Center, Inc. December 11, 2019 12 & 13 Beach...2019/12/11 · Agenda Items 12 & 13 Page 1 Applicant...

Judeo-Christian Outreach Center, Inc. Agenda Items 12 & 13

Applicant & Property Owner Judeo-Christian Outreach Center, Inc. Public Hearing December 11, 2019

City Council Election District Beach

Request #12 Conditional Use Permit (Single Room Occupancy Facility) # 13 Modification of Conditions (Group Home) Staff Recommendation Approval Staff Planner Bill Landfair Location 1053 Virginia Beach Boulevard & 1049 Virginia Beach Boulevard GPINs 2417652620; 2417653527 Site Size 0.33 Acres AICUZ Greater than 75 dB DNL Watershed Atlantic Ocean Existing Land Use and Zoning District Group Home / A-12 Apartment District Surrounding Land Uses and Zoning Districts North Sportsplex Parking Lot / OR Oceanfront Resort South Multi-family dwellings / A-18 Apartment East Mixed commercial / B-2 Community Business West Birch Lake Road Mixed commercial / B-2 Community Business

Agenda Items 12 & 13


• In October 1988, the subject site was rezoned from B-2 Community Business District to A-12 Apartment District,

and a Conditional Use Permit for a Group Home was approved. Subsequent modifications and expansions to the Conditional Use Permit were granted in October 1989, February 1992, October 1993, October 1995 and April 2000.

• According to the application, the Judeo-Christian Outreach Center (JCOC) provides emergency housing to 30 men and 20 women (50 persons total) daily and serves over 44,000 annually.

• The site is currently developed with four buildings, consisting of a men’s dormitory, women’s dormitory, administration building and cafeteria building. Due to age and maintenance issues, the men’s dormitory has been condemned and is not currently operational. With the loss of this space, the JCOC currently uses one of their existing buildings as a men’s dormitory. According to the applicant, a significant amount of capital is spent on the upkeep of the buildings, and a new facility is needed.

• The applicant is requesting a Conditional Use Permit for a Single Room Occupancy (SRO) Facility to permit the construction of a new building containing 38 single room units, administration space, and kitchen/dining hall. The existing emergency, single-night housing currently provided in the dormitories will be replaced with an apartment-style building with up to 38 units where occupants will lease the units. As the existing kitchen/dining hall was approved as part of the Conditional Use Permit for a Group Home, a Modification of Conditions is requested for that component of the project to continue to serve food to the public.

• Redevelopment of the site will occur in two phases to ensure continuation of operations during construction. Phase one will include the demolition of the existing men’s dormitory and construction of the new building containing the single room units, administration space, and kitchen/dining hall. The second phase will include the demolition of the existing administration building and kitchen, and the construction of 24 parking spaces.

• The applicant will have continued use of 17 of the existing on-site parking spaces during phase one of the project. Currently, the JCOC has ten full-time staff working on-site, 8:00 a.m. to 5:00 p.m., Monday through Friday, and as such, ten spaces will be dedicated to employee parking during these time frames. The seven remaining spaces will be available for visitors’ use. Ultimately, the parking lot will have 24 spaces, 14 less than the requirement of 38, based on the Zoning Ordinance requirement of one space per unit. The applicant has provided a parking narrative in support of a reduction in parking on the basis that many of the residents do not own an automobile. A 42-inch high wall with plant material is proposed along the street frontage and will create a visible boarder that will aid in containing the activities on the site. The 24-space parking lot will be constructed with a permeable pavement system with a single point of ingress and egress along Virginia Beach Boulevard. Secured bicycle parking is a key component to the plan. Ten bicycle racks are proposed to be installed on the site. Other on-site amenities will include outdoor seating areas and garden plots for residents’ use.

