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HomeMy WebLinkAboutZ23-19 Planning Board Staff Report - FinalZ23-19 Staff Report PB 11.2.2023 Page 1 of 15 STAFF REPORT FOR Z23-19 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z23-19 Request: Rezoning to a Conditional R-10 district Applicant: Property Owner(s): Cindee Wolf with Design Solutions Cape Fear Habitat for Humanity, Inc. Location: Acreage: 1728 Rockhill Road 7.65 PID(s): Comp Plan Place Type: R08518-001-014-002, R08518-001-014-001, R08518-001-014-003, R08518-001-001-000 General Residential Existing Land Use: Proposed Land Use: 10 lot conventional subdivision and vacant, wooded land. Maximum 24 dwelling units. 14 new attached single family dwelling units in addition to 10 existing single family residential lots. Current Zoning: Proposed Zoning: (CZD) R-10, Residential and R-20, Residential (CZD) R-10, Residential SURROUNDING AREA LAND USE ZONING North Single Family Residential R-20 East Single Family Residential R-20 South Single Family Residential R-20 and CZD R-10 (Legacy Landing Phase 1) West Single Family Residential R-20 and CZD R-10 (Legacy Landing Phase 1) Z23-19 Staff Report PB 11.2.2023 Page 2 of 15 ZONING HISTORY July 1, 1974 Initially zoned R-20 (Area 10A) March 3, 2021 Legacy Landing Phase 1 rezoned to (CZD) R-10 for 10 residential lots. January 10, 2022 Legacy Landing Phase 1 modification to add a stormwater pond. COMMUNITY SERVICES Water/Sewer Public water and sewer services are available from CFPUA through an extension of existing utilities in Legacy Landing Phase 1. 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 Cape Fear Optimist Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources. Historic No known historic resources. Archaeological No known archaeological resources Z23-19 Staff Report PB 11.2.2023 Page 3 of 15 LEGACY LANDING PHASE 1 - APPROVED • Legacy Landing Phase 1 is a 10-lot conventional subdivision on a cul-de-sac with two stormwater lots on the western side of the development. • The concept plan includes a road stub to the north for future development. • The density of Legacy Landing Phase 1 is 2.24 dwelling units per acre. • Legacy Landing Phase 1 was originally approved in March 2021 with a subsequent rezoning modification approved by the Board of Commissioners in January 2022 to accommodate stormwater requirements. • The Legacy Landing Phase 1 final plat was recorded in May 2023 and single-family detached home construction is currently underway. Single Family Lots Road Stub to Adjacent Parcel Z23-19 Staff Report PB 11.2.2023 Page 4 of 15 APPLICANT’S PROPOSED CONCEPTUAL PLAN Applicant’s Concept Plan - Includes Staff Markups • The proposed Legacy Landing Phase 2 includes the original 10-lot Phase 1 and adds 2.7 acres to the north to accommodate 14 additional dwelling units in the form of 7 pairs of attached dwellings. • Dwelling units are paired and will share a common wall; however, each dwelling unit will be on an individual lot. • The concept plan proposes an extension of Dorsey Lane north to Rockhill Road creating an interconnected loop between Reminisce Road and Rockhill Road. Approved Legacy Landing Phase 1 Proposed Stormwater Proposed Legacy Landing Phase 2 Attached Single Family Detached Single Family Z23-19 Staff Report PB 11.2.2023 Page 5 of 15 • In addition, a stormwater management system and open space is proposed between the housing types, along with additional open space along Rockhill Road. • Phase 1 combined with the proposed Phase 2 results in a maximum of 24 dwelling units. • The proposed rezoning is intended to integrate both phases into one uniform conditional zoning classification with an overall density of 3.1 dwelling units per acre, a slight increase over the density of Phase 1. 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 housing served by private septic and wells would be developed at low densities. Since that time, public water and sewer services have become available to the surrounding area. • While R-20 is the predominant zoning district in the area the Walnut Hills Subdivision to the west was zoned R-10 and the North Oakley Circle Subdivision to the east was zoned R-15 as part of Area 10A in 1974. • Since that time the surrounding area has seen gradual shifts toward slightly higher density residential development such as the Bountiful Village Subdivision to the south zoned CZD R- 10 in 2018, the Habitat for Humanity project on Castle Hayne Road zoned R-10 in 2020, and the adjacent Legacy Landing Phase 1 zoned CZD R-10 in 2021. • As currently zoned, the site would be permitted up to 15 dwelling units. 10 dwelling units at a density of 2.24 du/ac in Legacy Landing Phase 1 plus 5 dwelling units at a density of 1.9 du/ac under the performance residential development standards for the R-20 district. • The R-10 district was established to provide lands that accommodate new residential neighborhoods and encourage the conservation of existing residential lots and neighborhoods. Neighborhoods in the R-10 district are relatively low density in character and include a limited mix of single family and duplex housing types. • The proposed 24 units equate to an overall density of 3.1 du/ac, slightly less than the 3.3 units per acre maximum density allowed in the R-10 district. • If approved the project would be developed under the Performance Residential development standards which requires a minimum 20-foot buffer, commonly referred to as a “performance buffer,” along the project boundary. The performance buffer is a setback and does not require vegetation or fencing. • The project also proposes 32% open space, 12% more than the minimum required under the Performance Residential development standards of the UDO which requires 20% open space. • 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. Z23-19 Staff Report PB 