ࡱ> {|}~{` [bjbjFF 7,,RdBBBVNNN8OPV`Q R(4R4R4RUUU$hzzB;\MU^U;\;\4R4R<aaa;\"4RB4Ra;\aa4rBK4RQ p CtaN\'>H`eW]|KK^B UGW&amXYYUUU'a^UUU`;\;\;\;\VV~4dVV~4VVV STAFF EVALUATION To: Planning Commission Prepared By: E. Marotta 72-5238 Reviewed By: S. Mertig 728-5234 Case No.: Rezoning 1229 Date: July 10, 2006 General Information ApplicantPeach Properties, LLC Mr. John Nestel AgentMr. Conway Sheild OwnerHampton Baywatch Associates Location/ Parcel ID724 River Street; LRSN # 2003326 This property is located within the Pasture Point Neighborhood.  Requested ZoningMulti-Dwelling Residence District (MD-4) with conditions. MD-4 does not require a minimum lot area or dictate a maximum density. It is the most intense residential district in the ordinance and is the only one that would allow the project as proposed. The other applicable multi-dwelling districts require more than one (1) full acre of land. The minimum square footage required for condominiums is 500 square feet. MD-4 minimum setbacks are as follows: Minimum Front Yard of 20, with provisions for greater setbacks under certain circumstances Minimum Side Yard of 10, with provisions for greater setbacks under certain circumstances Minimum Rear Yard of 20, with provisions for greater setbacks under certain circumstances Existing Land Use and ZoningThe 0.50+ acre property is currently zoned One Family Residence District (R-11). R-11 permits single-family detached units, two-family dwellings when one residence is occupied by the owner of the entire property, and churches by-right.  There is one main structure on the property: a 12-unit apartment (for-rent) complex. It was built prior to the adoption of the ordinance; it retains its original zoning and it and is a legal non-conforming use. Surrounding Land Use and ZoningNorth:The Hampton RiverSouth:Single- family detached residential, zoned R-11East:The Hampton RiverWest: River Street and single- family detached residential, zoned R-11Public Policy: Hampton Community Plan The Hampton Community Plan Land Use Plan recommends Medium Density Residential for this area. Medium Density residential is defined as 9-15 units per acre. It is dominated by single family units, , whichbut may include small- scale, multi-family structures within the recommended density range.  The Plan also makes a number of specific recommendations that pertain to the evaluation of this application.: Promote the appropriate use and reuse of waterfront land (LU-CD 9) Encourage the development of higher value housing. Focus higher value housing strategies within the Citys strategic investment areas and on waterfront land and water-view sites that are appropriate for single- and multi-family residential uses (Housing and Neighborhood Policy 7) Promote high quality design and site planning that is compatible with surrounding development (LU-CD Policy 10) This application proposes to redevelop a waterfront property. Since waterfront land is one of the citys greatest assets, and our policy explicitly directs us to encourage higher value housing along the waterfront,., however iI it is important to critically evaluate any proposal and ensure that the product will further city goals and objectives to provide the type of high quality housing that is compatible with the neighborhood. Encourage the upgrading and revitalization of districts in a manner that is consistent with the character and scale of the district and is compatible with the character of the surrounding neighborhood (LU-CD 30) Preserve and enhance the character of historic residential neighborhoods by encouraging new or remodeled structures to be compatible (prevailing scale, form, materials) with the neighborhood and adjacent structures (LU-CD 25). Targeted efforts to improve the citys housing distribution in the citys strategic investment areas and adjacent neighborhoods (HN-2) Because Hampton is largely a built-out city and most development opportunities are infill and redevelopment, it is very important to encourage to the highest quality projects possible and to ensure that the proposal is compatible and enhances the adjacent neighborhood. This proposal is for the re-use of a property that is within a historic neighborhood and initiative area. Ensuring that the proposed project is of high enough quality and appropriate historic character that it not only improves the housing stock, but adds to the character of the neighborhood, is a critical issue in the evaluation of this application. Follow a neighborhood planning process to identify neighborhood improvement issues that are unique to individual neighborhoods (LU-CD 20) The Pasture Point Neighborhood is a historic Downtown neighborhood. Via the Downtown Hampton Master Plan Pprocess and via endorsing Design Guidelines for Hampton Neighborhoods, the neighborhood has come together and identified that architectural style, quality of materials, and compatible design is important to them. Public Policy: Downtown Hampton Master PlanWhile specific recommendations for the Pasture Point Neighborhood are focused on improving the properties fronting on the Interstate 64 and the installation of a new community park, the document contains a number of recommendations and discussions that apply to the Downtown in general and are relevant to the review of this application; the Plan identifies Pasture Point as one in-town