• The new 20,644 square foot building will be three-stories in height. The first floor will accommodate the new administration space and kitchen/dining hall. The second and third floors will contain the residential units. In response to recent Staff comments, the applicant made modification to the building’s façade to include reducing the overall mass of the building with the use of paint and changes in height. The building’s architecture features contemporary clean lines with an emphasis on the horizontal elements of the facade. The building’s first story is clad in a dark gray brick veneer and the upper stories are clad in a combination of exterior insulation finishing system (EIFS) in a cool gray finish, recessed in places to provide a shadow line. The accent color is a slightly brighter version of the JCOC blue color and will be carried around the building at the top banding. The primary entrance includes a large angular canopy that spans almost half of the building’s length. Even though the entrance is technically recessed into the facade, it is visually very pronounced and typical of civic building

Background and Summary of Proposal


structures. The canopy will provide a human-scale element and detail in an area through which all Staff and visitors will pass. The stair tower at the northwest corner of the building creates an opportunity for a unique highlight that can be integrated into the building.

Zoning History # Request 1 MOD Approved 04/25/2000

MOD Approved 10/24/1995 MOD Approved 10/26/1993 MOD Denied 10/27/1992 MOD Approved 02/11/1992 MOD Approved 10/14/1989 REZ (B-2 to A-12) Approved 10/10/1988 CUP (Group Home) Approved 10/10/1988

2 CUP (Truck Rental) Approved 02/28/1995 3 NON Approved 6/27/1988

CUP (Parking Lot Expansion) Approved 12/12/2002 4 ALT Approved 03/17/2015 5 MOD Approved 05/10/2011

CUP (Automobile Service Station & Car Wash) Approved 10/22/1988

Application Types CUP – Conditional Use Permit REZ – Rezoning CRZ – Conditional Rezoning

MOD – Modification of Conditions or Proffers NON – Nonconforming Use STC – Street Closure

FVR – Floodplain Variance ALT – Alternative Compliance SVR – Subdivision Variance

Conditional Use Permit - Single Room Occupancy Facility The proposed request for a Conditional Use Permit for a Single Room Occupancy (SRO) Facility is, in Staff’s opinion, acceptable. While the Resort Area Strategic Action Plan, which is adopted by reference in the Comprehensive Plan, is silent on the nature of the use, the JCOC is an established entity and provides a valuable community service. The Comprehensive Plan strives to transform the resort area into a year-round, world class urban resort destination that transitions into a vibrant diverse neighborhood. In Staff’s view, a diverse neighborhood includes diversity in price points as well as diversity of its residents. The redevelopment of the site to include housing for residents seeking to transition out of homelessness creates housing variety. The location in the Central Beach District is envisioned as a pedestrian-scale, mixed-use entertainment district geared towards year-round activity for residents and visitors alike. It is possible that residents of the SRO may support the entertainment district uses through both employment and as users of the activities and venues that are evolving in the district and throughout the oceanfront. The site will transition from a campus of multiple buildings to a site with a single building that will serve all the applicant’s organizational needs from residential housing to administrative offices, to serving food to people in need to providing job training and support services. As noted above, the type of housing provided on the property is changing from a single night housing option for the homeless to a longer-term housing solution for qualified residents. Currently, the JCOC temporarily houses 50 residents each night, 30 men and 20 women in an Emergency Housing Program. This request, however, changes the type of housing provided on site, as the Emergency Housing Program is moving to the Housing Resource Center on Witchduck Road, and reduces the number of occupants to 38. Other programs will continue that include the Winter Shelter Program in which JCOC partners with community churches that

