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CPPC 03-11-96 Meeting AgendaCOUNTY of FREDERICK Department of Planning and. Development 540/665-5651 FAX: 540/678-0682 MEMORANDUM TO: Comprehensive Plans and Programs Committee FROM: Kris C. Tierney, Deputy Planning Directo RE: Meeting Date and Agenda DATE: March 7, 1996 There will be a meeting of the Comprehensive Plans and Programs Committee on March 11, 1996 at 7:30 p.m. in the Conference Room of the Old County Court House. Please let me know if you are unable to attend. AGENDA 1) Discussion of needed revisions to Round Hill Land Use Plan. A number of Board members expressed reservations about the plan as currently formatted. In particular, there was little support for the idea of extending sewer beyond the limits of the current Sewer and Water Service Area. There was also opposition to the area proposed as a Planned Unit Development. The staff is working to revise the plan in response to the comments received and hopes to have this available for discussion at our meeting. Attached is a rough copy of the revised text to give members an idea of the scope and nature of the changes being made to the Plan.. We hope to have a more complete version in time for the meeting Monday night. 2) Discussion of request to expand the Urban Development Area. See letter enclosed from Steve Gyurisin. 3) Discussion of future study of the Clearbrook Area. (Time permitting) 107 North Kent Street • Winchester, Virginia 22601-5000 Round Hill Community Center Proposed Land Use Plan Working Copy 3\6\96 TABLE OF CONTENTS NTS Introduction 1 Starting the Process...........................................1 Background...............................................3 Key Components of the Plan .. _................................. 3 Minimum Lot Size for Core Area ................................ 6 Description of Phases .......................................... 7 Phase.........................................7 Phasell.........................................7 PhaseIll........................................7 Infrastructure ................................. . ........ 9 Sewer..........................................9 Water..........................................11 Roads..........................................11 Summary...............................................12 TABLES Design Principles .............................................. 5 Number of Lots by Acreage ..................................... 6 Projected Sewer Demand ........................... . .... . . . . ... lo MAPS Location Map...............................................2 LandUse Plan...............................................8 H Introduction The Frederick County Comprehensive Plan identifies ten areas of the County as potential Rural Community Centers. The Plan acknowledges that these ten areas have distinct characteristics which set them apart from the surrounding rural areas. Some of the Community Centers identified have traditionally played a role as service centers for residents in and around the centers. The County has long recognized that standard rural area regulations may not be suited to these centers. Retail and service oriented commercial enterprises have existed in the centers for many years and some remain in existence today. The challenge facing the County is to develop land use policies and regulations which will allow these centers to continue to serve their traditional function without spoiling their rural character. Of all the identified Community Centers, the Round Hill Community is experiencing the most intense development pressure due to its close proximity to the City of Winchester, the Route 50/37 interchange, central sewer and water and the County's Urban Development Area boundary. With this in mind, the Comprehensive Plans and Programs Committee has undertaken the task of developing a long-range land use plan for the Round Hill Community first, complete with recommendations for the formulation of specific development regulations. Starting the Process The process of formulating Plan began on May 8, 1995 when the Frederick County Comprehensive Plans and Programs Committee (CPPC, a subcommittee of the County Planning Commission) and staff from the Department of Planning and Development, conducted a public meeting at the Round Hill Fire Hall. Estimates of the attendance at the meeting ranged from 120 to 140 individuals. Given the size of the community, this was considered to be an excellent turnout. The high attendance was attributed to a variety of factors. The meeting had been advertised in both the Winchester Star and the Northern Virginia Daily. Flyers, which announced the time, location, and intention of the meeting had been posted throughout the community and invitations had been sent to all 311 property owners within the established boundaries of the community. These invitations were in the form of a newsletter intended to educate the residents on the current status of their community with regard to county policies and give them an idea of the purpose of the planned meeting. These notices also contained a one-page comment sheet which recipients were urged to either mail in or bring to the public meeting. A large parcel of land located within the defined community on the north side of Route 50, just west of the Route 37 intersection, had also been