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Z22-07 PB Staff Report 4.7.2022Z22-07 Staff Report PB 4.7.2022 Page 1 of 17 STAFF REPORT FOR Z22-07 ZONING MAP AMENDMENT APPLICATION APPLICATION SUMMARY Case Number: Z22-07 Request: Rezoning to an RMF-MH district Applicant: Property Owner(s): Adam G. Sosne Grove Park Properties Location: Acreage: 5550 Carolina Beach Road 15.38 PID(s): Comp Plan Place Type: A portion of R07600-006-041-000 Urban Mixed Use Existing Land Use: Proposed Land Use: Mobile Home Park The property would be allowed to be developed in accordance with the RMF-MH district Current Zoning: Proposed Zoning: R-15, Residential district RMF-MH SURROUNDING AREA LAND USE ZONING North Commercial Services, Undeveloped Land B-2 East Commercial Services B-2 South Single-Family Residential, Multi-Family Residential R-10, R-15 West Undeveloped B-2, R-15 Z22-07 Staff Report PB 4.7.2022 Page 2 of 17 ZONING HISTORY April 7, 1971 Initially zoned R-15 COMMUNITY SERVICES Water/Sewer Property is currently connected to water and sewer. Water is provided via a master meter. Waster and sewer is private within the site. Fire Protection New Hanover County Fire Services, New Hanover County Southern Fire District, New Hanover County Myrtle Grove Station Schools Bellamy Elementary, Myrtle Grove Middle, Ashley High Schools Recreation Arrowhead Park, Myrtle Grove Athletic Complex CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources Historic No known historic resources Archaeological No known archaeological resources Z22-07 Staff Report PB 4.7.2022 Page 3 of 17 APPLICANT’S PROPOSAL • The applicant is proposing to rezone approximately 15.38 acres from R-15, Residential to RMF-MH Residential Multi-family Medium-High Density. • According to the applicant, the proposed zoning will allow for the provision of housing for future development in a land use pattern that is generally more consistent with the 2016 Comprehensive Land Use Plan. ZONING CONSIDERATIONS • The R-15 district in this area was established in 1971. At the time, the purpose of the R-15 district was to ensure that housing served by private septic and wells would be developed at low densities. Since that time, water and sewer services have become available to the surrounding area • Since its original zoning designation in 1971, this portion of the county and the Monkey Junction node have experienced a gradual shift from the original R-15 zoning to more commercial districts and uses, as well as residential developments of higher density. This is a trend that is expected to continue. • Currently, the subject site contains approximately 70 mobile homes. • The RMF-MH district was established to accommodate lands for medium to high density residential development of varying types and designs, with emphasis on midrise structures, near suburban shopping centers and employment centers. The district is intended to serve as a transition between intensive nonresidential development and lower density residential development. • The current R-15 zoning allows for several non-residential uses that are not permitted within the proposed RMF-MH zoning district. Such uses include, but are not limited to, equestrian facilities, stables, and wholesale nurseries that are permitted by-right, and uses such as kennels, campgrounds, convenience stores, and fuel sales that are permitted subject to a special use permit. • The RMF-MH district allows for the development of multi-family residential units with a maximum height of 4 stories. Structure setback is contingent on the number of stories of any proposed multi-family development. The dimensional standards for the RMF-MH zoning district are outlined within Section 3.2.14. of the UDO. Z22-07 Staff Report PB 4.7.2022 Page 4 of 17 • The subject site is located adjacent to and abuts residential properties. As such, additional standards outlined with Table 3.1.3.C.2 may be applicable, depending on the height of the structures that may be developed on the parcel. • As the subject site is adjacent to existing single-family residential uses, a transitional buffer would be required in the event of a multi-family development. Multi-family residential uses that abut Single-Family Detached and undeveloped residentially zoned properties are subject to a Type A: Opaque Buffer. These buffers must be a minimum width of 12 feet if fencing 6-10 feet high and vegetation are used, or 20 feet if vegetation only. • If approved, development on the parcel would be subject to Technical Review Committee and Zoning Compliance review processes to ensure full compliance with all ordinance requirements and specific conditions included in the approval. Only minor deviations from the approved conceptual plan, as defined by the UDO, would be allowed. Z22-07 Staff Report PB 4.7.2022 Page 5 of 17 AREA SUBDIVISIONS UNDER DEVELOPMENT TRANSPORTATION • Currently, access is provided to the subject property from the service road adjacent to Carolina Beach Road. The applicant has indicated that another access may be provided to the service road by way of the B-2 zoned parcel to the north, as the applicant is under contract for that parcel. • The access road serves other businesses and residential developments and filters traffic onto southbound Carolina Beach Road. • As currently developed, it is estimated the site generates about 35 peak AM trips and 