HomeMy WebLinkAbout01-21 ApplicationPage 1 of 10
COMPREHENSIVE PLAN AMENDMENT
2021 INITIATION REQUEST FORM
Project Name: Russell-Smith Properties Comprehensive Plan Amendment
Parcel Information, Requested Change:
PIN From: To: Acres
64-A-37 Urban Center,
Outside UDA, Inside SWSA
Residential, 6 u/a
Inside UDA & SWSA 22.41
64-A-37A Residential, 4 u/a
Outside UDA, Inside SWSA
Residential, 6 u/a
Inside UDA & SWSA 12.59
76-A-5 Urban Center,
Outside UDA & SWSA
Residential, 4 u/a & 6 u/a
Inside UDA & SWSA 29.73
76-A-5B Urban Center,
Outside UDA & SWSA
Residential, 4 u/a
Inside UDA & SWSA 14.47
76-A-5C Urban Center,
Outside UDA & SWSA
Residential, 6 u/a
Inside UDA & SWSA 10.29
Total Acreage: 89.49
Property Location: The subject properties are located adjacent to Justes Drive, Rosa Lane, and
Laurelwood Drive, and east of Front Royal Pike (Route 522 South).
Owner Information:
PIN 64-A-37
Name: Pine Hill Farm, LLC
Mailing Address: 281 Laurelwood Drive, Winchester, Virginia 22602
Telephone Number: (540) 664-9461 (Christopher Russell) / (540) 664-1529 (Daryl Russell)
Email Address: imarusl71@yahoo.com; dkbhrussell@comcast.net
PIN 64-A-37A
Name: Christopher B. Russell, Daryl R. Russell et al.
Mailing Address: 281 Laurelwood Drive, Winchester, Virginia 22602
Telephone Number: (540) 664-9461 (Christopher Russell) / (540) 664-1529 (Daryl Russell)
Email Address: imarusl71@yahoo.com; dkbhrussell@comcast.net
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PIN 76-A-5
Name: Christopher B. Russell, Daryl R. Russell et al. Co-trustees
Mailing Address: 281 Laurelwood Drive, Winchester, Virginia 22602
Telephone Number: (540) 664-9461 (Christopher Russell) / (540) 664-1529 (Daryl Russell)
Email Address: imarusl71@yahoo.com; dkbhrussell@comcast.net
PIN 76-A-5B
Name: Christopher B. Russell, Trustee, Daryl R. & Heidi L. Russell, Trustees
Mailing Address: 281 Laurelwood Drive, Winchester, Virginia 22602
Telephone Number: (540) 664-9461 (Christopher Russell) / (540) 664-1529 (Daryl Russell)
Email Address: imarusl71@yahoo.com; dkbhrussell@comcast.net
PIN 76-A-5C
Name: Mark D. Smith et al.
Mailing Address: 151 Windy Hill Lane, Winchester, Virginia 22602
Telephone Number: (540) 662-4185
Email Address: msmith@greenwayeng.com
Authorized Agent/Engineer Information:
Name: Greenway Engineering, Inc.
Attn: Evan Wyatt, Director of Land Planning
Mailing Address: 151 Windy Hill Lane, Winchester, Virginia 22602
Telephone Number: (540) 662-4185
Email Address: ewyatt@greenwayeng.com
PART 1 – PROPOSED COMPREHENSIVE PLAN MAP AMENDMENT REQUEST
Existing Comprehensive Plan land use classification: Urban Center and Residential, 4 u/a,
partially within SWSA
Proposed Comprehensive Plan land use classification: Residential, 4 u/a (R4) and 6 u/a (R6),
wholly within UDA and SWSA
Existing zoning and land use of the subject parcel: The five (5) parcels are currently zoned RA,
Rural Areas district. The existing land uses are agricultural and unimproved.
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What use/zoning will be requested if the amendment is approved? The five (5) parcels will be
proposed to develop with residential uses at a density of 4 to 6 dwelling units per acre pursuant to
the RP, Residential Performance zoning district.
JUSTIFICATION:
Overview
The Russell-Smith Properties CPPA application requests expansion of the UDA and SWSA to
include an assemblage of five (5) contiguous parcels totaling 89.49 acres, and revision of the
planned land use designation applicable to 76.9 acres of the assemblage from Urban Center to
Residential, 4 units/acre (R4) and Residential, 6 units/acre (R6). The assemblage is located within
the boundaries of the Senseny/Eastern Frederick Urban Area Plan (SEFUAP) and adjacent to the
UDA, with approximately 35 acres currently located within the SWSA. The SEFUAP currently
designates planned land uses for the entirety of the assemblage, with roughly 76.9 acres designated
as Urban Center land use and the remainder as R4 land use, and more specifically identifies the
properties as part of the Parkins Mill Urban Center/Neighborhood Center (mapped as Papermill
Urban Center). Approximately 20.73 acres of the assemblage contain topography and
environmental features that are not conducive to development, resulting in a developable area
totaling approximately 68.76 acres.
