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Z22-02 Staff Report PB 03-03-2022 (1) Z22-02 Staff Report BOC 4-4-2022 Page 1 of 20 STAFF REPORT FOR Z22-02 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z22-02 Request: Rezone 6.13 acres to (CZD) R-5, Residential District Applicant: Property Owner(s): Cindee Wolf Wilmington Realtors Foundation; Barry Dean Cribb & Polly Greene Cribb Location: Acreage: 6221-6229 Carolina Beach Rd 6.13 PID(s): Comp Plan Place Type: R07900-003-009-000, R07900-003-010- 000, R07900-003-010-001, R07900-003- 010-002, R07900-003-011-000 Community Mixed Use Existing Land Use: Proposed Land Use: Residential Residential Current Zoning: Proposed Zoning: R-15, Residential Zoning (CZD) R-5, Residential Zoning SURROUNDING AREA LAND USE ZONING North Residential R-15 East Residential R-15 South Residential R-15 West Carolina Beach Rd & across CB Rd., High-Density Attached Residential R-15 Z22-02 Carolina Beach Road Z22-02 Staff Report BOC 4-4-2022 Page 2 of 20 ZONING HISTORY April 7, 1971 Initially zoned R-15 (Area 4) COMMUNITY SERVICES Water/Sewer Water and sewer services are not currently available through CFPUA, but the developer is working on a concept plan with CFPUA to link into the current system. 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 Z22-02 Z22-02 Staff Report BOC 4-4-2022 Page 3 of 20 APPLICANT’S PROPOSED CONCEPTUAL PLAN • The applicant is proposing to rezone 6.13 acres to (CZD) R-5 in order to construct a 48-unit townhome development. The proposed plan also incorporates associated parking and bay garages, and stormwater management. • The proposed development consists of 48 units on the parcels, which are bounded to the west by Carolina Beach Road, south of the Monkey Junction area. The proposed site is directly east of Beau Rivage Drive. Building heights are proposed at a maximum of two stories. • The southeast portion of the development will contain open space and the stormwater pond on approximately 1.8 acres. • A 10’ wide fenced buffer is proposed along the north and south boundaries of the project adjacent to property zoned or developed as R-15, Residential Districts, meeting requirements of the UDO. A 20’ buffer is proposed along the east boundary of the project adjacent to property zoned as R-15. Proposed Site Plan with Staff Markups • Each townhome features a garage and a driveway accommodating two additional vehicles. • Access is proposed via one point off Carolina Beach Road which will allow right-in/right- out movements. A proposed left-over from southbound Carolina Beach Road will provide access from this movement to the northern access point to the site. • The primary road of the development is a 24’ dead-end private road terminating in a hammerhead. There is a proposed sidewalk along the north side of the road. Carolina Beach Road Site Access Point Stormwater Pond Z22-02 Staff Report BOC 4-4-2022 Page 4 of 20 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 well would be developed at low densities. Since that time, water and sewer services have become more available to the surrounding area. • The purpose of the R-5, Residential Moderate-High Density District is 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. • Under the current R-15 zoning, a performance residential development could allow a maximum of 15 dwelling units on the 6.13 acre site at a density of 2.5 du/acre. • The proposed 48-unit development equates to a density of 8 units per acre. The R-5 district allows up to 8 units per acre by right. • The project is intended to meet the price criteria for workforce housing in the 81-120% Area Median Income (AMI) range as defined by the US Department of Housing and Urban Development, adjusted for household size. Restrictive covenants will be created to assure owner occupancy and restrict investment or short-term rental. Z22-02 Staff Report BOC 4-4-2022 Page 5 of 20 AREA SUBDIVISIONS UNDER DEVELOPMENT Z22-02 Staff Report BOC 4-4-2022 Page 6 of 20 TRANSPORTATION • The site will be accessed by one access point on Carolina Beach Road which will be restricted to right-in/right-out movements. Z22-02 Staff Report BOC 4-4-2022 Page 7 of 20 • A typical R-15 Development on this acreage would generate 11 AM and 15 PM trips. The property as currently developed generates 1 AM and 1 PM trip. • The project proposal estimates a trip generation of 22 AM and 27 PM peak hour trips. Because the proposed development will not generate more than 100 peak hour trips, a Traffic Impact Analysis (TIA) is not required. • The net change from the potential trip generation if the site were to be developed under the existing R-15 district to the proposed (CZD) R-5 district shows an approximate increase of 11 AM peak hour trips and an approximate increase of 12 PM peak hour trips. Estimated Trip Generation Intensity Approx. Peak Hour Trips Existing Development: Residential (4 single family dwellings) 1 AM / 1 PM Typical Development under Current Zoning: Maximum 15 single family dwellings 11 AM / 15 PM Proposed Development: 48 townhome units 22 AM / 27 PM Estimated Net Change under Proposed (CZD) RMF-M Zoning: - + 11 AM / + 12 PM • 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) • As there is not a specific development proposal at this time to analyze traffic impacts for, 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. NCDOT Average Annual Daily Traffic (ADT) - 2019 Road Location Volume Capacity V/C Carolina Beach Road 6221-6229 Carolina Beach Road 35,500 AADT 41,368 .86 Z22-02 Staff Report BOC 4-4-2022 Page 8 of 20 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 after 2029. Beau Rivage Update Watermark Apartments Congleton Farms Tarin Woods II Habitat Restore Building Z22-02 Staff Report BOC 4-4-2022 Page 9 of 20 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. 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. Z22-02 Staff Report BOC 4-4-2022 Page 10 of 20 2. Watermark Apartments • 340 multi-family apartments • Approved December 22, 2021 • 2023 Build Out Date The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Install traffic signal at the Southbound to Northbound U-Turn at S Ridge Blvd • Construct the eastbound approach with one ingress lane and one egress lane to allow for a left-in/right-in/right-out configuration • Construct an exclusive northbound left turn lane with 200 feet of full width storage, 50 feet of deceleration and 200 feet of taper. Nearby Proposed Developments included within the TIA: • Tarin Woods • River Lights Development Status: The rezoning application for this project was denied at the February 7, 2022 Board of Commissioners’ Meeting. 