11.2.2023 Page 6 of 15 AREA DEVELOPMENTS Z23-19 Staff Report PB 11.2.2023 Page 7 of 15 TRANSPORTATION CURRENT CONDITIONS Intensity of Current Zoning Typical development under current zoning would allow a maximum of 15 dwelling units. PROPOSED ACCESS Primary Access Rockhill Road Secondary Access Reminisce Road at the intersection of Reminisce and Dorsey Lane EXISTING ROADWAY CHARACTERISTICS Affected Roadway Rockhill Road Reminisce Road Type of Roadway Secondary Road Secondary Road Proposed Rockhill Road Access Z23-19 Staff Report PB 11.2.2023 Page 8 of 15 Roadway Planning Capacity (AADT) 4,000* 4,000* Latest Traffic Volume (AADT) N/A N/A Latest WMPO Point-in-Time Count (DT) N/A N/A Current Level of Congestion Available Capacity Available Capacity Sources Source of Planning Capacity: WMPO Source of Latest Traffic Volume: N/A Source of WMPO Point-in-Time County: N/A NEARBY NCDOT STIP ROADAWAY PROJECTS U-5863 – Castle Hayne Road Improvements (post-2029 Completion) - 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, with construction beginning after 2029. - The roadway project is currently proposed as a divided facility with a median, but this has not been finalized. If the finalized project has a median, the site access will be right- in/right-out only. TRAFFIC GENERATION Traffic Generated by Present Designation Traffic Generated by Proposed Designation Potential Impact of Proposed Designation AM Peak Hour Trips 11 14 +3 PM Peak Hour Trips 14 17 +3 Assumptions Typical Development with Existing Zoning – 15 single family detached dwellings. Proposed Development – 10 detached single-family dwellings and 14 attached single-family dwellings Sources Source of Trip Generation: ITE Trip Generation Manual, 11th Ed. TRAFFIC IMPACT ANALYSIS (TIA) 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). * Rockhill Road and Reminisce Road do not have listed planning capacities. The WMPO and DOT use a base 4,000 vehicles per day for these road types because it is the minimum threshold necessary for DOT to discuss roadway capacity improvements. Z23-19 Staff Report PB 11.2.2023 Page 9 of 15 SUMMARY The NCDOT and WMPO do not have traffic data related to Rockhill Road or Reminisce Road. The lack of available data indicates the roads do not currently experience heavy enough traffic volumes to warrant monitoring. While there is no specific data available to indicate current or anticipated impacts to roadway capacity the increase in estimated trips generated by the proposed development is minimal. In addition, the project will be subject to NCDOT engineering review through the driveway permitting process. ENVIRONMENTAL • The property is not within a Natural Heritage Area or Special Flood Hazard Area. • The remainder of the property is within the Shaded Zone X (0.2% annual flood risk) Special Flood Hazard Area. This is considered an area of moderate to low risk and is not subject to floodplain development requirements or density restrictions for new development. • The property is within the Ness Creek watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class II (Moderate Limitation) soils. CFPUA public water and sewer are available through utility extensions from Legacy Landing Phase 1. OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to Wrightsboro Elementary School, Holly Shelter Middle School and New Hanover High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • A maximum of 15 dwelling units would be permitted under the current R-20 and (CZD) R- 10 zoning base density, and 24 units could potentially be developed under the proposed zoning for an increase of 9 dwelling units. • Based on a generalized historic generation rate*, staff would estimate that the increase in homes would result in approximately 2 additional students than would be generated under current zoning. • Staff is in the process of analyzing the school capacity for the new school year and anticipates providing updated data for school enrollment and capacity at the Planning Board meeting. • 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. Z23-19 Staff Report PB 11.2.2023 Page 10 of 15 Development Type Intensity Estimated Student Yield (current general student generation rate) * Existing Development 10 single-family dwellings Approximate** Total: 3 (1 elementary, 1 middle, 1 high) Typical Development Under Current Zoning 15 residential units Approximate** Total: 3 (1 elementary, 1 middle, 1 high) Proposed Zoning 24 residential units Approximate** Total: 5 (2 elementary, 1 middle, 2 high) *The current general student generation rate was calculated by dividing the New Hanover County public school student enrollment for the 2022-2023 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 0.0 7 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. School Enrollment* and Capacity** (2022-2023 School Year) *Enrollment is based on the New Hanover County Schools student numbers for the 2022-2023 school year. **Capacity calculations were determined based on the capacities for the 2022-2023 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 91% Wrightsboro 469 541 87% None Middle 92% Holly Shelter 851 991 86% None High 93% New Hanover 1467 1678 87.4% None Z23-19 Staff Report PB 11.2.2023 Page 11 of 15 New Hanover County Strategic Plan On July 17, 2023, the Board of Commissioners adopted a new strategic plan for Fiscal Years 2024- 2028. This plan focuses on three core areas: workforce and economic development, community safety and well-being, and sustainable land use and environmental stewardship. Strategic Plan Outcomes Relevant to Proposal Analysis Through planned growth and development, residents have access to their basic needs. The strategic objective to achieve this desired outcome includes the provision of a variety of housing options. The proposed CZD R-10 rezoning would provide new attached