Appendix D.pdf

Downtown Stafford Initiative

Stafford County Board of Supervisors

June 15, 2021

Downtown Stafford, a vibrant cultural and commercial district with diverse restaurants, retail and a myriad of housing types, is a focus of community life. Downtown Stafford features state of the art amenities with a hometown feel, providing urban life at its best. Combined with the commercial corridors at the north and south ends of the County, Stafford is the desired location for companies who wish to come to this region. In addition, the Regional Airport serves as a core hub for business travel and as a stimulus for economic development.

BOARD OF SUPERVISORS

THREE-YEAR PRIORITIES

5.1. Begin construction of the first

phase of Downtown Stafford through a public-private partnership to enhance Stafford’s identity and promote economic development.

Downtown Stafford

“heart of the community” https://spark.adobe.com/video/LL3bWTTwzgQVW

Downtown Stafford Review

2006 Community Survey The majority of responding residents supported the a multi-use town center, including developing a vision statement at two facilitated workshops.

Courthouse Area Redevelopment Plan Began in 2008

Further define the broader Courthouse Area Vision based on work from the 2006 Economic Development Strategic Plan.

Courthouse Urban Development Area Plan

The plan included an I-95 interchange concept and a greater focus on Stafford's potential for a "downtown" area.

Urban Development District

In 2012, the Board adopted an Urban Development (UD) zoning district that allows for higher density, mixed-use based code that can facilitate the type for development envisioned for Downtown Stafford.

Comprehensive Plan

In 2016, the Board adopted a new Comprehensive Plan for the County identifying the Courthouse Area as a targeted growth area for urban-style development.

Board Strategic Plan 2040

The Board created a three-year priority for Downtown Stafford:

• 5.1. Begin construction of the first phase of Downtown Stafford through a public-private partnership to enhance Stafford's identity and promote economic development.

2017-2018 Board Authorized Development Adviser

CIT Partnership

Community Engagement Plan Developed and Executed Summer/Fall 2019

Healthy Growth Community Engagement

Board authorized an adviser to develop financial analysis, design principles and conceptual site plans.

Also, take the Board on a tour of mixed-use developments in the region and presented all findings on August 14, 2018.

Center for Innovative Technology (CIT) partners with Stafford County to develop Smart Initiative with Downtown Stafford in March 2019.

We had five Community meetings Summer/Fall of 2019 to engage citizens of Downtown Stafford with initiatives that make residents feel included, involved, and valued. We listened to our residents and what they need in the community such as, a sense of place, a place to convene and a place for children and families to go.

In April of 2019, several roundtables held discussions that produced themes such as streamline the development process in the Targeted Growth Area (TGA) and prioritize infrastructure investment and improvements in TGA.

Fountain Park/JPI

Staff, with Board approval, develops a joint effort to meet a similar Downtown vision with County-owned property.

BOS Meeting

Economic Development

Aligns with the Strategic Plan initiatives

• Downtown Stafford is a significant opportunity for new business investment and the creation of a “place” in Stafford

• Virginia Smart Community Test Bed

– New cutting edge technologies for efficient community services and public services are piloted and tested

– Provides for smart infrastructure

– Attraction for new business investment and headquarters

Aligns with Targeted Growth Area (TGA) Goals

• Concentrates urban/high density development, with pedestrian and transit-oriented development pattern most appropriate

• Goal of TGA to accommodate 50% of projected population growth thru

0% 20% 40% 60% 80% 100%

Food Services & Drinking Places

Clothing & Clothing Accessories Stores

Food & Beverage Stores

Nonstore Retailers

Sporting Goods, Hobby, Book &…

General Merchandise Stores

Health & Personal Care Stores

Miscellaneous Store Retailers

Furniture & Home Furnishings Stores

Electronics & Appliance Stores

Bldg. Materials, Garden Equip. &…

Gasoline Stations

Motor Vehicle & Parts Dealers

Leakage/Surplus Percentage

Leakage /Surplus Percentage

Analysis indicates leakage among many retail categories in Stafford County

Market Demand – Retail Leakage and Gap

$1.3 Billion Retail Gap

• Median household income for Stafford

County is $106,773 (US Census) – significantly higher than Fredericksburg which hosts many of the retail opportunities that Stafford desires

• Higher median income along with findings of Gap Analysis indicates there is an opportunity for additional retail absorption in Stafford

• $1.3 billion opportunity

COMP PLAN AMENDMENT AND

ZONING ORDINANCE

BOARD ACTION

Comprehensive Plan Amendment

• Adopts new land use concept plan

• Amends text to describe features of plan

• Identifies recommended public facilities and infrastructure to facilitate development

