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2. Z22-15 PB Staff Report FINALZ22-15 Staff Report PB 5.5.2022 Page 1 of 16 STAFF REPORT FOR Z22-15 ZONING MAP AMENDMENT APPLICATION APPLICATION SUMMARY Case Number: Z22-15 Request: Rezoning to an R-5 district Applicant: Property Owner(s): Cindee Wolf Oceanside Property Management, L.L.C. Location: Acreage: 49 Lennon Drive 0.55 PID(s): Comp Plan Place Type: R04912-001-005-000 General Residential Existing Land Use: Proposed Land Use: Single-family Dwelling The property would be allowed to be developed in accordance with the R-5 district Current Zoning: Proposed Zoning: R-15, Residential R-5, Residential Moderate-High Density SURROUNDING AREA LAND USE ZONING North Single-family Dwelling R-15 East Post Office O & I (City of Wilmington) South Multi-Family Residential MD-17 (City of Wilmington) West Undeveloped MD-17 (City of Wilmington) Z22-15 Staff Report PB 5.5.2022 Page 2 of 16 ZONING HISTORY July 1, 1971 Initially zoned R-15 COMMUNITY SERVICES Water/Sewer CFPUA water and sewer are available Fire Protection New Hanover County Fire Services, New Hanover County Northern Fire District, New Hanover County Murrayville Station Schools College Park Elementary, Noble Middle, New Hanover High Schools Recreation Kings Grant Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation No known conservation resources Historic No known historic resources Archaeological No known archaeological resources Z22-15 Staff Report PB 5.5.2022 Page 3 of 16 APPLICANT’S PROPOSAL • The applicant is proposing to rezone approximately 0.55 acres from R-15, Residential to R-5, Residential Moderate-High Density. • According to the applicant, the proposed zoning will allow for the provision of housing for future development in a land use pattern that is generally more consistent with the 2016 Comprehensive Land Use Plan. 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, water and sewer services have become available to the surrounding area. • Since its original zoning designation in 1971, this portion of the county has experienced a gradual shift from the original R-15 zoning to more commercial districts and uses, as well as residential developments of higher density. This is a trend that is expected to continue. • The R-5 district was established to accommodate lands for moderate to high density residential development on smaller lots with compact and walkable development patterns. The district also serves as a transition between nonresidential development and low to moderate density residential development. • Currently, the subject site contains one single-family dwelling. • The maximum density of the parcel under the current zoning is one-single family dwelling, whether developed conventionally or through a performance development. • If developed with conventional standards of the proposed R-5 district, the parcel could accommodate a maximum development of three duplexes equating to six residential units. If developed as a performance development, the maximum density possible is four dwelling units, at 8 du/acre. • 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 and specific conditions included in the approval. Only minor deviations from the approved conceptual plan, as defined by the UDO, would be allowed. Z22-15 Staff Report PB 5.5.2022 Page 4 of 16 AREA SUBDIVISIONS UNDER DEVELOPMENT Z22-15 Staff Report PB 5.5.2022 Page 5 of 16 TRANSPORTATION • Currently, access is provided to the subject property by a driveway connected to Lennon Drive, which is classified by NCDOT as a local road. • As currently developed, it is estimated the site generates about 1 peak AM trip and 1 peak PM trip. • If developed with the conventional standards of the proposed zoning district, a maximum of six residential units could be constructed in the form of 3 duplex structures. This would be estimated to generate 3 trips during the AM peak hour and 3 trips during the PM peak hour. • If developed with the performance standards of the proposed zoning district, a maximum of 4 residential units could be constructed at 8 du/acre, which is estimated to generate 4 AM peak hour trips and 5 PM peak hour trips. Z22-15 Staff Report PB 5.5.2022 Page 6 of 16 • Traffic Impact Analyses are not required for a straight rezoning, as a specific development proposal is required to thoroughly analyze access, potential trip generation, and roadway improvements. • Because a TIA is not required to analyze transportation impacts at this time, Staff has provided the volume to capacity ratio for the adjacent roadway near 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. However, the available volume to capacity data indicates capacity currently exists in this area. WMPO Annual Daily Traffic (ADT) – 12/31/2018 Road Location Volume Capacity V/C Lennon Drive North of Market Street 7,634 10,979 .695 • The LOS of this portion of Lennon Drive is rated as ‘B’. Intensity Approx. Peak Hour Trips Existing Development: 1 Single-Family Dwelling 1 AM / 1 PM Typical Development under Proposed Zoning: 4 Single-Family Dwellings 4 AM / 5 PM Maximum Development under Proposed Zoning: 3 Duplex Structures (6 Dwelling Units) 3 AM / 3 PM Z22-15 Staff Report PB 5.5.2022 Page 7 of 16 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • STIP Project U-3338B o Project encompasses creating an interchange at the intersection of N. Kerr Avenue and US 74 (MLK, Jr. Parkway). o Right-of-Way is in progress; Construction is scheduled after 2029. • STIP Project U-4902B o Project encompasses access management improvements on US 17 Business between CSX Railroad to Cinema Drive and Jacksonville Street to north of US 117/NC 132 (College Road). o Right-of-Way is in progress. Z22-15 Staff Report PB 5.5.2022 Page 8 of 16 • STIP Project U-4902C o Project encompasses access management improvements on US 17 Business from US 117/NC 132 (College Road) to Station Road. o Right-of-Way is in progress. • STIP Project U-5702A o Project to improve access management and travel times. Planning and design is currently in progress. • STIP Project U-5881 o Project encompasses upgrading NC 132 (College Road) from Gordon Road to New Center Drive. o Project includes converting at-grade intersection of College Road and MLK, Jr. Parkway to interchange. o Project scheduled for after FY 2029. ENVIRONMENTAL • The property is not within a Natural Heritage