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HomeMy WebLinkAboutZ24-15 PB Staff Report Z24-15 Staff Report PB 7.11.2024 Page 1 of 15 STAFF REPORT FOR Z24-15 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z24-15 Request: Rezoning to a Conditional R-5 district Applicant: Property Owner(s): Brandy Hatcher Brandy Hatcher & John Blackburn Location: Acreage: 6760 Carolina Beach Road 1 acre PID(s): Comp Plan Place Type: R08200-001-027-000 Community Mixed Use Existing Land Use: Proposed Land Use: 1 single-family residence 5 detached single-family residences Current Zoning: Proposed Zoning: R-15, Residential (CZD) R-5, Residential Moderate High- Density SURROUNDING AREA LAND USE ZONING North Residential (Mobile Home Park) R-15 East Convenience Store with Fuel Sales (across Carolina Beach Road) R-15 South Future Convenience Store with Fuel Sales & Multi- Family Development Amenity Area (CZD) B-2 & (CZD) RMF-M West Future Multi-Family Development (CZD) RMF-M Z24-15 Staff Report PB 7.11.2024 Page 2 of 15 ZONING HISTORY April 7, 1971 Initially zoned R-15 (Area 4) COMMUNITY SERVICES Water/Sewer Public water and sewer services are not currently available through CFPUA. The project proposes private well and septic utilities which require review and approval through New Hanover County Environmental Health. Public water and private sewer utilities through Aqua and CFPUA may become available in the future with utility extensions from neighboring development. Fire Protection New Hanover County Fire Services, New Hanover County Southern Fire District, New Hanover County Federal Point Station Schools Anderson Elementary, Murray Middle, and Ashley High Schools Recreation Veterans Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation Conservation resource maps indicate pocosin wetlands may exist on the property. Pocosin conservation requirements do not apply to sites less than 5 acres in size. Historic No known historic resources Archaeological No known archaeological resources Z24-15 Staff Report PB 7.11.2024 Page 3 of 15 APPLICANT’S PROPOSED CONCEPTUAL PLAN Applicant’s Full Concept Plan Close-Up of Applicant’s Concept Plan - Includes Staff Markups • The applicant is proposing to develop five residential lots to accommodate an existing house and four new detached single-family homes on the rear 2/3 acre portion of the site. Ca r o l i n a B e a c h R o a d Ma t c h l i n e Existing Single- Family Home Existing Septic Proposed Well Proposed Septic System Proposed Single- Family Dwellings Z24-15 Staff Report PB 7.11.2024 Page 4 of 15 • The applicant’s concept plan intends for this to be a performance residential subdivision, which does not require minimum lot sizes to allow for the clustering of residential units. • Performance residential subdivisions do not have minimum lot size requirements but do require a 20’ periphery setback from adjacent property lines outside of the development. • The new lots will be accessed by a new paved access road from Carolina Beach Road. • The access road primarily runs along the southern property line which will be parallel with the transitional buffer and site access of an adjacent commercial and multi-family development. • Public water and sewer are not currently available to the site. Public water is located on the eastern side of Carolina Beach Road. The adjacent convenience store under development to the south proposes to extend public water; however, if homes are developed before the water is extended, the proposed homes will not be required to connect to the utility. • There are no public sewer utilities in the area. Private sewer utilities through Aqua may be available in the future through utility extensions to serve the convenience store. The existing home will use the existing septic system, the project also proposes two new septic systems that will be shared by the four new homes. • A condition has been included guaranteeing shared access and maintenance easements for the septic tanks and well. • Under the proposed R-5 zoning district, buildings have a maximum height of 40 feet. 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, some public and private water and sewer services have become available to the surrounding area; however, the Carolina Beach Road corridor remains primarily zoned for low density housing. • As currently zoned, the subject site would allow a maximum of 2 dwelling units. • While the site is zoned R-15, the Carolina Beach Road corridor has seen increased interest in higher density residential development such as the RMF-M zoning district approved for a new convenience store and multi-family dwellings immediately to the south. • The R-5 district was established to provide lands that accommodate moderate to high density residential development on smaller lots with a compact and walkable development pattern. The R-5 district allows a range of housing types and can be developed in conjunction with a non-residential district to create a vertical mixed-use development pattern as well as serve as a transition between mixed-use or commercial development and low to moderate density residential development. • The development would only be taking up approximately 2/3 of an acre of the site, totaling 30,000 square feet. Performance residential developments require 20% of the site be set aside as open space, in this case a minimum of 6,000 square feet would be required. 