• Recommends development densities, building heights, and other design standards

Comp Plan Amendment And Zoning Ordinance

Comprehensive Plan - New Land Use Concept Plan

▪ Focused on area between I-95, Route 1, south of Courthouse Rd, and north of Stafford Hospital Center Blvd

▪ Includes County-owned land north of Courthouse Rd for new Courthouse and connectivity

▪ Grid street network – removes traffic from Route 1

▪ Importance of open-air plaza as community focal point

▪ Parking structure

▪ Potential cultural center

▪ Multi-story buildings with garage parking

Overall Concept

• The amendment highlights the County’s Smart Community efforts to advance next-generation technology into the development of Downtown Stafford

• The Plan recommends increased development standards only for the Downtown Stafford area, and not in any other area of the Courthouse TGA, or any other TGA

– Building heights up to 5 stories,

– Floor area ratios (FAR) for certain blocks of up to

2.8, and

– Residential densities up to 50 units per acre

– Amendment increases the number of projected multi-family dwelling units by 1,690

Primary Aspects

• Design Criteria ensures area is developed consistent with overall vision

– A phased mix of commercial and residential development is encouraged to maintain fiscal balance with recommendations on parking, green space, building and many others

• Public Facility needs include additional parks, libraries, fire and rescue and schools to accommodate 1,690 dwelling units and a population increase of 4,343 residents

• Transportation incorporates a grid network of streets is planned to lessen the anticipated increase in traffic

– Recent road improvements in the area along with expanded commuter lot and proposed ped/bike connectivity 10

Comprehensive Plan Amendment

• UD-1 subdistrict proposed to be eliminated, all others show increased density

• UD-2 would be lowest density subdistrict, allowing single family residential

• UD-5 would be highest density subdistrict, up to 50 DU/acre and 5-story buildings

Zoning Ordinance Amendment

General District Structure

Density and Height

Zoning Ordinance Amendment Open Space/Setbacks

▪ Revised standards would allow more impervious area on lots, however landscaped areas would still be required per the DCSL

▪ Setbacks reduced to allow building features such as entryways to be placed closer to the street

▪ Built-to zones were also adjusted to coincide with reduced setbacks

Parking

▪ Adds shared parking allowance similar to P-TND district

▪ Eliminates the UD-specific parking table – all parking would now be based on the standard parking rates in Table 7.1

▪ Still allows for credits based on proximity to transit, TDM etc.

▪ Would allow the agent to modify parking requirements with acceptable justification

Street and Block Standards

▪ Removes maximum block perimeter requirement and increases maximum block length for UD-4 and UD-5

▪ Eliminate certain street types that do not meet VDOT standards or are unlikely to be used

▪ Combines certain street types to simplify (i.e. Avenue 3-lane and Avenue 5-lane)

▪ Adjust other street types to ensure consistency with VDOT standards

▪ Increases sidewalk widths for certain street types to 10 feet Organizational

▪ Consolidated certain graphics and tables which contained similar information

▪ Organized information in a more logical way

▪ Eliminated duplicate and unnecessary information

▪ Allows for easier interpretation and implementation

Landscaping

▪ Exempts the UD district from street buffer requirements adjacent to arterial or collector streets

▪ Exempts the UD district from perimeter parking lot landscaping and vehicle access drive landscaping

▪ Street trees would still be required as specified in the DCSL, and the planting interval would increase to 1 tree every 50 feet

▪ Changes are intended to support a more compact development with buildings oriented towards the street

Comp Plan

• Staff recommends adoption of the proposed amendments to the Comprehensive Plan regarding the Courthouse Planning Area and Downtown Stafford, pursuant to proposed Resolution R21-46

• On March 24, 2021, the Planning Commission’s recommendation for approval of the amendments failed 4-3

Zoning Ordinance

• Staff recommends approval of proposed Ordinance O21-10

• The amendments would support the

Downtown Stafford initiative by accommodating the type and scale of development depicted on the Land Use Concept Plan

• The amendments would also streamline the Ordinance to allow for easier interpretation and implementation of requirements

• On March 24, 2021, the Planning Commission recommended approval of the ordinance amendments 4-3

Recommendation for Approval

RECLASSIFICATION APPLICATION

JPI PROPERTY (FOUNTAIN PARK)

RC21153698

Request

• Rezone 6.11 acres from B- 2, Urban Commercial to UD-5, Urban Development

• Owner: JPI –Fountain Park, LLC (JPI)

• The County is the applicant

Zoning Map

Location Map

Reclassification Application JPI Property

Existing Conditions

GDP

JPI

County

JPI - Fountain Park Block 8

Bldg No.

