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CPPC 03-14-05 Meeting AgendaCOUNT' of FREDERICK Department of Planning and Development 540/665-5651 MEMORANDUM TO: Comprehensive Plans and Programs Subcommittee (CPPS) FROM: Susan K. Eddy, AICP, Senior Planner S �� RE: March Meeting and Agenda DATE: March 7, 2005 FAX: 540/665-6395 The Frederick County Comprehensive Plans and Programs Subcommittee (CPPS) will be meeting on Monday, March 14" 2005 at 7:30 p.m. in the first floor conference room of the County Administration Building, 107 North Kent Street, Winchester, Virginia. The CPPS will discuss the following agenda items: AGENDA 1) Alterations to the Eastern Road Plan 2) Solenberger/Bridgeforth UDA Expansion Request 3) Tasker Woods UDA Expansion Request 4) UDA Study Please contact the department if you are unable to attend this meeting. Access to the County Administration Building for night meetings that do not occur in the Board Room will be limited to the back door of the four-story wing. I would encourage committee members to park in the county parking lot located behind the new addition or in the Joint Judicial Center parking lot and follow the sidewalks to the back door of the four- story wing. The door will be locked; therefore, please wait for staff to open the door. SKE/dlw Attachments -1- 107 North Kent Street, Suite 202 • Winchester, Virginia 22601-5000 i • ITEM #1 Alterations to the Eastern Road Plan The Frederick County Transportation Committee at its meeting on March 1, 2005 recommended revisions to the Frederick County Eastern Road Plan. As the Eastern Road Plan is an element of the Comprehensive Policy Plan, it is necessary for the CPPS to forward a recommendation on the proposed revisions to the Planning Commission. Two specific items are under consideration: 1. A new major collector road between Senseny Road and Route 7 (Berryville Pike); and 2. Modifications to the classification and location of several adjacent existing and proposed roads. The first map (attached) shows the relevant section of the existing Eastern Road Plan. The second map shows the proposed network. A new road from the southern end of the Canyon, LC property, as indicated on map 2, to the intersection with Route 7 was proffered with the recently approved Haggerty rezoning. (This road has also been referred to as the spine road.) A signalized intersection at Route 7 would be provided, with Canyon, LC participating in the cost. The proposed revision to the Eastern Road Plan would classify this road a major collector road and would show the extension of this major collector road to Senseny Road, thus providing a connection between Senseny Road and Route 7. This new collector road is not meant to be a replacement for a future Route 37 in this area. Route 37 is still clearly shown on the Eastern Road Plan as a new major arterial road. The proposed major collector has been designed to run parallel to the future Route 37. Proffered with the Haggerty rezoning was the dedication of land for the future Route 37 on the Canyon, LC property. As the proposed major collector road would provide a connection between Senseny Road and Route 7, is was sensible to reconsider other elements of the Eastern Road Plan in this area. The current Eastern Road Plan shows a connection between Senseny Road and Route 7 via Morning Glory Drive, a new road through three properties to the north, and Valley Mill Road. There are some disadvantages to the currently planned connection. Morning Glory Road is a residential street not designed to serve as a major collector road. Also, Valley Mill Road in this area has a one lane bridge. In addition, there is no traffic light on Route 7 to accommodate the traffic from Valley Mill Road. In light of the new spine road to be provided with the Haggerty rezoning, it has been suggested that the Eastern Road Plan be modified to eliminate the proposed minor collector between Morning Glory Road and Valley Mill Road. Instead, it is proposed that a new major collector road be established between a re-routed Valley Mill Road and the spine road on the Canyon LC, -2- property. The Haggerty rezoning included a proffer that land on the proposed route of such a road on the Canyon, LC property would be reserved for access to adjacent properties. Advantages of this proposal are that less traffic would use Morning Glory Road and the one lane section of Valley Mill Road. In addition, the majority of the traffic in the area would access Route 7 at a signalized intersection. It should be noted that the construction of the aforementioned roads would be the responsibility of the developers in this area. The Transportation Committee considered these proposals at its meeting of March 1, 2005. Mr. Jerry Copp, Resident Engineer with the VDOT Edinburg Residency, was in attendance to answer questions. Committee members questioned the location of the spine road and the future Route 37, particularly at its intersection with Route 7. Mr. Copp assured committee members that it appeared possible