(Please refer to Aerial Overview Exhibit and Land Use Plan and Planned Regional Infrastructure
Improvements Exhibit)
Corrects Excessive Use of Urban Center Designation in SEFUAP
The Urban Center land use designation is inappropriately applied to the subject parcels and
surrounding area. As described in Chapter 1 of the 2035 Comprehensive Plan, an Urban Center is
a “more intensive, walkable urban area with a larger commercial core” and “higher densities” that
are “located in close proximity to major transportation routes and intersections” (p.4). The
SEFUAP proceeds to describe the Urban Center concept more specifically, indicating that the core
area should consist of multi-story buildings with a vertical mix of uses, with ground floor retail
and upper stories comprised of office/employment and residential uses.
Achieving the development intensity envisioned for an Urban Center in the subject area is
unrealistic. There is a finite amount of commercial and employment floor area that is achievable
and sustainable in Frederick County overall, and specifically along the Front Royal Pike corridor.
Several locations on or proximate to the corridor are also planned to develop with significant
commercial components, each of which is in far better position to do so successfully than the
subject area. Specifically, located roughly one mile north of the subject area, the Russell 150
project will experience ideal traffic conditions for commercial activity with the imminent
completion of Crossover Boulevard, which will link Front Royal Pike to Valley Avenue, traversing
the City’s primary commercial corridors. Moreover, immediately north of the Russell 150 project
is an established commercial area emanating from the intersection of Front Royal Pike and
Millwood Pike that the SEFUAP designates for general commercial uses (e.g., B2/B3) and is
already entitled for additional development. Significant commercial development is also occurring
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and planned approximately 2 ½ miles south at Tasker Road, to include the Walmart Supercenter
and Tasker Woods Neighborhood Center.
In addition to nearby commercial areas on Front Royal Pike, the Crosspointe Urban Center is
roughly 1 mile west of the subject area. Located at the Interstate 81 interchange that intersects
with Route 37 and Tasker Road, Crosspointe is arguably the best situated site in Frederick County
for realization of the land use mix and intensity envisioned with the Urban Center concept.
Moreover, the zoning entitlements needed for Crosspointe to develop as an Urban Center have
been in place for more than 15 years. To date, development in Crosspoint has yet to begin.
However, given the project’s advantages, once development begins, Crosspointe will undoubtedly
be the preferred location for commercial uses conducive to an Urban Center setting and will absorb
demand accordingly. In short, given Crosspointe’s proximity, any expectation of intensive
commercial activity occurring in the subject area, let alone emergence of an Urban Center, is
unrealistic, unattainable, and inappropriate as a basis for future planning.
Applies Appropriate, Complementary Planned Land Uses
Changing the planned land use from Urban Center to R4 and R6 will enable development at an
intensity that is appropriate to the composition and scale of land uses in the surrounding
community. Specifically, the assemblage adjoins the existing elementary and middle school
campuses as well as an existing church, and further abuts the future campus of the County’s fourth
high school. The assemblage is also proximate to existing and planned residential neighborhoods
consisting of single-family units. Whereas the existing Urban Center designation promotes higher
intensity development adjacent to these established uses, the proposed planned land use
designations will result in compatible neighborhood-scale development that will contribute to a
cohesive community setting oriented on the existing and planned school campuses.
(Please refer to Aerial Overview Exhibit)
Protects Investment in Existing and Planned Public School Facilities
Applying the R4 and R6 land use designations to the subject properties will allow for Frederick
County Public Schools (FCPS) to create safe walking zones within this area for the existing and
planned school facilities. In doing so, the proposed change in land use designations will reinforce
the school facilities as community focal points and contribute to reduced transportation costs for
FCPS.
(Please refer to Aerial Overview Exhibit)
Supports Implementation of Frederick Water’s Regional Sewer Plans
Expanding the UDA and SWSA to wholly include the subject acreage and applying appropriate
land use designations will create development conditions that will support implementation of
Frederick Water’s plans for regional infrastructure improvements. Specifically, to accommodate
five-year growth projections in the surrounding area, Frederick Water’s 2017 Sanitary Sewer
Master Plan calls for redirecting sewer effluent that currently flows to the Opequon Water
Reclamation Facility (OWRF) to the Parkins Mill Wastewater Treatment Plan (WTP). Doing so
requires infrastructure improvements on the subject acreage, to include expansion of the existing
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Laurelwood Drive pump station to a 1.500 MGD facility, installing the new 10-inch Laurelwood
force main from the upgraded pump station to Justes Drive, and installing the new 24-inch Parkins
Mill Interceptor, which begins at Justes Drive and will ultimately extend 6,100 feet to the Parkins
Mill WTP.
