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Z23-01 Staff Report PBZ23-01 Staff Report PB 3.2.2023 Page 1 of 16 STAFF REPORT FOR Z23-01 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z23-01 Request: Rezoning to a Conditional B-2 district Applicant: Property Owner(s): David Long, Castle Hayne Development Group LLC James Stone, Ashton & Avery LLC Location: Acreage: 3400 Castle Hayne Rd 11.5 PID(s): Comp Plan Place Type: R02500-002-009-003, R02500-002-021-000, R02500-002-020-000, R02500-002-009-000 R02500-002-022-000 Community Mixed Use & General Residential Existing Land Use: Proposed Land Use: Residential Retail Sales, General; Tractor Supply Current Zoning: Proposed Zoning: R-20 (CZD) B-2 SURROUNDING AREA LAND USE ZONING North Residential R-20 East Residential R-20 South Residential R-15 West Residential & Religious Institution R-20 Z23-01 Staff Report PB 3.2.2023 Page 2 of 16 ZONING HISTORY July 1, 1974 Initially zoned R-20 (Area 10A) COMMUNITY SERVICES Water/Sewer Public water service is available through CFPUA via a mainline connection on Castle Hayne Road. Sewer services are available through CFPUA via a forcemain connection to the Northwest Forcemain. Fire Protection New Hanover County Fire Services, New Hanover County Northern Fire District, New Hanover County Wrightsboro Station Schools Wrightsboro Elementary, Holly Shelter Middle, and New Hanover High Schools Recreation Optimist Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources Historic No known historic resources Archaeological No known archaeological resources Z23-01 Staff Report PB 3.2.2023 Page 3 of 16 APPLICANT’S PROPOSED CONCEPTUAL PLAN Includes Staff Markups • The applicant is proposing to construct a one-story, 21,930 sq ft retail building with a 3,744 sq ft garden center and 13,170 sq ft fenced outdoor display area for an intended Tractor Supply store. • The applicant’s proposed conceptual plan includes a street yard along the southern boundary of the site, adjacent to the utility easement to meet the required landscaping for the site in additional to street yard landscaping along the front adjacent to Castle Hayne Road. • The outdoor storage area noted on the site plan will contain large equipment for sale. • The 172.5’ utility easement contains overhead power lines. Per the regulations of that utility easement, development is restricted in the area. Tractor Supply Store Street Yard Ca s t l e H a y n e R o a d Utility Easement Z23-01 Staff Report PB 3.2.2023 Page 4 of 16 ZONING CONSIDERATIONS • The R-20 district in this area was established in 1974. At the time, the purpose of the R-20 district was to ensure that housing served by private septic and wells would be developed at low densities. Since that time, some water and sewer services have become available to the surrounding area. • While the site is zoned R-20, there are some B-1, Neighborhood Business, B-2, Regional Business and I-1, Light Industrial zoned parcels nearby to the south. In addition, the site is in close proximity to the Castle Hayne Road and I-140 interchange. • As currently zoned, the subject site’s total acreage would allow 21 single-family residences under a performance subdivision. Development would be limited to the portion of the site outside the utility easement. • The B-2 district was established to provide for the proper site layout and development of larger format or larger structure size business uses, including big box stores and automobile dealers. It is also designed to provide for the appropriate location and design of auto- oriented uses that meet the needs of the motoring public or that rely on pass-by traffic. • The UDO prescribes minimum standards for lighting, ensuring that there is minimal spillage to adjacent residential properties, and minimum parking requirements. • The UDO also requires landscaping, including primary and secondary street yards and Type A: Opaque Buffers where the site is adjacent to residentially zoned properties. • The stormwater pond in the rear of the site serves as a buffer to the residential properties on Gladiolus Road, in addition to the required opaque buffer. • If approved, the project 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. Z23-01 Staff Report PB 3.2.2023 Page 5 of 16 AREA SUBDIVISIONS UNDER DEVELOPMENT Z23-01 Staff Report PB 3.2.2023 Page 6 of 16 TRANSPORTATION • Access is proposed to the subject property from Castle Hayne Road, a minor arterial roadway as designated by NCDOT. • Ingress and egress will be full-access from Castle Hayne Road, with a northbound right turn lane required by NCDOT as part of the driveway permit review process. • Per the NCDOT, this development is located within STIP U-5863. Any access that conflicts with the planned transportation infrastructure may be modified and/or removed. STIP U- 5863 is currently proposed as a divided facility with median. Therefore, the permitted access will be restricted as right-in/right-out only in the future. The site will be required to go through the driveway permitting process with NCDOT. • Gladiolus Road, to the south of the site, is a secondary road owned and maintained by NCDOT. No access to the site is proposed from Gladiolus Road. Z23-01 Staff Report PB 3.2.2023 Page 7 of 16 • As currently zoned, it is estimated the site would generate about 10 AM and 13 PM trips during the peak hours if developed at the permitted density. The proposed development would generate 0 AM peak hour trips and 55 PM peak hour trips, increasing the