10-CPA-06 Weston PDD Amendment
Town of Cary, North Carolina
Comprehensive Plan Amendment Staff Report
Town Council Meeting
September 16, 2010
REQUEST
The applicant is requesting Town Council approve an amendment to the townwide Land Use Plan map that would change the land use designation of approximately 13.79 acres in the Weston Planned Development District from Office and Institutional (OFC/INS) to High Density Residential (HDR). The property is located north of Weston Parkway in the vicinity of Old Reedy Creek Road and Winstead Drive.
NOTE: The purpose of a comprehensive plan amendment is to evaluate the appropriateness of a proposed land use and/or other issue, need, or opportunity for the subject parcel(s) of land. Technical design standards of the Land Development Ordinance are addressed during review of the site or subdivision plan and can be found at http://www.amlegal.com/library/nc/cary.shtml.
SUBJECT PARCELS
|
Property Owner(s) |
County Parcel Number(s) |
Real Estate ID(s) |
Deeded Acreage |
|
Highwoods Realty Ltd Prtnshp |
0765487268 |
0178569 |
13.79 |
|
|
|||
|
Total Area |
13.79 acres | ||
BACKGROUND INFORMATION
Applicant & Agent Applicant Agent Acreage 13.79 General Location Vicinity of Tentative Schedule Town Council Planning and Zoning Town Council Land Use Plan Designation Office and Institutional (OFC/INS) Existing Zoning District(s) OIP (Office and Institutional Planned Development District) Town Limits Yes Staff Contract
Thomas Hill
Highwoods Realty
919-875-6670
Chuck Smith
Withers & Ravenel, Inc.
919-469-3340
csmith@withersravenel.com
Public Hearing
July 15, 2010
Board Public Hearing
September 16
919-469-4084
anna.readling@townofcary.org
SUMMARY OF PROCESS AND ACTIONS TO DATE
A. Notification
On June 30, 2010 the Planning Department mailed notification of a public hearing on the request to property owners within 400 feet of the subject property. Notification consistent with General Statutes was published in the Cary News on June 30, 2010 and July 7, 2010 and again on August 4, 2010 and August 11, 2010. Notice of the public hearing was posted on the property.
B. Town Council Public Hearing on July 15, 2010
Three citizens spoke during the comprehensive plan amendment public hearing:
Mr. Chuck Smith of Withers and Ravenel, Inc., agent for the applicant, stated that the application to change the land use of this property continues an intentional transitioning of the Weston Office Park from a single-use to a mixed-use development; this transition has been underway since 2004. The applicant believes this transition is consistent with the preference of businesses to have residential opportunities nearby. Mr. Smith stated that a residential use should reduce traffic pressures because residences create a different traffic pattern. He also estimated that the Weston PDD still has a 15- to 20-year supply of office-designated land left – or maybe more – considering the recent slowdown in the economy.
Mr. Woody Rupp, representing the owners of Weston Lakeside Apartments (the apartment complex adjacent to the subject property), stated that the owners of Weston Lakeside Apartments have questions about three issues related to the potential change in land use:
1. Traffic – What will happen during rush hour when the 600 residents of Weston Lakeside Apartments are leaving for work at the same time as the residents from the proposed new apartment complex? Will they all use Winstead Road, or will they use Old Reedy Creek?
2. Schools – Will there be enough school capacity for potential buildout of this area?
3. Odor – What will be done if there is smell from the nearby water reclamation facility?
Mr. Armando Tovar, noise officer with the Raleigh-Durham International Airport Authority, stated that the Airport Authority recommends that the current land use (Office and Institutional) be retained.
After the public hearing, council forwarded the case to the August 16, 2010 Planning and Zoning Board meeting.
C. Planning and Zoning Board Public Hearing of
Two citizens spoke during the public hearing:
Ms. Meg Pisczek, representing Weston Lakeside Apartments, stated the following questions/concerns about the proposed change of use: 1) Has there been a true assessment of the availability of public services (police, fire, schools); 2) Have land buffers been evaluated; 3) Has an environmental impact study been conducted; 4) Will the removal of vegetation and trees create more potential for odor from the reclamation facility. Regarding traffic, Ms. Pisczek said she is concerned that there hasn’t been a proper evaluation of the potential increase in peak hour traffic, and said it’s unclear which street will be used for access and egress –
Chuck Smith of Withers and Ravenel, agent for the petitioner, said that they (the developers) have made numerous attempts to contact representatives from Weston Lakeside Apartments to discuss their stated concerns, but have gotten no response. He also said that the apartments being planned will be geared toward young professionals, and he believes the impact on the schools will not be significant. He said the developer is planning to put in a disclaimer about the RDU noise just as they did when Weston Lakeside Apartments were developed. He also explained that the topography of the site fits residential uses better than office uses.
Board discussion: Board members asked questions and stated concerns about the amount of office space in proportion to the amount of residential space remaining in the PDD; about whether there is really a need for more residential in the area; the need for some type of plan to guide the evolution of the PDD from a predominantly single-use environment to a mixed-use environment; and the need for more sidewalks in the area, and parking for citizens who are accessing Umstead Park via Old Reedy Creek Road.
