Subject: STAFF REPORT
ZC0501-7
BACKGROUND
A. Request
Wolford Development Options, LLC, has requested to rezone 54.27 acres of
property located on Gateway Road. The applicant is seeking to rezone the
property from LMI (Light Manufacturing / Industrial), RE1 (Residential Estate
1), and RO (Residential-Office) zoning districts to GC (General Commercial)
zoning district.
B. Owner
The property subject to rezoning is owned by B.F. Billings, et al.
C. Location
The property is located on the west side of Gateway Road, bordered on the north
by Swift Mill. This site has indirect access to J.R. Allen Parkway and
Manchester Expressway.
CURRENT SITUATION
A. Present Zoning / Current Use of Property
The present zoning for the property is LMI (Light Manufacturing / Industrial)
(previously M-1), RE1 (Residential Estate 1) (previously A-1), and RO
(Residential-Office) (previously A-O). The application was submitted prior to
March 1, therefore the project has been reviewed under the former zoning
ordinance.
The property is currently vacant and has not been developed. This property was
used as a borrow pit by the Georgia Department of Transportation during the
construction of the J.R. Allen Parkway.
B. Proposed Zoning / Proposed Use of Property
The proposed zoning for the property is GC (General Commercial) (previously
C-3). The application was submitted prior to March 1, therefore the project
has been reviewed under the former zoning ordinance.
The proposed use for the property is a 200,000 square feet Super Wal-Mart
retail store. The developer has also proposed 100,000 square feet of
additional commercial uses on the property, which will bring the total square
footage at build-out to 300,000 square feet.
C. General Planning & Land-Use Issues
a. Comprehensive Plan: The rezoning request is consistent with the
future land use map of the Comprehensive Plan. The map designates this
property as General Commercial.
The request is also consistent with a policy statement of the Comprehensive
Plan, Commercial Development policy statement number 1, which states:
?Future commercial development should be concentrated in central locations and
excessive strip development should be discouraged. Additional study and review
of actual development patterns is recommended in conjunction with detailed
neighborhood plans.?
b. Existing Land-Uses: The proposed development is compatible with
existing land-uses. The property is bordered on the north by an industrial
use, Swift Mill. On the western property line, the property borders the
Rails-to-Trails project and an apartment complex. The eastern property line
fronts directly onto Gateway Road and view-fronts Manchester Expressway. A
southern property line does not exist because the property is triangular in
shape.
The existing land-uses along Gateway Road are commercial, industrial, and
multi-family residential. The existing land uses in the immediate vicinity of
the J.R. Allen Parkway and Manchester Expressway are also commercial,
industrial, and multi-family residential.
c. Future / Existing Undeveloped Properties: There are two proposed
developments for the only undeveloped properties in the immediate area. The
tracts at the northwest intersection of Manchester Expressway and J.R. Allen
Parkway (including the Intermet industrial site) are proposed for 300,000
square feet of commercial uses. Approximately 14 acres of this particular area
are already zoned for general commercial.
At the northeast intersection of Manchester Expressway and J.R. Allen Parkway,
the area has been proposed for multi-family residential and 160,000 square feet
of commercial uses. The site has the required zoning to develop these
activities.
d. Suitability of the Property (Current & Future Zoning): A majority
of the property is currently zoned RE1 (Residential Estate 1) district. The
property is not suitable for residential estate lots or any other type of
residential uses due to its proximity to Swift Mill and the other current
land-uses in the area. The property is better suited to commercial (GC) and
industrial (LMI) activities due to highway access and neighboring land-uses.
e. Rate of Development in the Area: There are several developments in
the construction phase or the planning stage. Besides the two developments
listed above, which are in the planning or rezoning stages, there is a
residential subdivision under construction within a mile of this development.
f. Potential Sprawl Impacts: The project is boxed in by Gateway Road /
Manchester Expressway, the existing multi-family development, Swift Mill, and
the proposed walking/biking trail. There are no other growth opportunities
for this project.
g. Other Adequate Sites: Due to the size requirements of a development
of this type, no other site is immediately available for this potential use.
h. Lot Size / Setbacks: The site shall be required to meet the lot
size requirements of the GC zoning district if the rezoning is approved.
i. Previous Site Development: The site has never been developed.