estimated number of PM peak hour trips by approximately 42 trips. • The estimated traffic generated from the site is under the 100 peak hour threshold that triggers the ordinance requirement for a Traffic Impact Analysis (TIA). • Per the WMPO, if the site were developed as any other store with the same square footage, it would require a TIA be approved. • 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 Annual Average Daily Traffic (AADT) – 2021 Road Location Volume Planning Capacity V/C LOS Castle Hayne Road Closest in proximity to the intersection of Rock Hill Road and Castle Hayne Road 14,500 (NCDOT, 2021) 16,804 0.86 D • Before any development can occur on this site, the Technical Review Committee will review all plans for compliance with applicable land use regulations, including any recommended roadway improvement required through the NCDOT driveway permitting process. 1 25,674 sq ft does not include the outdoor display area square footage. Intensity Approx. Peak Hour Trips Existing Development: 1 Single-Family Dwelling 1 AM / 1 PM Typical Development under Current Zoning: 14 Single-Family Dwellings (taking into consideration the utility easement) 10 AM / 13 PM Proposed Development: 38,844 sq ft Tractor Supply Store (including outdoor display area) 0 AM / 55 PM Potential Use under B-2 zoning: 25,6741 sq ft Retail Store/Strip Retail Plaza 61 AM / 169 PM Z23-01 Staff Report PB 3.2.2023 Page 8 of 16 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • STIP Project U-5863 o Project to widen Castle Hayne Road into multi-lanes from I-140 to Division Drive. Right-of-Way acquisition and utilities is currently scheduled to take place in FY 2025. Z23-01 Staff Report PB 3.2.2023 Page 9 of 16 Nearby Traffic Impact Analyses: Traffic Impact Analyses (TIAs) are completed in accordance with the WMPO and NCDOT standards. Approved analyses may be re-examined by the WMPO and NCDOT if the proposed development is not completed within one calendar year after the build out date established within the approved TIA. Proposed Development Land Use/Intensity TIA Status 1. River Bluffs • 343 Single-Family Units • TIA approved March 9, 2022 • 2024 Build Out Year The TIA requires improvements be completed at certain intersections in the area. The notable improvements consisted of: • Extending the existing westbound thru lane on N Kerr Ave to provide 550 feet of storage, 50 feet of full width deceleration and 100 feet of taper at the intersection of N Kerr Ave and Castle Hayne Road. • Install a traffic signal and provide necessary equipment for coordination along NC 133, and construct a southbound right turn lane on Castle Hayne Road with 100 feet of storage, 50 feet of full width deceleration and 100 feet of taper at the intersection of Chair Road and Castle Hayne Road. • Provide signal coordination at the intersection of Castle Hayne Road and I-140 Eastbound ramps. • Provide signal coordination at the intersection of Castle Hayne Road and I-140 Westbound ramps. Nearby Proposed Developments included within the TIA: • Legacy Landing, Sunset Reach Development Status: Subject lots have been platted, but construction has not yet started. None of the TIA-required improvements have been completed. Z23-01 Staff Report PB 3.2.2023 Page 10 of 16 Proposed Development Land Use/Intensity TIA Status 2. Hermitage Road Flex Park • 130,000 sq ft of Business Park • Approved April 15, 2021 • 2025 Build out year The TIA requires improvements be completed at certain intersections in the area. The notable improvements consisted of: • Provide a westbound right turn lane with 200 feet of storage and appropriate deceleration and taper at the intersection of Castle Hayne Road and Hermitage Road • Provide a southbound left turn lane with 50 feet of storage and appropriate deceleration and tape at the intersection of Castle Hayne Road and Crowatan Road. • Construct the site access with one ingress and one egress lane, provide stop control for the northbound approach, and provide 100 feet of internal protected stem on the northbound approach at the intersection of Hermitage Road and Site Access 1. • Construct the site access with one ingress and one egress lane, provide stop control for the northbound approach and provide 100 feet of internal protected stem on the northbound approach at the intersection of Hermitage Road and Site Access 2. Nearby Proposed Developments included within the TIA: • River Bluffs • Trasco Distribution Center Development Status: None of the TIA-required improvements have been completed. Construction has not yet started. ENVIRONMENTAL • This property is not within a Special Flood Hazard Area. • The property is within the Ness watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class II (moderate limitation) & III (severe limitation). • Per the Army Corps of Engineers, there is a jurisdictional determination on this property. The applicant has already participated in a pre-application meeting with the Corps. A permit will be required to develop this property. Z23-01 Staff Report PB 3.2.2023 Page 11 of 16 Representative Developments Representative Developments of R-20 (Existing Zoning): Holland Drive Long Leaf Drive Z23-01 Staff Report PB 3.2.2023 Page 12 of 16 Representative Developments of B-2 (Proposed Zoning) and Tractor Supply Store: Example of B-2 Development Example Tractor Supply Store with Outdoor Display Area, Leland Z23-01 Staff Report PB 3.2.2023 Page 13 of 16 Context and Compatibility • The property is located on Castle Hayne