to accommodate both the spine road and the future Route 37 in this area. Detailed design would take place at a later stage. The Transportation Committee unanimously recommended the proposed revisions to the Eastern Road Plan. A recommendation from the CPPS is sought. -3- ITEM #2 SolenbergerBridgeforth UDA Expansion Request This request is for the expansion of the Urban Development Area (UDA) to include 262.53 acres of land known as the Solenberger/Bridgeforth property in the quadrant bound by Route 37, Cedar Creek Grade (Route 622), Merriman's Lane (Route 62 1) and the City of Winchester. The request was submitted by Mr. Evan Wyatt of Greenway Engineering on behalf of the owners of the subject properties. The CPPS considered the SolenbergerBridgeforth UDA expansion request at its meetings on September 13, 2004, October 11, 2004 and November 8, 2004. The subcommittee was generally favorable to the UDA expansion request and was working towards modifying the existing Western Jubal Early land use plan to include these properties. The principle unresolved issue of these discussions was transportation improvements. On December 2, 2004 the Planning Department received a request from Mr. Wyatt to withhold further consideration of the UDA expansion request until March of 2005 to allow for additional analysis of the proposed interchange at Route 3 7 and Jubal Early Drive. Further analysis of the proposed interchange has since taken place. Recent transportation projections (Vision Plan Modeling Results) from the Win -Fred Metropolitan Planning Organization (MPO) indicate that planning for this interchange is still warranted. Mr. Jerry Copp, Resident Engineer with the VDOT Edinburg Residency, has concurred with this finding. Staff has revised the draft Western Jubal Early land use plan dated November 4, 2004, that was considered by the CPPS, to reflect the comments made at the November 8th CPPS meeting. A revised draft, dated March 7, 2005, is attached. Since this item was considered in November, 2004, the Frederick County School Board passed a resolution requesting that the West Jubal Early Land Use Plan include 25-30 acres for a multi - campus school site. This resolution is dated January 18, 2005. A recommendation from the CPPS to the Planning Commission on this UDA expansion request, together with a suggested land use plan, is sought. Note: The introduction to this UDA expansion request was previously included within the text of the revised Western Jubal Early Land Use Plan. It will not be part of the land use plan ultimately adopted by the Board of Supervisors. Therefore, it has been removed from the plan. In order that CPPS members have the benefit of this introduction, it has been reproduced below. A request to expand the Urban Development Area (UDA) to incorporate parcels owned by the White and Marshall families was approved by the Frederick County Board of Supervisors in February 2004. These parcels, totaling approximately 350 acres, are located in a quadrant of land bound by Route 37 to the west, Merriman's Lane (Route 621) to the north, Cedar Creek -4- Grade (Route 622) to the south, and the City of Winchester to the east. The expansion of the UDA did not incorporate all properties within this quadrant, as much of the acreage in the southern portion of the quadrant (the Solenberger/Bridgeforth Property) was reserved for agricultural use within the South Frederick Agricultural and Forestal District. The Western tubal Early Land Use Plan (WJELUP) was adopted by the Frederick County Board of Supervisors in February 2004 and is intended to guide future land use planning and development for property within the quadrant that is captured by the UDA expansion. In May of 2004 the Board of Supervisors removed 183 acres of land north of Cedar Creek Grade included within the Solenberger/Bridgeforth property, from the South Frederick Agricultural and Forestal District. A UDA expansion request has been submitted for the 262 acre Solenberger/Bridgeforth property. Should the UDA expansion request be approved, this revised Western Jubal Early Land Use Plan would cover the entire quadrant between the City of Winchester to the east, Cedar Creek Grade (Route 622) to the south, Route 37 to the west and Merriman's Lane and the City of Winchester to the north. -5- Note: changes to the plan as adopted by the Board of Supervisors on February 11, 2004 are shown with bold text and strikethroughs. WESTERN JUBAL EARLY LAND USE PLAN Adopted by the Frederick County Board of Supervisors February 11, 2004 (Revised draft March 7, 2005) Guiding Principles A new community of over 600 acres is planned in a portion of the County where previously there was little but farmland. The area contains sensitive environmental features and these will be preserved. This new community will be primarily residential with a mix of commercial and residential uses. The community will be linked by an efficient road system, multi-purpose trails and sidewalks. Land Use Residential The land included within the WJELUP