HomeMy Public PortalAbout2014_M012 Referral Letter for ZMAP 2013-0005 Goose Creek Club COUNCIL MEETING April 7, 2014
MOTION 2014-012
I move to approve the referral letter regarding ZMAP 2013-0005 Goose Creek
Club and related Special Exception applications
1 I Page
Town of
[T 4e41
7 Department of Planning&Zoning
Virginia
25 West Market Street•20176•703-771-2765•Fax:703-771-2724•www.leesburgva.gov
April 10,2014
Judi Birkitt,Project Manager
Loudoun County Department of Planning
1 Harrison Street, SE
P.O. Box 7000
Leesburg, VA 20177
RE: Referral Request for ZMAP 2013-0005 Goose Creek Club; SPEX 2013-0017,
Golf Course; SPEX 2013-0018,Hotel;and SPEX 2013-0019, Restaurant—2"d
submission
Dear Ms. Birkitt:
Thank you for the opportunity to provide second submission referral comments on the
captioned applications. We have reviewed the following application materials:
• Statement of Justification dated February 7, 2014
• Plat dated February 7, 2014
• Traffic Impact Analysis update dated January 28, 2014
• Proffer Statement dated February 7,2014
• Applicant Response Letter dated February 7, 2014
Town staff from the Departments of Utilities,Public Works,Plan Review, Parks and
Recreation,Economic Development, and Planning and Zoning has provided comments
on these applications.
Proposal: The applicant has proposed to rezone approximately 110.2 acres from JLMA-
3 to PD-OP(82.3 acres) and PDH-6 (27.9 acres)to allow 158 units(33 single family
detached and 125 townhouse units); 36,000 square feet of office,a 132 room hotel; a 9-
hole golf course and a 6,000 square foot restaurant. There was no change in the
development proposal regarding proposed land use,proposed square footage, or number
of units proposed between the first and second submissions.
The property is designated in the County's Revised General Plan(RGP) for Business
Community uses. Business Community uses allow for a mix of office and retail uses
Hometown of the 218`Century
Referral--Goose Creek Golf Club
2nd submission
April 10,2014
Page 2 of 9
and up to 10%of the mixed use composition may be retail. The Town Plan designates
the property for Open Space.
The property is currently zoned JLMA-3, Joint Land Management Area-3 and PD-OP,
Planned Development- Office Park. The former is a rural residential district allowing
densities of one unit per three acres. The PD-OP district allows for predominantly office
development with support retail.
Proffers dated February 7, 2014 were submitted with the second submission.
Review comments are attached and consolidated in the comments provided below.
Town Plan
1. Land Use. First Submission Comment: The subject property is in the Leesburg
Joint Land Management Area. The Town Plan provides land use
recommendations in the JLMA"to be used as the basis for a joint planning effort
with Loudoun County..."(Town Plan,p. 6-23). The Town Plan designates the
property for Open Space uses which includes recreational use such as a golf
course. The proposed 9-hole golf course is consistent with this designation.
The Open Space designation does not anticipate other uses such as the proposed
residential, office, hotel and restaurant uses for the property. The proposed plan
shows the location of the office,hotel and restaurant uses clustered between
Tuscarora Creek and Route 7. Staff has considered the applicant's justification
for proposing these uses. The Statement of Justification notes that mixed use
development is desired by the Town Plan and references the Village at Leesburg
as an example of a mixed use project that has proven to be a positive asset to the
town in terms of use, fiscal impact,and which is also attractive and well-designed.
The applicant's Statement of Justification continues to state that this type of
mixed use community development concept should be extended further eastward
to Goose Creek which forms the natural boundary of the JLMA. Staff notes that
the Town Plan designates areas within the Town's corporate limits along East
Market Street as Regional Office. This designation anticipates office use with
support retail including such uses as hotels and restaurants. The Goose Creek
application's inclusion of office, hotel and restaurant uses is generally compatible
with the Town's vision to have employment and employment supportive uses in
the Route 7 corridor outside of the Bypass.
With respect to residential uses,the proposed location is less than ideal. It is
adjacent to properties that are currently developed for industrial use including the
Luck Stone rock quarry. The proposed residential use is not integrated with the
other nonresidential uses on the property and it is relatively remote from those
uses as well as the other mixed uses at the Village at Leesburg. The proposed
pedestrian trail included in the plan does provide a link between the residential
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
Page 3 of 9 •
and non-residential components of this plan but it is a weak one at best given the
distance between the proposed residential uses and these other uses. For these
reasons, staff is not supportive of residential uses at this location.
