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Z21-15 Staff Report PB 12-2-21Z21-15 Staff Report PB 12.2.2021 Page 1 of 19 STAFF REPORT FOR Z21-15 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z21-15 Request: Rezone 20.5 acres to (CZD) RMF-M, Residential Multi-Family Moderate Density District Applicant: Property Owner(s): Thompson Thrift Development, Inc ARFA Holdings, LLC Location: Acreage: 6124 Carolina Beach Road 20.5 PID(s): Comp Plan Place Type: R07900-001-014-002 Urban Mixed Use Existing Land Use: Proposed Land Use: Undeveloped Mixed-Use development Current Zoning: Proposed Zoning: B-2, Regional Business District (CZD) RMF-M, Residential Multi-Family Moderate Density District SURROUNDING AREA LAND USE ZONING North Mini-Warehousing/Self Storage B-2 East Undeveloped (Hanover Pines Nature Park Site) R-15 South Undeveloped B-2 West Single-Family Residential (Beau Rivage Plantation) R-15 Z21-08 Carolina Beach Road Z21-15 Staff Report PB 12.2.2021 Page 2 of 19 ZONING HISTORY April 7, 1971 Initially zoned B-2 (Area 4) COMMUNITY SERVICES Water/Sewer Water and sewer services are available through CFPUA. Fire Protection New Hanover County Fire Services, New Hanover County Southern Fire District, New Hanover County Myrtle Grove Station Schools Bellamy Elementary, Murray Middle, and Ashley High Schools Recreation Monterey Heights Park, Veterans Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources Historic No known historic resources Archaeological No known archaeological resources Z21-08 Z21-15 Staff Report PB 12.2.2021 Page 3 of 19 APPLICANT’S PROPOSED CONCEPTUAL PLAN • The applicant is proposing to rezone 20.5 acres of a 28.91-acre parcel to (CZD) RMF-M in order to construct a 300-unit multi-family development at a density of 14.6 units per acre. The proposed plan also incorporates associated parking and bay garages, amenity areas, and stormwater management. • The proposed development consists of 15 20-unit buildings on the parcel, which is bounded to the east by Carolina Beach Road, just south of Sanders Road and the Beau Rivage shopping center. Building heights are proposed at a maximum of two stories and 45’. • The main office area and amenity center is located on the front or east boundary of the parcel closest to Carolina Beach Road. Additional amenity areas are located within the center and northwest area of the site. • The northwest area of the site also contains the development’s stormwater infiltration basin on approximately 2 acres. • A 20’ wide transitional buffer is proposed along the west and south boundaries of the project adjacent to property zoned or developed as R-15, Residential Districts, meeting requirements of the UDO. Proposed Site Plan with Staff Markups Site Access Points Infiltration Basin Carolina Beach Road Z21-15 Staff Report PB 12.2.2021 Page 4 of 19 • Bay garages are interspersed throughout the plan to provide protected vehicle parking for residents. A series of interconnected drives, parking lots, sidewalks, and courtyards link the features of the complex together. • Access is proposed via two points off Carolina Beach Road which will function as right- in/right-out movements. A proposed left-over from northbound Carolina Beach Road will provide access from this movement to the northern access point to the site. ZONING CONSIDERATIONS • The B-2 district in this area was established in 1971. The purpose of the B-2 district is 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. • It is estimated that 20.5 acres of property zoned B-2 can generally support approximately 160,000 square feet of traditional general retail uses based on a typical 18% building area for this type of zoning. For comparison, this percentage of building footprint area is similar to the developed area in the Beau Rivage Shopping Center which lies slightly north of the subject site. • The purpose of the RMF-M, Residential Multifamily Moderate Density District is to provide lands that accommodate moderate density single-family and multi-family development. The intent of the RMF-M district is to function as a transitional district between intensive nonresidential development and higher-density residential areas. The districts is intended to provide a reasonable range of choice, type, and location of housing units. • The proposed 300-unit development equates to a density of 14.6 units per acre. The RMF- M district allows up to 17 units per acre by-right. Z21-15 Staff Report PB 12.2.2021 Page 5 of 19 AREA SUBDIVISIONS UNDER DEVELOPMENT TRANSPORTATION • The site will be accessed by two access points to Carolina Beach Road which will be restricted to right-in/right-out movements. A left-over from northbound Carolina Beach Road is proposed at the northern access point to the site. A shared through/right turn lane is proposed along Carolina Beach Road which will terminate at a southbound U-turn just south of the parcel boundary. • Internal drives, sidewalks, and parking areas are designed in a grid-like pattern throughout the site to provide internal vehicular and pedestrian access throughout the site. Z21-15 Staff Report PB 12.2.2021 Page 6 of 19 • If the portion of the site subject to the rezoning request was developed with a typical approximate 18% building footprint, approximately 160,000 sf of general retail could be built and is estimated to generate about 150 AM and 610 PM peak hour trips. • A Traffic Impact Analysis (TIA) was conducted