The requested expansion of the UDA and SWSA and corresponding planned land use changes will
align the development schedules of the Applicants and Frederick Water. The Applicants will
therefore be in position to contribute to the implementation of the referenced improvements. Such
contributions include dedication of land to Frederick Water to accommodate the expanded
Laurelwood Drive pump station as well as dedication of easement corridors for the Laurelwood
force main, the entire length of which is planned to traverse the subject acreage, and the initial
segment of the Parkins Mill Interceptor. In short, development of the subject acreage can be
leveraged to implement regional sewer improvements that are critical to achieving Frederick
Water’s near-term service objectives.
(Please refer to Land Use Plan and Planned Regional Infrastructure Improvements Exhibit)
Promotes Connectivity for Regional Parks and Recreation
The SEFUAP identifies a future regional park on the property comprising the southwest quadrant
of the intersection of Front Royal Pike and Papermill Road through which Justes Drive will
ultimately be extended. Development of the subject acreage will include a multi-purpose trail
network that will create opportunities for linkage and access to this future regional park.
(Please refer to Aerial Overview Exhibit)
EXISTING CHARACTERISTICS ANALYSIS:
Please refer to the attached 1-Mile Radius Exhibit that identifies the various properties that meet
this distance criteria. The following information describes existing and future land use
characteristics within this radius boundary:
➢ Properties north of the future Route 37 alignment are zoned R4, Residential Planned
Community District, RP, Residential Performance District, MH-1, Mobile Home
Community District, B-2, Business General District, M-1, Light Industrial District and RA,
Rural Areas District.
➢ Properties south of the future Route 37 alignment are zoned RP, Residential Performance
District, B-1, Neighborhood Business District and RA, Rural Areas District.
➢ Most of the properties zoned R4, Residential Planned Community District, RP, Residential
Performance District, MH-1, Mobile Home Community District, B-2, Business General
District, M-1, Light Industrial District and RA, Rural Areas District north of the future
Route 37 alignment are located within the Urban Development Area (UDA) and the Sewer
and Water Service Area (SWSA).
➢ Most of the properties zoned RA, Rural Areas District south of the future Route 37
alignment are located outside of the Urban Development Area (UDA) and the Sewer and
Water Service Area (SWSA).
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➢ The RP, Residential Performance District, MH-1, Mobile Home Community District, B-2,
Business General District, and M-1, Light Industrial District properties are developed, or
are being developed as residential, commercial, and industrial land uses.
➢ The R4, Residential Planned Community District properties (Russell 150, Village at
Artrip) are planned for residential and commercial development but have not begun
construction.
➢ The RA, Rural Areas District properties are planned for future economic development as
commercial and industrial land use, as well as a future regional park area.
➢ The Senseny/Eastern Frederick Urban Area Study identifies most of the properties within
proximity of the five (5) subject properties as Urban Center, Residential, Commercial,
Industrial and Economic Development Land Use.
➢ Admiral Richard E. Byrd Middle School, Evendale Elementary School and the new 4th
High School are located immediately adjacent to the five (5) subject properties.
TRIP GENERATION ANALYSIS:
The proposed land use change from Urban Center to Residential, 4 units/acre (R4) and Residential,
6 units/acre (R6) will result in a reduction in development intensity as measured in both total
residential yield and commercial floor area. As such, the trip generation attributable to this CPPA
application is significantly less than what would otherwise be expected if the current SEFUAP
land use designations were implemented. The values used for these projections were obtained
from the Institute of Traffic Engineers (ITE) Trip Generation Manual, which is the source currently
utilized by VDOT and Frederick County for transportation impact analysis.