Evaluation and Recommendation

1 2

3 4 5


provide shelter at other locations to as many as 70 individuals each night during the coldest months of the year. The Joint Review Process (JRP) Group met in 2016 to discuss the redevelopment proposal of the JCOC. The JRP is a mix of City and Navy Staff charged with informing the Planning Commission and City Council whether qualifying discretionary proposals, such as a Conditional Use Permit, meets the requirements of the AICUZ Overlay Ordinance. Discretionary development applications for the redevelopment of property where the proposed dwelling unit density is the same as or lower than the actual dwelling unit density existing at the time the application is submitted are exempt from the AICUZ Overlay regulations. As the number of beds in the facility will not increase, it was determined that the application met this exemption. The subject site is located near the western edge of the Central Beach District of the Resort Area Strategic Action Plan, a pedestrian-scale, mixed-use entertainment district geared towards year-round activity for residents and visitors alike. Streetscape improvements and pedestrian connections are key guiding principles to achieve these results. In connection with necessary right-of-way improvements, such as curb and gutter, there is an opportunity along the frontage to improve pedestrian connectivity with the installation of an eight-foot wide sidewalk consistent with the sidewalk to the east of the site. Staff recommends condition 6 below to address this. The location of the building 100 feet from the right-of-way and within the center of the site, rather than at the 30-foot front yard setback along Virginia Beach Boulevard, will provide sufficient space for maneuvering of vehicles. The placement of the building almost 100 feet from the right-of-way is deliberate and will aid in addressing the current encroachment into the public realm by those waiting to be served. A 42-inch high wall is proposed along the frontage also as a means of containing the activities and guiding the visitors on the site away from public property. This wall and the evergreen plantings will provide a screen of the parking lot from the right-of-way. The existing mature trees on the property will provide a visual buffer for the residential uses to the south from the planned redevelopment of the site. Existing mature trees and proposed fencing along the side property lines will aid in screening this site from the adjacent commercial uses to the east and west. The outdoor amenity space proposed in the rear of the property will encourage outdoor activities within the interior of the site, rather than along the front of the property as historically has occurred. While it would be desirable to extend a sidewalk from the front of the building to the public sidewalk along the street, Staff recognizes that it may be difficult to do so given the location of existing trees. As previously noted, the parking lot will have 24 spaces, 14 less than the requirement of 38, based on the Zoning Ordinance requirement of one space per unit. The Ordinance permits a reduction in the requirement if special conditions warrant such a reduction. The applicant provided a parking narrative in support of a reduction on the basis that many of the residents will not own an automobile. The applicant states that the 24 spaces will be sufficient for the eleven full-time Staff (eight of whom leave by 5:00 pm each day), the volunteers who assist with the dining hall program on a daily basis, and the additional volunteers who assist with dinner service. However, to supplement the parking the JCOC proposes to shuttle the volunteers from 401 West Lane, which is the location of the JCOC’s Transitional and Permanent Supportive Housing program, located approximately one mile west of the subject site. This site has 33 parking spaces, eleven more than are required by the Zoning Ordinance for its land use. Staff recommends Condition 8 for the modification of conditions application to formalize the use of the JCOC’s 10 passenger van when necessary. Staff recommends approval of the SRO. The current aging facilities need replacement. The proposed new facility will ensure that their current programmed services will continue, albeit some will be at another location, as well as allow the JCOC to take advantage of new grant programs available to reach even more of the disadvantaged in the community. The redevelopment of the property will establish affordable housing for the single homeless population, provide new kitchen/dining hall space to accommodate food services for the community, and new administrative office space to operate more efficiently. Modification of Conditions - Group Home The proposed request for a Modification of Conditions to the Group Home is, in Staff’s opinion, acceptable. As noted above, the JCOC serves over 44,000 free meals annually to their residents as well as to many neighbors in need. The food pantry and Food Box program provide over 136,000 meals each year to help families and individuals remain in


