| Home > Government > Boards and Commissions > Planning Commission > 1999 > Staff Reports > CPD99-0004 |  |
CITY OF ROCKVILLE PLANNING DIVISION
PRELIMINARY STAFF REPORT
September 9, 1999
SUBJECT:
Comprehensive Planned Development (CPD) Concept Plan Application CPD99-0004
Applicant: Fallsgrove Associates
8381 Old Courthouse Road, Suite 160
Vienna, VA 22032
CONTENT OF PRELIMINARY STAFF REPORT:
This preliminary Staff Report is based on the Fallsgrove Concept Plan as revised on August 20, 1999. The content of this report is centered around the land use issues associated with the Fallsgrove development. The outline of the report will be as follows:
· Planning Context of the Concept Plan Approval process
· Request of the Applicant
· Summary of Land Use Proposal
· Proposed Waivers and Modifications
· Findings Required for Approval
The review of this application is preliminary at this stage, and the information contained herein is meant to be a tool for the ongoing Planning Commission review of the Fallsgrove development.
PLANNING CONTEXT
Article XII, Division 7 of the Zoning and Planning Ordinance (Special Development Procedures) contains the regulations for approval and development of a Comprehensive Planned Development (CPD) in Sections 25-641 through 25-659. The CPD special development procedure provides flexibility in the development and subdivision of land by permitting variations in development density, uses, lot sizes, floor area ratio, and development standards within areas in the O-3 zone or areas designated for CPD in the Master Plan.
The standards, restrictions, and special development procedures of the CPD procedure permit flexibility in building siting and design. In addition, the CPD procedure is designed to implement comprehensive planned developments where recommended by the Master Plan, to permit staging of comprehensive planned developments consistent with adequacy of public facilities, and to take advantage of the unique opportunities afforded large tracts of land under single control. When originally conceived, the CPD procedure was developed to create a campus-like office development with extensive open space. Amendments to the CPD provisions through text amendments were adopted to provide the necessary flexibility to allow implementation of the traditional neighborhood concept in a large, mixed-use community.
In a Comprehensive Planned Development, certain requirements of the underlying zone may be waived or modified by the Mayor and Council, subject to certain specified standards, limitations, and procedures. These include:
· Use restrictions
· Development standards
· Lot standards
· Sign requirements
· Parking
· Access and loading requirements
· Screening and landscaping requirements
A Comprehensive Planned development is processed in two stages. The first stage is the Concept Plan application. The Concept Plan submission addresses such matters as:
· General location, amount and types of residential dwelling units
· Location, approximate height and size of non-residential buildings
· Vehicular, pedestrian and bicycle circulation systems
· Environmental protection parks and open space
In addition, other elements of the future development which set the general framework of the overall development will be established.
The Concept Plan stage requires a public hearing and action by the Mayor and Council. The Mayor and Council may make modifications to and/or impose such conditions on the application it deems necessary to ensure compliance with the Zoning and Planning Ordinance. If the Concept Plan is approved, the second stage, or Detailed Application, must be filed for Planning Commission review and action. The Detailed Application submission contains specific information on such items as building plans, site grading, roadways, sidewalks and utility plans, landscaping, final forest conservation plans and legal documents for the conveyance and maintenance of public and private open space. It is anticipated that the development of Fallsgrove will be continued through a series of Detailed Applications that generally conform to the Concept Plan that is currently under consideration.
Section 25-564 requires that the Concept Plan as approved by the Mayor and Council must be followed by the applicant. No substantial deviation from the plan is permitted without the approval of the Council following the same procedures as the Concept Plan application. Any increase in the number of dwelling units or increase in non-residential square footage in excess of those approved by the Concept Plan will be considered a substantial deviation. Any deviation not deemed substantial by a majority of the membership of the Planning Commission may be acted upon by the Commission, at the time of Detailed Application.
Section 25-655 of the Zoning Ordinance contains the findings that the Council is required to make in order to approve a Concept Plan Application. They are discussed in detail later in this staff report.
REQUEST
The applicant, Fallsgrove Associates, proposes to utilize the Comprehensive Planned development procedure to create a "traditional" community on the 256-acre former Thomas Farm site, which is zoned RS (Residential Suburban). The proposed development is to include a variety of dwelling units, office uses, a neighborhood convenience retail component, a park/school site, active and passive recreational/open space facilities, and natural resource preservation areas. Residential uses will include a total of 1,650-1,800 single-family attached and detached units, as well as a significant multi-family/apartment component. Moderately Priced Dwelling Units (MPDUs) must comprise 12.5 percent of the total units provided. The office component of the development is approximately 850,000 square feet, and is to be located primarily in the eastern portion of the development, adjacent to West Montgomery Avenue and Research Boulevard, and has the option of providing street level or ancillary retail. The neighborhood retail component is proposed to be a "village center," and is to be 150,000 square feet adjacent to Shady Grove Road, in the western portion of the development. Recreational uses will include athletic fields at the school site, small neighborhood parks, hiker/biker trails, and other passive open spaces. The applicant indicates a build-out period of four to eight years for the entire site.
