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HomeMy WebLinkAboutZ23-02 PB Staff ReportZ23-02 Staff Report PB 2.2.2023 Page 1 of 15 STAFF REPORT FOR Z23-02 ZONING MAP AMENDMENT APPLICATION APPLICATION SUMMARY Case Number: Z23-02 Request: Rezoning to an R-7 district Applicant: Property Owner(s): Samuel B. Franck with Ward & Smith, P.A. Swartville, LLC Location: Acreage: South of I-140, west of Blue Clay Road, and east of Castle Hayne Road Approximately 104 acres PID(s): Comp Plan Place Type: R02500-002-006-000 and R02500-002-030-000 General Residential Existing Land Use: Proposed Land Use: Undeveloped Land The property would be allowed to be developed in accordance with the R-7 district Current Zoning: Proposed Zoning: R-20, Residential R-7, Residential SURROUNDING AREA LAND USE ZONING North Undeveloped Land, I-140 ROW I-1, B-2 East Railroad ROW, Agricultural Land RMF-L South Undeveloped Land R-10 West Undeveloped Land, Single-family Residential R-10, R-20 Z23-02 Staff Report PB 2.2.2023 Page 2 of 15 ZONING HISTORY July 7, 1972 Initially zoned R-20 COMMUNITY SERVICES Water/Sewer Water will require a mainline extension and wastewater services are available through CFPUA via a pump station that will need to be built. Fire Protection New Hanover County Fire Services, New Hanover County Northern Fire District, New Hanover County Wrightsboro Schools Castle Hayne Elementary, Holly Shelter Middle, Laney High School Recreation Cape Fear Optimist Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources Historic No known historic resources Archaeological No known archaeological resources Z23-02 Staff Report PB 2.2.2023 Page 3 of 15 APPLICANT’S PROPOSAL • The applicant is proposing to rezone two parcels totaling approximately 104 acres from R- 20, Residential district to the R-7, Residential district. • According to the applicant, the requested R-7 zoning district is more appropriate for the tracts than the current R-20 zoning as the Comprehensive Plan calls for more housing within the general area, the densities and diversity of housing types allowed within the R-7 are more consistent with what the General Residential place type calls for, and higher density is possible due to the availability of public water and sewer. • This request is for a straight rezoning, any approval would allow for all uses outlined for the requested district and could not include conditions. Any future development would be subject to the general development standards for the district outlined in the Unified Development Ordinance (UDO), including lighting and vegetative buffers. ZONING CONSIDERATIONS • The R-20 district in this area was established in 1972. 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, water and sewer services have become available to the surrounding area; however, the general area remains primarily zoned for low density housing. • The purpose of the R-7 district is to accommodate lands for moderate density single family and low-density multi-family development of varying types and designs. The intent is that the R-7 district will provide options for alternative housing types near or in direct relationship to single-family detached development with a range of housing options. • The site is located between the I-140 interchange and the Wrightsboro commercial node, areas connected by Castle Hayne Road. Zoning along and directly off of this corridor has progressively changed over the past decade to include a mix of residential uses with moderate densities and commercial districts, including the River Bluffs planned development, Bountiful Village, and the future residential development at the end of Rock Hill Road. • Under the current R-20 district, approximately 198 dwelling units at a maximum density of 1.9 dwelling units per acre would be allowed under performance residential standards. • If developed at the maximum R-7 density of 6 dwelling units per acre, a potential maximum of 624 dwelling units would be allowed. This would result in 426 more dwelling units than approved under the current zoning. • Several uses are allowed by-right within the R-20 zoning district that would not be permissible within the R-7 zoning district. These include wholesale nurseries, stables, equestrian facilities, and landfills (demolition and landscape). • 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. Z23-02 Staff Report PB 2.2.2023 Page 4 of 15 AREA SUBDIVISIONS UNDER DEVELOPMENT Z23-02 Staff Report PB 2.2.2023 Page 5 of 15 TRANSPORTATION • The site is currently accessed through a private access easement from Castle Hayne Road. The property is bordered by I-140 to the north; however, no access is available to I-140. • Traffic impact analyses are not required for straight rezonings as a specific development proposal is required to thoroughly analyze potential trip generation. • The existing R-20 zoning would permit a maximum of 198 dwelling units, which is estimated to generate about 139 AM and 189 PM peak hour trips. • Under the proposed R-7 zoning district, a maximum of 624 dwelling units could potentially be constructed on the site, which is estimated to generate 394 AM and 556 PM peak hour trips. Z23-02 