D. Environmental Impacts:
a. Flood Plain: Yes. The proposed development will come under the
regulations of the flood plain development regulations.
b. Soil Erosion & Sedimentation: The proposed development will come
under the regulations regarding soil erosion and sedimentation control.
c. Stormwater Management: The proposed development will not negatively
impact stormwater management.
d. Noise: The proposed development will not create a noise problem in
the area. Many uses in the area are industrial uses, which generate higher
noise levels than retail commercial developments.
e. Visual Effects: Staff is recommending that the design proposed by
the developer for the Super Wal-Mart site be aesthetically pleasing and
conscious of the surrounding land uses and neighborhoods. To insure this,
the proposed building elevations submitted by the developer should be
included in the adopting ordinance as a condition of this rezoning. Staff has
proposed additional design requirements as conditions to this ordinance.
The landscaping, tree, and lighting sections of the current Unified
Development Ordinance (UDO) should also be part of this rezoning request, to
insure the proper development of this site.
E. City Services:
The property is served by all City services, including public safety and water
and sewer.
Transportation for the development has been reviewed thoroughly by staff with
these findings:
? The developer was required to provide the necessary traffic impact
study to show how they would handle the additional traffic generated at this
site.
? This study was reviewed by staff and analyzed using its own computer
traffic modeling software to verify the data.
? Using nationally adopted standards from the Institute of
Transportation Engineers (ITE) the number trips to be generated by this
development. This information is represented by the following table:
? The 11,746 represent the total number of trips in and out to the
site at the PM peak. Since it represents both in and out trips, this number is
then divided by two to get the number of vehicles visiting the development, at
5,873. It is then estimated that approximately 75 percent of these vehicles
will be coming from the J.R. Parkway or 4,405.
? This estimated number of 4,405 is then added to the existing traffic
count information, along with a projected natural increase in the traffic along
this roadway, using a growth rate of 5.76 percent. As the table below
indicates, adding this additional traffic will generate a projected traffic
count for this section of 39,009 or 78 percent of the total roadway capacity of
49,900. This information is shown by the following table:
TABLE: J.R. ALLEN PARKWAY TRAFFIC ANALYSIS - 2006
Existing Traffic Count - 2004 31,030
Additional Traffic (Growth - 5.76%) - 2006 3,574
Traffic due to Development - 2006 4,405
Total Traffic Generated - 2006 39,009
Roadway Capacity - 2006 49,900
Volume-to-Capacity (VOC) Ratio - 2006 0.78
Level of Service (LOS) C
Source: Metropolitan Planning Organization
? The City has always maintained the intent to provide at a minimum a
LOS C for all of its roadways. Needed improvements are determined when a
roadway segment has been identified with a volume-to-capacity ratio higher than
85 percent of the carrying capacity.
? In order to maintain a LOS C for this section, it will require
additional improvements to the roadway segments surrounding the development
site. These improvements are outlined in the conditions of this report.
F. Community Input:
The developer and city officials held a public meeting on February 28, 2005, at
Midland Middle School. Over 200 citizens attended, most in opposition to the
proposed development. Attendees were informed of the Planning Advisory
Commission (PAC) meeting date (March 2, 2005) concerning the rezoning.
Nineteen (19) property owners were officially notified of the PAC meeting.
Several of the attendees from the public meeting attended the PAC meeting and
again voiced their opposition.
At the PAC meeting, various land-use issues were discussed including
traffic impacts, property value impacts, lighting, and sprawl. Non-land-use
issues were also raised, such as alleged effects on other businesses and
competitors and Wal-Mart?s alleged hiring, labor, and business practices.
SUMMARY
A. Reasonableness of Request:
The proposed development is consistent with the future land-use map of the
Comprehensive Plan and Commercial Development policy statement #1. It is also
compatible with existing land-uses.
B. Changes to Conditions in the Area:
a. Impact on Property Values: There is no evidence that this project
will devalue any surrounding properties.
b. Current Land-Uses: The proposed development will not affect the
basic land-use conditions in this area. As mentioned earlier, the remaining
developable properties are in the planning or constructions phases.
c. Population Density Pattern: This property will not significantly
alter the population density pattern for this area.