SUMMARY OF PROPOSED LAND USE
Single-family detached residential
Of the residential component of the Fallsgrove development, approximately 16 percent of the units are proposed to be single-family detached units. The upper end of the range for the number of these units is 300. The general location for these unit types is the southern part of the development, adjacent to Darnestown Road and the center of the development, adjacent to the Storm Water Management pond near West Montgomery Avenue.
Single-family attached residential
As part of its effort at housing unit type diversification, the developers are proposing a mix of single-family attached dwelling units. The styles of these units are broken down into 18 and 20-foot townhomes, courtyard and patio homes, and "stacked townhomes."
The 18 and 20-foot wide townhomes will be the closest resemblance to a "traditional" style townhouse, while the patio homes and the courtyard homes will be reflective of a larger size and additional features, such as first floor master bedrooms and so forth. There will be varied designs among these groups, as well.
The "stacked townhomes" have four stories, and are adjacent to the Village Center, and will, according to the developers, give the area a definitive urban feel. Each townhouse unit will have two residences accessible from a common entrance. The approximate height of each stacked townhouse unit will be 40 feet. Staff notes that these units are considered multi-family units under the Zoning Ordinance.
The single-family attached homes will be located at the southwestern part of the development, adjacent to the tree-lined drive and the aforementioned single-family detached area. In addition, there will be single-family attached dwelling units in the center of the development, adjacent to the Village Center, the single-family detached area and the Village Square/Community Center location. The Village Square/Community Center area is near the site of the existing farmhouse.
The number of townhomes, stacked townhomes and other attached unit types will number from 460-500. Using the upper range of this number, these types of units will encompass approximately 28 percent of the residential units.
Multi-family residential
The residential component of the Fallsgrove development will include two separate areas of multi-family units. These multi-family units are characterized by the applicant as a combination of garage flats, luxury garden units and villas. They are all to be rental units with "hi-rise quality" amenities provided, such as concierge services, marble lobbies and wood floors. Another characterization by the developer is that these types of units will cater to an under-represented segment of the market called "renters by choice."
These units will be located adjacent to the corner of Shady Grove Road and Darnestown Road and adjacent to West Montgomery Avenue on the eastern side of the development. The developer has stated that there will be 915 to 1000 of these types of units. Again using the upper range of these numbers, the multi-family component will comprise approximately 55 percent of the residential dwelling units.
Park/School Site
A significant feature of the Fallsgrove development is the provision of a park/school site on the property. This area will be adjacent to Fallsgrove Drive (re-aligned Gude Drive), the multi- family units adjacent to West Montgomery, and the protected area of upland forest. The park/school site, as stated previously, is adjacent to the upland forest area. This area is to be dedicated to the City in the form of a Recreation Center for the use and enjoyment of the citizens of Rockville, and is an integral and significant part of the overall development as well. The breakdown of the acreage is as follows:
Park/school -- 12.5 acres
Upland Forest/Rec Center -- 6 acres
Total acreage 18.5
It must be noted that of the 12.5 acres assigned to the park/school site, only 8.6 acres are cleared and in a usable configuration for a school. The balance includes steep slopes, part of the TransCo gas right-of-way and part of the wooded forest. The Montgomery County Public School System has noted that 12 usable acres is the minimum needed for an elementary school site.
Retail Center
Along Shady Grove Road, located along an extension of Medical Center Way, is the proposed retail component of the Fallsgrove Development. Tentatively named The Shops at Fallsgrove, this 150,000 square foot center will be situated on approximately 11 acres. The proposed retail is being presented by the developer as for the convenience of the Fallsgrove residents, as well as for the employment centers located around the Life Sciences Center. A food store, video store, restaurants, cleaners and a pharmacy are all being presented as potential shops for this location.
The orientation of the retail stores on the site will be such that it provides a pedestrian oriented access from the adjoining neighborhoods and other vicinities. In addition, the developer has stated on page 8 of the concept Plan book that "the shops at Fallsgrove is intended to serve community-oriented needs and will not have components intended to serve a much broader regional market." They go further to state that "no movie theatres, big box discount stores or major entertainment centers are anticipated."
Office Uses
A significant portion of the property will be devoted to the development of office space and buildings for the purpose of research and development. The office component of the development will be located on that portion of the development that is situated between Research Boulevard and West Montgomery Avenue. In addition, there will be office use on the Shady Grove Road frontage adjacent to the existing office use of the Pearson/Dr. Young property, continuing westward to the retail center.
