ࡱ> &jklmnopqrstuvwxyz{|}~{` EbjbjFF ,,k=bvvvv...BJ!J!J!8!~"tB}"#(<#<#<#'''x}z}z}z}z}z}z}$hSz}. 4'|' 4 4}vv<#<#}777 4v<<#.<#x}7 4x}7724o|.s<#" 0agJ!4q.|}0}>q͂H5 ͂\ss͂.s'5+7-/?'''}}h7j'''} 4 4 4 4BBBdBBBBBBvvvvvv STAFF EVALUATION To: Planning Commission Prepared By: E. Marotta 728-5238 Reviewed By: S. Mertig 728-5234 Case No.: Use Permit No. 1007 Date: May 8, 2006 General Information Owner / ApplicantMs. Constance McBryde Breland Cumbo 5 Town Square Drive Newport News, VA 23607 Location and Existing Land Use118 Burns Street. The property, which is located in the Sussex Village neighborhood, is currently a renter-occupied residence.  Requested ActionUse Permit to operate a Juvenile Residence-2 (JR-2). ZoningBase Zoning: One Family Residence District (R-9). R-9 permits single-family residences and other complimentary public uses such as churches and schools. The Hampton Zoning Ordinance defines a Juvenile Residence-2 as a residential facility for juveniles, but not to include orphanages, shelters, detention facilities, group homes, or halfway houses that houses no less than four (4) but no more than eight (8) residents. JR-2s are permitted in all residential districts, subject to securing a Use Permit from City Council. Adjacent Zoning and Land UseNorth, South, East, and West: One Family Residence District (R-9). The neighborhood is a combination of owner-occupied and renter-occupied residences. The homes in the neighborhood were originally developed as duplexes; over the years many of them have been converted to single-family residences. Public PolicyHampton Community Plan: Land Use: Land Use Plan- recommends Low Density Residential development. Land Use & Community Design (LU-CD) Policy 7- safeguard the integrity of existing residential neighborhoods (26). LU-CD Policy 4- evaluate land use proposals from a regional, city-wide, and neighborhood perspective (26). Housing: States that the perceived quality of a neighborhood is also a major factor in determining housing value (33). Housing and Neighborhood (HN) Objective 2- Increase the value and marketability of the citys existing housing stock. HN Objective 5- Promote increased safety and the perception of safety in neighborhoods (34). HN Policy 2- Support targeted efforts to improve the citys housing distribution in the citys strategic investment areas and adjacent neighborhoods (52). HN Policy 17- Develop Partnerships to improve the perception of safety in places where youth and other members of the community gather and socialize (53). HN Policy 22- Support housing opportunities for individuals and groups with special needs including seniors, youth, and persons with disabilities (53).  Kecoughtan Corridor Master Plan: The Kecoughtan Corridor Master Plan (KCMP), adopted by City Council January 25, 2006, was developed as a guiding vision to help revitalize Kecoughtan Road and to address a number of issues that are having a negative impact on the improvement of the corridor. Sussex Village was identified as weakness along the corridor (8), yet it was also identified as a neighborhood with a great amount of potential for revitalization; it was therefore adopted as a key element in the Master Plan (14). Currently, the neighborhood is considered viable, but at-risk (pg 28). Built in the 1940s, Sussex Village is an aging neighborhood. Homeowners who take pride in their houses struggle to overcome negative perceptions derived from less well-kept properties and absentee owners (28). The neighbors also report there is an elevated level of crime taking place in their neighborhood compared to other neighborhoods along the corridor. The Plan recommends encouraging home ownership in the neighborhood to help reduce absentee and neglectful owners and improve the image of the neighborhood. The graphic below is from page 26 of the KCMP. It illustrates several key components of the East Kecoughtan Road Neighborhood Commercial Center initiative; specifically the yellow overlay depicts the recommendation to revitalize Sussex Village as a single-family neighborhood and increase homeownership.  SHAPE \* MERGEFORMAT  Special Information Minimum SeparationSection 20-5.1(5) of the Hampton Zoning Ordinance stipulates that there must be a mile separation between all juvenile residences. There is no permitted juvenile residence within of a mile of this proposed JR-2 location. Juvenile Residence-1, which is for up to three (3) residents, is permitted by-right; therefore the city does not have any records of the locations of these. The Less Secure Detention Facility, which by definition is a detention facility, is located in the 4300 block of Kecoughtan Road approximately of a mile away from the proposed JR-2 location, and does not therefore effect the review of this application. Conditions and LicensingNo more than 5 juvenile residents. Must comply with any and all applicable local and state regulations- all childrens residential facilities are required to be licensed through the State Office of Interdepartmental Regulation (OIR.) Residence must be staffed 24-hours a day, 7 days a week by qualified staff (as defined by the Office of Interdepartmental Regulation.) Minimum of 2 staff personnel on-site between the hours of 3pm and 7am. Community MeetingThe Sussex Village Neighborhood, with the help of the Neighborhood Office, has just formed a neighborhood association. This