Applicant Response: The property is designated Business Community in the
Revised General Plan which allows for 25%of the land area to be residential.
The proposed plan is a mixed use concept including an office, hotel and
restaurant north of Tuscarora Creek with residential uses south of the creek all of
which is bordered by a golf course. The applicant maintains this will promote a
live, work,play environment.
Second Submission Staff Comments: Staff continues to have concerns about
the location of residential uses as shown in the proposal. Heavy industrial
uses currently exist in this area of the JLMA including a rock quarry,fueling
station,and concrete plant all across Cochran Mill Road to the west. Despite
the applicant's proposal to buffer the industrial uses from the residential
uses with berms and vegetation, impacts from noise,dust,vibration,and
other nuisances emanating from the industrial uses will impact the
residential uses at Goose Creek Club. Also,dump trucks,semi-tractor
trailers and concrete mixing trucks regularly use Cochran Mill Road. The
mixture of this heavy industrial traffic with residential traffic and school bus
traffic is not recommended.
The applicant contends that the proposal is a mixed use design with
opportunities for employees to live in units that are proximate to office,
recreational and commercial uses. However,the proposed pocket of 158
units is not physically integrated with these employment uses through a true
mixed use site design. Further,the proffers do not assure that non-
residential uses are constructed in a phased manner with the residential uses.
So there is no assurance that business employment uses will be built and in
all likelihood,the project would develop as a residential-only development in
a location that is not optimum for residential development.
2. Community Design. This area also serves as an eastern gateway to the Town.
The Town Plan notes the following:
"County decisions about streets and other transportation facilities and
service, water and sewer utilities, schools, and parks—as well as County
approvals of private development-also affect the Town's community design.
There are opportunities to enhance community design through planning in the
Joint Land Management Area (JLMA)... " (Town Plan,p. 5-3).
Staff recommends that the County obtain further information from the applicant
about the site planning and building design of the office,hotel, and restaurant
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
Page 4 of 9
uses. This development is very visible from Route 7 and is an important gateway
to the Town.
Applicant Response: The proffers and revised concept plan state that design of the
non-residential uses will comply with the Village at Leesburg Design Guidelines.
Second Submission Staff Comment: Section II B.of the proffers addresses
design parameters for Land Bay 2,the residential area of the proposal.
Neither the draft proffers, nor the Concept Development Plan reference
design guidelines for non-residential uses proposed in Land Bay 1 as was
stated in the applicant's response.
3. Recreation. A pedestrian trail is shown on the concept plan which links the non-
residential component of the plan with the residential area. This trail is proposed
to link to an existing trail on Russell Branch Parkway. Staff recommends that the
applicant commit to construction of this trail through proffers.
Applicant Response: Proffer IX C. states that prior to approval of the first
occupancy permit for any dwelling unit on the Property, a ten foot wide asphalt
shared use path will be built by the owner from the proposed soccer field, across
Land Bay 2, to the trail on Russell Branch Parkway. The maintenance of the trail
will depend on whether the trail is actually within the VDOT right-of-way or if it
is outside of the right-of-way it will be maintained by the HOA.
Second Submission Staff Comment: The applicant should clarify the location
of the trail per the right-of-way and thus,clarify the maintenance
commitment of this facility.Additionally,the trail in Land Bay 2 is proposed
to connect with an existing trail in Land Bay 1. However,there is no
commitment in the proffers to assure that the section of trail that is in Land
Bay 1 will be maintained.The applicant has touted the pedestrian
connectivity proposed between the residential and non-residential
components of this proposal to promote walkability and to justify the
residential component of this plan. Proffer commitment should be made to
assure that a trail network will be provided throughout the proposed
development.
A soccer field is now shown on the Concept Development Plan in Land Bay 2
and two parking fields are shown to service this facility. The proffers state
(IX B.) that the soccer field and associated parking will be built and
conveyed to a non-profit entity. Staff defers to the County,but questions
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
Page 5 of 9
whether maintenance responsibilities for these facilities would be acceptable
and/or feasible for local non-profits.