for the project and estimated a trip generation of 153 AM and 176 PM peak hour trips. • The net change from the potential trip generation if the site were to be developed under the existing B-2 district with approximately 160,000 sf of retail to the proposed (CZD) RMF- M district shows an approximate increase of 3 AM peak hour trips and an approximate decrease of 434 PM peak hour trips. General retail uses typically generate the bulk of their trips during the PM hours as retail uses are often not the weekday rush hour destination for motorists. Z21-15 Staff Report PB 12.2.2021 Page 7 of 19 Estimated Trip Generation Intensity Approx. Peak Hour Trips Existing Development: Undeveloped 0 AM / 0 PM Typical Development under Current Zoning: 160,000 sf of Retail 150 AM / 610 PM Proposed Development: 300 multi-family units 153 AM / 176 PM Estimated Net Change under Proposed (CZD) RMF-M Zoning: - + 3 AM / - 434 PM Traffic Impact Analysis • A TIA has been completed for the proposed development and analyzed the Level of Service (LOS) in vehicle delay per second at notable intersections in the area: • Carolina Beach Road at Sharks Eye Lane • Carolina Beach Road at Manassas Drive • Carolina Beach Road at Ridge Boulevard • In the LOS analysis at the studied intersections, the TIA found that all are expected to operate at an acceptable level LOS with the recommended roadway improvements. • Notable recommended roadway improvements from the TIA include: • Construction of a left turn lane into the northern site access point from northbound Carolina Beach Road • Construction of a shared through lane/right turn lane into both site access points from southbound Carolina Beach Road Recommended Roadway Improvements from TIA Install Left-Over to Northern Site access Point, Install Shared Through/Right Turn Lane Z21-15 Staff Report PB 12.2.2021 Page 8 of 19 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • 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 in 2024. Z21-15 Staff Report PB 12.2.2021 Page 9 of 19 Nearby Traffic Impact Analyses: Traffic Impact Analyses 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. 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. 2. Habitat Restore Building • 20,320 sf of Discount Store • 14,830 sf of Shopping Center • Approved February 26, 2018 • 2022 Build Out Year The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Installation of a southbound right turn lane on Carolina Beach Road at the site’s access. • Increasing the length of an existing southbound u-turn lane on Carolina Beach Road at Cathay Road. Nearby Proposed Developments included within the TIA: • Beau Rivage Update • Beau Rivage Townhomes Development Status: No construction has started at this time. Z21-15 Staff Report PB 12.2.2021 Page 10 of 19 3. Congleton Farms • 169 Single-Family Homes • Approved February 7, 2018 • 2018 Build Out Date The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Constructing the section of Lieutenant Congleton Road along the site frontage to connect to the existing roadway with one lane in each direction. Nearby Proposed Developments included within the TIA: • None Development Status: Development under construction. 4. 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. Z21-15 Staff Report PB 12.2.2021 Page 11 of 19 ENVIRONMENTAL • The property does not contain any Special Flood Hazard Areas or Natural Heritage Areas. • The property is within the Motts Creek watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class I (suitable with slight limitations for septic suitability). However, the site is expected to be served by CFPUA when developed. OTHER CONSIDERATIONS SCHOOLS • Students living in the proposed development would be assigned to Bellamy Elementary, Murray Middle, and Ashley High Schools. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • The typical by-right development in the B-2 district is not expected to generate any additional students. 300 units are proposed under the rezoning request. • Based on the current general student generation rate*, the increase in homes would result in approximately 66 additional students 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. 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 Undeveloped Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Typical Development Under Current B-2 Zoning 160,000 sf of retail Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Proposed (CZD) RMF-M Zoning 300 residential units Approximate** Total: 66 (27 elementary, 15 middle, 24 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. Z21-15 Staff Report PB 12.2.2021 Page 12 of 19 • Given the size of the proposed development, it may have a build-out date within 5 years, so staff has outlined existing school capacity to provide a general impact of the potential impact on public schools.  These numbers do not reflect any future capacity upgrades that may occur over the next five years or trends in student population changes.  