The developers have put forth a proposal for 850,000 square feet of office/research and development uses. They have stated on page nine of the Concept Plan book that if market demands are favorable, that an additional 350,000 square feet could be requested as permitted under the Concept Plan density for this type of use. In addition, the developer has stated that the offices will take advantage of accessibility opportunities, and "to respect the neighboring uses creating a true, mixed-use neighborhood."
The office area along Shady Grove Road will be designed so that it relates to The Shops at Fallsgrove, as well as uses across Shady Grove Road. The area along Research Boulevard is anticipated to complete the existing office park in this vicinity. This area extends both north and south from Gude Drive. The developer has characterized this area as "among the most visible and accessible areas" and "the premier office/R & D areas on the property."
PROPOSED WAIVERS AND MODIFICATIONS
The applicant has requested waivers from the development standards applicable to CPD development, in addition to several text amendments. Staff notes that the text amendments must be filed separately, and must be processed under the procedures established by the Zoning Ordinance in order to amend the text of the Ordinance.
Waiver Requests
In keeping with the intent of CPDs to allow flexibility in design, the Mayor and Council may establish setbacks by approval of the CPD, subject to limitations established by the Zoning Ordinance. An example of this is the setback limitations established for non-residential uses from the boundary of the CPD if the abutting land is zoned residential, non-residential or is a public right-of-way. The applicant has requested a waiver of 75 feet from the limitation of 100 feet that applies to those areas abutting non-residential development, generally in the Research Boulevard area. Staff finds that a waiver from this limitation is not possible, as the established limitation is not a development setback that cannot be reduced further. A text amendment is therefore required.
The applicant has also requested a modification from the requirement that a minimum of 45 percent of the required parking spaces serving office uses be located underground or in parking structures. The Zoning Ordinance permits a reduction of this requirement to 25 percent for CPDs that are crossed by or are adjacent to an existing or proposed transitway. The applicant has requested a reduction to 25 percent, based on the nearby transitway serving the Life Sciences Center, the provision of a transit center on the property and expected transit services through the site. In addition, the applicant proposed that the Zoning Ordinance be amended to allow for a reduction of this requirement where low density office uses and research and development uses exist.
The applicant has anticipated two variance requests from the Subdivision Regulations of the Zoning Ordinance. The first pertains to properties abutting arterial streets or major highways, which are required to either provide a service drive or provide reverse frontage with limited access. This variance would not require service drives along West Montgomery Avenue or Shady Grove Road in multifamily areas, and would allow single-family detached dwellings to front on arterial streets. The other variance would allow construction of dead-end alleys, which are currently expressly prohibited.
Suggested Text Amendments
The applicant has suggested that a text amendment be approved to allow a different parking standard for retail centers of less than 150,000 square feet within CPDs of greater than 750 dwelling units. This standard would either be the sum total of all uses within the center, which is the current requirement, or a new standard of 4.3 spaces per 1,000 square feet of floor area. Staff notes that parking reductions are permitted by the Ordinance, either through reductions based on non-overlapping peak parking demands or up to 30 percent based on proximity to a transit station.
Another proposed text amendment would permit semi-detached dwellings, commonly known as duplexes, to be located within a CPD only if provided as Moderately Priced Dwelling Units (MPDUs) within the single-family detached areas. The intent would be to allow economical construction of MPDUs in these areas while retaining the overall character of the neighborhood. The applicant has constructed this type of MPDU in the Claggett Farm subdivision off Glen Road.
The final proposed text amendments would add uses not currently permitted in CPDs, where retail uses are limited to those permitted in the C-1 (Local Commercial) Zone, unless otherwise specified. The applicant proposes adding retailing of sporting goods, household appliances, beer and wine and other alcoholic beverages for consumption off-premises, and office furniture, in addition to restaurants with drive-through windows, and health and fitness facilities, to the list of permitted uses in commercial areas of CPDs. Further, these uses would be limited to 2,500 square feet of patron area and 4,000 square feet of floor area, compared with the current limitation of 2,500 square feet of overall floor area.
FINDINGS REQUIRED FOR APPROVAL
With respect to the approval process of a CPD, Section 25-655 of the Zoning and Planning Ordinance states the following:
"No concept plan application for comprehensive planned development shall be approved by the Council unless the following findings are made:
This section of the Ordinance further states that "the fact that an application complies with all of the specific requirements and purposes of the applicable zone or this division shall not be deemed to create a presumption that the application shall be approved.
SUMMARY
The preceding information is intended to provide background, and to prompt Planning Commission discussion of land use and zoning issues identified to date. The attached matrix and copy of the Fallsgrove Concept Plan book is intended to aid in that effort.
Attachments: