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CITY OF ROCKVILLE PLANNING DIVISION
STAFF REPORT
JUNE 11, 1999
SUBJECT:
Use Permit Application USE99-0596
Applicant: Montgomery County Public Schools
Division of Construction
850 Hungerford Drive
Rockville, Maryland 20850
Property Location: Thomas S. Wootton High School
2100 Wootton Parkway, Rockville, Maryland 20850Planning Commission Review Date: June 17, 1999
PREVIOUS RELATED ACTION:
REQUEST:
In accordance with Section 25-193 of the City of Rockville Zoning Ordinance, Montgomery County Public Schools seeks approval of the use permit and development proposal as submitted. The applicant plans to expand, renovate, and modernize the subject public high school located within the R-150 zone.
STAFF RECOMMENDATION:
The subject application is to implement previously approved Special Exception SPX98-0273 and is subject to the applicant's compliance with specific conditions of its approval. One such condition required the applicant (Montgomery County Public Schools - MCPS) and the City of Rockville conduct a joint traffic study to examine site related traffic concerns as they pertained to the planned school expansion and renovation project. It is expected that the joint traffic study will be completed by the Fall of 1999, well after construction activity as begun on the planned school renovation and expansion project. The Board of Appeals understood this when they considered the special exception application and they agreed that permits should not be delayed while the traffic study was being undertaken. Conditions #3,4,5, and 8 of their approval addresses this issue (See Attachment "C").
In order for MCPS to move forward with its planned school renovation project, maintain its projected construction schedule for completion of all site and building improvements, the applicant seeks approval of the subject use permit with the understanding that all conditions of approval associated with the Board of Appeals approval of SPX98-0273 are to be fully complied with and where applicable, incorporated as conditions of approval for this use permit application request. Site and building construction activity is expected to begin in July 1999, with planned improvements completed and ready for student/staff occupancy by August 2000. Thus, approval of USE99-0596 is recommended subject to the following conditions:
1. The applicant must submit to the Chief of Planning 11 copies site and building plans revised to illustrate that the following site development concerns have been satisfactorily addressed.
a. Under the building notes on plan sheet C-2, list the total number of existing and proposed on-site parking spaces provided for students, staff, and school buses.
b. Under phasing schedule on plan sheet PH-1, denote projected start and completion dates for planned expansion of the north faculty parking lot. Also, reference total number of spaces to be created.
c. The planned expansion and reconfiguration of the north faculty parking lot must be constructed in accordance with site development plans submitted with the subject application. The newly expanded and reconfigured parking lot must be setback a minimum of 20 feet from the property's north side lot line.
d. Additional plantings must be installed along the north side property line, adjacent to the north (faculty) parking lot. The additional plantings will supplement existing landscaping and create a more substantial physical and visual buffer between the site parking lot and neighboring homes.
Note: The applicant must replace existing trees or other vegetative material now located along the site's northern lot line that are damaged and/or removed to accommodate the construction of the parking lot and proposed retaining wall. Replacement plantings will be chosen with the concurrence of the City Forester.
2. The Department of Public Works (DPW) requires the following site development information be provided for its review/approval and site plans be revised accordingly:
a. Stormwater (SWM) concept plan and preliminary siting computations must be submitted for DPW review and approval. SWM for the site entrance work done in 1997 and proposed improvements for the Robert Frost Middle School site should be included in plan.
b. Although permit fees are waived, MCPS must obtain sediment control and other applicable permits. Also, MCPS must provide a letter bonding and holding contractor responsible until city approves work.
c. Extend and reconfigure the storm sewer on the Frost Middle School site.
d. Combine out-falls and extend the storm sewer to the stream, and provide stabilization along stream bank.
e. Alternative water quality device should be used or provide information on other devices investigated.
f. Submit plans for the proposed temporary parking area to be located along the east side of the Wootton Parkway right-of-way. Note, the parking area must be paved.
3. The Division of Inspection Services requires that all construction must meet requirements of the city's construction codes, including building, plumbing, mechanical, electrical, fire and life safety, state accessibility code, and the American's with Disability's Act (federal requirements). Note, the applicant must verify and indicate on the plans that there is adequate fire department perimeter access based on BOCA code requirements.