neighborhood that directly supports the Downtown core. The Master Plan recognizes that revitalization of the housing stock, and providing more upscale housing options is key to the revitalization of the downtown. The plan encourages quality infill projects,, and quality revitalization of existing properties, and recognizes the importance of private property owners contributing to the success of the plan (3). While the Plan does not address this property specifically, the Plan does identify opportunities to support the downtown by providing multi-dwelling residences in converted industrial buildings of Pasture Point. Therefore, the Plan does establish that some multi-family, if done correctly, could be compatible with the Pasture Point Neighborhood. Additional Information This ProposalThe applicant proposes changing the use of the property from rental units to condominium units. Both uses are classified as multi-family; a change in ownership style can occur by-right; the structure would remain a legal-nonconforming use, butand potential purchasers would experience difficulty in obtaining mortgages, flood insurance, and homeowners insurance. There are certain circumstances that necessitate the property becoming a conforming use. For example, building improvements that exceed 50% of the buildings value require that the use and the structurebuilding are in compliance with the Zoning Ordinance, the building code, and FEMA regulations. Physical changes to the structure include a renovation of the interiors, a new gable-style roof, and minor exterior modifications. Traffic/ParkingThe existing 12- unit apartment complex provides the required parking per code requirements. Should this property be rezoned to facilitatedevelop condominiums, the required parking would still be met. No additional traffic would be generated by a conversion from rental units to ownership. SPI-CBPDThis property is located within the citys Chesapeake Bay Preservation District boundaries. It is designated as an Intensely Developed Area (IDA), thus the developer may make improvements within 100 of the water if certain stormwater quality standards are met. These standards are reviewed during the site plan review process. FEMA This property is located within Flood Zone AE. Flood Zone AE signifies an area inundated withby 1% annual chance of flooding. Hampton participates in the Federal Emergency Management Area (FEMA) National Flood Insurance Program (NFIP), which thereby establishes building regulations designed to protect persons and property in the event of disaster or flood. Currently this property is not in conformance with NFIP regulations, which are adopted in Hamptons building code. One regulation that affects the review of this application is that aAll substantially improved buildings within the floodplain are required to be constructed in compliance with floodplain management ordinances and laws. Substantially improved is defined as improvements exceeding 50% of the market value of the building before the start of construction. Applicable methods to retrofit this structure to bring it into conformance with NFIP regulations are limited to elevating the structure, which would make the building too tall and out of scale with the neighborhood, or wet floodproofing. Wet floodproofing means removing all inhabited rooms from ground level, leaving possible uses limited to garages, storage, and building access. As proposed, the applicant would convert each of the 12 apartment units (6 top floor, 6 bottom floor) to condominiums within the existing footprint of the building. However, should the applicant exceed 50% improvement to the building, he would lose the ability to sell habitable space on the ground floor. The only way to avoid the requirement to retrofit the structure would be to keep improvement value to below 50% of the buildings value. This would pose problems with the quality and value of the renovation, and with the ability to meet the goals and objectives of our public policies relating to high-quality housing, as outlined elsewhere in this report. Architectural StandardsIn the fall of 2004 the Hampton Housing Authority Board adopted the Design Guidelines Manual for Hampton Neighborhoods. This manual was an implementation task identified in the Downtown Hampton Master Plan for ensuring new construction and revitalization would be compatible with the existing historic character of the neighborhood. Many residents had input into the creation of the master plan and fully supported the development of a design manual. The manual illustrates the styles of architecture that are present in Pasture Point, and provides specific design standards for revitalizing renovating historic homes or building new homes. Proffered ConditionsThe developer provided four seven (47) conditions, including (see application for details): An easement given to the Pasture Point Neighborhood Association members at the Northwest corner of the property on a designated sitting area between the hours of 8am and 7pm daily. This area will be waterfront for the neighborhood enjoyment. 