advertised for auction (C.L. Robinson tract). The entire Round Hill community contains approximately 1,100 acres. The parcel advertised for sale contained 243 acres. It is believed that curiosity and concern over the impact of this proposed land sale also contributed to the meeting's attendance. Round Hill Community 1 Draft Land Use Plan Location Map Round Hill Community Z Draft Land Use Plan Following months of discussion among the CPPC aimed at formulating a plan for the community, a second meeting was held on September25, 1995. The purpose of this meeting was to present the draft recommendations of the Committee to the community. This meeting was also well attended with an estimated 80 participants. Input received at this meeting was considered by the Committee and, in some cases, incorporated into the plan. The plan was reviewed by the Planning Commission in the Fall of 1995 and was recommended to the Board of Supervisors for adoption. The Board discussed the Plan in January of 1996 and requested some modifications which have been incorporated into the Plan. Background The Round Hill Community has been the focus of discussion for more than one County committee in recent years. The primary issue addressed in these discussions has been whether or not to provide central sewer to the community, how this could be done, and the possible impacts this would have on the area. These discussions were fueled in part by the existence of a sewer line just to the east of Route 37 and rumors of failing septic systems. A sewer line had been extended to the eastern edge of Route 37 by the City of Winchester, prior to the construction of the Winchester Medical Center. This line had been oversized as part of an agreement between the City of Winchester and the County Sanitation Authority. The agreement required that the Sanitation Authority pay the cost difference of the oversized line and the City agreed to allow use of the line to serve an estimated 1,100 acres of medium density development within the Round Hill Community. Currently, available capacity for this area is limited by constrictions in the City's system. The County had also conducted a study in 1993, which was funded by a grant from the State Water Control Board. The purpose of the study was to attempt to document the number of failing systems present within the community, and to examine the feasibility of providing sewage treatment to the community through some means other than a conventional collection and treatment system. The study concluded that there were, in fact, a number of failing systems within the community and that it would be possible to install a small diameter sewer collection system that would work in conjunction with individual residential septic tanks. This collection system would carry liquid waste to a treatment facility that would discharge into Abrams Creek. Several alternative treatment methods were identified. The estimated cost to construct such a system, however, was 2.8 million dollars, roughly one million over the Sanitation Authority's estimate of 1.85 million to extend a conventional sewer line to the community. The proposals made by the Comprehensive Plans and Programs Committee for the Round Hill Community take into consideration input received from residents and land owners within the community, both as a result of the public meetings and through comment sheets which were distributed and returned. In all, 66 comment sheets were received. Though there was nearly an even split among those expressing an opinion on whether sewer should be extended to the community, (31 opposed and 30 in favor) few were in favor of large scale residential growth. Many respondents Round .Hill Community 3 Draft Land Use Pan expressed a desire to keep the area rural and to protect the remaining open land. Others expressing opposition to a sewer extension sited cost as the reason for their reluctance. The Board of Supervisors has stated its strong opposition to large scale residential development within the community due to the cost it imposes on the county for schools and other services. Any proposed development in this area would have to demonstrate a positive net effect on the county and would be subject to public hearings and Board of Supervisor approval. Key Components of the Plan Theeppesproposal is broken down into Plan is comprised of three distinct phases. The timing of development within the phases is very tentative and subject to factors such as the economy, the desires of individual landowners and, ultimately, approval by the Board of Supervisors. The time periods associated with the p! n five year intervals. This is merely fbr the pnrpose of establisf iing a basis for co Aimendedto be a regulatory time line for development. Naturally, the later the phase, the more speculative the timing: Timing of development witifin t1je community, or within any phase, will be tegulated to a gn extent by the Board of Supeivis, Development of any given area will be dependent on the availability of appropriate infrastructure which will need to be provided through private investment. The Plan epee -does not recommend rezoning land within the community for commercial development prior to the provision of central sewer and water. The current Board has indicated that they have little interest extending the Sewer and Water Service Area