40 peak PM trips. Z22-07 Staff Report PB 4.7.2022 Page 6 of 17 • If developed at the maximum permitted density allowed under the RMF-MH district, 385 residential units could be constructed. This would be estimated to generate 158 trips during the AM peak hour and 150 trips during the PM peak hour. • If developed at the maximum permitted density allowed within the RMF-MH district, the development would be estimated to generate 123 more trips during the AM peak hour and 110 more trips during the PM peak hour than the current use of the subject site. • Traffic Impact Analyses are not required for a straight rezoning, as a specific development proposal is required to thoroughly analyze access, potential trip generation, and roadway improvements. • Because a TIA is not required to analyze transportation impacts at this time, Staff has provided the volume to capacity ratio for the adjacent roadway near the subject site. While volume to capacity ratio, based on average daily trips, can provide a general idea of the function of adjacent roadways, the delay vehicles take in seconds to pass through intersections is generally considered a more effective measure when determining the Level of Service of a roadway. However, the available volume to capacity data indicates capacity currently exists in this area. NCDOT Average Annual Daily Traffic (AADT) - 2020 Road Location Volume Capacity V/C Carolina Beach Road 5500 Block 39,000 41,368 0.94 • The LOS of this portion of Carolina Beach Road is rated as ‘E’. • The capacity for the service road is 10,978 according to NCDOT data. However, traffic counts are not available. • The LOS of the service road is rated as ‘E’. Intensity Approx. Peak Hour Trips Existing Development: Mobile Home Park w/ 70 Dwelling Units 35 AM / 40 PM Typical Development under Current Zoning: 38 Single-Family Dwellings 32 AM / 42 PM Maximum Development under Proposed RMF-MH Zoning: 385 Dwelling Units 158 AM / 150 PM Z22-07 Staff Report PB 4.7.2022 Page 7 of 17 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • STIP Project U-5702B o Project encompasses access management improvement on College Road from Carolina Beach Road to Shipyard Boulevard. o Project is scheduled after 2029. • STIP Project U-5790 o Project to convert the intersection of Carolina Beach Road and College Road to a continuous flow intersection and widen a portion of Carolina Beach Road south of that intersection.  Continuous flow intersections permit more efficient travel movements and help alleviate congestion by allowing more of the main street’s traffic to move through the intersection.  Bidding of the project is expected to occur after 2029. Z22-07 Staff Report PB 4.7.2022 Page 8 of 17 Nearby Traffic Impact Analyses: Traffic Impact Analyses (TIAs) are completed in accordance with the WMPO and NCDOT standards. Approved analyses must be re-examined by NCDOT if the proposed development is not completed by the build out date established within the TIA. Proposed Development Land Use/Intensity TIA Status 1. Beau Rivage Update • 4,500 square feet of drive- thru bank • 3,500 square feet of fast- food drive thru • 6,900 square feet of supermarket (addition to the existing Harris Teeter) • 7,500 square feet of shopping center • Approved December 28, 2016 • 2018 Build Out Date The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Installation of an eastbound right-turn lane on Sanders Road at the site’s access and Carolina Beach Road. Nearby Proposed Developments included within the TIA: • Tarin Woods • River Lights Development Status: Development under construction. The right-turn lane on Sanders Road at the site’s access has been constructed. Proposed Development Land Use/Intensity TIA Status 2. Tarin Woods II Phase 2B(1): • 219 Single-Family Homes • 398 Townhomes • Addendum approved March 26, 2020 • 2020 Build Out Year The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Installation of a northbound leftover/U-turn on Carolina Beach Road at the Harris Teeter driveway (required to be installed during the development of Phase 2A). • Installation of a second westbound right turn lane on Manassas Drive at Carolina Beach Road. • Includes additional point of egress to Carolina Beach Road. Nearby Proposed Developments included within the TIA: • Beau Rivage Update • Beau Rivage Townhomes Development Status: Development and improvements are currently under construction. Z22-07 Staff Report PB 4.7.2022 Page 9 of 17 Proposed Development Land Use/Intensity TIA Status 3. Kaylies Cove • 110 Single-Family Homes • Approved February 20, 2018 • 2019 Build Out Year (as studied in the TIA) The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Installation of an eastbound right turn lane and westbound left turn lane on Piner Road at the site’s access. Nearby Proposed Developments included within the TIA: • None Development Status: Homes under construction. 