12 cantilevered decks a marina and pier attached renderings and materials listBuilding elevations Conceptual courtyard rendering An easement for Pasture Point residents (access times and use unclear; to be determined by condo association at a later date) Conceptual site layout Twelve decks (type and location not specified) Materials list Possible marina and pier (pending results of a feasibility study) Due to structural limitations of the building, Hampton City Architect has recommended that the applicant remove the proffer to provide cantilevered balconies, and instead provide an external support system. Further, the attached renderings were updated by the applicant after the initial proffer statement was submitted, and some of the design elements in the renderings conflict with the proffer statement itself (cantilevered decks) and the materials list. We were not able to get the applicant to submit an updated proffer statement that was not in conflict with the attachmentsAs submitted, several of the proffers are unenforceable, are not desirable, and are not acceptable to the city. Community Meeting and EndorsementPasture Point Neighborhood Association conditionally endorsed the proposal on May 22, 2006. Their four (4) conditions are as follows (complete letter and correspondence is attached for your reference): 1. endorsement Endorsement of multi-family does not apply to any other property in Pasture Point 2. Project must meet Design Guidelines set forth in the Design Guidelines Manual 3. No more thanMaximum of 12 units in existing footprint 4. Waterfront easement must be provided for the neighborhood Analysis This is an application by John Nestel of Peach Properties LLC to rezone 0.50+ acres at 724 River Street in the Pasture Point Neighborhood to Multi-Dwelling District (MD-4) to facilitate converting the property into twelve (12) waterfront condominium units. The property is currently operating as a legal non-conforming 12-unit for-rent apartment complex. It is zoned One-Family Residence District (R-11). By right, the developer could convert the units to condominiums, however; because the property is improperly zoned for condominiums and it is not in conformance with National Flood Insurance Program standards, potential buyers would face tremendous challenges obtaining a mortgage, mortgage insurance, and flood insurance. There are three policy documents that apply to the review of this application. First, the Hampton Community Plan sets forth general land use and housing recommendations and establishes the long term vision and goals for the City. The Downtown Hampton Master Plan is adopted by reference in the Hampton Community Plan (HCP); it provides specific recommendations to help implement the vision and goals of the HCP. And finally, the Design Guidelines Manual for Hampton Neighborhoods was adopted by the Hampton Housing Advisory Board as an official document to help implement the specific architectural recommendations of the Downtown Hampton Master Plan. The HCP Land Use Plan recommends Medium Density Residential for this area. Medium Density Residential is defined as 9-15 units per acre and may include small scale multi-family structures. While this property is currently operating at a density of 24 units per acre, it is doing so as a non-conforming use. In order to bring the structure into conformance and make the 12 unit, multi-family building conforming, the property must be rezoned Multi-Dwelling District (MD-4), which is the only category that would allow the requested density. MD-4 is the most intense residential zoning district in the city. There is no minimum lot size or maximum density for MD-4. Less intense multi-dwelling districts require a minimum of a one-acre site and only provide for a maximum of 20 units per acre. The HCP also makes a number of specific housing, compatibility, design recommendations that are further developed in the Master Plan. Specifically, the HCP illustrates the need to diversify the housing stock in Hampton, encourage homeownership, and offer more high-quality housing. It states that waterfront sites in Hampton and sites within initiative areas may provide appropriate important opportunities to provide higher quality housing options and advance community goals and objectives, but,- any development should be done within the context of protecting the character, scale, and architectural integrity of the existing neighborhood. Recognizing the rich architectural history of Pasture Point, the Downtown Hampton Master Plan identifies Pasture Point as an initiative area and recommends measures me taken to protect and enhance its character, while still providing recommendations to infill and diversify the housing stock. Traditionally, Pasture Point has been a single-family detached neighborhood. However, because of the need to provide a more diverse, high-quality housing stock to support the revitalization of the downtown, the Master Plan does provide recommendations for providing multi-family loft housing in the traditionally industrial sections of Pasture Point. Pasture Point is identified as an initiative area. Other recommendations for this initiative area center around creating design guidelines so that there would be some method to ensure that the architectural traditions of the neighborhood were carried forward with revitalization and new projects. The Design Guidelines manual came out of the recommendations of the Master Plan. It is used by the Hampton Redevelopment and Housing Authority to determine if renovation proposals meet their criteria for grants and funding, and, it is used by the