Trip Generation
Land Use Acreage
(Developable)
Projected
Yield
ITE
Code
ITE
Rate
AM
Peak
PM
Peak
Total
ADT
Residential
R4, Single Family Detached 34.47 137 units 210 9.57 106 140 1,311
R6, Townhouse 34.29 205 units 230 5.86 90 107 1,201
Total: 196 247 2,512
The trip generation projections for the proposed R4 and R6 land uses are significantly less than
what would be expected with development of an Urban Center. As described by the SEFUAP, the
Urban Center designation envisions residential densities at 6 to 12 units per acre, or roughly double
what is proposed with this CPPA application, along with a variety of commercial uses developed
in vertically mixed buildings ranging from two to four stories in height. Development at such an
intensity would generate substantial traffic that would negatively impact Justes Drive and Rosa
Lane, and in turn constrain access options for the existing and planned public school facilities. In
contrast, the neighborhood-scale residential development envisioned by the proposed R4 and R6
designations would create traffic conditions more conducive to the successful integration of the
public school uses with surrounding development, to include the opportunity to establish safe walk
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zones. Proposing land uses that will limit trip generation in the immediate vicinity of existing and
planned public school uses, and in turn promote the safe integration and walkability of such uses,
represents good planning practice.
PART 2 – PROPOSED COMPREHENSIVE PLAN TEXT AMENDMENT REQUEST
The map amendment described in Part 1 proposes elimination of the Urban Center designation not
only as it applies to the subject properties, but also to the surrounding properties that comprise the
“Papermill Urban Center” as currently mapped on the SEFUAP Land Use Plan and described as
the “The Parkins Mill Urban Center/Neighborhood Center” in the SEFUAP text. As such, the
description of this urban center found on pages 12 and 13 of the SEFUAP would be deleted in its
entirety, as follows:
The Parkins Mill Urban Center/Neighborhood Village
This designated urban center provides an opportunity to introduce a mix of uses
into a largely undeveloped area in a way that builds the identity and enhances the
economic performance of these communities. This area is already anchored by an
elementary school and middle school. Similar to the Senseny and Greenwood
Urban Center, this Urban Center should also embrace a traditional main-street
feel, be pedestrian-friendly, ecologically sensitive and architecturally distinctive,
honor the area’s local heritage and promote urban life in a dynamic new way. This
urban center should be defined by tree-lined boulevards and an inviting central
park area oriented around the existing public facilities.
The residential densities in the center of this area are envisioned to be 10-12 units
per acre in the core area, tapering off to 6 units per acre on its perimeter adjacent
to the existing residential land uses.
No other changes to the existing SEFUAP text are required or proposed to accompany the proposed
map amendment. The designation of the subject properties as Residential, R4 and R6 utilizes
planned land uses described by the SEFUAP’s existing “Residential Land Uses” section and will
develop accordingly.
Comprehensive Plan Consistency Analysis
The Russell-Smith Properties CPPA application requests expansion of the UDA and SWSA to
wholly include the five (5) subject properties and further proposes changing applicable planned
land use designations, with the R4 and R6 land use designations each applied to approximately 34
acres. Revising the planned land use designation will promote neighborhood-scale development
that is compatible with and complementary to established and planned uses in the surrounding
area, notably by integrating appropriate residential uses with the existing and planned public
school uses to create a safe, walkable, and cohesive community. Approval of the Russell-Smith
Properties CPPA application will further serve as the first step toward enabling development that
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will advance implementation of Frederick Water’s 2017 Sanitary Sewer Master Plan, and by
extension support realization of the Comprehensive Policy Plan’s over-arching vision for Eastern
Frederick County.
Level of Service Analysis
Implementation of the proposed land use plan for the subject properties will require future rezoning
of the acreage to the RP, Residential Performance District. The rezoning application(s) required
to establish the RP District will be analyzed by Frederick County, Frederick Water, and the
Virginia Department of Transportation (VDOT) to determine potential impacts to County services,
water and sewer infrastructure, and the transportation network serving this geographic area of the
community. Future development of the subject properties will depend upon the property owners’
ability to adequately mitigate such impacts. That said, the neighborhood-scale residential
development that would ultimately result from this CPPA application would be far less impactful
to public services than what could theoretically occur if an urban center developed as currently
planned. As described by the SEFUAP, residential densities in the Parkins Mill Urban
Center/Neighborhood Village would range from 6 to 12 units per acre, which, even assuming a
nominal level of commercial development, could yield twice as many residential units on the
subject properties as compared to what is proposed with this CPPA application. To reiterate, the
overall intensity of development possible on the subject properties and the corresponding impact
to the community will be reduced by the proposed amendments, most notably by enabling fewer
residential units of all types and eliminating commercial impacts.