4. A "forest conservation plan" (FCP) must be submitted for review and approval by the City Forester. The proposed site landscape plan should be incorporated into the proposed FCP.
5. Approval conditions numbers 3,4,5, and 8 associated with the project's previously approved special exception (SPX98-0273), must be fully complied with by the applicant prior to completion of phase two (2) of the proposed school renovation and expansion project (See Attachment "C"). It is important to note that those conditions of approval, collectively, impact administrative policies of both the subject school and MCPS, and may require substantial site and street frontage improvements be constructed to address site traffic and parking concerns which have been identified and associated with the operation of the high school.
ANALYSIS:
Property Description
Wootton High School is located on the west side of Wootton Parkway, approximately 1,200 feet south of Hurley Avenue and 30 feet northwest of the intersection of Greenleaf Terrace and Wootton Parkway. The school when originally constructed in 1970 was approximately 154,837 square feet in size. The school has since been expanded, via addition of an auditorium, a new classroom wing, and second gymnasium, all constructed in the mid 1970s and 1980s. Today, the school is approximately 235,265 square feet in size. The most recent property improvements occurred in 1997, the installation of a new site vehicular entrance on Wootton Parkway and a complete re-striping of the on-site (student) parking lot located between the school and football stadium. The recently installed site entrance is the southern most entrance of the site's three-(3) vehicular entrances on Wootton Parkway.
The subject 27.4-acre school site is bounded by single family detached dwellings to the north, the Robert Frost Middle School to the west, and farther south and east by single family detached dwellings. On-site parking facilities for faculty and staff are located on the north side of the building, totaling 116 parking spaces. The student parking lot located on the south side of the building has a total of 250 spaces. An additional lot containing 36 parking spaces is located at the rear southwest corner of school. However, modular classroom buildings occupy 22 of those spaces, thus leaving 14 spaces available for student and/or staff use. Thus, there are a total of 380 available parking spaces located on the subject school site.
The school's football stadium is located in the southern area of the site and serves as a multi-use athletic facility, i.e., football, track and field, and lacrosse. Other outdoor recreational site amenities include, the tennis courts located at the rear of the building, and three (3) play/ball fields located to the rear (south and west) of the school building. These play field face the rear of the neighboring Robert Frost Middle School site, located to the west of the subject site (See Exhibit "1 & 2"). In processing the subject application request, staff has been informed that because the high school and neighboring middle school's play fields are so closely located, they serve both schools and are greatly used by residents from the surrounding community during after school hours. The existing on-site sidewalk located at the rear southwest corner of the high school that proceeds westward out past the football stadium and connects to the rear parking lot of the middle school, provides ready and convenient student-pedestrian access between the two school sites.
The existing multi-level high school building currently has a building capacity to accommodate 1,535 students. However, the current enrollment for the 1998-99 school year is 1,725 students. Students arrive and leave school via public school bus, personal vehicle, public transit, or they walk. Students that drive to school are required to have a permit to park in the school parking lot. To supplement its on-site student parking facilities, the school currently contracts with GFS Realty, Inc., lease holders of the neighboring Rockshire Village Center to use 50 of its parking spaces for student parking. This arrangement allows those students with permits to park in designated spaces on the shopping center. This neighborhood shopping center is within approximately 1,200 feet walking distance north of the school. The center is located on the other side of Wootton Parkway and north of the school. Students generally ignore public walkways, choosing the shortest distance between the two sites, through private property.
School buses arrive and depart via the existing on site travelway (bus loop) which is located adjacent to the building's front main entrance. The applicant informs staff that parents who drop- off and pick-up students are informed by the high school's administration that such activity should take place in the student parking lot area. Parents are asked not to drop-off and/or pick-up students by parking or stopping on Wootton Parkway, because of the danger such activity poses to other motorist traveling along this well traveled public roadway. Students who walk to school access the site from both sidewalks and informal pathways. It is expected that outstanding issues related to traffic, parking, and on-site circulation are to be resolved as part of the joint City/MCPS traffic study, which is just getting underway.