Use Bldg Ht.

Bldg Area (Sq. Ft.)

1 Office (possible County office space)

4-story

30,760

2 Office/residential, with parking below

5-story

79,525

3 Office/residential/café with outdoor seating

5-story

60,225

4 Residential, with parking below

5-story

56,725

5 Office 2-story

13,000

6 Residential, with parking below

5-story

105,500

7 Office/residential, with parking below

5-story

82,750

Other Park, plaza, outdoor dining, dog park

51,835

Total 428,485

Fountain Park – Conceptual Building Renderings

COURTHOUSE

Residential Units Summary

* Multi-family Units may be apartments or condominiums and will be phased development

Type JPI Rezoning Area

Multi-family 309

Townhouse 0

Single family 0

Total 309

The Alternatives

By Right Proposed

By-Right Fountain Park

Buildings 4 7

Open Space SF - 26,400

Office/Commercial SF 24,800 68,870

Restaurant SF - 4,800

Apartments1 - 309

Jobs - Estimated

99 280

Jobs - Construction

11 32

Real Estate Value - Office4 $5,580,000 $15,495,750

Real Estate Value - Apartments

$47,980,509

Total Real Estate Value

$5,580,000 $63,476,259

$54,126 $615,720

All estimates pending approval and final design

Fountain Park Open Space

Public Park w/ Café

Apartment Pool & Rec Area

Apartment Dog Park

Annual Real Estate Tax Revenues

($0.97/$100)

1 Apartment Unit Mix (Projected)

One Bedrooms 65% 200

Two Bedrooms 30% 94

Three Bedrooms6 5% 15

100% 309 2 Based upon 1 job per 250 sq ft of office space 3 Full Time Equivalent for One Year 4 Based upon $225/sq ft (value of JPI's Spotsylvania Project) 5 Based upon $155/sq ft (Assessed Value of Abberly at Stafford)

333,032 Square Feet of Apartments

$51,917,100 total assessed value

$155 / sq ft 6 This is the maximum number of 3 Bedrooms Apartments, it is anticpated that actual number will be less.

6Real estate estimate only. Does not include business personal property

Notes

Community Factors Transportation

• Under current B-2 zoning, weekday traffic generation is estimated at 916 VPD

• TIA prepared by Stantec estimates 1,100 VPD

• Difference of 187 VPD, but VDOT will review future site plans

Parks and Rec

• Type of parks within TGAs may be active or passive

• Proposed open space within project includes:

– 0.43-acre plaza with fountain, benches, outdoor dining area

– Additional features such as dog park, pool plaza, other outdoor dining

• Several public amenities in vicinity

– Courthouse Community Center – 0.4 miles

– Embrey Mill Park/Rouse Aquatic Center – 1.5 miles

– Rowser Building – 1.5 miles

Schools

• 309 proposed multi-family residential units with an estimated 70 students

• Nearby schools can accommodate increase in students

• Economic Development Analysis estimates slightly lower student numbers for higher density mixed-use developments, especially as MOU limits number of bedrooms

• Proffers could not be included in either alternative

Students from Existing Multi-family Developments

Based on Student Generation Rates No. of units Elementary Middle HS Total

Abberly 288 32.5 11.5 21 65

Aquia TC 254 29 10 18 57

Silver Collection 278 22 8 15 45

83.5 29.5 54 167

Actual Student Numbers Provided by Schools No. of units Elementary Middle HS Total

Abberly 288 8 11 14 33

Aquia TC 254 52 15 22 89

Silver Collection 278 16 6 7 29

76 32 43 151

Requirements of MOU The Board entered into an MOU with JPI for acquisition of property needed for the Courthouse Road/Route 1 Intersection project. The MOU included the transfer of property between the County and JPI as well as some additional items on a vision for a Downtown Stafford project.

Developer Requirements:

• Grade parking lot to within 6” of final grade (savings of $400K)

• Architectural guideline binding developer

• Requires demolition of existing building within 6 months of agreement

• Requires construction of a park (minimum 10K sq. ft.)