any time soon. An extension would be necessary prior to developing any area beyond Phase I of the Plan. It will ultimately be up to the Board of Supervisors to determine when it is appropriate to include areas of the community within the Sewer and Water Service Area a necessary first step to extending utifities. There are a number of recommendationsthat ai i '. . lementsof the proposed phasing. Fitst, the eonintittee recommends that The Plan calls for standards to be developed that will minimize the visual disruption to the Route 50 corridor. The regulations should discourage individual business entrances on Route 50 both for aesthetics reasons as well as transportation efficiency. Commercial establishments should front feeder roads which connect to Route 50 at signalized intersections -'his would rv% Other factors that need to be addressed include standards for shared entrances, require a green space along Route 50 which might include a bike and/or walking trail, address screening of structures and parking areas, and their location in relation to Route 50 itself, control the size, number and location of signs and, finally, set minimum standards for landscaping. The objective is to prevent the creation of a typical commercial strip along this route. In response to the opinions expressed by residents of the community and the desires of the Board, the plan recommends leaving portions of the Community Center designated as rural land use. Given the fairly uniform response from residents, no area is proposed for high density residential development. Round Hill Community 4 Draft Land tTse Plan The majority of residential structures that comprise the Community Center are situated south of Route 50 along Route 803 and the connecting streets. Residences located outside of this core area tend to be more scattered and situated on larger (five acres or more) lots. In light of this, and given the numerous requests from landowners to retain the rural atmosphere of the community, the CPPC felt it was appropriate to restrict areas around the core to uses permitted under the current Rural Areas Zoning, rather than permit more dense development. This would help to maintain some of the more prominent rural views within the community. In all, of the 1,100 acres within the community center, roughly 400 to 500 are designated to remain rural land under the committee's proposal. In conjunction with the recommendation to maintain large amounts of open space adjacent to the core area of the Community Center, the Plan also calls for the development of a new zoning category tailored to accommodate rural community uses and building patterns.- fhis recommendation is- discassed It is the recommendation -- f the committee -- a The new zoning category things;be adopted which, among other should allows residential development within the core area of the Community Center (a portion of Phase 111) at a density in keeping with traditional development patterns for the community. Design Principles to be Established for Round Hill Curb -side parking Low speed limit Shade trees on both sides of the street Modest front yard setback 15-30 feet Large amounts of open space - 50% Modest size commercial/retail uses Large predominance of single-family dwellings Discreet signage - maximum 10% of facade area Underground utilities Round.Hill Community 5 Draft Land LTse Plan :.: : • : RISTRI I L-14 m eiral ORION Ira. Insults UNION" K.A"n I I I= a. M I 1,womm.1 I am I Son mon Ira INS g�g I" I P.1 0 a, :.me:. 01110.: :- .. It is the recommendation -- f the committee -- a The new zoning category things;be adopted which, among other should allows residential development within the core area of the Community Center (a portion of Phase 111) at a density in keeping with traditional development patterns for the community. Design Principles to be Established for Round Hill Curb -side parking Low speed limit Shade trees on both sides of the street Modest front yard setback 15-30 feet Large amounts of open space - 50% Modest size commercial/retail uses Large predominance of single-family dwellings Discreet signage - maximum 10% of facade area Underground utilities Round.Hill Community 5 Draft Land LTse Plan The new zoning classificatio; The regulations should establish building location and use regulations which perpetuate existing development patterns. These regulations should be developed following a thorough examination of existing building patterns within Round Hill and should be implemented prior to the provision of public sewer to insure the compatibility of new development. Standards addressing such things as minimum and maximum front setbacks and building height for structures within the core area of the community, permitted commercial uses and their scale, the location of parking areas, as well as their size, and screening should all be considered. The intended purpose being to permit the continuation of favorable building patterns, styles, and mix of uses found within the community rather than utilizing existing regulations which were not written with small rural communities in mind. Minimum Lot Size -for Core Area In the case of the Round Hill core area, the committee is suggesting that a minimum lot size in the range of one-half to one acre be established. This recommendation is based on a study of existing lot size which revealed