housing and not have to make a choice between paying rent or buying groceries. Their food service programs also provide opportunities to engage the homeless about the housing services available to help them transition out of homelessness. The JCOC and its volunteers serve prepared dinners every evening from 6:00 p.m. to 8:00 p.m.PM. Breakfast is also provided on Saturday mornings. The number of individuals being provided dinners each evening ranges from 60 to 100, with 70 to 80 persons being the norm. Saturday breakfast typically serves 25 to 35. The kitchen/dining hall in the new building will enable JCOC to operate more efficiently. However, the size and capacity of the dining hall will not increase and will maintain a seating capacity of 110 persons. The placement of the building almost 100 feet from the right-of-way is deliberate and will aid in addressing the current encroachment into the public realm by those waiting to be served. The 42-inch high wall proposed along the frontage will also help to contain the activities and guide visitors away from public property. As noted in the parking narrative, many of the residents will not own an automobile and most of the eleven full-time Staff leave the property by 5:00 p.m. each day. As such, most of the demand for the 24 parking spaces on site after 5:00 p.m. will be from the volunteers who assist with the dinner service. The JCOC is prepared to implement a van shuttle program to transport staff and volunteers from a satellite parking facility they own located at 401 West Lane to the subject property when insufficient parking is available on site. At the request of Planning Staff, a letter was provided from the Virginia Beach Police Department noting the significant resources and the high volume of calls for service to the JCOC and immediate surrounding area. In sum, the JCOC can continue to provide food service to the public on this site within the existing aging buildings without any of the proposed upgrades to the property and without implementing the planned patron access and parking deficiency practices. Staff recommends approval of the Modification of Conditions subject to the conditions listed below that, along with operational and site layout modifications proposed, are designed to address the concerns of the Police Department and the adverse impacts that some surrounding properties currently experience. For example, the new building’s design accommodates those awaiting food service, as they will queue inside the building and are not allowed to wait outside, as per condition 3 on page 6. Also, additional off-site parking is required for volunteers, per condition 8 of the SRO and condition 12 of the Group Home, to ensure enough parking is available to both residents and those seeking services. Staff believes that the proposed development will better address off-site concerns than the current operation. With condition 2 on page 6, the proposed use will expire within two years of the Certificate of Occupancy being issued and be required to request approval for a new modification to extend the operations of the dining hall open to the public. Any impacts based on the new operations and building can be addressed through Zoning Enforcement and through the public hearing process once the applicant applies for the request of the extension of the approval.

1. No more than 50 Single Room Occupancy units shall be on site.

2. Site layout, improvements, and plantings shall be substantially as shown on the conceptual master plan and

planting plan titled, “JUDEO-CHRISTIAN OUTREACH CENTER CAMPUS DEVELOPMENT” dated March 8, 2019, as prepared by WPL. Said drawings have been exhibited to the City Council and are on file in the Department of Planning.

3. The architectural design, colors, and materials for the proposed building shall be substantially as shown on the architectural elevations titled “JUDEO-CHRISTIAN OUTREACH CENTER dated August 26, 2019, by TS 3 Architects. Said drawings have been exhibited to the City Council and are on file in the Department of Planning.

Recommended CUP SRO Conditions


4. All landscaping shall be maintained in good health. Any landscaping that fails to grow or is determined to be in poor health shall be replaced with a type and quantity of plantings that is similar to and meets the same intent as the plants shown on the Planting Layout referenced in Condition #1. Any replacement plantings shall be approved by the Development Services Center.

5. All mechanical equipment shall be screened year-round either architecturally or by landscaping or fencing such

that it is not visible from the public right-of-way.

6. The applicant shall make all necessary standard right-of-way improvements with the development of this site. Improvements may include but are not limited to pavement widening, curb & gutter, and a new sidewalk. The new sidewalk shall be constructed with a minimum width of eight feet, or as otherwise approved by the Planning Department, to ensure compliance with the Resort Area Strategic Action Plan’s recommendations with regard to pedestrian connectivity. Additional adjustments and requirements for right-of-way improvements may be applied as part of the final site plan review.

7. All signage on the site shall comply with the requirements of Sections 211, 212, 213, 214, 216 and 905 of the City Zoning Ordinance. A separate sign permit shall be obtained from the Zoning Division prior to the installation of any signage.

8. The applicant shall implement a van shuttle program to transport Staff and volunteers from a satellite parking facility located at 401 West Lane to the subject property when necessary.

1. All the conditions associated with the Conditional Use Permit and Modifications of Conditions associated with

the Group Home, dated, October 1989, February 1992, October 1993, October 1995 and April 2000, shall be deleted and replaced with the conditions below.

2. This Conditional Use Permit for the Group Home shall expire two years from the date of the Certificate of Occupancy.

3. Patrons awaiting food service shall be accommodated and served inside the building.

4. All food served to the public shall cease by 9:00 p.m.

5. A lighting plan shall be submitted during the site plan review process to ensure proper safety and security on the site. All lighting shall be directed away from the nearby residentially zoned property.