represents a transitional area between the City of Winchester and the rural areas of western Frederick County. The WJELUP area is distinguished by its pristine environmental resources and prime farmland soils and has therefore historically supported both agricultural and low density residential land uses. Adjoining land within the City of Winchester has developed extensively with urban and suburban residential uses, most notably within the Meadow Branch, Morlyn Hills, Meadow Branch South, and Orchard Hill subdivisions. Additionally, suburban residential land use has been established within the UDA adjacent and north of the WJELUP area through the Merriman's Chase subdivision. The predominant land uses envisioned within the WJELUP area are urban and suburban residential uses. The residential designation is intended to continue the established land use pattern in the vicinity of the WJELUP area. As such, new residential development within the WJELUP area is expected to consist primarily of single family detached and single family small lot units, and be compatible with the design of existing residential uses on adjoining property. The gross residential density for residential developments within the WJELUP area should not exceed four dwelling units per acre. Mixed Use Areas of mixed residential and commercial land use are designated along the planned route of the Jubal Early Drive extension and near the intersection of Cedar Greek Grade and Route 37. The mixed use development pattern is intended to provide commercial services and employment opportunities that are accessible for residents within the WJELUP area and the adjacent community via alternative modes of transportation, such as pedestrian and bicycle facilities. Enhanced accessibility is anticipated through the integration of land uses within the mixed use areas and the connection of such areas to the surrounding residential neighborhoods by a network of multi-purpose trails and sidewalks. It is further expected that residential and commercial uses will be designed and configured in an integrated, not segregated, a complementary and unified- manner to ensure development of a visually distinctive and functionally efficient community. The residential component of areas designated for mixed use development is not to exceed 75% of the gross project land area for mixed use development, with the remaining acreage reserved and planned for commercial use. Gross residential densities within mixed use areas should be consistent with those of the surrounding residential neighborhoods and therefore not exceed four dwelling units per acre. Residential densities in the mixed use areas are envisioned to be achieved through a mixture of housing types. The commercial component will comprise at least 25%, but no more than 50%, of the gross project land area for mixed use development. The commercial component is envisioned to consist of neighborhood scale commercial uses and high-end office uses. Priority will be given to neighborhood scale commercial uses as these will serve the needs of residents and create focal points for the new community. The :.,m e,.eia nt will b * t t the i�va vaua vviii� eenuner-eiA developtnei4 that has occuffed a4oiig haba4 Rafly Drive west of its kiter-seefien with Valley Avenue. Strip commercial development is strongly discouraged. Consolidated entrances will be encouraged to avoid multiple -entrances along Jubal Early and Cedar Creek Grade. Other uses that might be acceptable in the areas planned for mixed uses are religious uses and local government uses. Transportation The Winchester Area Transportation Study (WATS) identifies Jubal Early Drive extending in an east -west direction from its terminus in the City of Winchester to a new interchange with the Route 37 western by-pass. The a ierr eDevelopment i:e (r JDA) shoul WJELUP incorporates the extension of Jubal Early Drive and the construction of the interchange at Route 37 as the its principal transportation component f the W E Tl. The extension of Jubal Early Drive through this portion of the UDA is envisioned as an urban divided four -lane cross-section that includes landscaped medians as well as pedestrian and bicycle facilities. The final location and alignment of Jubal Early Drive should remain flexible to ensure that the development of the future extension conforms to final transportation studies and engineering. The design and alignment of the road will facilitate its connection with the new interchange planned for Route 37. Indeed, the value of Jubal Early Drive as a regional transportation improvement is dependant upon its ultimate connection to Route 37 via this new interchange. The initial ,>,,mpai ent of A major collector road syste is planned to facilitate traffic movement in a north -south direction to provide a connection between Jubal Early Drive and Cedar Creek Grade. The ultimate location of the north -south collector road should alse-remain flexible to ensure that the development conforms to final transportation