that nearly half of the roughly 400 lots within the Round Hill Community were under one-half acre in size. Approximately 100 of the existing lots are between a half -acre and one acre in size. It is suggested that a one-half to one -acre minimum would go into effect as part of implementation of Phase III of the proposed land use plan. This lot size change would only take place as part of an overall zoning change for the core area of the Community that addresses other issues such as building location and permitted uses, and would be dependent on the installation of a central sewer system. The smaller lot size is not proposed for the entire Community Center. Areas on the periphery of the community should be developed on larger 1 remain under Rural Areas zoning. There should also be an effort made to preserve large contiguous parcels of open land around the perimeter of the Community Center as a means of maintaining the rural atmosphere. Round Hill Community 6 Draft Lancs Use Plan M019 two 101111ILMOL.] III III IMIAARWININ not Round Hill Community 6 Draft Lancs Use Plan Round Dill Community Number of Lots by Acreage 200 O 150 O 100 a:> 50- 0 0 - 1\2 1/2 - 1 1-2 2 - 5 5 and up Lot Size Description o Phases It is important to emphasize that a poT tion of the area delineated as phase f, and the majority of -the area identified as phase 11, are all but Phase I and a small portion of Phase II of the LandUse Plan is outside the current Sewer and Water Service Area. Development of any portion of the Community Center outside of the current Service Area boundary would require action by the Board of Supervisors. Phase I The first phase in the proposed plan contains approximately+49 110 acres. The area within the first phase is bounded on the west by the current limits of the Sewer and Water Service Area. The Service Area boundary falls along a natural drainage divide which runs north -south across Route 50, approximately one half mile west of Route 37, and roughly parallel to 37. The southern limit of the Phase also follows a natural drainage divide. This divide runs in a southeasterly direction beginning near the intersection of Route 803 and Route 50, to a point on Route 37 approximately mid -way between the interchange with Route 50 and the railroad crossing. This phasees calls for the establishment of a Business/Office area immediately adjacent to Round dill Community 7 Draft Land Use Man the Route 37 interchange. __-_—_ __ '_— '�"'�....�.., ........ J»... .....,< <.. �w...w ✓i, i� uvsa�aau��.0 ivi iu�ua �. u�au industrial/business use. The rernainde, of the phase is comprised of roughly 22 acres Which i proposedoffice site for the Virginia Department of Trwisportation, and is ennentlyzoned hidu Transition . Implementation of this phase is anticipated to begin within the near term. For our purposes we have assumed a five-year time frame. One of the anticipated results of this first phase wotild be to bring se wer mid water to the west side of Ro ute 3 7, thereby bringing these services t! tnuch closer to the existing residential community, portions of which have a demonstrated need Business/office and light industin development would require the extension of public sewer and water, and theielffire, would necessitate mi extension of the eotrnty,s sevver mid vvater service area. Stich an extension wmid require action by the Board of Super -visors fbilowing a public ficating Phase H The second phase of the proposed plan involves an area designated for additional business and office use. The total area in this phase amounts to jnst over 165 180 acres. There was a great deal of discussion at the Committee level regarding the best category of use for this portion of the community. It was finally determined that in order to allow for file 111aximuti flexibilityof possibfe '1U-L-U-rC -L4- SO C _,-V-V-hi1e at the same time maintaining control over important issi stich as density and tinting development, a planned unit develorment amoach was best the prospect of residential development of any sort in this area should be avoided. Phase III The third phase encompasses the core area of the Community, as well as some additional business/office uses along Route 50 for a total area of roughly 300 acres. The plan calls for infill residential development within the core area along with some appropriately scaled commercial uses. This portion of the phase involves roughly 250 acres. As mentioned above, it is not recommended that this residential development take place under the current Residential Performance regulations, but rather that new regulations be developed that enable the continuation of the rural community atmosphere. It is also recommended that the development be predominately single family residential with the possibility of some small scale businesses aimed at serving the immediate community. Round Ft ll Community 8 Draft land Use Plan ■ • y f / V f ' � f r •'�� f ms's `� ,Y,u " iii /�� jY/, "f,/,%F�/ F, ,j .._ ��— .; f F// F Ff _ a , � f r / f fr �_y//i•'l /y/r/� As with other phases, the type of development anticipated would require the availability of central sewer. Since the provision of public utilities will involve a substantial investment, this phase also proposes further expansion of business/retail westward out Route 50 as a means of funding the extension. The business area in this