• Requires construction of minimum 10K sq. ft. of commercial space before initial occupancy

• Requires 30K sq. ft of County Office space (does not count towards commercial space)

• Agrees to Smart Community practices

• Failure to adhere to agreement, property reverts back to County

County Requirements:

• County will build temporary parking lot

• Identify shared wetland mitigation costs (not to exceed $150k)

• County construct entrances to Fountain Park

• County will provide utilities to site

• Board considers reclassification of JPI property by July 9, 2021, and will have to pay JPI additional $300K if Board does not reclassify property in time

County Costs Associated with Land Acquisition for Road Project

Total Cost for Acquisition

$560K

Costs Associated with MOU and Fountain Park

Total Net County Development Costs

$200K

Evaluation – Staff Findings

• Positives

– Consistent with land use recommendations in the Comprehensive Plan

– Conforms with new Downtown Stafford Land Use Concept Plan and UD zoning

– Meets Priority 5.1 of the Board’s Strategic Plan regarding development of Downtown

Stafford

– Meets Goal 7 of the Economic Development Strategic Plan as a Priority Focus Area

– MOU will ensure certain infrastructure improvements are completed and development is consistent with design standards

• Negatives

– Not all impacts known as VDOT will review future site plans, but currently stands at

184 VPD increase

Recommendation

Staff recommends approval of RC21153698 (JPI Property), subject to approval of the concurrent Comprehensive Plan amendments and Zoning Ordinance amendments:

• Approval will provide a catalyst toward development of the Downtown

Stafford area

• MOU will ensure certain infrastructure improvements are completed and development is consistent with design standards

• On April 14, 2021, the Planning Commission recommended denial of the application 5-2

• Board deadline for action is July 6, 2021

– a contractual obligation with JPI for Board action by July 9

RECLASSIFICATION APPLICATION

COUNTY PROPERTY

RC21153698

Request

• Rezone 10 acres from B-2, Urban Commercial to UD- 5, Urban Development

• Rezone 13.08 acres from B- 3, Office to UD-5

• Total: 23.08 acres

• Owner: Stafford County

Board of Supervisors (County)

• The County is the applicant

• Rezoning is needed if the

County would like to market the area for development

Zoning Map

Location Map

Reclassification Application County Property

Existing Conditions

GDP

JPI

County

Potential Residential Units

* Multi-family Units may be apartments or condominiums

* Board can revise based on development partner

Type Downtown Stafford

Multi-family 651

Townhouse 22

Single family 0

Total 673

Start of Downtown Stafford

• Allows for new kind of development in Stafford

• Board controls the best way to develop the property

• If approved, next steps include:

– Pursue and select development partner

– Community engagement effort to gather additional citizen input

Reclassification Application County Property

First step to meet long desired vision

• A Place for community gatherings

• A Smart-Technology Community

• Private investment for Downtown and County

• Entrepreneurial opportunities

• Public safety improvements

Transportation

• Under current B-2/B-3 zoning, weekday traffic generation is estimated at 7,412 VPD

• TIA prepared by Stantec estimates 9,000 VPD

• VDOT will review future site plans

Parks and Rec

• Type of parks within TGAs may be active or passive

• Proposed open space within project includes:

– 0.45-acre green space/gathering area

• Several public amenities in vicinity

– Courthouse Community Center –

0.4 miles

– Embrey Mill Park/Rouse Aquatic

Center – 1.5 miles

– Rowser Building – 1.5 miles

Schools

• 673 potential multi-family residential units with an estimated 160 students

• Nearby schools can accommodate increase in students

• Economic Development Analysis estimates lower student numbers for higher density mixed-use developments, especially as limits placed on number of bedrooms

Students from Existing Multi-family Developments

Based on Student Generation Rates No. of units Elementary Middle HS Total

Abberly 288 32.5 11.5 21 65

Aquia TC 254 29 10 18 57

Silver Collection 278 22 8 15 45

83.5 29.5 54 167

Actual Student Numbers Provided by Schools No. of units Elementary Middle HS Total

Abberly 288 8 11 14 33

Aquia TC 254 52 15 22 89

Silver Collection 278 16 6 7 29

76 32 43 151

Evaluation – Staff Findings

• Positives

– Consistent with land use recommendations in the Comprehensive Plan

– Conforms with new Downtown Stafford Land Use Concept Plan and UD zoning

– Meets Priority 5.1 of the Board’s Strategic Plan regarding development of Downtown

Stafford

– Meets Goal 7 of the Economic Development Strategic Plan as a Priority Focus Area

– The Board has control over future development of the 23 acres, and will be able to negotiate improvements with potential developers

• Negatives

– Potential transportation impacts of 1,588 VPD

Recommendation

Staff recommends approval of RC21153698 (County Property):

• Approval will provide a catalyst toward development of the

Downtown Stafford area

• Based on GDP, with flexibility for future changes to uses and layout

• Future development would be subject to MOUs with partners/developers to ensure various aspects of development will comply with the Comprehensive Plan and Board’s Strategic Plan

• On April 14, 2021, the Planning Commission recommended denial of the application 5-2