4. Signage. The location of the proposed restaurant and hotel is relatively remote
from Route 7 in terms of direct access. Staff wishes to note for the applicant that
off-site signage is not permitted through the Leesburg Zoning Ordinance. Should
this application be approved,and the property is incorporated into the town,the
applicant should not expect the Town to approve a request for off-site directional
signage for these uses.
Applicant Response:Acknowledged.
•
Utilities
1. Utility Service, The Town Plan and County Revised General Plan state that
properties in the JLMA will be served with utilities provided by the Town. The
Town has plant capacity for sewer and water service to this site. However, the
proposal does not identify how public utility service will be provided. Staff has
met with the applicant and representative of the Tuscarora Crossing proposal and
the Village at Leesburg,Landbay C developments to discuss service alternatives
to this area. A single pump station is recommended to serve all these properties
and logically it would be located on this property. The landowner for the Village
at Leesburg, Landbay C property has developed plans for a pump station on that
property and the design capacity of the pump station does not include the subject
property. To date, staff is not aware that a coordinated approach has been agreed
to between these property owners. Consequently,there is no sewer outfall
currently for this project.
Applicant Response: The applicant understands that service of this property is
planned via connection to the pump station that is planned for Land Bay E within
the Village at Leesburg property.
Second Submission Staff Comment: While the proffers state that the
property will be served by public water and sanitary sewer service by the
Town,the proposal does not describe how this will be accomplished.The
applicant's response letter states that the pump station planned on Land Bay
E of the Village at Leesburg will serve this property but there is no further
explanation about how service will be provided. Staff recommends that the
1
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
Page6of9
applicant contact Town Utility staff to discuss this proposal and better define
how utility service is envisioned. The plans and proffers should be revised to
clearly describe how the applicant proposes to provide utility service.
2. Utility Agreement. Plans for the extension of sewer and water to this site must be
endorsed by the Town Council.
Applicant Response:Acknowledged.
Public Works -Transportation
1. Cochran Mill Road/Russell Branch Parkway, The site is proposed to be served by the
extension of Russell Branch Parkway which transitions into existing Cochran Mill 1
Road, The concept plan shows a full section of this road across the frontage of the
property and the Statement of Justification states that this section will be"completed
by others". The applicant should provide more information about how this road will
be provided and explain what is meant by"completed by others"when the access to
the residential development is dependent on this road(Public Works and Plan Review
comment).
Additionally,the applicant should dedicate the right-of-way and any
temporary/permanent easements for the future alignment of the RBP extension to the
limits of the subject property.
Applicant Response: VDOT and Loudoun County have approved funding in the 6-
year plan to replace the Cochran Mill Road Bridge. The replacement cost of this
bridge is not reasonably related to the construction of 158 residential units proposed
on this property. The applicant is providing right-of-way for a half section and will
construct a half section of a four lane divided 90 foot roadway from the proposed
Tuscarora Creek Bridge along the east side of Cochran Mill Road to the southern end
of Land Bay 2 to the point of divergence of such road from the property. A full
section of right-of-way will be provided across Land Bay 1 to Goose Creek.
The right-of-way will be reserved for Russell Branch Parkway for a period of ten
years from the date of the proffers and will expire by ten years if neither the County
nor VDOT has commenced construction of the road.
Second Submission Staff Comment: Funding has been identified for 2 of the 4
lanes for Cochran Mill bridge. Staff continues to recommend that the applicant
fund the remaining 2 lanes and that the applicant provide frontage
improvements or proffer to pay in lieu of doing the frontage improvements for
Cochran Mill Road. Staff continues to recommend that the applicant dedicate
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
•
Page 7 of 9
the right-of-way for the future alignment of Russell Branch Parkway. Staff
recommends that the proffers be revised to state that the right-of-way will be
dedicated upon request of the County,VDOT or the Town(if the property is
incorporated).
2. Level of Service. The Traffic Impact Study was analyzed by staff using Synchro 7
Software to look at each of the intersections in the development and determine the
Levels of Service. Three intersections did not meet the Town's Design, and
Construction Standards Manual requirement for a minimum LOS "C"at project
build-out. The applicant needs to provide phased improvements to maintain the
required LOS for the following Town—maintained intersections:
a. Route 7 westbound on—ramp and River Creek Parkway
b. Russell Branch Parkway and Crosstrial Boulevard
c. Golf Club Road and Russell Branch Parkway SE
Applicant Response: This proposal is subject to Loudoun County LSDO and FSM
requirements, not the Town's.