Road, less than half a mile south of the I-140 interchange. • Due to its proximity to the I-140 interchange, this area is likely to transition to a service node in the coming years, making single-family residential development along the Castle Hayne Road corridor less likely. • Much of the surrounding area is rural; the proposed development would provide compatible retail use for the Wrightsboro area. • The utility easement also acts as an additional spatial buffer from existing residential uses across Gladiolus Road. • The proposed concept plan positions a street yard along the southern boundary of the property, adjacent to the utility easement and power lines to provide aesthetic improvements to the site. Z23-01 Staff Report PB 3.2.2023 Page 14 of 16 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. Future Land Use Map Place Type Community Mixed Use & General Residential Because of the general nature of place type borders, sites located in proximity to the boundaries between place types could be appropriately developed with either place type, allowing site-specific features and evolving development patterns in the surrounding area to be considered. Place Type Description Community Mixed Use: Focuses on small-scale, compact, mixed use development patterns that serve all modes of travel and act as an attractor for county residents and visitors. Types of appropriate use include office, retail, mixed use, recreational, commercial, institutional, multi-family and single-family residential. General Residential: Focuses on small-scale, lower density housing, associated civic and limited commercial services development that enhances neighborhood character. Types of appropriate uses include single-family residential, low-density multi-family residential, light commercial, civic, and recreational projects. Z23-01 Staff Report PB 3.2.2023 Page 15 of 16 Analysis The proposed project is located on Castle Hayne Road, a minor arterial roadway. Much of the southern portion of the site is encumbered by a utility easement and power lines, which serves as a spatial buffer from the single- family homes across Gladiolus to the south. While much of the surrounding area is currently zoned for lower density residential use, the area is south of the GE Campus with recent higher density residential developments to the west. The Comprehensive Plan classifies the western portion of the property fronting Castle Hayne Road as Community Mixed Use- a common classification along the Castle Hayne Road corridor. The eastern portion of the property is classified as General Residential. The Community Mixed Use place type encourages retail uses that attract county residents and visitors. The site’s proximity to the I-140 interchange is conducive to capturing highway traffic. Because of the I-140 interchange, it is likely that this area will see other commercial and retail interest in the future. Because this area is envisioned to transition over time into a commercial node, the proposed B-2 district is generally appropriate for this site. The Community Mixed Use place type encourages development patterns that serve all modes of travel and attract county residents and visitors along major road corridors. The site’s proximity to I-140, the GE campus and nearby higher density residential development is conducive to these types of retail development. Consistency Recommendation The proposed (CZD) B-2 rezoning for retail use is generally CONSISTENT with the 2016 Comprehensive Plan because it provides for the types of uses encouraged in the Community Mixed Use place type and that serve the surrounding community. These types of uses are compatible with the envisioned commercial node in this area, and the site is designed to create a visual transition from adjacent residential area to the south and east. Z23-01 Staff Report PB 3.2.2023 Page 16 of 16 STAFF RECOMMENDATION Staff finds that the proposal is consistent with the recommended uses for the Community Mixed Use place type and the Comprehensive Plan. The proposed zoning district and use are compatible with this area, which over time is likely to transition into a commercial node. 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 it provides for the types of uses encouraged in the Community Mixed Use place type and is compatible with projected commercial nodes. I also find APPROVAL of the rezoning request is reasonable and in the public interest because it provides for the types of uses that serve the surrounding community, and the site is designed to create a visual transition from adjacent residential areas to the south and east. Proposed Conditions 1. No development shall occur within the existing utility easement, as shown on the proposed Conditional Rezoning Site Plan. This constitutes an additional, undisturbed buffer of 172.5’ wide adjacent to the existing residential uses on Gladiolus Road. The required secondary street yard will make the total separation between the proposed development and Gladiolus Rd 178.75’ wide. 2. Site access is restricted to Castle Hayne Road. Vehicular ingress and egress to the site from Gladiolus Road is not permitted. 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 it provides for the types of uses encouraged in the Community Mixed Use place type. I find DENIAL of the rezoning request is reasonable and in the public interest because it is not consistent with the desired character of the surrounding community and will adversely impact the adjacent neighborhood.