phase contains roughly 50 acres. Again, it is recommended that the commercial development be permitted only after the formulation of specific standards designed to address the visual impact of such development. This portion of the Land Use Plan should be considered long range. There is significant work in terms of the development and adoption of regulations that would need to be accomplished before the County would consider permitting the extension of public utilities. Such an extension would involve a considerable investment and will likely have to be undertaken through private investment. Infrastructure Sewer An agreement, signed in 1984, between the City of Winchester and the Frederick County Sanitation Authority reserved 953,600 gallons of capacity within the sewer line which terminates just east of Route 37 for use by the County to serve the Round Hill Community. Despite this agreement, it appears that the actual capacity currently available is only 200,000 gallons per day. This means that unless or until the factors limiting the available capacity are addressed, it will not be feasible to extend sewer to a large portion of the community. .Y %-3L1J11aU, Of usage fb! the land use planbeingin-o"ed. The e timale takes Into account as well as a "worst, case" demand lit' t1he-areas-designate' -'--r office, retail and light industrial uses were to As described above. Phase 1 is defined by natural drainage divides which flow toward the Route 37 interchange. Asa result, the most efficient means of providing sewer to this area would be to extend aline along Route 50, under Route 37 from its current terminus within the City limits. This does little to further any efforts toward extending sewer to the western portion of the Community Center. The extension of a line from the main at Merrimans Lane is the most likely approach to providing sewer to Phases Il and III. In order for this to be feasible the factors which currently restrict the flows from this line through the City would need to be eliminated. There would also be a significant private investment required to extend the line to the western limits of Phase II and into Phase III. Pound I -h11 Conn-nunity 10 DrafE Lind use Plan NAMWOORGIRMIN Pound I -h11 Conn-nunity 10 DrafE Lind use Plan For the purposes of determining whether the limits of Phase I can realistically be served by the estimated 200,000 gallon capacity available, a hypothetical list of uses that might be expected to locate within the phase was developed. An estimated water demand was then generated using standard multipliers obtained from the Virginia State Health Department. The selected land uses and their projected demand are shown in the tables below. Potential Uses Size of Typical Unit Acreage Used Daily Water Consumption Shopping Center 50,000 sq.ft. 4 12,500 gallons per day Office Building 32,000 sq.ft. 3 2,450 gallons per day Motel 70 rooms 2 9,100 gallons per day Physician's Office 4 physicians 1 2,000 gallons per day Restaurant 75 seats 2 3,750 gallons per day TOTALS 12 acres 19, 800 gallons per day The totals from the table above indicate that the 200,000 gallons would be adequate for the type and amount of development that could be expected in the near future within Phase I. �. MISS,: .ELM1111111MINAMEN : •:. ornal :: D'A ltmn I Its 11616W291 litlomLvlwjagll.: :. _ .... .... • _ ismIsm [.10 1 No I 114 �IOL'A'rJ MISS 0111A • ••• Pound Dill Community I 1 Draft land t Ise }plan NJ .. 15 i . . : . ::: : r• . •" I• •• INIms - — ---- INUM • _ ismIsm [.10 1 No I 114 �IOL'A'rJ MISS 0111A • ••• Pound Dill Community I 1 Draft land t Ise }plan 10 as .. . - pormalot - - :. .. �. - : :: - .CO . as v AMrlaimLlmwblLgmm I:ound Ifill Community 12 gait Land I'se Plan - - - OR M 1 • i ; ; ; - • 1 r - • - • iiiii •ir i• • i i i •r" r" i !BJJ.�M i t i • i• i' i i r' • i- i t • i gr•ri%mm7mrrr:rnrnwMuriMn• • • r i r ' i Mon Water The Sanitation Authority indicates that they would have the capacity to service the Round Hill Community. A recent proposal to construct a water tower on the west side of Route 37, just north of the boundary of the Community Center, will bring another potential water source very near the community. Current County policies, however, would prohibit the City from serving areas outside of the City's boundaries. Roads As with development proposals within the current Urban Development Area, construction of new collectorroads and the installationof sewer and water within the Community Center would be the responsibility of the developer. Each of the phases contain segments of collector roads which are intended to channel traffic to and from a few key intersections along Route 50. These collectors are seen as a preferred alternative to permitting an excessive number of individual business entrances on Route 50. The locations of collector roads shown are not intended to be precise. Development proposals submitted for specific areas would be expected to provide for roads which make the connections indicated and serve the intended function, but would not necessarily follow the precise alignments shown. As the areas develop, signal izationwill be required where collectors intersect Route 50. Procedures already in place would require that development pay a pro rata share toward the cost of such facilities. Pound Hill Cojurnu„ity 13 Draft Land t':c Plan Summar