6,100 Z24-15 Staff Report PB 7.11.2024 Page 5 of 15 square feet is set aside in the area to the north and south of the access road to the development. • Transitional buffers are not required for single-family residential developments. • If approved, the project would be subject to 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. Z24-15 Staff Report PB 7.11.2024 Page 6 of 15 AREA DEVELOPMENTS Z24-15 Staff Report PB 7.11.2024 Page 7 of 15 TRANSPORTATION CURRENT CONDITIONS Intensity of Current Zoning Typical development under current zoning would allow a maximum of 2 single-family dwelling units. PROPOSED ACCESS Primary Access Carolina Beach Road via a right-in, right-out driveway. EXISTING ROADWAY CHARACTERISTICS Affected Roadway Carolina Beach Road Type of Roadway NCDOT major arterial Z24-15 Staff Report PB 7.11.2024 Page 8 of 15 Roadway Planning Capacity (AADT) 41,369 Latest Traffic Volume (AADT) 36,000 Latest WMPO Point-in-Time County (DT) 38,756 Current Level of Congestion Nearing Capacity NEARBY NCDOT STIP ROADAWAY PROJECTS No nearby STIP Projects TRAFFIC GENERATION Traffic Generated by Present Designation Traffic Generated by Proposed Designation Potential Impact of Proposed Designation AM Peak Hour Trips 1 4 +3 PM Peak Hour Trips 2 5 +3 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). SUMMARY The proposed project is located along a major arterial highway that is currently nearing capacity. The Carolina Beach Road – Myrtle Grove Road intersection is an important signalized intersection in the Carolina Beach Road corridor. The proposed project’s peak hour traffic is below the 100 peak hour threshold requiring a traffic impact analysis, however the TIA for the adjacent convenience store and multi-family development requires construction of a southbound right turn lane on Carolina Beach Road along the frontage of the subject parcel. To travel north from the site vehicles would need to cross three lanes to immediately enter the left turn lane at Myrtle Grove Road to make a U-turn at the stoplight. Alternatively, vehicles would travel 1,200 feet south to make a U-turn at Hill Valley Walk. The site has an existing driveway that is proposed to be used by the additional dwelling units. ENVIRONMENTAL • The property is not within a Natural Heritage Area or the Special Flood Hazard Area. • The property is within the Lord’s Creek watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, approximately 85% of the site consists of Class I (Suitable) soils. The remaining 15% at the rear of the site consists of Class III (Severe Limitation) soils. The project proposes to use a private well and shared septic systems which require review and approval by New Hanover County Environmental Health. Z24-15 Staff Report PB 7.11.2024 Page 9 of 15 • While the soils map indicates Class III soils in the vicinity of the westernmost proposed septic systems, a percolation test approved by Environmental Health will be required prior to installation of the septic system. • The proposed site is under the impervious surface threshold that requires a stormwater management system by New Hanover County Engineering. While a specific stormwater management system is not required, a drainage plan must be submitted and approved by county Engineering prior to construction. OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to Anderson Elementary School, Murray Middle School, and Ashley High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • A maximum of 2 dwelling units would be permitted under the current R-15 zoning base density, and 5 units could potentially be developed under the proposed zoning for an increase of 3 dwelling units. • Based on a generalized historic generation rate*, staff would estimate that the increase in homes would result in approximately 1 additional student than would be generated under current 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. Between the 2020-2021 school year and the 2023-2024 school year, total student population decreased by approximately 300 students, while over 11,000 new residential units were constructed. • The county uses the most current New Hanover County Schools Facilities Needs Study in its analysis, and it currently shows the student population is anticipated to only grow by approximately 1,300 students over the next 10 years. However, a more recent New Hanover County School Facility Utilization Study presented to the School Board in September 2023 indicates only approximately 400 more students by the 2032-2033 school year, though numbers are anticipated to be higher during certain school years over the next ten years. Development Type Intensity Estimated Student Yield (current general student generation rate) * Existing Development 1 residential unit Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Typical Development Under Current Zoning 2 residential unit Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Proposed Zoning 5 residential units Approximate** Total: 1 (1 elementary, 0 middle, 0 high) Z24-15 Staff Report PB 7.11.2024 Page 10 of 15 *The current general student generation rate was calculated by dividing the New Hanover County public school student enrollment for the 2023-2024 school year by the number of dwelling units in the county. Currently, there are an average of 0.21 public school students (0.10 for elementary, 0.04 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. • 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** (2023-2024 School Year) *Enrollment is based on the New Hanover County Schools student numbers for the 2023-2024 school year. **Capacity calculations were determined based on the capacities for the 2023-2024 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. • The more recent New Hanover County Schools School Facility Utilization Study has been prepared and was presented to the School Board in September 2023, and it identifies updated capacity upgrade projects. Those upgrade projects have not been finalized by the New Hanover County School Board. Level Total NHC Capacity School Enrollment of Assigned School Capacity of Assigned School w/Portables Capacity of Assigned School Funded or Planned Capacity Upgrades