110 lots have been platted at this time, and both turn lanes have been installed. Other: • W-5703C: o U.S. 421 (Carolina Beach Road) Pedestrian Safety project located from Willoughby Park Road to the Monkey Junction intersection. o Project consists of: ▪ A 10-foot multi-use path on the east side of U.S. 421 and a sidewalk on the west side of U.S. 421; ▪ A black aluminum fence in the existing median; and ▪ Pedestrian signals, high-visibility crosswalks, and lighting proposed at the intersections of U.S. 421 with Antoinette Drive and the northernmost Walmart driveway. ▪ The project is expected to begin construction in Fall 2022. ENVIRONMENTAL • The property is not within a Natural Heritage Area. The property is not located within a Special Flood Hazard Area. • The property is within the Mott Creek watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class I (suitable/slight limitation) & III (severe limitation) soils; however, the property is currently connected to water and sewer provided by CFPUA Z22-07 Staff Report PB 4.7.2022 Page 10 of 17 OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to Bellamy Elementary School, Myrtle Grove Middle School, and Ashley High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • Approximately 70 dwelling units are currently located on the property and 385 units could potentially be developed under the proposed zoning for an increase of 315 dwelling units. • Based on a generalized historic generation rate*, staff would estimate that the increase in homes would result in approximately 69 additional students than the number of students who are estimated to be already generated under the existing development. • The general student generation rate provides only an estimate of anticipated student yield as different forms of housing at different price points yield different numbers of students. Over the past four years, staff has also seen a decline in the number of students generated by new development. Student numbers remained relatively stable between 2015 and 2020 (excepting the impacts of the COVID-19 pandemic), while 14,500 new residential units were permitted across the county. In addition, the student population is anticipated to only grow by approximately 1,300 students over the next 10 years based on the recent New Hanover County Schools Facility Needs Study. Development Type Intensity Estimated Student Yield (current general student generation rate) * Existing Development 70 Residential Units Approximate** Total: 16 (6 elementary, 4 middle, 6 high) Proposed Zoning 385 Residential Units Approximate** Total: 85 (35 elementary, 19 middle, 31 high) *The current general student generation rate was calculated by dividing the projected New Hanover County public school student enrollment for the 2021-2022 school year by the number of dwelling units in the county. Currently, there are an average of 0.22 public school students (0.09 for elementary, 0.05 for middle, and 0.08 for high) generated per dwelling unit across New Hanover County. These numbers are updated annually and include students attending out-of-district specialty schools, such as year-round elementary schools, Isaac Bear, and SeaTech. **Because the student generation rate often results in fractional numbers, all approximate student generation yields with a fraction of 0.5 or higher are rounded up to a whole number and yields with a fraction of less than 0.5 are rounded down. This may result in student numbers at the elementary, middle, and high school levels not equaling the approximate total. • Staff has provided information on existing school capacity to provide a general idea of the potential impact on public schools, but these numbers do not reflect any future capacity upgrades. Z22-07 Staff Report PB 4.7.2022 Page 11 of 17 School Enrollment* and Capacity** (2021-2022 School Year) *Enrollment is based on the New Hanover County Schools enrollment projections for the 2021-2022 school year. **Capacity calculations were determined based on the projected capacities for the 2021-2022 school year, and funded or planned capacity upgrades were those included in the Facility Needs Study presented by New Hanover County Schools to the Board of Education in January 2021. This information does not take into account flexible scheduling that may be available in high school settings, which can reduce the portion of the student body on campus at any one time. • The 2021 facility needs survey prepared by Schools staff indicates that, based on NC Department of Public Instruction (DPI) student growth projections and school capacity data, planned facility upgrades, combined with changes to student enrollment patterns, will result in adequate capacity district wide over the next ten years if facility upgrades are funded. Level Total NHC Capacity School Projected Enrollment of Assignment School Capacity of Assigned School w/Portables Capacity of Assigned School Funded or Planned Capacity Upgrades Elementary 95% Bellamy 456 499 91% None Middle 108% Myrtle Grove 740 738 100% None High 100% Ashley 1990 1896 105% None Z22-07 Staff Report PB 4.7.2022 Page 12 of 17 Existing Development Current Conditions: Z22-07 Staff Report PB 4.7.2022 Page 13 of 17 Representative Developments Representative Developments of R-15: Clay Crossing Page’s Corner Z22-07 Staff Report PB 4.7.2022 Page 14 of 17 Representative Developments of RMF-MH (Proposed Zoning/Land Use): Amberleigh Shores Cambridge Village Z22-07 Staff Report PB 4.7.2022 Page 15 of 17 Context and Compatibility • The property is located to the southwest of the Monkey Junction Intersection and is accessed by a service road that connects the property to Carolina Beach Road. • While the area was zoned for lower density residential development in the early 1970s, the 2016 Comprehensive Plan recommends urban mixed use and higher density development