Area. The property is not located within a Special Flood Hazard Area. • The property is within the Smith 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); however, the property is currently connected to water and sewer provided by CFPUA OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to College Park Elementary School, Noble Middle School, and New Hanover High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • 1 Single-family dwelling unit is currently located on the property and 3 duplex units could potentially be developed under the proposed zoning for an increase of 5 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 the number of students who are estimated to be already generated under the existing development. Z22-15 Staff Report PB 5.5.2022 Page 9 of 16 • 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 1 Residential Unit Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Maximum Density under Proposed Zoning 3 Duplexes (6 Residential Units) Approximate** Total: 1 (1 elementary, 0 middle, 0 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. • 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 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 95% College Park 477 492 97% None Middle 108% Noble 717 664 108% None High 100% New Hanover 1584 1648 96% None Z22-15 Staff Report PB 5.5.2022 Page 10 of 16 Existing Development Current Conditions: Looking south Looking west Looking west Looking north Z22-15 Staff Report PB 5.5.2022 Page 11 of 16 Representative Developments Representative Developments of R-15: Clay Crossing Page’s Corner Z22-15 Staff Report PB 5.5.2022 Page 12 of 16 Representative Developments of R-5: Wrightsville Place Leeward Village Z22-15 Staff Report PB 5.5.2022 Page 13 of 16 Context and Compatibility • The property is located within the central portion of the County and accessed by Lennon Drive. • While the area was zoned for lower density residential development in the early 1970s and 2016 Comprehensive Plan recommends a general residential development pattern, the subject site is surrounded on three sides by the City of Wilmington. The adjacent land uses, governed by the City of Wilmington, include office and institutional, a multi-family development, and densities of R-5 levels. This proposal is also generally consistent with the City of Wilmington’s Comprehensive Plan. • Given the surrounding development and zoning districts governed by the City of Wilmington, the site is less likely to be appropriate for low density, single-family development than when the R-15 zoning was originally applied. • Staff with the City of Wilmington find the request to be generally consistent with the City’s Comprehensive Plan and with the surrounding area. Z22-15 Staff Report PB 5.5.2022 Page 14 of 16 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 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. Z22-15 Staff Report PB 5.5.2022 Page 15 of 16 Analysis The Comprehensive Plan classifies the property as General Residential, which promotes lower density residential developments. The site is located within a dense and developed portion of the County, surrounded alongside another R-15 zoned parcel by a variety of more dense and more intense uses that are located within the City of Wilmington. The subject site is located between existing civic services, and a variety of residential uses. As there are single-family dwellings to the north of the subject site and multi- family residences to the south, the proposal would provide a transition between these residential developments. 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 General Residential place type, which envisions residential development in the range of 1-3 stories at a low to moderate density. If approved, the parcel could be built out to a maximum of 3 duplex residential structures, if constructed to the R-5 conventional standards. In addition to being generally in line with the goals in the County’s Comprehensive Plan, the City of Wilmington’s Comprehensive Plan designated the area between New Centre Drive and N College Road as a Higher Intensity Area of Opportunity. This designation represents those parts of the city that have the greatest potential to accommodate future growth, infill, and new development. Furthermore, the area is also identified as a Mixed-use Center where higher-density development patterns close to transit centers are appropriate. Consistency Recommendation The proposed R-5 zoning is generally CONSISTENT with the 2016 Comprehensive Plan because the district is more in line with the densities recommended for General Residential areas than the existing zoning. Additionally, the densities and range of housing types allowed in the proposed zoning district would support existing and future community-level nodes. Z22-15 Staff Report PB 5.5.2022 Page 16 of 16 STAFF RECOMMENDATION Because of the level of development within this portion of the County, the consistency with the City of Wilmington’s Comprehensive Plan, the types of development recommended within the General Residential place type, and how a residential development possible within the proposed zoning district could serve as an appropriate transition between the adjacent land uses, staff recommends approval of this application 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 district is more in line with the densities and uses recommended for General Residential areas than the existing zoning and the potential development patterns and density are consistent with the surrounding neighborhoods. I also find APPROVAL of the rezoning request is reasonable and in the public interest because the proposal would benefit the community by providing diverse housing options, is an appropriate application of infill development due to its proximity to major roadways, a transit hub, commercial services, and other existing multi-family developments and zoning. Alternative Motion for Denial 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 district is more in line with the densities and uses recommended for General Residential areas than the existing zoning, I find DENIAL of the rezoning request is reasonable and in the public interest because of the uncertainty of negative impacts that a development allowed by-right within the R-5 zoning district could have on the adjacent land uses and infrastructure.