studies and engineering. This -2- road is envisioned as an urban divided four -lane cross-section that includes landscaped medians as well as pedestrian and bicycle facilities. ; however -,the AIJir�;? en-N4sioft design and construction of enly the initiM segmefit of thir, eellector read in order- to pfateet t u�vaaauag Nvuua rati. , The Winchester Area Transportation Study (WATS) also identifies improvements to Cedar Creek Grade. Cedar Creek Grade is proposed to be widened to four lanes from the Winchester City line to Route 621, Merrimans Lane. The WATS study further identifies improvements to the Cedar Creek Grade/Route 37 interchange. The Frederick County Comprehensive Policy Plan Bicycle Plan identifies Cedar Creek Grade as a short-term destination route. The WJELUP therefore incorporate the improvements to Cedar Creek Grade, to a four lane divided highway with a bicycle lane. The development of new road systems, including a new interchange at Route 37, new signalization, and any improvements to existing road systems will be the responsibility of private property owners and developers, unless the Bear— of Supervisors de4ermines that publie private n„-+ne fshi ,,. nate. In particular the new interchange with Route 37 should be guaranteed by the development community before build -out of the area. No rezonings should be approved until the County is certain that the transportation impacts of the new development will be mitigated. Note: Discussions at previous CPPS meetings on transportation centered on whether the developers in the area should be responsible for all road improvements, or whether the developers would be able to enter into a VDOT/County/developer partnership to fund improvements. As this is a land use plan, not a rezoning, the CPPS could take out all references to developer funding and keep only the elements of a land use plan. The WJELUP incorporates alternative modes of transportation, such as pedestrian and bicycle facilities. The County should also encourage the extension of existing bus routes to serve the area. Ideally bus stops will be located at the mixed use centers and within the development. Environment The WJELUP designates environmental resources associated with the Abrams Creek corridor as Developmentally Sensitive Areas (DSA). These areas should be preserved through the development process with improvements limited to required road crossings and passive recreational amenities. A conservation oriented approach to the design of residential and mixed use projects within the WJELUP area is encouraged to maximize DSA preservation. As such, the precise study and identification of DSA designated resources should occur as a critical first step in the design process for all development in the WJELUP area. Completion of this resource inventory and the delineation of preservation areas is to be followed and accommodated by layouts and engineering for building sites, lots, drainage and infrastructure. Full gross density credit will be provided for DSA designated land conserved through the development process. -3- A portion of the Green Circle Trail, as developed by the City of Winchester, has been constructed on the north side of the Winchester -Western Railroad. The WJELUP envisions completion of this portion of the trail to Merriman's Lane. Additionally, a connector trail should be developed that extends from the existing trail along the railroad right-of-way to Cedar Creek Grade as an enhancement to the Green Circle Trail. The connecting trail should be located to enhance the interaction of the user with any environmental features or view sheds that are conserved through implementation of the WJELUP. The pedestrian/bicycle network developed in the WJELUP area should provide for a continuous flow from the Green Circle. Education/Public Facilities The WJELUP area contains over 600 acres and the majority of this land is envisioned to be developed for residential uses. It is estimated that up to 2400 dwellings could be built in the study area. This could generate up to 1,680 new students for the Frederick County School System. This number of students concentrated in such a small area is unprecedented in the western part of Frederick County. It will be incumbent upon future development within the WJELUP area to provide a site for school facilities, to mitigate the impact of the large number of school children resulting from development in the WJELUP area. This is consistent with the Community Facilities and Services policies in the Comprehensive Policy Plan. Any school should be sited centrally within the study area to enable the maximum number of students to walk or bike to school. Schools quickly become the focus of a new community when they are at the center of the community. The final location and alignment of any school site should remain flexible to ensure that it conforms to final engineering studies and School Board considerations. It may also be necessary to provide other public facilities in this area to serve this new development. It