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Z22-12 PB Staff ReportZ22-12 Staff Report 5.5.2022 Page 1 of 13 STAFF REPORT FOR Z22-12 ZONING MAP AMENDMENT APPLICATION APPLICATION SUMMARY Case Number: Z22-12 Request: Rezoning to CZD CB district Applicant: Property Owner(s): Cindee Wolf Catherine E. Burney Heirs Location: Acreage: 5000 College Road 8.02 PID(s): Comp Plan Place Type: Parcel ID: R01800-002-001-000 Community Mixed Use & General Residential Existing Land Use: Proposed Land Use: Undeveloped & Vacant Indoor/Outdoor Recreational Facility, Restaurant and Clubhouse Current Zoning: Proposed Zoning: R-15 Residential (CZD) CB, Community Business SURROUNDING AREA LAND USE ZONING North Single – family residential R-15 East Undeveloped & Vacant R-15 South Undeveloped & Vacant R-15, I-2 West College Road Right-of-Way and Industrial Facility I-2, B-2 Z22-12 Staff Report 5.5.2022 Page 2 of 13 ZONING HISTORY July 7, 1972 Initially zoned R-15 COMMUNITY SERVICES Water/Sewer Water is available by connecting to an existing water main on Castle Hayne Road through CFPUA. Sewer is available to the east of the subject property. Fire Protection New Hanover County Fire Services, New Hanover County Northern Fire District, New Hanover County Station Castle Hayne Schools Castle Hayne Elementary, Holly Shelter Middle, and Laney High schools Recreation Blue Clay Bike Park, Northern Regional Park, Riverside Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation Conservation Resource maps indicate there are Pocosin conservation resources present on the eastern and western portions of the site. Wetlands are delineated on the site plan but are not impacted by the proposed development. Historic No known historic resources Archaeological No known archaeological resources Z22-12 Staff Report 5.5.2022 Page 3 of 13 APPLICANT’S PROPOSED CONCEPTUAL PLAN • This application is proposing to rezone 8.02 acres from R-15 to CZD CB in order to develop an indoor/outdoor recreational facility with a clubhouse and restaurant/bar. • The applicant indicates that the intended use of the subject property will be for approximately 23 pickleball courts (some covered), a sand lot for beach volleyball, plus an 8,000 sf structure for a clubhouse and restaurant. Club membership would be required for patronage to the restaurant and bar, which will be an ancillary use to the recreation establishment. • The conceptual plan shows the 8,000 sf structure in the center of the site, facing the parking lot, with pickleball courts surrounding the structure on 3 sides. Parking and a stormwater retention pond are located between the structure and College Road. Landscaping and buffering is proposed along the property lines to the east and south as well as along the property line bordering the single-family parcels to the north. • According to the applicant, the proposed zoning will allow for recreation facilities in close proximity to the residents they would serve and provide a transition along a major arterial corridor such as N College Road in a way that is consistent with the policies and goals of the 2016 Comprehensive Land Use Plan. • The conceptual plan complies with the County’s standards for a Major Site Plan, including zoning dimensional standards. Z22-12 Staff Report 5.5.2022 Page 4 of 13 ZONING CONSIDERATIONS • The R-15 district in this area was established in 1972. 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. • The purpose of the Community Business (CB) District is to provide lands that accommodate the development, growth, and continued operation of businesses that serve surrounding neighborhoods with goods and services. CB district lands can serve as a buffer between higher density/intensity development and moderate or low-density multi-family and single-family neighborhoods. This district was added to the Unified Development Ordinance in 2019 and was intended to be appropriate adjacent to existing residential uses. • As defined within the UDO, an indoor recreation establishment is a commercial establishment that provides indoor facilities for recreation, entertainment (except adult entertainment), or amusement, including but not limited to: bowling alleys, pool rooms, indoor sports gymnasiums, movie theaters and live theaters, indoor ice skating rinks, video arcades, and indoor shooting ranges. An outdoor recreation establishment, as defined by the UDO, is commercial recreation or amusement outdoors (except adult entertainment), including but not limited to: drive-in movie theater, amusement park or theme park, fairgrounds, miniature golf establishments, golf driving ranges, water slides, and batting cages. The indoor recreation use would permit the clubhouse and restaurant use within the 8,000 sf structure. • While the CB zoning district allows a range of commercial uses, the Conditional Zoning District designation would limit the type of uses on the site to pickleball courts (some covered), an associated clubhouse, and restaurant/bar as an ancillary use to the recreation establishment. There could potentially be minor deviations that would allow other outdoor recreational uses such as volleyball, within the footprint of the concept plan, which could be approved administratively. • In the CB district, a minimum 25-foot rear setback, 20-foot interior setback, and 20-foot opaque buffer yard are required where the development abuts existing single-family properties. • The UDO contains controls on exterior lighting on the site, and the maximum illumination levels along adjacent residential properties shall not exceed 0.5 foot candles. The UDO does not prescribe limitations on the height, wattage, bulb-type, or fixture type, and these can be further limited with a conditional zoning request if mutually agreed upon by the applicant. • Future development of the site would be subject to technical review to ensure compliance with applicable County and State regulations, including applicable site design and approval provisions within the UDO. Z22-12 Staff Report 5.5.2022 Page 5 of 13 AREA SUBDIVISIONS UNDER DEVELOPMENT Z22-12 Staff Report 5.5.2022 Page 6 of 13 TRANSPORTATION • Access is provided to the subject property from North College Road, an NCDOT-maintained principal arterial street. • 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 currently zoned, the parcel could be developed into 20 single-family homes generating 17 AM and 22 PM peak hour trips. • Under the proposed zoning district, approximately 23 outdoor pickleball courts plus an approximately 8,000 sf clubhouse and restaurant would be developed. A development of this scale is estimated to generate about 10 trips in the AM and 28 trips in the PM peak hours. Z22-12 Staff Report 5.5.2022 Page 7 of 13 • The net change from the potential trip generation if the site were to be developed under the existing R-15 district to the development as requested within the