Elementary 90% Anderson 603 569 106% None Middle 88% Murray 896 889 101% None High 100% Ashley 1910 1900 100.5% None Z24-15 Staff Report PB 7.11.2024 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-5 rezoning will 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. Natural areas and critical environmental features are enhanced and protected. Performance subdivisions are required to retain a minimum 20% open space. The proposed development will be required to retain approximately 6,000 square feet of open space on the site. The concept plan proposes the open space adjacent to the access road. Z24-15 Staff Report PB 7.11.2024 Page 12 of 15 Representative Developments Representative Developments of Single-Family Residences: Old Cape Cod Old Cape Cod Z24-15 Staff Report PB 7.11.2024 Page 13 of 15 Context and Compatibility • The property is located at the intersection of Carolina Beach Road and Myrtle Grove Road, an area experiencing a mix of commercial and higher density residential growth. • The trend for recent rezonings and development in this area is commercial uses adjacent to Carolina Beach Road, with higher-density residential to the west. • Those projects included two convenience stores with fuel stations, both with denser housing (attached single-family and multi-family) to the west, and a self-storage facility with multi- family housing to the west. • The proposed homes in this development are located closer to the rear of the property, near the planned amenity center for the multi-family development to the south. 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 Place Type Description 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 uses include office, retail, mixed use, recreational, commercial, institutional, and multi-family and single-family residential. Z24-15 Staff Report PB 7.11.2024 Page 14 of 15 Analysis The proposed development is at the Carolina Beach Road and Myrtle Grove Road intersection, an area experiencing a mix of commercial and higher density residential growth. This intersection is trending towards commercial development along the roadway corridor, transitioning to higher density residential with diverse housing types, including attached single-family and multi-family development. The proposed rezoning is for a moderately higher density residential district that proposes to keep the existing single-family dwelling along Carolina Beach Road and adds 4 new dwellings which more closely resembles existing single-family detached development patterns in the area. While the R-5 district is considered a Moderate-High density zoning district, 5 dwelling units per acre is below the maximum density allowed under performance residential development and while within the recommended range, is a third of the maximum recommended density of the Community Mixed Use place type. Though staff would have preferred a transition of commercial use to the planned higher-density residential to the west, the dimensions of the site and lack of available utilities limit the potential scope of development on the parcel. Additional conditions related to pedestrian easements along Carolina Beach Road increase walkability for the immediate area. Consistency Recommendation The proposed (CZD) R-5 rezoning is generally CONSISTENT with the 2016 Comprehensive Plan because the R-5 is closer in line than current R-15 zoning with the density and housing type recommendations for the Community Mixed Use place type. Z24-15 Staff Report PB 7.11.2024 Page 15 of 15 STAFF RECOMMENDATION This item was originally scheduled to be heard at the July 11, 2024 Planning Board meeting. The applicant requested a continuance to the August 1, 2024 regular meeting to allow changes to the concept plan which would reflect a performance residential subdivision. Staff’s recommendation is based on the policy guidance of the 2016 Comprehensive Plan, zoning considerations and technical review. The site’s constraints limit the type and density of development, and the proposal does not provide a transition from the highway corridor to the west. However, the proposed (CZD) R-5 zoning district and use are compatible with the Community Mixed Use place type. 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 project is in line with the density and housing type recommendations for the Community Mixed Use place type. I also find recommending APPROVAL of the rezoning request is reasonable and in the public interest because the project would increase the county’s housing stock. Staff proposed conditions: 1. A minimum 20-foot-wide public access easement shall be provided along the frontage parallel with Carolina Beach Road to accommodate future public bicycle and pedestrian use. 2. Increases to the impervious surface that will trigger the requirement of a stormwater management system will be considered a substantial deviation from the approved concept plan. Changes to the concept plant to add stormwater management will require review and approval by the Board of Commissioners through the rezoning public hearing process. 3. A septic and well easement approved by New Hanover County Environmental Health shall be recorded with the Register of Deeds guaranteeing access and maintenance for the septic systems and well and any future improvements. Environmental Health approval of the septic systems and well shall be required prior to issuance of construction permits for the residential units. 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 project is in line with the density and housing type recommendations for the Community Mixed Use place type, I find recommending DENIAL of the rezoning request is reasonable and in the public interest because the proposal does not provide an adequate transition from the highway corridor to residential uses.