new organization hopes to continue with the momentum created with the adoption of the Kecoughtan Corridor Master Plan and encourage neighborhood improvements, clean-up, and crime reduction. Their first meeting was Wednesday, April 19th. Approximately 35 residents were in attendance. The applicant presented her application to the audience and city staff made a brief presentation on what a use permit is and how it is issued. The applicant then fielded questions from her neighbors for about 40 minutes. While many of the neighbors, perhaps a third of the audience, outright objected to the application on the basis that the youth will bring crime and other negative impacts into the neighborhood, a number of residents (approximately 4) spoke in favor of the application stating that it takes a village to raise a child, the not in my backyard response was selfish, and the community should welcome the opportunity to help a less fortunate child. In response, about a third of the residents stated that while they agree that juvenile residences may be needed in Hampton and they would like to be supportive of the application, they are not convinced that Sussex Village will provide the stable, nurturing environment the child needs. They also questioned whether Sussex Village- who is already on the brink- could absorb the impacts associated with bringing potentially traumatized and unstable children into the neighborhood. s Analysis: This application requests issuance of a use permit to allow the operation of a Juvenile Residence-2 for up to five residents at 118 Burns Street in the Sussex Village neighborhood. The property is currently owned by the applicant; however it is renter-occupied. Juvenile residences for up to three residents are permitted by-right; however a use permit is required for four to eight residents. According to the applicant, this juvenile residence would be a temporary home for up to five male teens that have been separated from their families for numerous reasons. The applicant wishes to open a residence where the teens can live in a stable environment while they work on their relationships with their parents, learn life skills, and attend the public schools they would normally attend. The goal is to eventually re-unite the teen with his family and have him move back into the family home. The residence would be staffed twenty-four hours a day seven days a week by a total of 7 trained personnel with a minimum of a bachelors degree. During hours when the residents are home, at least two staff would be on-site. Sleeping facilities will not be provided for staff, as they are expected to remain awake during the night to monitor activity. The Hampton Community Plan recommends low-density residential for this property and the entire neighborhood; low density residential is defined as 3.5- 9 units per acre. Density is not associated with the number of people living in a unit. Sussex Village is an established, low-density neighborhood and the applicant is not proposing to add any more units to her property in order to facilitate a juvenile residence. The Hampton Community Plan does include relevant policies that speak to supporting special housing types such as juvenile residences. Our policy states that we should support housing opportunities for youth and others with special needs (HN Policy 22). Our policy also directs us to combat stereotypes and perceptions associated with places where youth gather (HN Policy 17). Many neighbors at the community meeting spoke out against the application on the basis that in their opinion, a juvenile residence would result in more speeding, loud groups loitering about, and more crime. The Kecoughtan Corridor Master Plan was adopted in January 2006. It establishes a unified vision for the revitalization of Kecoughtan Road and the adjacent neighborhoods that comprise what is known as Kecoughtan Corridor. One of the key elements of the Kecoughtan Corridor Master Plan (KCMP) is to increase home ownership and improve Sussex Villages image and quality of life. The Hampton Community Plan also emphasizes the need to increase the value and marketability of the citys existing housing stock (HN Objective 2). The plan suggests via Housing and Neighborhood Objective 5 that the promotion of increased safety and the perception of safety in neighborhoods will help increase the overall value and appeal of Hampton neighborhood, the rationale being that in order to increase homeownership, potential homeowners must have confidence that buying a home, or revitalizing a home they already own, is a wise investment. They need to believe that Sussex Village is a safe neighborhood and their investments will hold value. The Hampton Community Plan Housing Element acknowledges that the perception of safety is in fact a condition that directly leads to the viability of neighborhoods and housing values. The plan states the perceived quality of a neighborhood is also a major factor in determining housing value (33). If the city is to improve the image of Kecoughtan Corridor, attract new homeowners, and encourage re-investment, the perception that neighborhoods along the corridor, including Sussex Village, are unsafe and a poor investment must change. Despite policy recommendations to support special housing options and to combat perceptions about youth, the question this application