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Z22-18 Planning Board Staff ReportZ22-18 Staff Report PB 12.1.2022 Page 1 of 18 STAFF REPORT FOR Z22-18 CONDITIONAL REZONING APPLICATION APPLICATION SUMMARY Case Number: Z22-18 Request: Rezoning to a Conditional RMF-M district Applicant: Property Owner(s): Cindee Wolf with Design Solutions Giovanni Ippolito & Tanya Vlacancich Location: Acreage: 6634 Carolina Beach Road 4.65 PID(s): Comp Plan Place Type: R08200-001-036-000 Community Mixed Use Existing Land Use: Proposed Land Use: Undeveloped 78 Unit Multi-Family Residential Current Zoning: Proposed Zoning: R-15, Residential (CZD) RMF-M SURROUNDING AREA LAND USE ZONING North Religious Institution R-15 East Single-Family Residential R-15 South Single-Family Residential R-15 West Religious Institution and Single-Family Residential R-15 Z22-18 Staff Report PB 12.1.2022 Page 2 of 18 ZONING HISTORY April 7, 1971 Initially zoned R-15 (Area 4) COMMUNITY SERVICES Water/Sewer Water and sanitary sewer services are available through CFPUA by extension of public utility mains Fire Protection New Hanover County Fire Services, New Hanover County Southern Fire District, New Hanover County Federal Point Station 19 Schools Ashley High School, Murray Middle School, Anderson Elementary School Recreation Veterans Park CONSERVATION, HISTORIC, & ARCHAEOLOGICAL RESOURCES Conservation Developer delineated wetlands on the property. Historic No known historic resources Archaeological No known archaeological resources Z22-18 Staff Report PB 12.1.2022 Page 3 of 18 APPLICANT’S PROPOSED CONCEPTUAL PLAN Includes Staff Markups • The applicant is proposing to construct a four-story multi-family development consisting of 78 units. The first floor is proposed for parking with the remaining three floors for the dwelling units. • The proposed maximum height is 50 feet. • Under the proposed RMF-M zoning district, multi-family dwellings are allowed an additional height allowance up to four stories provided they meet the additional 100-foot setback requirements from adjacent residential properties. • The applicant’s proposed conceptual plan includes 100-foot setbacks from adjacent residential uses, outdoor amenities including a swimming pool and pickleball courts and indoor and outdoor parking. • The development also proposes a right turn lane off Carolina Beach Road and a sidewalk extending from the multi-family development to the highway. • In addition to required lighting standards listed in Section 5.5 of the UDO, the development has proposed the following additional condition: Proposed Right Turn Lane Pickleball Courts Multi-Family Dwelling Z22-18 Staff Report PB 12.1.2022 Page 4 of 18 o Exterior lighting, including luminaries and security lights, shall be arranged or shielded so as not to cast illumination in an upward direction above an imaginary line extended from the light sources parallel to the ground. Fixtures shall be numbered such that adequate levels of lighting are maintained, but that light spillage and glare are not directed at adjacent property, neighboring areas, or motorists. Light posts shall be no taller than twenty (20) feet. • The applicant’s proposed conceptual plan indicates 1.3 acres, approximately 30% of the site, will be preserved as open space, exceeding the UDO requirement of 20% open space. 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, public and private water and sewer services have become available to the surrounding area; however, the Carolina Beach corridor remains primarily zoned for low density housing. • While the site is zoned R-15, the Carolina Beach Road corridor has seen increased interest in higher density residential and commercial development such as the Myrtle Landing townhomes to the north and the Coral Ridge Subdivision to the south of the subject site. • As currently zoned, the site would be permitted up to 12 dwelling units at a density of 2.5 du/ac under the performance development standards. The proposed 78 units equate to an overall density of 17 du/ac. • The RMF-M district was established to provide lands that accommodate moderate density single and multi-family development. The intent of the district is to function as a transitional district between intensive nonresidential development and higher density residential areas. The district is designed to provide a reasonable range of choice, type, and location of housing units. • The RMF-M district allows a maximum building height of 4 stories provided it meets the standards of Section 3.1.3.C which requires 100-foot buffers from adjacent residential uses. • The Unified Development Ordinance (UDO) does not prescribe a specific height per story, however the maximum height of the proposed development is 50 feet. • Multi-family dwellings are required to provide 2 parking spaces for multi-family units containing more than 2 bedrooms, totaling 156 required spaces for the proposed development. • The proposed development includes a first-story parking garage to offset the increased impervious surface required by the 156 parking space requirement. • The UDO contains controls on exterior lighting on the site. The maximum illumination levels at the common property line with the residential properties to the west shall not exceed 0.5- foot candles and 1.0-foot candles at the northern property line adjacent to the religious institution. The height of exterior light fixtures shall not exceed 25 feet and all exterior luminaries shall be full cut-off fixtures that are directed downward. In no case shall lighting be directed at or above a horizontal plane through the lighting fixture. Z22-18 Staff Report PB 12.1.2022 Page 5 of 18 • A Type-A opaque buffer meeting the standards of Table 5.4.3.B.2 is required along the western property line adjoining single-family development. • To meet the proposed density the development must connect to public water and sewer at the nearest connection to the south at Glenarthur Drive. • If approved, the project 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. Z22-18 Staff Report PB 12.1.2022 Page 6 of 18 AREA SUBDIVISIONS UNDER DEVELOPMENT Z22-18 Staff Report PB 12.1.2022 Page 7 of 18 TRANSPORTATION • Access is proposed to be provided to the subject