, 2003 and June 17, 2004. In June, 2004, the Commission voted to approve the funding request for up to $1.8 million. Transportation Commission: The Commission met on June 29, 2004, and recommended to approve the site plan with the following comments and changes: o Include information about Arlington s bicycle transportation plan and facilities in the marketing brochures. Staff Response: The applicant has agreed to include information in their marketing material. New Condition #76 has been added to address this requirement. o Provide additional handicapped parking spaces in the garage, five to ten metered spaces in the garage for visitors, and assign the tandem and associated adjacent parking space to a single tenant. Staff Response: Staff and the applicant do not concur with the recommendations to designate additional spaces as handicap spaces and create metered visitor parking spaces. Implementation of the recommendations would further lower the parking ratio. The applicant would meet the building code requirement for handicap parking spaces, and has agreed to make a minimum of 10 visitor parking GP-289-03-1 & SP #369-16-
spaces available within the garage (Condition #49) but not specifically designated in order that they may have greater flexibility to respond to dynamic site conditions. The applicant has agreed to assign the tandem and associated adjacent parking space to a single residential unit, which is required in Condition #39. o Construct an eight-foot-wide clear sidewalk along the east side of North Pierce Street adjacent to Hillside Park with funding provided by the County. Staff Response: The applicant has agreed to construct the improvements, with funding provided by the County, if the County determines that improvements should be constructed concurrent with improvements along the APAH frontage. The Department of Parks, Recreation and Cultural Resources staff recommend that the improvements along the Hillside Park frontage be designed concurrently with, and as integrated elements of, the overall park planning process for Hillside Park. Staff does not concur with the Commission and continues to recommend that the applicant design and engineer the improvements. o Refer the applicant s Construction Management Plan back to the Transportation Commission for comment prior to approval by the County Manager. Staff Response: The applicant agrees to present their construction management plan to the commission prior to approval by the County Manager. The applicant has revised their proposed plan and proposes to locate a single construction trailer immediately adjacent to the site frontage on North Pierce Street which would also operate one way in the southbound direction between 16 th Street and Fairfax Drive. This language is provided in Condition #. o Require a stop sign at the top of the garage exit ramp at the back of the sidewalk. Staff Response: The applicant concurs and the language is provided in Condition #67. Radnor-Fort Myer Heights Civic Association: Several meetings were held with the full, and/or representatives of, the Association. The Belvedere Condominium Unit Owners Association: Several meetings were held with the full membership, and/or representatives, of the Association. Rosslyn Renaissance: Several meetings were held with the Rosslyn Renaissance. PLANNING COMMISSION RECOMMENDATION The Planning Commission voted to include Hillside Park in the site plan area, to amend the GLUP to add note 13 designating the APAH property as a SAHPD, and to approve the site plan with modifications of use regulations, subject to the conditions of the staff report, with the following amended or clarified condition language: Condition #13.c: The Commission recommended that the language clarify that part of the streetscape located along the interior walkway adjacent to the northern property line of the APAH property would consist of street trees with ground cover rather than shrubs. Staff response: This language is provided in Condition #13.c. Condition #17.a: The Commission recommended that the developer construct an eightfoot-wide clear sidewalk along the east side of North Pierce Street adjacent to the Hillside Park frontage, with funding provided by the County. Staff Response: The applicant has agreed to construct the improvements, with funding provided by the County, if the County determines that improvements should be constructed concurrent with improvements along the APAH frontage. The Department of Parks, Recreation and Cultural Resources staff recommend that the improvements along the Hillside Park frontage be designed concurrently with, and as integrated GP-289-03-1 & SP #369-17-