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** (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 recent facility needs survey that has been 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% Murray 853 848 101% None High 100% Ashley 1,990 1,896 105% None Z21-15 Staff Report PB 12.2.2021 Page 13 of 19 NEW HANOVER COUNTY STRATEGIC PLAN • One of the goals of the New Hanover County Strategic Plan for 2018-2023 is to encourage the development of complete communities in the unincorporated county by increasing housing diversity and access to basic goods and services. • The proposal would allow for an increase in housing diversity and would allow those residents to utilize existing goods and services within one mile of the subject property. • The predominant housing type in the area is single family detached at 72%. Under the proposed RMF-M district the site would allow for multi-family residential (apartments) and increase housing type diversity by reducing the percentage of single family detached (72% to 69%) and increasing the percentage of multi-family residences (10% to 14%). • The subject property is located in the Veterans Park community area, where 61% of residents currently live within one-mile of a convenience need (grocery store, retail staples, pharmacies, etc.), a support service (urgent care, primary doctor’s office, child & adult care, etc.), and a community facility (public park, school, museum etc.). The proposed RMF-M district would increase the number of residences within one-mile of a community facility (61% to 66%). Z21-15 Staff Report PB 12.2.2021 Page 14 of 19 REPRESENTATIVE DEVELOPMENTS Representative Developments of B-2: Oak Landing Shopping Center Z21-15 Staff Report PB 12.2.2021 Page 15 of 19 Representative Developments of RMF-M: Woodlands at Echo Farms Jumpin Run Z21-15 Staff Report PB 12.2.2021 Page 16 of 19 Context and Compatibility • While the area was zoned for commercial development along a major arterial in the early 1970s, the 2016 Comprehensive Plan recommends multi-family or higher density single family development patterns, and a mixture of uses can be provided via adjacent tracts or when separated by lower traffic local or collector roads. • The subject property is located in one of the county’s more densely developed corridors, just south of one the three identified high growth nodes in the Comprehensive Plan. • The subject property is one of several undeveloped tracts along Carolina Beach Road, a major road corridor. The property is located south of a commercial node serving residents in this area, and is a location anticipated to serve as a transition from single-family detached land uses west of the site to Carolina Beach Road. • The proposed height will be limited to 45’ and 2 stories, which is less than permitted by- right in the RMF-M district. • Required setbacks, transitional buffers, and the placement of the garage bays provide additional mitigation for aesthetic effects along the property boundaries. Z21-15 Staff Report PB 12.2.2021 Page 17 of 19 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 Urban Mixed Use 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. Z21-08 Z21-15 Staff Report PB 12.2.2021 Page 18 of 19 The subject property is located in the south-central portion of the county along a major road corridor in close proximity to a neighborhood commercial node and other commercial services. 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 south of a neighborhood commercial node and higher density single-family attached 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 moderate to high density. The applicant is proposing 300 dwelling units, for an overall density of 14.6 units per acre in 2-story buildings. Consistency Recommendation The proposed rezoning is generally CONSISTENT with the 2016 Comprehensive Plan because the project provides for the type of housing diversity that is recommended in the Urban Mixed Use place type, the residential densities are in-line with those recommended within this place type, and the project will provide additional housing in close proximity to existing and future commercial development serving nearby residents. Z21-15 Staff Report PB 12.2.2021 Page 19 of 19 STAFF RECOMMENDATION Based on the recommended uses and intensity for Urban Mixed Use places, the context and compatibility with the immediate surrounding area, and consistency with the New Hanover County Strategic Plan, staff recommends approval of this application and suggests the following motion with the applicant’s proposed conditions: I move to recommend APPROVAL of the proposed rezoning to a (CZD) RMF-M district. I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the project provides for the types and mixture of uses recommended in the Urban Mixed Use place type and the residential densities are in-line with those recommended for the property. I also find recommending APPROVAL of the rezoning request is reasonable and in the public interest because the proposal would benefit the community by providing diverse housing options. The proposal also provides a transition from adjacent single-family residential development to the west, will provide additional housing in close proximity to existing and future commercial development serving nearby residents. Applicant’s proposed conditions: 1. Maximum building height shall be forty-five feet (45’) and two (2) stories 2. Maximum unit count shall be three hundred (300) units. Alternative Motion for Denial I move to recommend DENIAL of the proposed rezoning to a (CZD) RMF-M district. While I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the project provides for the types and mixture of uses recommended in the Urban Mixed Use place type and the residential densities are in-line with those recommended for the property, 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 neighborhoods.