would then be necessary for future development to provide a site for other public facilities to mitigate the impact of the large number of residents resulting from development in this area. Parks The WJELUP area should contain a well defined park and open space system for both active and passive recreation. Central to this open space will be the Abrams Creek corridor which should be preserved as a developmentally sensitive area. Neighborhood parks should also be located within the study area. As defined in the Comprehensive Policy Plan, neighborhood parks provide limited types of recreation for the entire family within easy walking distance. Examples of potential facilities in a neighborhood park include a playground, a swimming pool and tennis courts. The neighborhood parks should be located near the school and or neighborhood center and away from major streets. Also part of the park network will be the interconnected trail system as described above. -4- Western Jubal Early Land Use Plan (DRAFT) Map Features 000 UDA/SWSA e" UDA/SWSA Proposed Winchester City Boundary Parcels /V Streams 40 Lakes/PondsNJetlands Planned Transportation N Road ROW Road CL Railroads N Existing Trails �` ProposedTrai's Planned Land Use Developmentally Sensitive Areas ® Mixed Use Residential Use Future Interchange N W E 5 500 250 0 500 Feet Created by Frederick County Planning March 7, 2005 ITEM #3 Tasker Woods UDA Expansion Request The Frederick County Board of Supervisors at its meeting on February 9, 2005 directed the Planning Commission to study and return to the Board of Supervisors a land use plan and recommendations regarding the inclusion of 89 acres of land (parcel 76-A-49 and 76 -A -48A) in the Tasker Woods area into the Urban Development Area (UDA). The Comprehensive Plans and Programs Subcommittee is the subcommittee of the Planning Commission responsible for formulating land use policies in the County. Therefore a recommendation on the UDA expansion and an appropriate land use plan for this area is sought from the CPPS. While the Board of Supervisors resolution calling for this study only included two parcels, the CPPS at its meeting of February 14, 2005 considered it reasonable to study the entire area bounded by Tasker Road, Route 522 (Front Royal Pike) and the current UDA boundary. Staff has provided background information on the study area below. CPPS members should be prepared to discuss land use options for the study area at the CPPS meeting on March 14th. Staff will then develop a land use plan which takes account of transportation, environmental features, community facilities and design features, based on the direction given by the CPPS. This will be considered further at the April CPPS meeting. T and T TcP The Eastern Frederick County Long Range Land Use Plan does not show any specific land use for most of the study area. The land north of Tasker Road, near the intersection with Route 522 is shown as business use. At present all of the study area is zoned RA, with the exception of parcel 76-A-53, north of Tasker Road, which is zoned B2. This B2 zoned parcel and the three parcels north of Tasker Road on the west end of the study area (parcels 76-A-42, 76 -A -47A and 76 -A -47B) are in the Sewer and Water Service Area (SWSA). The land to the east of the study area is in residential and agricultural use and is zoned RA (Rural Areas). The land immediately to the west is in residential use and is zoned RA. Further to the west is the Canter Estates development which is zoned RP (Residential Performance District) and contains single family detached houses. Immediately north of the study area are the Macedonia Methodist church and the Macedonia cemetery, both zoned RA. To the south is the Eastgate Commerce Center which is zoned M1 (Light Industrial District) and contains light industrial uses, and adjacent parcels zoned B2 (Business General District) which are vacant. The study area is made up of 199 acres, with 19 parcels in multiple ownerships. The largest tracts are the Allden Tracts 76-A-49 (49.84 acres) and 76 -A -48A (29.13 acres) and the B2 zoned property owned by Wrights Run, LP (29.8 acres). The 522 South - Planning Exercise Map (attached) shows basic parcel information for the study area. It also includes a figure showing the maximum number of residential units that could be -6- allowed if the RA (Rural Areas District) zoned land was rezoned to RP (Residential Performance District). This is based on the gross density allowed in the zoning ordinance, that is 4 dwellings per acre for parcels over 100 acres, 5.5 dwellings per acre for parcels more than 10 acres and less than 100 acres, and 10 dwellings per acres for parcels less than 10 acres. The resulting 1,085 possible residential units is a maximum number, unlikely to be achieved as roads and open space would be required. Based on the potential of this site, its environmental constraints, surrounding land uses and the transportation network, CPPS members should be prepared to discuss land uses in the study