patterns. • The subject property is located in one of the county’s more densely developed corridors and within one of the three high growth nodes identified in the Comprehensive Plan. • The property is located just west of the Monkey Junction commercial node serving residents in this area, and is a location anticipated to serve as a transition from single-family detached land uses to the south and west of the site and the commercial services and higher intensity uses along Carolina Beach Road to the east and north. • Given the commercial development to the east, the site is less likely to be appropriate for low density, single-family development than when the R-15 zoning was originally applied. • Required setbacks and transitional buffers provide additional mitigation for aesthetic effects along the property boundaries and will be contingent on the type and scale of development located on this parcel. Multi-family residential developments are subject to setbacks that range from 20’ to 100’, dependent on the number of stories of the structures. Transitional buffers are also a requirement of multi-family developments. Type A Opaque Buffers are required from the existing residential and undeveloped residential zoned parcels that abut the subject site, which consist of vegetation, berms, or fences with vegetation. 2016 COMPREHENSIVE PLAN The New Hanover County Future Land Use Map provides a general representation of the vision for New Hanover County’s future land use, as designated by place types describing the character and function of the different types of development that make up the community. These place types are intended to identify general areas for particular development patterns and should not be interpreted as being parcel specific. Z22-07 Staff Report PB 4.7.2022 Page 16 of 17 Future Land Use Map Place Type Urban Mixed Use; Monkey Junction Node Place Type Description Promotes development of a mix of residential, office, and retail uses at higher densities. Types of uses encouraged include office, retail, mixed use, small recreation, commercial, institutional, single-family, and multi-family residential. Analysis The Comprehensive Plan classifies the property as Urban Mixed Use, which promotes development of a mix of residential, office, and retail uses at higher densities. The site is located within the Monkey Junction commercial node between existing commercial services and a single-family detached residential development. As there is an existing single-family development to the west of the subject site, the proposal would provide a transition to Carolina Beach Road, which contains commercial services along the road frontage that serve adjacent residential developments in the project vicinity. In addition, the project supports the Comprehensive Plan’s goal to provide for a range of housing types and opportunities for households of different sizes and income levels as well as a mix of uses located on adjacent or nearby parcels. The proposal is also in line with the preferred density range for the Urban Mixed Use place type, which envisions residential development in the range of 2-5 stories at a medium to high density. If approved, the parcel could be built out to a maximum of 385 residential units at 25 du/acre. Consistency Recommendation The proposed RMF-MH zoning is generally CONSISTENT with the 2016 Comprehensive Plan because the district is more in line with the densities recommended for Urban Mixed Use areas, especially in growth nodes, than the existing zoning. Additionally, the densities and range of housing types allowed in the proposed zoning district could provide an appropriate transition from the existing commercial node to the west and the existing single-family residences to the south and undeveloped land to the west. Z22-07 Staff Report PB 4.7.2022 Page 17 of 17 STAFF RECOMMENDATION While staff would have preferred to see a conditional rezoning request for a higher density district on this site given potential traffic impacts and proximity to low density residential neighborhoods, the RMF-MH district was designed to be used in this specific type of situation, and standards are in place for buffers and traffic analysis at technical review required before redevelopment could occur. As a result, Staff recommends approval of the proposal and suggests the following motion: I move to recommend APPROVAL of the proposed rezoning. I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the district is more in line with the densities and uses recommended for Urban Mixed Use areas than the existing zoning. I also find recommending APPROVAL of the rezoning request is reasonable and in the public interest because the RMF-MH district standards are designed so projects can serve as appropriate transitions from existing commercial nodes to the existing single-family residences. Alternative Motion for Denial I move to recommend DENIAL of the proposed rezoning. While I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the district is more in line with the densities and uses recommended for Urban Mixed Use areas than the existing zoning, I find DENIAL of the rezoning request is reasonable and in the public interest because of the uncertainty of negative impacts that a development allowed by-right within the RMF-MH zoning district could have on the adjacent land uses and infrastructure.