Planning Department to determine if land use applications such as this one meet the design criteria recommended, established, and supported by public policy. By requesting this rezoning, the applicant is asking us to evaluate whether this use, at this location, and as proposed, furthers the recommendations of the HCP and all other adopted policies. After reviewing public policy, staff has determined that, although the maximum recommended density is 15 units per acre, the proposed density of 24 units per acre may be appropriate on the site, considering that it is waterfront and the property is currently operating at 24 units per acre without adverse impacts such ason traffic, infrastructure, etc. I n fact, the costs of redevelopment often require that sites be developed for high value, high density to make the project feasible. However, in order to support the rezoning of the property to a density that is twice what the Land Use Plan recommends, the application must further city objectives for compatibility, sustainability, long-term high quality, and design as set forth in the HCP and the Downtown Hampton Master Plan. However, tThe proposed improvements are existing buildings architecture is not compatible with the vision established for Pasture Point by public policy and does would not contribute to the revitalization of the neighborhood. The proposal does not further the goals of the HCP nor the Downtown Hampton Master Plan, and is not of a quality that would warrant serious consideration of supporting twice the In order to support the rezoning of the property to a density that is twice what is recommended by the Land Use Plan, the application must further city objectives for compatibility, long term high-quality, and design as set forth in the HCP and the Downtown Hampton Master Plan. recommended density. The applicant presented his proposal to the Pasture Point Neighborhood Association has also reviewed the applicationat their May meeting. They members present voted and agreed to support the applicationredevelopment of the site as a multi-family use with four conditions. They supported the idea that it a quality redevelopment would increase homeownership and that the density on that site was okayacceptable, but that it not exceed 12 units. They stressed that and the proposal must strictly conform to the Design Guidelines. (See attached letter.) As submitted, the City Architect has determined that the renderings and materials list proffered do not comply with the standards set forth in the Design Manual, nor fulfill the compatibility/quality recommendations set forth in the Downtown Hampton Master Plan; the use of materials is inconsistent with the Colonial Revival detailing, the window proportions vary, are unaligned, and are inappropriate, building facades are not symmetrical, dormer windows are not properly placed properly, and the proposed detailing, which is critical to expressing Colonial Revival architectural style, is not properly proportioned or used. The applicant is aware of these deficiencies and has not adequately addressed these issues in the submitted proffer statement. In fact, the applicant appealed to the Pasture Point Neighborhood Association remove condition #2 (adherence to the Design Guidelines) from their endorsement. The community was not receptive to this request, and the condition remains intact. In addition to the architectural proffers not complying with the Design Guidelines or furthering the citys objective to provide high-quality housing, the applicant has not addressed the issue of complying with FEMA flood regulations. If he does not improve the building by 50% of its market value, the building cannot be brought to a level of quality that furthers city policies for high-value housing. As a built out city, Hampton must critically examine every land use application and promote the highest and best use of its land. In this case, a proposal to renovate and convert a 12-unit waterfront apartment building to a 12-unit condominium project provides a tremendous opportunity to further city objectives relating to high-quality housing and enhancing initiative areas. However, this application falls short of being the caliber of project that would furthers city objectives for quality, long-term viability, enhancing and protecting the unique historic character of the neighborhood, and maximizing the appropriate use of waterfront land. It does not meet the recommendations of public policy as set forth in the HCP and as further defined in the Downtown Hampton Master Plan and the Design Guidelines. Staff recommends denial of Rezoning Application #1229 as not being in conformance with the recommendations of the Hampton Community Plan and other applicable city policies. If you have any questions regarding this case or recommendation, please contact Elizabeth Marotta, City Planner at  HYPERLINK "mailto:emarotta@hampton.gov" emarotta@hampton.gov or at 728-5238.     Rezoning Application No. 12081229 STAFF EVALUATION Page  PAGE 3 of  NUMPAGES 7 SITE SITE SITE +68LMNY[dlnopɷ||lY||lFl|3$hJ0h]CJ OJPJQJ^JaJ$h@$hl{CJOJPJQJ^JaJ$h@$hb>CJOJPJQJ^JaJhl{CJOJPJQJ^JaJ$h@$h}CJOJPJQJ^JaJ'h@$h}5CJOJPJQJ^JaJ'hJ0h]5CJ OJPJQJ^JaJ#hJ0h]5CJ OJQJ^JaJ#h@$h!5CJ OJQJ^JaJ#h@$h 5CJ OJQJ^JaJ#h@$hb>5CJ OJQJ^JaJMopqx P !$Ifgdl{$ P !a$gdK#! 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