C. Use of Current Zoning:
A majority of the property is currently zoned RE1 (Residential Estate 1)
district. Given the size requirements (1 acre lots) for the existing zoning
and the surrounding existing uses (Swift Textiles), the property is not
suitable for additional residential development.
D. Impact of Proposed Zoning or Use:
The proposed use will not cause an excessive or burdensome use of public
facilities or services. As addressed earlier, the developer will have to make
substantial transportation improvements to accommodate the additional traffic
expected with this development and to maintain a LOS C for this area.
E. New or Changing Conditions:
The proposed use is supported by one new and changing condition not anticipated
by the Comprehensive Plan. There is a pending rezoning request for development
at the northwest intersection of Manchester Expressway and J.R. Allen Parkway
(Jacoby development), which is categorized as Industrial / Warehousing.
The Walmart project and the project at the northeast corner of Manchester
Expressway and J.R. Allen Parkway are consistent with the future land-use map
of the Comprehensive Plan.
F. Transportation:
A full report of the potential impact of this development on the transportation
system in this area has been outlined earlier in this report. Substantial
improvements will have to be made by the developer in order to accommodate this
proposed project.
RECOMMENDATIONS:
Planning Advisory Commission?s Recommendation:
Denial based upon traffic concerns and impacts. The Commission approved the
case by a vote of 4 (Douglass, Crane, Alexander, & Shields) to 3 (Dodds,
Jamison, & Mullin).
Planning Division?s Recommendation:
Conditional approval based upon facts that the proposed rezoning is consistent
with the future land use map and the Commercial Development policy statement
number 1 of the Comprehensive Plan. The proposed use has also been found to be
compatible with existing land-uses in the area. The recommended conditions are
made to insure to provide for a unified and pleasing aesthetic/visual quality
in landscaping, architecture and signage; and to promote a fully functional
transportation system, that eliminates unnecessary congestion, while promoting
alternative modes of transportation.
Prior to the issuance of a Certificate of Occupancy for any development
associated with this rezoning request, the applicant shall insure the
completion of the following improvements:
Design Conditions:
1. The development shall conform to the development requirements of the Unified
Development Ordinance.
2. The development shall include a Tree Density Unit (TDU) requirement of 20
TDUs per acre.
3. Monument and ground signs shall complement on-building signage and shall
provide a pole cover with architectural design features, including color and
materials common to those used in the design of the building(s) to which the
sign is necessary.
4. The following types of signs shall be prohibited in this development:
billboards, blinking signs, portable signs, street banners, inflatable signs /
flying signs, off-premises signs, painted wall signs, bench signs, and roof
signs.
5. Metal sided or portable buildings shall be prohibited.
6. Roofing materials for pitched or mansard roofs shall be limited to the
following:
a. Metal standing seam.
b. Tile, slate or stone.
c. Wood shakes.
d. Shingles with a slate, tile or metal appearance.
7. All mechanical, HVAC and like systems visible from Gateway Drive shall be
screened. If ground-mounted, the screen shall be comprised of materials
identical to those of the building fa?ade.
8. Any accessories provided, such as railings, benches, cart storage, trash
receptacles, and/or bicycle racks, shall complement the building design and
style.
9. Outdoor storage areas shall be attractively screened from adjacent streets.
Areas for these items shall be permanently defined and screened with walls
and/or fences and shall be affixed to the principal building. Materials,
colors, and design of screening wall and/or fences shall conform to those used
in the principal structure. If such areas are to be covered, the colors shall
conform to the colors of the principal building.
10. Parking lot areas shall not be used for storage except as approved by the
City Planning Department in their reasonable, uniform, and customary
judgment. Sale of seasonal merchandise shall be sold in parking lot areas for
no more than eight (8) weeks out of the year.