In response to board questions, Chuck Smith said that Highwoods has identified market demand for more nearby residential through their conversations with potential office tenants. He also reported that Highwoods estimates there are about 1.2 million square feet of non-residential that can still be sited in the PDD – an approximate 15- to 20-year supply. In response to other board questions, staff said that no sidewalks are currently proposed for
The Planning and Zoning Board forwarded this case to Town Council with a recommendation for approval by a vote of 7-2. The dissenting votes were due to concerns about potential traffic impacts and a belief that there is enough residential in the area already, and a belief that the facts of this case don’t provide a compelling enough reason to change the Comprehensive Plan.
COMPREHENSIVE PLAN SUMMARY
A. Land Use Plan and/or Area Plan
Long-range land use recommendations for the subject parcel are given by the townwide Land Use Plan. The Land Use Plan designates the subject parcel as Office and Institutional (OFC/INS). The applicant proposes to change the land use designation to High Density Residential (HDR). The subject parcel is also within the boundary of the Weston Planned Development District (PDD). An associated rezoning request, 10-REZ-05, proposes to change the zoning of the subject parcel from PDD - Office and Institutional to PDD – High Density Residential.
B. Parks & Greenways Master Plan
According to the Parks, Recreation and Cultural Resources Facilities Master Plan there are no issues related to this site.
C. Growth Management Plan
The Growth Management Plan includes the following Guiding Principles that are relevant to this case:
1. R1 Guiding Principle: Ensure that adequate infrastructure and services are available concurrently with new development.
2. L1 Guiding Principle: Concentrate growth near existing and planned employment centers and available and planned infrastructure to minimize costly service-area extensions.
Analysis: The subject property is located in an existing planned employment district, and public utilities are readily available to the property. There are two shopping centers located approximately one mile to the east of the property. The property is within walking/biking distance of a public greenway, a county park, and a state park. There is a C-Tran bus stop located on Weston Parkway approximately 1000 feet south of the property. Development of this property is in keeping with the above principles of the Growth Management Plan.
D. Affordable Housing Plan
The proposed project is applicable to the following Affordable Housing goals:
1. Provide for a full range of housing choices for all income groups, families of various sizes, seniors, and persons with special challenges.
2. Facilitate the creation of a reasonable proportion of the Town of Cary’s housing as affordable apartment units for individuals and families earning up to 60% of the area median income.
3. Encourage the location of high density housing within walking and convenient commuting distance of employment, shopping, and other activities, or within a short walk of a bus or transit stop, through "mixed use" developments, residences created on the upper floors of nonresidential downtown buildings, and other creative strategies.
4. Assure a quality living environment and access to public amenities for all residents, present and future, of the Town of Cary, regardless of income.
Analysis: The subject property is located within convenient commuting distance of employment and shopping, walking distance from a greenway and two parks, and is located approximately 1000 feet from a transit stop. Therefore, a high-density land use designation for this property has the potential to support the above goals of the Affordable Housing Plan.
E. Comprehensive Transportation Plan
Old Reedy Creek Road is designated as a Collector Road
Existing Section: 2 lanes, 60-foot ROW
Future Section: 2-3 lane collector road, 120-foot (per CTP note) ROW
Sidewalks: Sidewalks required on both sides
Bicycle Lanes: 4-foot bike lane or 14-foot-wide outside lane required
Transit: No transit requirements
Status of Planned Improvements: N/A
F. Open Space Plan
According to the Open Space Plan there are bottomland hardwood forests and swamps in the very northeast corner of this site. This site was not identified as a priority for open space conservation.
G. Historic Preservation Master Plan
There are no known historic buildings on the proposed development site.
APPLICANT’S JUSTIFICATION STATEMENT
Provided below are the applicant’s responses to the Comprehensive Plan Amendment justification questions contained in the application form. Please note that the statements below are that of the applicant and do not necessarily represent the views or opinions of the Town of Cary.
How is the proposed request reasonable? In explaining how it is reasonable, please address the following, if applicable:
1. Describe how the requested amendment is warranted due to changes in conditions, forecasts, or assumptions since the original Comprehensive Plan recommendations were developed.
Response: The proposed request is reasonable for a variety of reasons that are described below:
a) The adjacent site has developed as high density residential development since the use for the subject site was assigned as part of the Comprehensive Plan. Also, There are a number of benefits to the owners, neighbors and community in general that include the following:
· A continued transition of Weston into more of a mixed use development from a more traditional office park.
Faster absorption of undeveloped office land in both Weston and the surrounding area because of the close proximity of additional residences.
A resulting increase in tax base for the Town.
A better balance in area traffic patterns because of a better balance of the residential/non-residential ratio.
b) A perceived detriment is the reduction in the supply of residential land for the future expansion of the Town’s non-residential tax base. This is offset by the fact that there is still a 15-20 year supply in Weston alone (over 1.2 million square feet) and, as mentioned above, this supply will develop at a more rapid rate because of an increase in close proximate young professional housing.