poses is whether granting a use permit to allow up to five juvenile residents is appropriate at this location and at this time given the fact that Sussex Village is described by its residents as an at-risk neighborhood and it was just adopted in the Kecoughtan Corridor Master Plan as one of the citys strategic initiative areas. Staff does not dispute that the city should support special housing options; however, like base zoning, use permits run with the land, not the applicant, and they are non-revocable. Therefore, we must take a critical look at whether the proposed juvenile residence, regardless of the applicant, owner, or operator, is appropriate for the time and place it is proposed and whether overall it furthers the Citys goals and vision established by its policies. Particularly, it is important to ensure that the City not work against itself by supporting applications that would adversely affect and compromise the Citys ability to reach its goals in established initiative areas. The Hampton Community Plan recognizes the importance of focusing public support in initiative areas in HN Policy 2, which establishes a policy that the city should provide targeted efforts to improve the citys housing distribution in the citys strategic investment areas and adjacent neighborhoods. The Zoning Ordinance permits juvenile residences for up to three (3) residents by-right in every residential district. However, there are potential impacts associated with increasing the number of juveniles beyond three, and that is why the use permit and public review process is required. And since use permits run with the land and not the operator, certain impacts must be excluded from consideration. For example, while the applicant may be highly qualified to operate a JR-2 and have a good track record of running them in other areas, a use permit runs with the land. The applicant may suggest that the ways she will operate the JR-2 will prevent impacts such as increased traffic and parking demands, noise, unsupervised activities, high turnover of residents, etc however if she leaves and another operator take over the residence, the city has no method to ensure that unfavorable situations and conditions do not arise. For this application the city must answer the question as to whether a JR-2, as a land use, furthers City objectives. In this case, Sussex Village is described by its own residents as at-risk. Homeowners in the neighborhood have come to the city via the Kecoughtan Corridor Master Plan and asked for public support to reduce crime, improve the perception and image of the neighborhood, encourage re-investment and revitalization, and increase homeownership. Via the adoption of the master plan, the neighborhood became an official strategic initiative area, and the city made a commitment to help improve conditions in the neighborhood. While some city policies direct us to support efforts to provide special housing options, our policies also direct us to pay particular attention to places adopted as initiative areas. The applicant has proposed a program that proposes to provide 24-hour a day supervision and structure to 5 residents. Via maintaining strict schedules and enforcing discipline, the applicant expects to prevent the students from loitering, committing crime, and being a burden on the neighborhood. However, as explained above, use permits run with the land and not the applicant. Also, use permits are irrevocable. Should the applicant abandon the program and a less qualified person take over the program, the city would have no method to terminate the use permit if the residence became a nuisance to the neighborhood. In light of current conditions, and because the neighborhood is a city initiative area, staff cannot support the application to operate a JR-2 there. The addition of a JR-2 would not contribute to improving the perception of the neighborhood, and our policies acknowledge that perception is a factor that leads to value and marketability. The addition of a juvenile residence would not further city goals or the vision for the neighborhood. Sussex Village is identified as an initiative area within one of the citys strategic areas and it is not appropriate to introduce alternative housing of this type into a neighborhood where we are encouraging homeownership and revitalization. Sussex Village is currently a neighborhood that is taking strides towards improving its image and attracting investment. Much of its revitalization depends on increasing homeownership and changing the perception that Sussex Village is an at-risk neighborhood. At this time, given current conditions, the neighborhood is not able to absorb any negative impacts. The addition of a juvenile residence at this time does not further the citys goal to improve the perception of the neighborhood or increase value or homeownership. Recommendation: Staff recommends denial of Use Permit Application #1007 for Juvenile Residence-2 at 118 Burns Street.     Use Permit Application No. 1007 STAFF EVALUATION Page  PAGE 6 of  NUMPAGES 6 SITE SITE SITE +6BCDKLMNY[efɷ|l|YIl6||lY$hjuhb>CJOJPJQJ^JaJh_cCJOJPJQJ^JaJ$hjuhK#CJOJPJQJ^JaJhVCJOJPJQJ^JaJ$hjuh}CJOJPJQJ^JaJ'hjuh}5CJOJPJQJ^JaJ'hA:Qh]5CJ OJPJQJ^JaJ#h7h]5CJOJQJ^JaJ#hjuh!5CJ OJQJ^JaJ#hjuh 5CJ OJQJ^JaJ#hjuhb>5CJ OJQJ^JaJMpqrx$ p@ a$gdm7! 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