Second Submission Staff Comments: No further discussion needed.
Plan Review
1. Stormwater. The applicant should provide information about how stormwater
will drain from the site to ensure that the new stormwater management regulations
can be met. Additional notes and conceptual design calculations should be
provided for water quality and quantity. Verification should be provided to assure
that the size of the planned facilities is sufficient.
Applicant Response: It is premature to analyze stormwater runoff until the site
plan or subdivision plans have been prepared. The application will meet County
FSM standards.
Second Submission Staff Comment: Repeat comment.
2. Phasing Plan. The applicant should provide further information about
development phasing for this project. Information about infrastructure phasing as
it relates to the proposed development should also be provided.
Applicant Response: Land Bay 1 will proceed as market demands dictate. Land
Bay 2 will be developed in one phase.
Second Submission Staff Comment: The applicant response was general and
did not offer helpful information about how the project and infrastructure
will be developed over time. The applicant should submit this information so
Referral--Goose Creek Golf Club
2nd submission
April 10,2014
Page 8 of 9
that the County and the Town will know how the infrastructure will be
phased with the project development.
3. Limestone Overlay. The applicant should show the Limestone Overlay District
on Sheet 2.
Applicant Response: The properly is not in the LOD.
Second Submission Staff Comment: No further comment.
4. Bridge. Improvements to the bridge at Tuscarora Creek and Cochran Mill Road
are currently in the design phase at VDOT. The design is for a 10 year storm. To
assure continued access to the residential portion of this project, the bridge should
be designed to meet a 100 year storm. This is essential to assure emergency
services. Staff recommends that the applicant discuss this issue with VDOT.
Applicant Response: The applicant will design and construct a half section of a 4-
lane major collector along the property frontage of Route 653 to the eastern end
of Land Bay 2 and right-of-way to the point of divergence of Cochran Mill Road
from the property. Sheet 15 shows a reservation for a 4-lane section. The Land
Bay 2 access point has been shifted to the south to meet VDOT spacing
requirements and to align with the southern entrance of the fuel supply facility on
the west side of Cochran Mill Road.
Second Submission Staff Comment: Staff continues to recommend that the
applicant coordinate with VDOT to assure that the bridge design includes
provisions for the 100-year storm and an ultimate 4 lane divided street
section including turn lanes. The applicant should construct this section or
provide a payment in-lieu provision in the proffers.
5. Golf Club Road (New Comment): The Golf Club Road right-of-way should be
clearly delineated on the Concept Development Plan. The frontage improvements
should include curb, gutter, sidewalk,and cul-de-sac at its terminus.
Thank you for your consideration of these comments. Please do not hesitate to contact me
should you have questions about the Town's comments.
Sincerely,
Susan Berry Hill,AICP
Attachments:
•
Referral—Goose Creek Golf Club
2nd submission
April 10,2014
Page 9 of 9
1. Plan Review—Dennis Dames, Senior Project Manager/Section Chief
2. Utilities—Aref Etemadi,Deputy Director
Cc: Town Council
Town Planning Commission
John Wells,Town Manager
Scott Parker, Assistant Town Manager
Aref Etemadi, Deputy Director, Utilities
Dennis Dames, Section Chief,Plan Review
Calvin Grow, Transportation Engineer,Public Works
Bill Terence, Parks and Public Space Planner, Parks and Recreation
Marantha Edwards,Director,Economic Development
1
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the hometown of'the 21.it century
The Town of Leesburg
Utilities Department
To: Susan Berry Hill,Director,Planning and Zoning
From: AE Aref Etemadi, Deputy Director of Utilities
Date: March 19,2014
Subject: Goose Creek Club-ZMAP 2013-0005
SPEX 2013-0017
SPEX2013-0018
SPEX 2013-0019
2nd Submission
Please forward the following comments to the applicant:
1. The applicant must clearly show the means of utility service to this project. I am not in a
position to recommend approval of a plan not knowing how utilities will be extended and
if they will be acceptable to Town.