Transportation: As indicated by the Trip Generation table provided in Part 1 of this application,
the proposed residential uses are projected to generate 2,512 ADT at build-out, of which 196 and
247 will occur during AM and PM peak hour, respectively. The subject properties are adjacent to
Justes Drive, Rosa Lane and Laurelwood Drive and are proximate to Front Royal Pike (Route 522
South), which is improved as a signalized intersection with Justes Drive. The location of the
subject properties allows for traffic to access Front Royal Pike to the north and south, Interstate 81
to the north, Millwood Pike (Route 50 East) to the east, and the City of Winchester from Papermill
Road (Route 644) to the west. Access to the City of Winchester from the subject properties will
also be possible via Crossover Boulevard, which is scheduled to be open to traffic in September
2021. The SEFUAP identifies an extension of Justes Drive that will connect to the existing Airport
Road roundabout. Additionally, Frederick County has approved the future Route 37 East
alignment, which is proposed to have an interchange on Front Royal Pike approximately ½- mile
south of the subject properties. Such existing and planned road infrastructure will be adequate to
accommodate traffic generated by development of the subject properties as well as the surrounding
community. Proposing new residential development in proximity to existing and planned road
infrastructure constitutes good planning practice.
Economic Development: The proposed amendments would not constitute an economic
development project per se. That said, the proposed residential uses will promote the demographic
conditions essential to the viability and sustainability of the projects with significant commercial
components located proximate to the site (e.g., Crosspointe, Russell 150).
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Water and Sewer Capacities: The proposed residential uses are projected to have an average daily
demand for water and sewer service of 103,600 GPD. Existing water and sewer infrastructure
extends across or immediately adjacent to the subject properties. Specifically, a 12-inch water line
exists along Justes Drive and 8-inch lines exist in proximity to the subject properties, to include
along the length of Rosa Lane. Future development of the subject properties will be able to provide
a looping system of water lines to ensure adequate pressures for development and fire flow
requirements. Several 8-inch sewer lines also exist on the subject properties. These lines gravity
flow to the existing Laurelwood Drive pump station, which is a 0.144 MGD facility located in the
northern portion of the assemblage. Effluent is then directed via a series of pump stations and
force mains to the Opequon Water Reclamation Facility (OWRF) for treatment.
As described in Part 1 of this application, several regional infrastructure improvements are
identified to occur within the subject acreage by Frederick Water’s 2017 Sewer Master Plan. These
inter-related improvements include upgrading the existing Laurelwood Drive pump station to a
1.500 MGD facility, installing the new 10-inch Laurelwood force main from the upgraded pump
station to Justes Drive, and installing the new 24-inch Parkins Mill Interceptor, which begins at
Justes Drive and will ultimately extend 6,100 feet to the Parkins Mill WTP. Development of the
subject properties will directly support implementation of these planned improvements by
dedicating land to Frederick Water for the pump station upgrade and dedicating easements for the
force main and interceptor lines. These improvements will ensure the availability of adequate
sewer infrastructure to accommodate growth in eastern Frederick County in conformance with
Frederick Water’s 2017 Sanitary Sewer Master Plan.
Public Schools: The proposed amendments are projected to yield 137 single family detached
dwelling units and 205 townhouse units in the land bays designated R4 and R6, respectively.
Based on the current students/household rates utilized by Frederick County Public Schools
Planning Division, the proposed residential development would generate a total of 126 students,
of which 51 would be generated by the single family detached units and 75 by the townhouse units.
As described in Part 1 of this application, the residential units envisioned by this application will
be located proximate to the existing Evendale Elementary School and Admiral Byrd Middle
School, as well as the future campus of the County’s fourth high school. Such proximity will
enable Frederick County Public Schools (FCPS) to establish safe walk zones for students residing
in these units, which in turn will reduce transportation costs for FCPS. Planned neighborhood-
scale residential development adjacent to public schools represents good planning practice.
Fire and Rescue: The development of the proposed residential uses will create an impact to Fire
and Rescue Services provided by the County. The subject land area is located approximately 2.8
miles from the Millwood Volunteer Fire and Rescue Company, which allows for appropriate
emergency response time from the first due company. Additionally, a few years ago, the County
Volunteer Fire and Rescue Companies agreed to establish a fee-for-services program that was
intended to provide revenue recovery for ambulatory services from insurance reimbursements to
assist in the mitigation of this impact.
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Parks and Recreation: The proposed amendments will enable development of supporting
infrastructure to complement and interconnect with the new regional park planned on the west side
of Front Royal Pike. Such infrastructure will include an integrated network of multi-purpose trails
that will create linkage opportunities with surrounding neighborhoods and the planned park
facility, while simultaneously providing opportunities for recreation internal to the residential
neighborhoods. The neighborhood-scale residential uses envisioned with this application will
therefore enhance the County’s parks and recreation services. Planned residential development in
proximity of regional parks represents good planning practice.
Registered Agent for Pine Hill Farm, LLC