Staff Report PB 2.2.2023 Page 6 of 15 • The net change from the potential trip generation if the site were to be developed under the existing R-20 district to the proposed R-7 district shows an approximate increase of about 225 AM peak hour trips and an approximate increase of about 367 PM peak hour trips. • As there is not a specific development proposal to analyze traffic impacts for at this time, staff has provided the volume to capacity ratio for roadways in the vicinity of 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. • The most recent traffic counts in the area indicate capacity currently exists on Castle Hayne Road. NCDOT Average Annual Daily Traffic (AADT) – 2021 Road Location (Block) Volume Capacity V/C LOS Castle Hayne Road Between Old Mill Road and Chair Road 14,500 16,804 0.86 D • The Level of Service (LOS) of this portion of Castle Hayne Road is rated as ‘D’, per NCDOT. • The Wilmington MPO also gathers independent traffic counts in the county at various dates and locations throughout the year. These counts are not adjusted or averages but instead represents all traffic over a 24-hour interval on the designated date and represent a specific snapshot in time of traffic for an area. WMPO ADT – 2022 (8/1/22) Road Location Volume Castle Hayne Road Between Rockhill Rd and Oakley Rd 17,995 • 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. Intensity Approx. Peak Hour Trips Typical Development under Current Zoning: 198 Dwelling Units 139 AM / 189 PM Development under Proposed R-7 Zoning (Single Family Detached) 624 Dwelling Units 394 AM / 556 PM Potential Net Change under Proposed Zoning: + 225 AM / + 367 PM Z23-02 Staff Report PB 2.2.2023 Page 7 of 15 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • STIP Project U-5863 o Project to widen Castle Hayne Road from I-140 to Division Drive. This project will add a center turn lane or median to sections of the road. o The project is currently scheduled to begin construction after 2029. Z23-02 Staff Report PB 2.2.2023 Page 8 of 15 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. Blue Clay Industrial • LUC 140 – 891,750 sf Manufacturing • In review • 2027 Phase 1 Build Out Year • 2032 Phase 2 Build Out Year The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • NCDOT will provide the required improvements when the (TIAs) review is complete. Nearby Proposed Developments included within the TIA: • Sidbury Farms • Sidbury Crossing Development Status: Construction has not started, and development is under review at this time. ENVIRONMENTAL • The property is not within a Natural Heritage Area. The property is not located within a Special Flood Hazard Area. • The properties are located within the Smith Creek, Ness Creek, and Prince George watersheds. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class III (severe limitation) & IV (unsuitable) soils. Any future development will be required to consult with CFPUA on the feasibility of sewer connection. Z23-02 Staff Report PB 2.2.2023 Page 9 of 15 OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to Castle Hayne Elementary School, Holly Shelter Middle, and Laney High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • A maximum of 198 dwelling units would be permitted under the current R-20 zoning density, and 624 units could potentially be developed under the proposed zoning for an increase of 426 dwelling units. • Based on a generalized historic generation rate*, staff would estimate that the increase in homes would result in an increase of approximately 95 more students than the number of students who are estimated to be already generated under the existing zoning. • 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 New Hanover County Schools Facility Needs Study. Development Type Intensity Estimated Student Generation Existing Development Undeveloped Total: 0 (0 elementary, 0 middle, 0 high Typical Development under Current Zoning 198 residential units Total: 42 (18 elementary, 10 middle, 14 high) Potential Development under Proposed Zoning District 624 residential units Total: 137 (56 elementary, 31 middle, 44 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 0.07 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. Z23-02 Staff Report PB 2.2.2023 Page 10 of 15 • Developments associated with the proposed rezoning would likely not reach full build-out for over 5 years. As a result, existing school enrollment and capacity is not likely to be relevant. New Hanover County Schools staff would include this project if approved in future facility planning initiatives in order to accommodate any resulting student growth. • 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% Castle Hayne 422 523 81% None Middle 92% Holly Shelter 851 991 86% None High 99% Laney 2214 1941 114% None Z23-02 Staff Report PB 2.2.2023 Page 11 of 15 Representative Developments Representative Developments of R-20 (Proposed Zoning/Land Use): Holland Drive Long Leaf Drive Z23-02 Staff Report PB 2.2.2023 Page 12 of 15 Representative Developments Representative Developments of R-7 (Proposed Zoning/Land Use): Adam’s Landing River Lights (City of Wilmington) Z23-02 Staff Report PB 