proposed CZD CB district shows an approximate decrease of 7 AM peak hour trips and an approximate increase of 6 PM peak hour trips. Intensity Approx. Peak Hour Trips Existing Development: Undeveloped 0 AM / 0 PM Development possible under Current R-15 Zoning: 20 single-family units 17/22 Potential Trip Generation under Proposed Zoning: 8,000 sf indoor recreation facility & 23 outdoor pickleball courts 10 AM / 28 PM Potential Net Change under Proposed Zoning: - -7 AM / +6 PM • 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 ration, 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 Average Annual Daily Traffic (ADT) • Before any development can occur on this site, the Technical Review Committee will review all plans for compliance with applicable land use regulations, including any recommended roadway improvements from traffic impact analyses to ensure adequate traffic safety and distribution. Recommended roadway improvements will be completed as required by a TIA or through the NCDOT Driveway permitting process. Road Location Volume Capacity V/C College Road Between Castle Hayne Road and Old Oakland Drive 11,284 17,375 0.647 Z22-12 Staff Report 5.5.2022 Page 8 of 13 Nearby Planned Transportation Improvements and Traffic Impact Analyses • There are no approved TIAs for projects within a one-mile radius of the subject site. ENVIRONMENTAL • No portion of the parcel is located within an AE Flood-zone or AE Floodway. • The entire site is located within the Prince George Creek watershed. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class I (moderate limitation) and Class III (severe limitation). However, water and sewer are available nearby through CFPUA. OTHER CONSIDERATIONS Z22-12 Staff Report 5.5.2022 Page 9 of 13 REPRESENTATIVE DEVELOPMENTS Representative Developments of R-15: Page’s Corner in Ogden Clay Crossing EXAMPLES OF INDOOR/OUTDOOR RECREATION FACILITIES Z22-12 Staff Report 5.5.2022 Page 10 of 13 Existing Indoor/Outdoor Recreational Facilities: Holly Tree Tennis Club Captain Bill’s Backyard Grill and Volleyball Z22-12 Staff Report 5.5.2022 Page 11 of 13 CONTEXT AND COMPATIBILITY • The subject property is located at 5000 College Road and is only accessible by College Road. • The site is adjacent to single-family on the northern boundaries and is bordered to the east and south by vacant, undeveloped land. Located across the street from the parcel is an industrial site. • There are a mix of commercial, and residential uses within the area that would support recreational uses such as the proposed development. • Northeast of the site, parcels located at the southern end of Roger Haynes Drive are currently being proposed for rezoning from I-2 and B-2 to R-10. If approved, this rezoning would allow more than 284 dwelling units to be built in the vicinity of the proposed indoor/outdoor recreation establishment. • The applicant has proposed a landscaped buffer between the proposed development and the adjacent single-family use. • The site is located south of the intersection of College Road and Castle Hayne Road where transitional service uses and low traffic generators could be appropriate. The proposed district also provides a transition from the high-intensity industrial site across College Road to undeveloped land, adjacent single-family lots to the north, and proposed moderate density residential development in the vicinity of the subject property. Z22-12 Staff Report 5.5.2022 Page 12 of 13 2016 COMPREHENSIVE LAND USE 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, General Residential Because of the general nature of place type borders, sites located in proximity to the boundaries between place types could be appropriately developed with either place type, allowing site-specific features and evolving development patterns in the surrounding area to be considered. Place Type Description Community Mixed Use 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. General Residential focuses on lower-density housing and associated civic and commercial services. Typically, housing is single-family or duplexes. Commercial uses should be limited to strategically located office and retail spaces, while recreation and school facilities are encouraged throughout. Types of uses include single-family residential, low-density multi-family, residential, light commercial, civic, and recreational. Analysis The subject property is located along a major roadway corridor, College Road, and is surrounded by single-family to the north, to the east and south is vacant, undeveloped land, and across College Road is an industrial facility. The Comprehensive Plan classifies the property as Commercial Mixed Use and General Residential, both of which allow for recreational uses 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. Z22-12 Staff Report 5.5.2022 Page 13 of 13 The proposed CZD CB rezoning is consistent with the recreational and commercial uses and intensity recommended in the Comprehensive Plan more so than the single-family development allowed within the existing R- 15 zoning district. Furthermore, the proposed use would support the surrounding commercial and residential uses along the College Road corridor and future residential growth anticipated within the area. Consistency Recommendation The proposed CZD CB rezoning is generally CONSISTENT with the 2016 Comprehensive Plan because the proposed uses are in line with those recommended for Community Mixed Use and General Residential place types, and the site is located near supportive land uses that also serve as an appropriate transition between residential and industrial uses. STAFF RECOMMENDATION As the proposed uses are in line with the recommendations for the Community Mixed Use and General Residential place type, include relatively low traffic generators, and serve as a transition between nearby residential and industrial uses, staff recommends approval of this application and suggests the following motion: I move to recommend APPROVAL of the proposed rezoning to a CZD CB district. I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the district would allow uses more in line with those recommended for Community Mixed Use and General Residential areas. I also find recommending APPROVAL of the rezoning request is reasonable and in the public interest because the proposed district would provide a recreational service for nearby residents, includes relatively low traffic generators, and is located on an arterial road. Alternative Motion for Denial I move to recommend DENIAL of the proposed rezoning to a CZD CB district. While I find it to be CONSISTENT with the purposes and intent of the Comprehensive Plan because the district would allow uses in line with those recommended for Community Mixed Use and General Residential areas, 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 uses will adversely impact the adjacent areas.