property from Carolina Beach Road, a NCDOT-maintained Urban Principal Arterial highway. • Access is right-in/right-out on Carolina Beach Road with a proposed right-turn lane to serve the development. • The right-turn lane is a voluntary addition to the development and will be subject to NCDOT requirements and permitting. • While the property is approximately 4,000 feet south of a commercial center, the requirement to travel south to a U-turn before moving north increases the travel distance to nearby amenities to over a mile. • As currently zoned, it is estimated the site would generate about 11 AM and 14 PM trips during the peak hours if developed at the permitted density for performance development. Z22-18 Staff Report PB 12.1.2022 Page 8 of 18 The proposed RMF-M development would increase the estimated number of peak hour trips by approximately 40 AM and PM trips. • 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 TIA associated with this project, the proposed right-turn lane will need to be reviewed and approved by NCDOT prior to TRC approval. • 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. NCDOT Average Annual Daily Traffic (AADT) - 2021 Road Location Volume Capacity V/C Carolina Beach Road Carolina Beach Road north of Myrtle Grove Road 35,767 41,368 0.86 • The Wilmington Metropolitan Planning Organization (WMPO) collected traffic counts for the area of Carolina Beach Road north of Myrtle Grove Road in April 2021. The Level of Service (LOS) is rated D. Intensity Approx. Peak Hour Trips Existing Development: Undeveloped 0 AM / 0 PM Typical Development under Current Zoning: 12 Single-Family Dwellings – Performance Development 11 AM / 14 PM Proposed Development: 78-unit multi-family development 47 AM / 54 PM Z22-18 Staff Report PB 12.1.2022 Page 9 of 18 Nearby Planned Transportation Improvements and Traffic Impact Analyses Z22-18 Staff Report PB 12.1.2022 Page 10 of 18 Nearby Traffic Impact Analyses: Traffic Impact Analyses (TIAs) 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. River Oaks • 108 Single-family detached housing units • TIA approved July 24, 2020 • 2021 Build Out Year The TIA requires improvements be completed at certain intersections in the area. The TIS recommended no improvements at any of the intersections. Nearby Proposed Developments included within the TIA: • None Development Status: Development and improvements are currently under construction. ENVIRONMENTAL • The property is not within a Natural Heritage Area or the Special Flood Hazard Area. • The property is within the Lords Creek and Drains to ICW6 watersheds. • Per the Classification of Soils in New Hanover County for Septic Tank Suitability, soils on the property consist of Class I (Suitable), Class II (Moderate Limitation), and Class III (Severe Limitation) soils; however, the project is expected to be served by CFPUA if developed. • The proposed concept plan has identified wetlands on the southwestern portion of the site. The identified wetlands are outside the development area of the project and the applicant has provided a 25-foot setback from the wetlands. OTHER CONSIDERATIONS Schools • Students living in the proposed development would be assigned to Anderson Elementary School, Murray Middle School, and Ashley High School. Students may apply to attend public magnet, year-round elementary, or specialty high schools. • A maximum of 12 dwelling units would be permitted under the current R-15 zoning base density, and 78 units could potentially be developed under the proposed zoning for an increase of 66 dwelling units. • Based on a generalized historic generation rate*, staff would estimate that the increase in homes would result in approximately 14 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. Z22-18 Staff Report PB 12.1.2022 Page 11 of 18 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 Zoning 12 residential units Approximate** Total: 3 (1 elementary, 1 middle, 1 high) Proposed Zoning 78 residential units Approximate** Total: 17 (7 elementary, 4 middle, 5 high) *The current general student generation rate was calculated by dividing the New Hanover County public school student enrollment for the 2022-2023 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 0.07 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 t han 0.5 are rounded down. This may result in student numbers at the elementary, middle, and high school levels not equaling the approximate total. • Since the residential components associated with the proposed rezoning are likely to have a build-out date within 5 years per the Traffic Impact Analysis, staff has outlined existing school capacity to provide a general idea of the potential impact on public schools. • 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** (2022-2023 School Year) *Enrollment is based on the New Hanover County Schools student numbers for the 2022-2023 school year. **Capacity calculations were determined based on the capacities for the 2022-2023 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. 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% Snipes 420 502 84% None Middle 108% Williston 841 688 122% None High 93% New Hanover 1584 1648 96% None Z22-18 Staff Report PB 12.1.2022 Page 12 of 18 • 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. 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 proposed RMF-M CZD zoning district 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 71%) and increase the percentage of multi-family units (10% to 11%). • The subject property is located in the Veterans Park community area, where 61% of residents currently live within one mile of a convenience (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 goods and services (60.7% to 61.3%). Z22-18 Staff Report PB 12.1.2022 Page 13 of 18 Representative Developments Representative Developments of R-15: Z22-18 Staff Report PB 12.1.2022 Page 14 of 18 Representative Developments of Multi-Family Apartments: Amberleigh Shores in Ogden Stephens Pointe in Porters Neck Z22-18 Staff Report PB 12.1.2022 Page 15 of 18 Context and Compatibility • The property is located adjacent to Carolina Beach Road with right-in / right-out access to the highway. • The property is located south of Veterans Park