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Z22-14 Staff Report FINALZ22-14 Staff Report PB 5.5.2022 Page 1 of 15 STAFF REPORT FOR Z22-14 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z22-14 Request: Rezone 0.23 acres to (CZD) R-5, Conditional Residential District Applicant: Property Owner(s): Cindee Wolf ABA Self Storage, L.L.C. Location: Acreage: 4631 Carolina Beach Road 0.23 PID(s): Comp Plan Place Type: R07000-004-005-000 Community Mixed Use Existing Land Use: Proposed Land Use: Vacant Single-family Dwelling Single-family Dwelling with Accessory Structure Current Zoning: Proposed Zoning: (CZD) B-2, Regional Business (CZD) R-5, Residential Moderate-High Density SURROUNDING AREA LAND USE ZONING North Undeveloped Parcel (CZD) B-2 East Multi-family Housing Development Community Business (City of Wilmington) South Carolina Beach Road Right-of-Way & Multi-family Housing Development N/A & Community Business (City of Wilmington) West Carolina Beach Right-of-Way and Undeveloped Parcel N/A & (CZD) B-2 Z22-14 Staff Report PB 5.5.2022 Page 2 of 15 ZONING HISTORY April 7, 1971 Initially zoned R-15 (Area 4) December 5, 2005 Subject parcel rezoned to (CUD) B-1 (Z-821) for a mixed-use development containing uses allowed within the B-1 zoning district. May 3, 2021 With the adoption of TA21-01, which incorporated the provisions of S.L.2019-111, CUD zoning districts were converted automatically to CZD zoning districts. February 3, 2022 Subject parcel, zoned (CZD) B-1, and vacant parcel to the north and west, zoned (CZD) B-2, are rezoned to (CZD) B-2 to allow for the development of a 17,000 square foot indoor recreational facility and 5,000 square feet of general retail and animal grooming services. COMMUNITY SERVICES Water/Sewer Capacity available through CFPUA, properties are currently connected to sewer. Fire Protection New Hanover County Fire Services, New Hanover County Southern Fire District, New Hanover County Station Myrtle Grove Schools Williams Elementary, Myrtle Grove Middle, and Ashley High Schools Recreation Echo Farms Park, Arrowhead Park, Myrtle Grove Athletic Complex CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation Conservation Resource maps indicate that there are no conservation areas or wetlands present on site. Historic No known historic resources Archaeological No known archaeological resources Z22-14 Staff Report PB 5.5.2022 Page 3 of 15 APPLICANT’S PROPOSED CONCEPTUAL PLAN Proposed Site Plan with Staff Markups • The applicant is proposing to rezone approximately 0.23 acres at 4631 Carolina Beach Road from (CZD) B-2 to (CZD) R-5. The proposed development consists of the renovation of a vacant single-family dwelling that exists on the parcel and construction of a 30’ x 50’ accessory structure. • The applicant has indicated that this rezoning would not inhibit the development of the recently approved structure and indoor recreation use in Z21-20, approved in February 2022. Any modification of that concept plan would be assessed once presented to Staff and would be required to adhere to standards within the UDO. • The applicant has indicated that the property owner of the abutting parcel, located at 4629 Carolina Beach Road, is not in opposition of this rezoning and deviation from the approved plan in Z21-20. 30’ x 50’ Accessory Structure Vacant Residential Structure New Driveway Access Z22-14 Staff Report PB 5.5.2022 Page 4 of 15 ZONING CONSIDERATIONS • It may be possible for the remnant portion of the (CZD) B-2 district approved in Z21-20 to meet all required standards if the proposed rezoning were approved. This would have to be determined as part of a future TRC review of a site plan incorporating required parking and the additional buffer width that would be triggered by the (CZD) R-5 rezoning. If the changes to the site plan had material effect on the character of the approved indoor recreation development, a rezoning of that parcel would be required. Anticipated changes to the approved development include the requirement of an additional buffer from the commercial land use with the proposed single-family residence. • While the R-5 zoning district allows a range of residential and institutional uses, the Conditional Zoning District designation would limit the use of this parcel to a renovation of the existing single-family dwelling and construction of the proposed accessory structure. Z22-14 Staff Report PB 5.5.2022 Page 5 of 15 AREA SUBDIVISIONS UNDER DEVELOPMENT Z22-14 Staff Report PB 5.5.2022 Page 6 of 15 TRANSPORTATION • The parcel fronts and has direct access to Carolina Beach Road. • The site currently shares a driveway with the abutting parcel to the northwest. • As depicted in the application materials, the parcel will have a right-in, right-out only access. This proposal will result in an additional driveway to Carolina Beach Road, separate from the access approved for the adjacent commercial development per existing conditions and approved within Z21-20. • 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). • The development approved is estimated to generate 46 AM peak hour and 73 PM peak hour trips. If the rezoning for the residential use is approved, it is estimated that the combined generated trips between both parcels would increase by 1 AM peak hour trip and 1 PM peak hour trip. Z22-14 Staff Report PB 5.5.2022 Page 7 of 15 • 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. • The most recent traffic counts in the area indicate capacity currently exists on the Carolina Beach Road corridor. WMPO Average Annual Daily Traffic (AADT) Intensity Approx. Peak Hour Trips Anticipated Development under Approved (CZD) B-2 Zoning District: 17,000 sf indoor recreation facility & 5,000 sf of general retail and animal grooming service 46 AM / 73 PM Proposed Development: 1 Single-family Dwelling 1 AM / 1 PM Approved Rezoning and Proposed Residential Use: 17,000 sf indoor recreation facility & 5,000 sf of general retail and animal grooming service and 1 Single-family Dwelling 47 AM / 74 PM Road Location Volume Capacity V/C Carolina Beach Road Between Silva Terra Drive and St. Andrews Drive 37,191 41,368 0.90 Z22-14 Staff Report PB 5.5.2022 Page 8 of 15 Nearby Planned Transportation Improvements and Traffic Impact Analyses Nearby NC STIP Projects: • STIP Project U-5702B o Project encompasses access management improvement on College Road from Carolina Beach Road to Shipyard Boulevard. Project is scheduled after 2029. • STIP