2. Describe how the requested amendment is warranted due to new issues, needs, or opportunities that have arisen in this geographic area since the original Comprehensive Plan recommendations were developed.
Response: See above – specifically:
The continued transition of Weston to a mixed use development.
· Faster absorption of undeveloped office land.
· Improved traffic situation.
3. Describe how the requested amendment is warranted due to changes in Town policies, objectives, or standards since the original Comprehensive Plan recommendations were developed.
Response: NA
4. Describe how the requested amendment is warranted due to errors or omissions in the current Comprehensive Plan.
Response: NA
CRITERIA FOR CONSIDERATION IN REVIEWING COMPREHENSIVE PLAN AMENDMENTS
Section 3.2.2(B) of the Land Development Ordinance states that “Proposals to amend the Comprehensive Plan shall be evaluated based upon whether the amendment is necessary in order to address conditions including, but not limited to, the following:
1. A change in projections or assumptions from those on which the Comprehensive Plan is based;
Analysis: No change in projections or assumptions has been identified.
2. Identification of new issues, needs, or opportunities that are not adequately addressed in the Comprehensive Plan;
Analysis: The townwide Land Use Plan map was first adopted in 1996, and since then there has been an increasing awareness that well-designed, thoughtfully-integrated, mixed-use development can benefit both people and the environment. The “work-live-play” environment offered by mixed-use developments is becoming an important and necessary land use option for towns and cities that want to remain economically competitive, especially when trying to attract young professionals. This comprehensive plan amendment request provides an opportunity to allow an “old style” office development change course so that it becomes more relevant and responsive to today’s work force.
3. A change in the policies, objectives, principles, or standards governing the physical development of the Town or any other geographic areas addressed by the Comprehensive Plan; or
Analysis: No changes have been identified.
4. Identification of errors or omissions in the Comprehensive Plan.
Analysis: No errors or omissions have been identified.
STAFF ANALYSIS AND RECOMMENDATION
A. Staff Analysis
As stated earlier, the Town’s Land Use Plan designates the subject parcel as Office and Institutional (OFC/INS). The applicant is requesting to change the land use designation to High Density Residential (HDR). The property is in the Weston Planned Development District (PDD), an existing, though not completely built-out, master planned development that was initially planned as primarily a suburban office park. In 2004, the developers presented a revised master plan to transition Weston to a more mixed-use environment. The Town supported this by approving comprehensive plan amendments and rezonings that changed four non-residential parcels to residential. The current request is a continuation of this transition. Presently, the PDD contains approximately
Relative Site Location
The subject property shares its western property line with the existing Weston Lakeside Apartments in an area accessed off Winstead Drive, located approximately 1000 feet to the north of the office-lined streetscape of Weston Parkway. This somewhat removed location puts residential uses within the PDD while preserving the look and feel of Weston Parkway as a business and office corridor. Other landmarks relative to the subject site include the North Cary Water Reclamation Facility, whose main building is located approximately 800 - 1000 feet to the east; I-40, located approximately 1500 feet to the north; Umstead State Park, located approximately 2500 feet to the north; and Lake Crabtree, located approximately 250 feet to the west/northwest. The North Harrison Regional Activity Center is located about 5000 feet to the east of the subject property.
Observations About the Proposed Change
1. The proposed land use change would reduce the stock of land designated for office uses, which is in contradiction to general council direction to preserve office land.
2. The proposed change would place additional residential development near the following transportation and municipal activities: RDU Airport, Interstate 40, and the North Cary Water Reclamation Facility. By necessity, these are 24-hour-per-day activities that create some level of noise even during late night and early morning periods.
3. The subject property is located less than a mile from the Regional Activity Center located at North Harrison and I-40. Additional high density residential just outside of the activity center, but not quite within comfortable walking distance, could increase competition for future, pedestrian-friendly residential density within the activity center.
4. As a residential use, the subject property would provide residents with easy access to numerous recreational opportunities, including the Town of Cary greenway system, Lake Crabtree, and Umstead State Park. The property is also served by a C-Tran fixed route that traverses Weston Parkway, with a bus stop located on Weston Parkway within walking distance (1000 feet) of the proposed development site.
5. The proposed land use would increase the mix of uses in the office-predominant Weston PDD, creating a substantial number of opportunities for citizens to live and play close to where they work.
6. This request is a continuation of the developer’s long-range plan to create a more mixed-use environment in the Weston PDD, which began with the Town’s approval of comprehensive plan amendments and the rezoning of four properties in Weston in 2004.
B. Recommendation
After carefully weighing the numerous issues presented by this case, staff believes that the opportunity to provide more residential opportunities within an established employment center and within walking distance of quality recreational opportunities outweighs other location-related concerns, especially since a precedent for successful multi-family residential in the same location has already been set. Staff recommends approval of this comprehensive plan amendment request.