2. The extension of Town utilities must be endorsed by town council.
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INTEROFFICE MEMORANDUM
DEPARTMENT OF PLAN REVIEW
TO: SUSAN BERRY-HILL DATE: March 28,2014
DEPT.OF PLANNING AND
ZONING
FROM: DENNIS B. DARNES,P.E. PO RE: TLCR-2013-0002 1
SENIOR PROJECT MANAGER/ GOOSE CREEK CLUB ZMAP-
SECTION CHIEF 2013-0005,SPEX-2013-0017-
DEPT.OF PLAN REV[EW 0019
SECOND SUBMISSION
REFERRAL COMMENTS
Recommendation:
The Department of Plan Review (DPR) recommends that the above listed county referral be
revised to address the following review comments prior to any action on the application.
Information received by DPR on March 4,2014:
1. Referral Memorandum/Email 03-04-2014
2. Loudoun County Referral Memorandum 02-14-2014
3. ZMAP and SPEX Plat 02-07-2014
4. Revised Statement of Justification 02-07-2014
5. Proffer Statement 02-07-2014
6. Responses to Comments 02-07-2014
Analysis and Conclusions:
The Department of Plan Review has completed a referral review of the Zoning Map Amendment
application forwarded. The following comments are offered for your consideration.
Zoning Map Amendment Issues: .
Concept Plan:
1.(1) Provide a conceptual utilities layout plan to show how Leesburg's water and sanitary i
sewer will be looped through this overall development and to show how stormwater will H
drain from the site(s) to ensure that the new stormwater management regulations can be
met for this development. Provide additional notes and conceptual design calculations to
demonstrate how both water quality and water quantity requirements will be met under
the new stormwater regulations and to verify the size of the facilities shown are adequate. E
(It should also be noted that the Town of Leesburg's rainfall intensities have been
verified to be higher than average Loudoun County accepted values. Therefore, the
Town of Leesburg intensity values should be used in all storm and stormwater
management design calculations for this development.) Repeal comment.
2.(2) Update the ZMAP to include a Phasing Plan for the proposed development. Specifically,
address phasing of the project as it relates to providing required supporting infrastructure.
Project phasing was not included in the latest submission. Comment response only
speaks in general terms about construction/infrastructure phasing Provide a Phasing
Plan with the next submission of the application.
3.(4) The ZMAP currently shows a section of Cochran Mill Road/Russell Branch Parkway
across the Frontage of the property to be completed "by others". This VDOT project
currently proposes to construct a bridge which is capable of passing the JO-yr. storm flow
only. The applicant is proposing to add residential uses to the subject property which is
currently a commercial use. From an access standpoint,the applicant should be required
to upgrade the bridge(and thus the roadway)to be able to pass the 100-yr. storm in order
to provide access for emergency services, etc. for the benefit of the new residents.
Additional coordination with VDOT will be required to ensure that the bridge design
includes provisions for the 100-yr. storm and an ultimate 4 lane divided street section
including any required turn lanes. The applicant should construct or provide payment in
lieu of construction to cover their required frontage improvements on Cochran Mill Road
to the greatest extent possible.
4.(5) The applicant shall either dedicate or reserve the ROW and any temporary/permanent
easements for the future alignment of the Russell Branch Parkway Extension to the limits
of the property with this ZMAP. Coordinate ROW alignment and requirements with
VDOT and Loudoun County. Coordinate ROW alignment of Cochran Mill/Russell
Branch Parkway with VDOT and Loudoun County staff Ensure that a reservation is
acceptable in lieu of ROW dedication upon request.
5.(N) Golf Course Road ROW needs to be clearly delineated on the Concept Development
Plan. Also, Golf Course Road frontage improvements are required to include curb,
gutter,and sidewalk,as well as a cul-de-sac at it's terminus.
Dennis B. Dames, P.E.
Department of Plan Review
(#} Indicates comment number outstanding from the DPR comment letter dated September 16,2013.
Updated comment information from second submission is shown in italics.
(N) Indicates new comment based on either new, or revised information provided with this
submission.
Cc: Scott Parker,AIA,Assistant Town Manager
William R.Ackman,Jr.,P.E. Department of Plan Review
Tom Mason,P.E., Department of Public Works •
Calvin Grow, P.E.,Department of Public Works
Aref Etetnadi,Department of Utilities
Chris Murphy,Zoning Administrator
]:\Docrnnents\TLCRCfLCR-2013\TLCR-2013-0002 Goose Creek Club\Conespondence\Second Sub\UPK11'LC:R-2013-
0002.2final.dbd.doe
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