11. All utilities shall be located underground.
12. The following additional conditions shall be imposed upon any development
of a single premise of 100,000 square feet or greater:
a. The proposed building elevations of the Super Walmart submitted by
the developer shall be included in the proposed ordinance as a condition of
this rezoning and said elevation shall be included in the proposed site plans
to be submitted by the developer.
b. Walkways shall be constructed within the parking areas of the
development with trees or other landscaping features to define a
pedestrian-friendly corridor system.
c. Principal pedestrian crossings of vehicular areas shall utilize
change in materials or colors and shall implement traffic calming as may be
deemed necessary to encourage low vehicle speeds.
d. Buildings shall incorporate live plant material growing immediately
in front of or on the building.
e. The following conditions shall also apply to Property Owners of any
vacant premise in excess of 100,000 square feet:
i. The Property Owner will maintain the exterior of the building so as
to keep the appearance similar to that when the building was fully
occupied. In the event the store is damaged or destroyed as a result of
inclement weather, act of God, fire, or other catastrophe, the Property
Owner will promptly notify City officials and initiate appropriate action to
return the property to a safe and clean condition as soon as practical.
ii. The Property Owner will maintain the landscaped areas in
accordance with landscape plans approved by the City and in the same
condition as such areas were maintained when the store was open.
iii. The Property Owner will maintain the parking area in the same
condition as such area was maintained when the store was open.
iv. The Property Owner will maintain the cleanliness of the entire
site by removing any trash, rubbish, or other debris deposited on the site.
v. The Property Owner will provide security patrols on the site to
deter vandalism or other illegal activities on the property.
vi. The Property Owner shall use good faith efforts to market and
re-tenant the Premise.
vii. Should any single occupant premise in excess of 100,000 square
feet become vacant for more than 60 days, and the Owner fails to maintain
the property in accordance with the conditions listed above, the City may
notify the Owner in writing of any such failures and in the event such
failures are not cured with in 30 days, the owner shall be subject to citation
by the Inspections and Codes Division to Recorder?s Court and shall be
subject to the maximum fine permitted for ordinance violations for each
violation of any provision of this ordinance or the Columbus UDO.
13. The following transportation improvements shall be required:
a. Gateway Road - Improve from two-lanes to four-
lanes from J.R. Allen Parkway south to the main entrance
b. Gateway Road at Driveway #1 - Northbound, one shared thru/left
turn lane & add one thru lane
Southbound, one thru lane & add one shared thru/right turn lane.
Eastbound, one left turn lane & one right turn lane
c. Gateway Road at Driveway #2 - Northbound, one thru lane &
add one thru lane
Southbound, one thru lane & add one shared thru/right turn lane
Eastbound, one right turn lane
d. Gateway Road at Main Entrance - Install new Traffic Signal
Northbound, one shared thru/left turn lane & add one thru lane
Southbound, one thru lane & add one right turn lane
Eastbound, one left turn lane & one shared left/right turn lane.
e. Gateway Road at Driveway #3 - Northbound, one thru lane
Southbound, one thru/right turn lane
Eastbound, one right turn lane
f. Gateway Road at Billings Road
from Gateway Road to Miller
Road - Gateway Road ? add right turn lane & stripe existing lane as a left
turn lane
Billings Road ? Southbound, add left turn lane at Gateway Road
Billings Road ? add one lane from Gateway Road to the existing thru / right
turn lane at Miller Road
g. J.R. Allen Parkway @ Gateway
Road/Manchester Expressway
Southbound Off Ramp - Install new traffic signal
Gateway ? Northbound, add dual left turn lanes, one right turn lane
Southbound ramp, one shared thru/left turn lane and one right turn lane
Eastbound, two thru lanes & add one right turn lane
Westbound, add dual left turn lanes, two thru lanes
h. J.R. Allen Parkway @
Manchester Expressway
Southbound On Ramp - No improvements recommended
i. J.R. Allen Parkway @ Manchester
Expressway Northbound Off Ramp - Install new Traffic
Signal
Northbound, one left turn lane, add one left/thru/right turn lane the entire
length of the ramp, & add northbound receiving lane to On Ramp
Eastbound, add dual left turn lanes & two thru lanes
Westbound, two thru lanes & add one right turn lane
j. Beaver Run Road @
Flat Rock Road - No improvements recommended
k. Access to all out-parcels shall be as shown in the traffic study completed
by LAI Engineering dated February 15, 2005.
cc: Wolford Development, LLC