Land Use Request & Project Proposal
The applicant (Montgomery County Public Schools - MCPS) seeks use permit (i.e., site plan) approval to expand, renovate, and modernize the existing Thomas S. Wootton High School. Proposed building and site improvements will accommodate an increase in student enrollment, projected to take place over the next several years. As noted, the existing school as designed has a current building capacity of 1,535. The school's current student enrollment for the 1998-99 academic year is 1,725 students, 190 students over current building capacity. Based on the pace at which student enrollment has increased over the past several years, MCPS projects that by the year 2004 the school's enrollment will be 2,109 students.
It is anticipated that the planned renovation and school modernization project will take place in two (2) distinct phases of development. The first phase of development, which is the subject of this use permit application, will include the following site and building improvements:
Note: It is anticipated that proposed construction activities and site building improvements for the project's first phase will commence July 1999 and be completed by January 2000.
The second phase of the school expansion and renovation project will include the following:
Note: It is anticipated that the second phase of the project will commence January 2000 and be completed by August of that year. After the project's second phase is completed, the newly renovated 305,515 square foot school building will have a student capacity to accommodate 2,109 students. The applicant notes that funding of the both phases of project have been approved and they are attempting to proceed expeditiously
In order to proceed with the first phase of the project, the applicant requests the subject use permit and accompanying development proposal be approved as submitted.
Applicable Sections of the Zoning Ordinance & Staff Analysis
In accordance with section 25-193 of the Ordinance, a use permit shall be issued if the Planning Commission finds that the use proposed will not:
1. Adversely effect the health or safety of persons residing or working in the neighborhood of the proposed use. The high school has been located within the subject community for well over 25 years and as noted, undergone a series of physical building improvements and expansion since its original construction. The applicant (MCPS) plans to renovate, modernize, and expand the existing 235,265 square foot school building. The planned improvements are needed to accommodate a projected increase in the current 1998-99 enrollment of 1,725 students, which is expected to reach 2,109 students by the year 2004.
In processing the project's previously approved special exception, staff solicited and received an array of feedback from community residents concerned about the planned expansion and modernization of the school. The following is a list of the most prevalent and substantive concerns expressed to staff with regard to the existing school and plans to now expand the facility:
As listed, all were deemed to be substantive issues and applicable to the findings that he Board of Appeals was required to make in its review and approval of SPX98-0273. In its submission materials and ongoing dialogue with staff, the applicant has attempted to demonstrate that the use does not pose a threat to the safety and welfare of persons living in the community and will not be detrimental to the use of neighboring properties. The applicant is aware of the afore noted concerns and has pledged to work with its students and their parents in addressing the afore noted community concerns e.g., students illegally parking in the neighboring community, unsafe and disruptive behavior in and around school property, etc. As a condition of the projects special exception approval, "the action plan as outlined in the February 16, 1999 letter from Dr. Rebecca
Newman should be expanded to include a student parking management plan, and must be complied with to the extent possible by all affected parties referenced therein." This action plan was developed over the course of several meetings, by the school's administration, interested student parents, a collection of community groups, and local governmental agencies. The purpose of the action plan reflects the group's effort to find solutions and address ongoing concerns pertaining to the school's existing and future traffic and parking problems, as identified by the community.
2. Be detrimental to the public welfare or injurious to property or improvements in the neighborhood. Regarding on-site parking requirements for educational institutions, Section 25-395(a)(14) of the Ordinance requires that "one (1) parking space for each two (2) employees, including teachers and administrators, plus sufficient off-street space for the safe and convenient loading and unloading of students, plus additional facilities for student parking, taking into consideration the total number of students, the percentage of students driving, and the requirements for stadium, gymnasium and auditorium use, be provided as reasonably determined by the Planning Commission."
There are a total of 380 existing on-site parking spaces. Of that number, there are 264 (usable) parking spaces in the student parking lot, which is located on the south side of the school building. The remaining 116 spaces are located in the upper north (faculty/staff) parking lot. Under the planned school expansion, the north parking lot will be expanded and reconfigured to create 63 additional parking spaces. At present time the school has 162 employees, (109 faculty members and 53 support staff members). As per the Ordinance, a total of 81 on-site parking spaces are required for the school's 162 employees. The existing faculty-staff parking lot has 116 spaces and once expansion is complete, 63 additional spaces will be added to that lot.