6. Site layout, improvements, and plantings shall be substantially as shown on the conceptual master plan and planting plan titled, “JUDEO-CHRISTIAN OUTREACH CENTER CAMPUS DEVELOPMENT” dated March 8, 2019, as prepared by WPL. Said drawings have been exhibited to the City Council and are on file in the Department of Planning.

7. The architectural design, colors, and materials for the proposed building shall be substantially as shown on the architectural elevations titled “JUDEO-CHRISTIAN OUTREACH CENTER dated August 26, 2019, by TS 3 Architects. Said drawings have been exhibited to the City Council and are on file in the Department of Planning.

8. All landscaping shall be maintained in good health. Any landscaping that fails to grow or is determined to be in poor health shall be replaced with a type and quantity of plantings that is similar to and meets the same intent

Recommended Group Home Conditions


as the plants shown on the Planting Layout referenced in Condition #1. Any replacement plantings shall be approved by the Development Services Center.

9. All mechanical equipment shall be screened year-round either architecturally or by landscaping or fencing such

that it is not visible from the public right-of-way.

10. The applicant shall make all necessary standard right-of-way improvements with the development of this site. Improvements may include but are not limited to pavement widening, curb & gutter, and a new sidewalk. The new sidewalk shall be constructed with a minimum width of eight feet, or as otherwise approved by the Planning Department, to ensure compliance with the Resort Area Strategic Action Plan’s recommendations with regard to pedestrian connectivity. Additional adjustments and requirements for right-of-way improvements may be applied as part of the final site plan review.

11. All signage on the site shall comply with the requirements of Sections 211, 212, 213, 214, 216 and 905 of the City Zoning Ordinance. A separate sign permit shall be obtained from the Zoning Division prior to the installation of any signage.

12. The applicant shall implement a van shuttle program to transport Staff and volunteers from a satellite parking facility located at 401 West Lane to the subject property when necessary.

Further conditions may be required during the administration of applicable City Ordinances and Standards. Any site plan submitted with this application may require revision during detailed site plan review to meet all applicable City Codes and Standards. All applicable permits required by the City Code, including those administered by the Department of Planning / Development Services Center and Department of Planning / Permits and Inspections Division, and the issuance of a Certificate of Occupancy, are required before any uses allowed by this Use Permit are valid. The applicant is encouraged to contact and work with the Crime Prevention Office within the Police Department for crime prevention techniques and Crime Prevention Through Environmental Design (CPTED) concepts and strategies as they pertain to this site.

Adopted in 2008, the Resort Area Strategic Action Plan (RASAP) is currently undergoing an update. However, many of the guiding principles from the 2008 plan will remain as the vision and implementation steps evolve. The plan strives to transform the resort area into a year-round, world class urban resort destination that transitions into a vibrant diverse neighborhood. Three distinct yet complementary districts – Laskin Gateway, Central Beach, and Rudee Marina – are envisioned to extend the energy at the beach into the adjoining blocks of these districts through streetscape improvements, connective uses, and view corridors. The subject site is located near the western edge of the Central Beach District, a pedestrian-scale, mixed-use entertainment district geared towards year-round activity for residents and visitors alike. Streetscape improvements and pedestrian connections are key guiding principles to achieve these results.

The property is within the Atlantic Watershed. There does not appear to be any significant natural or cultural features associated with the site.

Comprehensive Plan Recommendations

Natural and Cultural Resources Impacts


Street Name Present Volume Present Capacity Generated Traffic

Virginia Beach Boulevard 10,412 ADT 1 14,800 ADT 1 (LOS 2 “C”) 22,800 ADT 1 (LOS 2 “D”) No data available*

1 Average Daily Trips – Summer 2017 2 LOS = Level of Service Master Transportation Plan (MTP) and Capital Improvement Program (CIP) In the vicinity of this site, Virginia Beach Boulevard is considered a four-lane undivided minor urban arterial. The existing infrastructure currently resides in a variable width right-of-way. The MTPP proposes a four-lane facility within a 145-foot right-of-way. There are no roadway CIP projects slated for this area. Currently, this segment of roadway is functioning under capacity at a Level of Service C or better. *The ITE Trip Generation manual does not contain study information for this type of land use. Since the development under this application does not change the land use from existing to proposed conditions, the trip generation could not be determined for either condition. However, Traffic Engineering Staff does not anticipate a significant increase in traffic volume with the redevelopment. Standard right-of-way improvements will be required with the development of this site. Improvements include but are not limited to pavement widening, curb and gutter, and sidewalk to match the improvements to the east and west of this property. Additional requirements may be applied as part of development site plan review.