single- family homes in an area of the county that is largely single-family, detached and can aid in achieving the target of increasing the housing supply to a level of one residential unit per every two residents. The 2022 Housing Needs Assessment, also known as the Bowen Report, concluded there is an estimated overall housing gap of 12,147 rental units and a gap of 16,875 for-sale units within the county over the next 10 years. The proposed project is being developed by Habitat for Humanity which typically provides housing opportunities within the range of 30-80 % AMI. The Housing Needs Assessment estimates an overall housing gap of 5,923 rental units and 5,670 for sale units within the range of 30-80% AMI. Natural areas and critical environmental features are enhanced and protected. No critical environmental features have been identified on the property and the project proposes 32% open space, 12% more than the minimum required for performance residential developments. Z23-19 Staff Report PB 11.2.2023 Page 12 of 15 Representative Developments Representative Developments of Single Family Residential: Legacy Landing Phase 1 Subdivision Apple Valley Subdivision Z23-19 Staff Report PB 11.2.2023 Page 13 of 15 Representative Development of Attached Single Family Dwellings Heathfield Hall Subdivision Context and Compatibility • The property is centrally located along Rockhill Road approximately midway between Castle Hayne Road and higher density residential west of the I-140 corridor. The site is also north of the Wrightsboro community and south of the GE employment center. • Existing comparably zoned neighborhoods have been in existence since the adoption of initial zoning for the area which includes a mix of small and large single-family dwellings. • With the extension and availability of public water and sewer, developments within the recommendations of the General Residential place type have been approved in the area. These developments, while considered lower density, are slightly higher than existing surrounding development. • Additional future residential growth within the General Residential place type recommendations is anticipated in this area. • The proposed attached housing type increases housing type diversity in the area and acts as a transition between Rockhill Road to the north and lower density housing to the south. • The proposed density of 3.1 du / ac is below the maximum allowed for the R-10 zoning district and less than the maximum recommended for the General Residential place type. Z23-19 Staff Report PB 11.2.2023 Page 14 of 15 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 General Residential Place Type Description Focuses on lower-density housing and associated civic and commercial services. Typically, housing is single-family or duplexes. Commercial uses should be limited to strategically located office and retail spaces, while recreation and school facilities are encouraged throughout. Types of uses include single-family residential, low-density multi-family residential, light commercial, civic, and recreational. Analysis The property is centrally located along Rockhill Road approximately midway between Castle Hayne Road and higher density residential west of the I-140 corridor. The site is also north of the Wrightsboro community and south of the GE employment center. The proposed density of 3.1 du/ac is within the density range of 0-8 du/ac recommended for the General Residential place type. The proposed housing type is also within those recommended for the place type. With the extension and availability of public water and sewer, developments within the recommendations of the General Residential place type have been approved in the area. These developments, while considered lower density, are slightly higher than existing surrounding development. Additional future residential growth within the General Residential place type recommendations is anticipated in this area. Z23-19 Staff Report PB 11.2.2023 Page 15 of 15 Consistency Recommendation The proposed rezoning request is generally CONSISTENT with the 2016 Comprehensive Plan because the proposed density and housing type are in line with the recommendations of the General Residential place type and the proposed development would act as an appropriate transition between the road and existing residential development. STAFF RECOMMENDATION Staff’s recommendation is based on the policy guidance of the 2016 Comprehensive Plan, zoning considerations, and technical review. The Wrightsboro area has been designated as General Residential within the Comprehensive Plan. The plan recommends single-family and duplex residential development at a density of no more than 8 dwelling units per acre. The scale and density of the proposed development is within the recommendations for the place type and the proposed housing type provides transitions from the road to existing residential uses. As a result, Staff recommends approval of the request 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 proposed density and housing type is within the recommendations of the General Residential place type. I also find recommending APPROVAL of the rezoning request is reasonable and in the public interest because the project provides additional housing diversity to the area. Alternative Motion for DENIAL (if based on information presented at the public hearing or other consideration beyond the scope of staff review, the board finds denial appropriate.) 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 proposed density and housing type are in line with the recommendations of the General Residential place type. I find recommending DENIAL of the rezoning request is reasonable and in the public interest because the project’s housing type does not match existing neighborhood development patterns in the area.