Project U-5790 o Project calls for improvements to the Monkey Junction (Carolina Beach Road, College Road, and Piner Road) intersection. Project is scheduled after 2029. Z22-14 Staff Report PB 5.5.2022 Page 9 of 15 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. Fairfield Park Mixed- Use Development • 276 multi-family housing units • Approved May 6, 2019 • Full build out 2021 The TIA required improvements be completed at certain intersections in the area. The notable improvements consisted of: • Provide one ingress and one egress lane, provide stop control for the egress movement, and provide 100’ internal protected stem at four intersections within the development. • Extend the northbound left turn lane to provide 500 feet of storage, 50 feet of full width deceleration, and 100 feet of taper at US 421 (Carolina Beach Road) at McCarley Boulevard/Orchid Drive. Nearby Proposed Developments included within the TIA: • None. Development Status: Development and improvements are currently under construction. ENVIRONMENTAL • No portion of the parcel is located within an AE Flood-zone and AE Floodway. • The entire site is located within the Barnards 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, water and sewer are available through CFPUA. Z22-14 Staff Report PB 5.5.2022 Page 10 of 15 OTHER CONSIDERATIONS SCHOOLS • Students living in the proposed development would be assigned to Williams Elementary, Myrtle Grove Middle, and Ashley High Schools. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • As the site is vacant, the parcel does not generate any students. • Based on the current general student generation rate*, this proposal would not have an effect on the local school system. • 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 Vacant Approximate** Total: 0 (0 elementary, 0 middle, 0 high) Proposed (CZD) R-5 Zoning 1 Residential Unit Approximate** Total: 0 (0 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. Z22-14 Staff Report PB 5.5.2022 Page 11 of 15 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% Williams 412 412 100% None Middle 108% Myrtle Grove 740 738 100% None High 100% Ashley 1,990 1,896 105% None Z22-14 Staff Report PB 5.5.2022 Page 12 of 15 EXISTING SITE Existing Site of Proposed Development: Looking North Looking Northeast Z22-14 Staff Report PB 5.5.2022 Page 13 of 15 Context and Compatibility • The subject property is located at 4631 Carolina Beach Road and is only accessible by Carolina Beach Road. • The site abuts the vacant parcel tied to Z21-20 on the western and northern boundaries and is bordered to the east by a multi-family development that is located within the City of Wilmington’s municipal limits. Located across the street from the parcels are office and civic uses. • There are a mix of commercial and residential uses within the area. • The proposal is located between the Monkey Junction intersection and the proposed Fairfield Park mixed-use development where transitional service uses would be more appropriate than a single-family dwelling. Z22-14 Staff Report PB 5.5.2022 Page 14 of 15 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. Analysis The subject property is located along a major roadway corridor, Carolina Beach Road, and is surrounded by a vacant parcel with an approved commercial use to the north and west and a multi-family development to the south and east that is located within the City of Wilmington’s municipal limits. The Comprehensive Plan classifies the property as Commercial Mixed Use, which allows for low to moderate intensity retail and services that can support nearby neighborhoods. The Community Mixed Use place type designation encourages a mix of uses, including single- and multi-family residential, commercial, civic, mixed-use, and recreational uses. Typical zoning associated with this place type includes moderate density residential, commercial, office and institutional, and mixed-use. The proposed (CZD) R-5 rezoning is less consistent with the uses and intensity recommended in the Comprehensive Plan than the development allowed within the existing (CZD) B-2 zoning district. Consistency Recommendation The proposed (CZD) R-5 rezoning is generally INCONSISTENT with the 2016 Comprehensive Plan because the proposed use is less in line with those recommended for Community Mixed Use place types, the district is located within a transitional area, and the uses around the subject site are a mix of commercial, multi-family residential, and institutional. Z22-14 Staff Report PB 5.5.2022 Page 15 of 15 STAFF RECOMMENDATION The area of the subject site is located in is between one of the County’s three identified commercial nodes and an approved mixed-use development within the City of Wilmington. A mixture of uses and higher intensities can be found between these two areas. The proposal is not similar in form and density to other nearby projects. As the proposal is a low-density, single-family dwelling, may affect the development of the approved commercial land use on the adjacent property, and is located along a heavily traveled corridor between two developing nodes, the proposal has been determined to not be in line with the Comprehensive Plan recommendations for this area. As such, Staff recommends denial of this application and suggests the following motion with the applicant’s proposed conditions: I move to recommend DENIAL of the proposed rezoning to a (CZD) R-5 district. I find it to be INCONSISTENT with the purposes and intent of the Comprehensive Plan because the project provides a type of use not recommended in the Community Mixed Use place type and the residential densities are not in-line with those recommended for the place type. I also find recommending DENIAL of the rezoning request is reasonable and in the public interest because the proposal is located within an area that possesses a mixture of uses and higher intensities. The proposal is not similar in form and density to other nearby projects and would not serve as a benefit as it does not provide an appropriate transition between adjacent land uses. Alternative Motion for Approval I move to recommend APPROVAL of the proposed rezoning to a (CZD) R-5 district. While I find it to be INCONSISTENT 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 APPROVAL of the rezoning request is reasonable and in the public interest because the proposal allows for the use of an existing residential structure and is low-intensity.