Although one of the driving forces behind the development of this land use plan has been a desire to provide a solution to the waste water treatment problem which has existed in Round Hill for some time, there has also been concern over the type of development that will occur around the Route 37 interchange and eventually out the Route 50 corridor. This plan will not result in sewer being extended to the core residential area of the community at public expense, nor prior to the implementation of regulationsthat would safeguardthe Community and the County from undesirable and costly forms of development. The problems in Round Hill are not unique. There are other areas of the County that face similar issues. Though some landowners may feel otherwise, the residents of Round Hill are fortunate in that their location makes an extension of public sewer and water a potential long-term solution. The extension of central sewer is seen by the ectinnittee as the most feasible and, in the long run, responsible means of providing sewage treatment to the Community. With this in mind, the questions immediatelrbecomes ont-erf how this can be accomplished in.a fiscally responsible way, and when it might occur. Allowing some private development that would bear the cost of extending utilities seems the only viable option. The focus then becomes one of attempting to balance the need for new commercial development with the desire of existing residents to protect and preserve certain aspects of the existing community, as well as the concerns of the county taxpayers as a whole. The recommendations contained within this land use plan attempt to establish policies that would control and contain any growth within the Community Center so as not to overwhelm, and ultimately destroy, the features that distinguish the community from the surrounding County. In particular, the plan: ► calls for the development of a variety of regulations that would protect the appearance of the corridor and limit uses within the Community prior to any extension of sewer or water, ► directs large scale commercial growth away from the core area of the community, ► minimizes residential development, ► maintains large amounts of open space, ► ensures that new development within the core area is in keeping with the scale of the community, ► calls for a transportation network that would feed traffic to and from Route 50 at controlled intersections, and discourages a proliferation of entrances along Route 50 itself. Round Hill Community 14 Draft Land Use Plan While the plan does not offer specific design standards or land use regulations, it suggests features that should be examined and calls for the development of a new zoning district that is tailored to Round Hill. Route 50 West should not become a typical commercial strip. A green space should be maintained along either side of the road, and a pedestrian/bikeway should be incorporated into development plans. The question of how soon any of this takes place will be a function of the market, public interest, and Board of Supervisors' action. It is hoped that many of the standards proposed, once developed, will be applicable to other Community Centers throughout the County. Pound Hill Community 15 Draft Land Use flan gilbert w. clifford & associates, inc. INCORPORATED 1972 Engineers Land Planners Surveyors Water Quality Analyses Corporate Office: 150C Olde Greenwich Drive 0 P. 0. Box 781 Fredericksburg, VA 22401 • (540) 898-2115 Winchester Office: 200 North Cameron Street • Winchester, VA 22601 • (540) 667-2139 March 4, 1996 Mr. Kris Tierney, Deputy Director Frederick County Planning Department 107 N. Kent Street Winchester, Virginia 22601 RE: Westridge Dear Kris: In accord with our discussion last week, please place plan committee agenda for March 11, 1996. We wish current subdivision into the remaining portion of County. a(�[ OV� V MAR �' 4 this project on your comprehensive to discuss the continuation of the the property located in Frederick Enclosed is a copy of an overall plan for Westridge. The area marked in yellow is the portion of the property located in Frederick County. Westridge is an existing, approved subdivision located on the west side of Middle Road, Route 628. The City -County line crosses the property with about 38.66 acres located in the City of Winchester and 9.81 acres in Frederick County. This subdivision was designed using City of Winchester development standards. It has public sewer and water, curbs, gutters and sidewalks, dedicated open recreational area, underground utilities on 10,000+ square foot lots. At this moment, we plan to continue with the same type of development on the remaining 9.81 acres located in Frederick County currently zoned Rural Area (RA). To continue as planned, this portion of the property has to be zoned Residential Performance (RP). I look forward to meeting with you and your committee to discuss this project. Sincerely, clifford & associates, inc 'p M. Gyurisin 1G/ f c. BOARD OF DIRECTORS (�CgE Thomas J. ®`Toole, P. E. Charles E. Maddox, Jr. ,P. E. Earl R. Sutherland, P. E. P. Duane Brown, C. L. S. William L. Wright, Laboratory Director N A'•A SEr ne of cute \ r PLGY. (p1 OPA1fITE — -- - I F RIve MBarT /t �/c GRApES r( DR.t wn� (1 1 ! Y \II I I I d I 11 r1' I /J / / . 2�e/r CtW. 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