area. Land use issues that need to be considered as part of this study include: • Suitability of the area for residential, commercial and industrial use; • If suitable for residential use, what housing types are appropriate; • Suitability of the area for mixed use development, if so, which mix; and • Consideration of the many small parcels along Route 522 and how to integrate them into the wider study area. Environmental Features Environmental features in the study area include several ponds and four intermittent streams. Transportation Route 522 (Front Royal Pike) is classified as a minor arterial road. The Comprehensive Policy Plan defines minor arterial roads as major roads providing important travel routes through portions of the County. Minor arterials serve to provide access between collector roads and major arterials. Minor arterials provide access to large areas of land or corridors with intensive development. Higher speeds and free traffic flow are maintained over large portions of the minor arterial. The Frederick County Eastern Road Plan designates Tasker Road and White Oak Road as improved major collectors and shows a new major collector linking the north end of White Oak Road with Route 522. Major collector roads are defined in the Comprehensive Policy plan as major roads providing access between large areas of land and arterial roads. They collect traffic from minor collectors and local roads. Major collectors provide important through routes between arterial roads and for travel within the County. Free traffic flows are maintained on major collectors. Given the existing road plans, any land use plan for this area should discourage individual entrances on Route 522, Tasker Road and White Oak Road. Other transportation issues that need to be considered as part of this land use study include: • New roads within the study area; • Safety on Route 522; • Intersections on Route 522; • Interparcel connectors; and • Bike and pedestrian facilities. Design Principles As this is a land use plan, it is appropriate to consider design principles. Design considerations include: • Road layout (grid, cul-de-sac, etc.) • Corridor enhancements on Route 522 and Tasker Road; • Trees; • Setbacks; • Location and type of open space; • Signage; and • The church and cemetery as a visual focal point. Community Facilities The study will also need to include an analysis of community facilities including schools, public water and public sewer. -8- Note: 522 South Total Acreage: 149 ac. N Planning Exercise Total # Units: 1085 units o z5o soo �,000 WE Dept of Planning &Development Y„ March 02, 2005 -DRAFT Feet s C • • ITEM #4 Urban Development Area (UDA) Study Continuation of discussions on the UDA study. -9- k01--'deA ou+ +o CPft of� 3 l g-1os A small working group coordinated by Mr. George Kriz met on March 1, 2005 as a follow up to the February Comprehensive Plans and Programs Subcommittee meeting. The group discussed potential approaches to the study of the Urban Development Areas of Frederick County and also discussed potential goals of the study. The following summary of possible goals, and the identification of stakeholder/participant groups, has been forwarded by Mr. Kriz for your review and input. Input from the members of the CPPS would be appreciated as the working group continues to devise a strategic approach to the UDA Study. Comments can be forwarded through staff or directly to Mr. Kriz. Possible Goals Provide a range of housing types including affordable housing Create mixed use areas with commercial and residential Determine need for additional industry -what type and where to be located Incorporate the MPO and other transportation plans to provide adequate transportation including all types and modes of transportation Set aside open areas for parks Incorporate lands for schools in conjunction with the School Board Incorporate the plans of the FCSA into the area Look at criteria and areas where the UDA should be expanded Identify and sustain green infrastructure Develop a tracking method for land already rezoned, number of housing units that are scheduled to come on track each year by year. Again this may be an accomplishment, but it needs to be stated up front. Develop a supply/demand model. Transitional zoning from RA and the UDA. Restructure the ordinance and design standards In the future, we should hold meetings with the following groups to get their input: Frederick County Sanitation Authority School Board and Administrators Parks & Recreation Administration Transportation ????? Design & Engineering Community Top of Virginia Builders Home Owners Associations City of Winchester Planners & City Council Public Meetings Others????? ka(\AeCj. c)( -I+ -4-o COPS o n 3 114 10,5 Historical Resources One potentially significant historic structure, the Stuart Brown House is located in the WJELUP area. It has been identified as potentially significant property in the Frederick County Rural Landmarks Survey (#34-1239). Protection of this structure is encouraged.