2.2.2023 Page 13 of 15 Context and Compatibility • The subject parcel has no direct access on two of the three sides. A 130-foot-wide CSX railroad right of way borders the eastern property line and I-140 borders to the north. • The site has access to Castle Hayne Road, an NCDOT maintained minor arterial road, through a private access easement. The site is adjacent to undeveloped and agricultural property to the east and south. • The subject site is located about 1.5 miles from the General Electric facility at the intersection of Castle Hayne Road and I-140, and about 1.8 miles from the Wrightsboro commercial node. • The parcel immediately to the east was recently rezoned within case Z22-19 from a PD district to a RMF-L district, with a maximum of 237 dwelling units possible. • Recent developments in the general area have been a mix of residential uses with moderate densities and commercial districts, including the River Bluffs planned development, Bountiful Village, and the future residential development at the end of Rock Hill Road. Commercial rezoning have occurred closer to the Wrightsboro commercial node to the south and on Hermitage Road to the north. 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 development patterns and should not be interpreted as being parcel specific. Z23-02 Staff Report PB 2.2.2023 Page 14 of 15 Future Land Use Map Place Type General Residential Place Type Description 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. Analysis The Comprehensive Plan classifies the property as General Residential, which encourages lower to moderate density residential developments, light commercial, institutional, and civic uses. The subject property is in the northern portion of the county, located between the I-140 interchange and the Wrightsboro commercial node. These areas are connected by Castle Hayne Road, a minor arterial roadway. Zoning along and directly off of this corridor has progressively changed over the past decade to include a mix of residential uses with moderate densities and commercial districts, including the River Bluffs planned development, Bountiful Village, and the future residential development at the end of Rock Hill Road. The General Residential place type provides opportunities for low to moderate density housing (approximately 8 units/acre). The proposed R-7 district allows for a maximum of 6 dwelling units/acre, which is generally consistent with the density range recommended for the General Residential place type. Along with the preferred density range, the proposal promotes the uses recommended within the General Residential place type, and supports the Comprehensive Plan’s goal to provide for a range of housing types and opportunities for households of different sizes and income. The subject site is also in close proximity to the Employment Center and Urban Mixed Use place types located just north of I-140 at Castle Hayne Road. The future development could accommodate residential developments that would support commercial and industrial developments that are anticipated within these place types. Consistency Recommendation The proposed R-7 rezoning is generally CONSISTENT with the 2016 Comprehensive Plan because the project provides for the density and range of housing options recommended in the General Residential place type. Furthermore, the housing types permitted by the proposed rezoning offer diverse housing options that could support commercial and industrial developments anticipated within the nearby Employment Center and Urban Mixed Use place types. Z23-02 Staff Report PB 2.2.2023 Page 15 of 15 STAFF RECOMMENDATION The proposed R-7 rezoning is generally CONSISTENT with the 2016 Comprehensive Plan because the rezoning provides for the density and range of housing options recommended within the General Residential place type, and the housing types permitted by the proposed rezoning would provide diverse housing options that could support commercial and industrial developments anticipated within the nearby Employment Center and Urban Mixed Use place types. As a result, staff recommends approval of the proposal and suggests the following motion: I move to RECOMMEND APPROVAL of the proposed rezoning to an R-7 district. I find it to be CONSISTENT with the 2016 Comprehensive Plan because the project provides for the density and range of housing options recommended in the General Residential place type. I also find RECOMMENDING APPROVAL of the project is reasonable and in the public interest because the proposal could accommodate residential uses that could support the nearby Employment Center and Urban Mixed Use place types. Alternative Motion for Denial I move to RECOMMEND DENIAL of the proposed rezoning to an R-7 district. While I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the project provides for the density and range of housing options recommended in the General Residential place type, I find RECOMMENDING DENIAL of the rezoning request is reasonable and in the public interest because the proposal is not consistent with the desired character of the surrounding community and the density will adversely impact the adjacent areas.