3. 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. Z22-02 Staff Report BOC 4-4-2022 Page 11 of 20 4. 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. 5. 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: Improvements are complete. Z22-02 Staff Report BOC 4-4-2022 Page 12 of 20 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 & III. Class III indicates severe limitation. 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. • Based on the current general student generation rate*, the increase in homes would result in approximately 12 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 4 residential units Approximate** Total: 1 (0 elementary, 0 middle, 0 high) Typical Development Under Current R-15 Zoning 15 residential units Approximate** Total: 3 (1 elementary, 1 middle, 1 high) Proposed (CZD) R-5 Zoning 48 residential units Approximate** Total: 11 (4 elementary, 2 middle, 4 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. Z22-02 Staff Report BOC 4-4-2022 Page 13 of 20 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 2021 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 Z22-02 Staff Report BOC 4-4-2022 Page 14 of 20 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 in size and price points and access to basic goods and services. • The proposed R-5 zoning district would allow for an increase in housing diversity and would allow those new 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. Under the proposed R-5 district, the project would increase housing diversity by decreasing single family detached (72.2% to 71.5%) and increase the number of single family attached units (12.3% to 13.1%). • In addition to increasing the housing type diversity of the community, the proposal would also provide for-sale housing units at more affordable price points for residents earning between 81% and 120% area median income (AMI). Based on the findings of the Comprehensive Housing Study completed by the joint New Hanover County/City of Wilmington Workforce Housing Advisory Committee, there is a need for for-sale units serving the population at these income levels across the County. • 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.). • With the proposed number of units, the number of residences within one-mile of goods and services would remain at 61%. Z22-02 Staff Report BOC 4-4-2022 Page 15 of 20 REPRESENTATIVE DEVELOPMENTS Representative Developments of R-15: Cottage Grove Z22-02 Staff Report BOC 4-4-2022 Page 16 of 20 Clay Crossing Z22-02 Staff Report BOC 4-4-2022 Page 17 of 20 Representative Developments of R-5: Woodlands at Echo Farms Context and Compatibility • While the area was zoned for residential development 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 in 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 2 stories. Z22-02 Staff Report BOC 4-4-2022 Page 18 of 20 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 use include office, retail, mixed use, recreational, commercial, institutional, multi-family and single-family residential. Z21-08 Z22-02 Staff Report BOC 4-4-2022 Page 19 of 20 Analysis The subject property is located in the southern 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 Community Mixed Use, which promotes development of small-scale, mixed-use developments. This place type is common for areas along highway corridors. This place type assignment is intended to support more density near major roads with a transition to lower densities adjacent to existing lower intensity residential neighborhoods. The site is located south of a neighborhood commercial node and across Carolina Beach Road from higher density single-family residential development. 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 applicant is proposing 48 dwelling units, for an overall density of 8 units per acre in 2-story buildings. Housing forms such as townhomes tend to use land more efficiently and be smaller in size, making new units more affordable and providing a greater range of housing price points in the area. The proposal is also in line with the preferred density range for the Community Mixed Use place type, which envisions residential development in the range of 1-3 stories at a moderate to high density. 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 Community 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. Z22-02 Staff Report BOC 4-4-2022 Page 20 of 20 PLANNING BOARD ACTION The Planning Board considered this application at their March 3, 2022 meeting and moved to recommend APPROVAL (6-0) of the proposed rezoning to a Conditional R-5 district. The Board found 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 Community Mixed Use place type and the residential densities are in-line with those recommended for the property. The Board also found recommending APPROVAL of the rezoning request is reasonable and in the public interest because the proposal would benefit the community by providing a range of housing types and opportunities for households of different sizes and income levels. STAFF RECOMMENDATION Based on the recommended uses and intensity for Community Mixed Use places, the context and compatibility with the immediate surrounding area, and consistency with the New Hanover County Strategic Plan, staff concurs with the Planning Board’s recommendation of 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) R-5 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 Community 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 a range of housing types and opportunities for households of different sizes and income levels. Applicant’s proposed conditions: 1. The project is proposed to meet the price criteria for workforce housing in the 81- 120% Area Median Income (AMI) range as defined by the US Department of Housing and Urban Development, adjusted for household size. Restrictive covenants will be created to assure owner occupancy and restrict investment or short-term rental. Alternative Motion for Denial I move to recommend DENIAL of the proposed rezoning to a (CZD) R-5 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 Community 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.