To insure that ample parking is provided for students who are permitted to drive, there are 220 spaces allocated for their use in the on-site student lot. To supplement the on-site student parking spaces, the school contracts with the neighboring Rockshire Village Center to use 50 of its spaces for student parking. Also, in an effort to insure that school buses no longer are forced to park or line-up on abutting public street rights-of-way while attempting to pick-up and drop-off students, the new bus loop to be constructed along the front entrance of the building will accommodate 25 school buses.
Based on information provided, of the 270 parking permits issued to students, it is estimated that approximately 600 students arrive and depart school with a student driver who has been issued a parking permit, i.e., carpool riders. Approximately 729 students are bused, 97 students walk, and 320 are dropped-off and picked-up by a parent. At full site build-out, when both project phases of the school expansion are completed, it is projected that 270 students will drive to school, 929 will be bused, 125 will walk, 417 will be dropped-off/picked-up by parents, and 765 will arrive/depart school as carpool riders.
Access and circulation problems continue to be a major concern with this proposal. In its approval of SPX98-0273, the Board of Appeals imposed the condition that "the applicant (MCPS) and the City of Rockville must conduct a joint traffic study that examines a number of factors to alleviate site generated traffic and parking problems. The joint traffic study is to examine alternatives and possible site improvements to address the following; illegal student parking in surrounding communities, enhancement of site vehicular ingress-egress, deployment of police/crossing guards, mitigation of unsafe traffic flow in and around the site area, etc (See Attachment "C").
Currently, the area directly in front of the school is reserved for bus only traffic. The site entrance, driveway, and bus loop will be reconstructed and when completed will have the capacity to accommodate 25 school buses. This redesign of the bus parking spaces will create a larger, more efficient, and safer on-site area for loading and unloading of students. In addition to the school buses that are the primary users of the northern site entrance when the school day is starting and ending, teacher/staff also use this entrance to access the north faculty parking lot. The southern entrance however, is the sole site access for student drivers with permits, staff/teachers, and parents who are dropping-off and/or pick-up students. The school's administration has affirmed that students are advised to use the designated (on-site) drop-off areas and avoid off-site drop-offs. To insure vehicular traffic entering and exiting the site's southern entrance does impede traffic flow movements along Wootton Parkway, "the applicant/school administration must provide a traffic manager (on-site) at or near the site's southern entrance to assist and direct students and parents to appropriate parking and drop-off points. The assigned staff person should be stationed at a designated on on-site location, weekdays, at least one half-hour before school starts" (See Attachment "C"). It is anticipated that improved on-site vehicular circulation will allow for more efficient site ingress/egress, thus reducing the potential for queuing of vehicles into the street right-of-way (r/w) by those attempting to access the site.
It must be noted that the applicant's proposal does not indicate there will be an increase in the 270 parking permits now issued to students. However, due to the previous problems the surrounding community has experienced with students parking in their neighborhoods, the proposal to expand the north faculty parking lot should eliminate the much of the need for staff to continue using the south parking lot. If the majority of all teachers and school staff park in the north faculty parking lot (when completed), additional parking spaces (on-site) will be created in the south parking lot for students (with permits) to park. Although there will be approximately 63 additional parking spaces created with the reconfiguration and expansion of the north faculty parking lot, it is still highly unlikely that the south (student) parking lot would be large enough to accommodate all future student parking needs. In approving SPX98-0273, the Board attempted to provide an alternative to students and reduce the need for students to drive to school. As a condition of the special exception approval, "MCPS should, if at all possible, expand and provide school bus services to include students living one-half (1/2) mile or greater from the school." It is hoped that expanded bus service would provide students with an alternative to car pooling with a friend and/or driving to school without the appropriate school issued permit.
While the availability of on-site parking for students and to a lesser extent for special events, is a substantive concern with this application request, there is no evidence the expanded and modernized school will greatly over burden public services and improvements within the subject site area. However, vehicles stopping to drop-off students on Wootton Parkway and vehicles backing up at the site entrance, create a safety hazard. Students crossing Wootton Parkway outside of designated crosswalks also create a safety hazard. The land use patterns within the site area are also firmly established and will not be altered by the planned site improvements. The applicant has affirmed that the subject property and planned improvements will comply with applicable stormwater management requirements as determined by the City's Department of Public Works. The site is served by public water and sewer, which may require some upgrade and retrofit of those services in order to accommodate the planned building and site improvements.