Water This site currently connects to City water. The existing water meter can be used or upgraded to accommodate the proposed development. There is an existing 24-inch and two 12-inch City water lines on Virginia Beach Boulevard. Sewer This site currently connects to City sewer. There is an existing 20-inch City sewer force main on Virginia Beach Boulevard.

Public Outreach Information Planning Commission

• The applicant reported that they have met with various local groups and associations to discuss and review the plans, including the Virginia Beach Resort Advisory Commission, the Seabridge Civic League, and the Seatack Civic League.

• As required by the Zoning Ordinance, the public notice sign(s) was placed on the property on October 14, 2019. • As required by State Code, this item was advertised in the Virginia Pilot Beacon on Sunday, November 24, 2019

and Sunday, December 1, 2019 • As required by City Code, the adjacent property owners were notified regarding the request and the date of the

Planning Commission public hearing on November 26, 2019 • This Staff report, as well as all reports for this Planning Commission’s meeting, was posted on the Commission’s

webpage of www.vbgov.com/pc on December 5, 2019.

Traffic Impacts

Public Utility Impacts

http://www.vbgov.com/pc


City Council • As required by City Code, this item was advertised in the Virginia Pilot Beacon on Sundays, March 22, 2020 and

March 29, 2020.

• As required by City Code, the adjacent property owners were notified regarding both the request and the date of the City Council’s public hearing on March 23, 2020.

• The City Clerk’s Office posted the materials associated with the application on the City Council website of

https://www.vbgov.com/government/departments/city-clerk/city-council/Documents/BookmarkedAgenda.pdf on April 3, 2020.

https://www.vbgov.com/government/departments/city-clerk/city-council/Documents/BookmarkedAgenda.pdf

https://www.vbgov.com/government/departments/city-clerk/city-council/Documents/BookmarkedAgenda.pdf


Proposed Site Layout


Proposed Planting Plan


Proposed Elevation


Building Façade


Site Photos


Disclosure Statement


• Upon receiving a recommendation from Planning Commission, this request will be scheduled for a City Council public hearing. Staff will inform the applicant and/or their representative of the date of the hearing in the upcoming days.

• Following City Council’s decision, the applicant will receive a decision letter from Staff.

• Once the conditions of approval are in place and/or completed, the applicant must contact the Zoning Division of the Planning Department to obtain verification that the conditions have been met. Contact the Zoning Division at 757-385-8074.

• If the request requires land disturbance and/or a subdivision of property, please contact the Development

Services Center (DSC) to discuss next steps for site plan/plat review. Contact the DSC at 757-385-4621 or the Development Liaison Team at 757-385-8610.

• Please note that further conditions may be required during the administration of applicable City Ordinances and

Standards. Any site plan submitted with this application may require revision during detailed site plan review to meet all applicable City Codes and Standards. All applicable permits required by the City Code, including those administered by the Department of Planning / Development Services Center and Department of Planning / Permits and Inspections Division, and the issuance of a Certificate of Occupancy, are required before any approvals allowed by this application are valid.

• The applicant is encouraged to contact and work with the Crime Prevention Office within the Police Department

for crime prevention techniques and Crime Prevention Through Environmental Design (CPTED) concepts and strategies as they pertain to this site.

Next Steps

Center, Inc. December 11, 2019 12 & 13 Beach...2019/12/11 · Agenda Items 12 & 13 Page 1 Applicant...

Documents

Transcript of Center, Inc. December 11, 2019 12 & 13 Beach...2019/12/11 · Agenda Items 12 & 13 Page 1 Applicant...