and the elementary, middle, and high schools however there is no pedestrian infrastructure in place and all traffic must travel south approximately 1,800 feet to a U-turn movement on Carolina Beach Road to travel north. • The subject property is one of several undeveloped tracts along Carolina Beach Road and acts as a buffer between the highway and lower density single-family development to the west. • Most of the surrounding land is either undeveloped or used for single-family development and religious institutions. • The subject property is bordered by the Lord’s Creek Subdivision to the west and a religious institution to the north. • Due to the size of the parcel and access onto Carolina Beach Road, the property is less likely to be developed with lower density detached single family housing. • The proposed concept plan positions a portion of the stormwater facilities closer to the existing single-family homes to the south of the site, and 100-foot setbacks are required from adjacent residential development. • In addition to the setback and buffer requirements of the UDO, the applicant has agreed to additional exterior lighting conditions to reduce the potential impact on neighboring residential uses. 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. Z22-18 Staff Report PB 12.1.2022 Page 16 of 18 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 Comprehensive Plan designates this property as Community Mixed Use, a land use classification that promotes a mix of retail, office, and residential development at moderate densities up to 15 units per acre. This classification is generally applied to areas intended as community-level service nodes and / or transitions between lower density housing and higher intensity development. Community Mixed Use specifically identifies the Carolina Beach Road corridor as appropriate for the place type and recommends higher-intensity mixed use with first floor retail and office and housing above, with a building height range of 1 to 3 stories. The place type also states areas disconnected from mixed use centers may not be appropriate for increased density. The RMF-M district is intended to act as a transitional district between residential and commercial development. The proposed project would provide a buffer between the highway and single-family development. However, the proposed density of 17 du/ac exceeds the 15 du/ac recommended for the Community Mixed Use place type. In addition, the proposed 4 story development also exceeds the height recommended in the place type. Consistency Recommendation The proposed rezoning request is generally INCONSISTENT with the 2016 Comprehensive Plan because the height and density proposed with the development exceed those recommended by the Community Mixed Use place type. Z22-18 Staff Report PB 12.1.2022 Page 17 of 18 STAFF RECOMMENDATION The Carolina Beach Road corridor has been designated as Community Mixed Use within the Comprehensive Plan. The plan recommends a mix of commercial uses and residential housing types that act as a transition between higher intensity and lower intensity development and identifies the scale of the recommended development at not more than 3 stories and 15 du/ac. The proposed development would act as a buffer between Carolina Beach Road and lower density residential development to the west, and the applicant has provided an additional lighting condition to mitigate potential adverse impacts on adjacent properties. While staff is generally supportive of higher density uses in this type of location, the proposed height of 4 stories and density of 17 dwelling units per acre exceeds the recommended maximum development patterns for the Community Mixed Use place type. As a result, Staff recommends denial of the request and suggests the following motion: I move to recommend DENIAL of the proposed rezoning. I find it to be INCONSISTENT with the purposes and intent of the Comprehensive Plan because the proposed height and density of the development exceeds the height and density recommended for the Community Mixed Use place type. I also find recommending DENIAL of the rezoning request is reasonable and in the public interest because while multi-family development acts as a buffer for lower density residential development, and parking garages help reduce impervious surface limits on projects, the overall scale of the proposed development would not be consistent with anticipated patterns of development in the Carolina Beach Road corridor. Alternative Motion for Approval 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 while the proposed height and density of the development exceeds those generally recommended for the Community Mixed Use place type, the number of stories containing residential units does not exceed 3 and the height is mitigated by increased setbacks from adjacent parcels. I find recommending APPROVAL of the rezoning request is reasonable and in the public interest because it provides an alternative housing type that acts as a buffer for lower density residential and for the mitigation of additional impervious surface on the site, contributing to the kind of transitional development desired along highway corridors. Proposed Conditions: 1. Exterior lighting, including luminaries and security lights, shall be arranged or shielded so as not to cast illumination in an upward direction above an imaginary line extended from the light sources parallel to the ground. Fixtures shall be numbered such that adequate levels of lighting are maintained, but that light spillage and glare are not directed at adjacent property, neighboring areas, or motorists. Light posts shall be no taller than twenty (20) feet. 2. The Pickleball court amenity shown on the concept plan may be used for other outdoor recreational purposes. The amenity area as shown on the concept plan must remain an amenity for use by residents of the development and their guests. 3. The maximum height of the building shall not exceed 50 feet. Z22-18 Staff Report PB 12.1.2022 Page 18 of 18 4. The proposed right turn lane must be approved and permitted by NCDOT. Changes to the concept plan to meet NCDOT requirements for the turn lane may be approved administratively by county staff.