Once completed, the renovated school facility will be physically consistent in character with other more modern county high schools. The planned improvements represent both aesthetic and functional enhancements to the existing school and property. MCPS has determined that the planned school expansion and renovation is needed to better serve the immediate and future educational needs of students and provide staff with a building facility and resources that enable them to better do their jobs.
3. Constitute a violation of any provision of the Zoning Ordinance other applicable law.
Submission of the subject application requests represents the applicant's efforts to satisfy and comply with Section 25-54 of the Ordinance, i.e., the filing of a use permit as required per approval of Special Exception SPX98-0273. While the subject site development and application request substantially complies with applicable requirements of the Ordinance, the applicant has requested flexibility on the design size of parking spaces created via the expansion and reconfiguration of the north (faculty) parking lot. The parking lot currently has 116 spaces. To provide 63 additional on-site parking spaces in that lot, the applicant would like to utilize county design guidelines. Thus, said parking spaces would be 8 1/2 feet wide x 18 feet long, in lieu of 9 feet wide x 18 feet long.
While there is no waiver provision from the City's parking requirements, the applicant affirms that such design flexibility will allow for installation of the 63 additional spaces, insuring that additional on-site parking spaces will be provided for both staff and students. It is further noted, that due to site constraints the applicant was given this flexibility in 1997 by the City to install a new site entrance and re-stripe the student parking lot. Staff notes that this was done as a interim measure and allowed by the City with the understanding that MCPS would examine the possibility of designing all on site-parking spaces in accordance with the required city 9' x 18' design standard. It was agreed that this would be done when MCPS submitted its petition requesting special exception approval to renovate and expand the existing high school. However, the applicant informed staff that because of existing site constraints, the north faculty parking lot cannot be reconfigured and the 63 additional spaces provided as proposed, if said spaces are sized per the city standard. Also, these added site-parking spaces become especially critical, if MCPS cannot or does not install additional site parking spaces elsewhere on site.
As per Section 25-395(a)(14) of the Ordinance, on-site parking is required and must be provided for both staff and students. While adequate on-site parking spaces are provided for staff (i.e., 1 space per each 2 employees) as per the Ordinance, on-site student parking is deemed to be inadequate. Although the school has tried a number of techniques to manage the existing parking problem, it is still a major concern that is expected to become more serious with the proposed school expansion.
The existing on-site student parking lot has a total of 264 parking spaces. Of that number, 220 are allocated for student parking. The school has issued 270 parking permits, allowing students to drive. As per the ordinance, 50 additional on-site parking spaces should be provided to accommodate all students with issued parking permits. Although these 50 additional student parking spaces, are currently being provided (as per agreement) on the neighboring Rockshire Village Center parking lot, it is desirable that at some point in the future that these required spaces (if possible) be provided on site as per the Ordinance. It should be noted that once the school is fully renovated and expanded, the parking spaces that are currently being occupied by portable classroom buildings now located at the southwest corner of the school, could potentially be used for additional student parking spaces. If the portable classrooms are removed and no longer needed, the parking spaces they now occupy should be used for additional student parking.
Based on all of the afore noted factors, staff finds reasonable justification to recommend Use Permit Application USE99-0596 be approved subject to fully compliance with the conditions as referenced on pages two and three of this staff report.
COMMUNITY NOTIFICATION PROCESS
Notification cards were sent to abutting property owners informing them of the application request and pending Planning Commission meeting that will be held to review the subject development proposal. Notices were sent to 1,500 property owners located within the subject site area. A list of addresses is contained in the project's application file for public review and inspection.
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Attachments
Exhibit "1" - Existing Site Plan
Exhibit "2" - Proposed Site Development Plan
Exhibit "3" - Proposed Building Elevation Drawings
Exhibit "4" - Existing Building Elevation Drawings
Exhibit "5" - Zoning Map of Site Area
Attachment "A" - On-site Parking Assessment Letter
Attachment "B" - Staff Traffic Assessment Memo
Attachment "C" - SPX98-0273 Approval Letter