County of Loudoun. Department of Planning and Zoning MEMORANDUM

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1 County of Loudoun Department of Planning and Zoning MEMORANDUM DATE: June 12, 2015 TO: FROM: Jacqueline Harlow, Project Manager Planner III, Land Use Review Kelly Williams, Planner III Community Planning SUBJECT: ZRTD , Ashburn North- Equinix EXECUTIVE SUMMARY The applicant, Equinix RP II, LLC is requesting a Zoning Conversion (ZRTD) from the Revised 1993 Zoning Ordinance to the newly amended Revised 1993 Zoning Ordinance for the Ashburn North property (formally known as a part of Beaumeade North Parcel C). The approximately acre parcel, located within the Beaumeade Corporate Park is governed by the policies of the Revised General Plan and the Dulles North Area Management Plan. The site is located in the Ashburn Community of the Suburban Policy Area and designated for business uses. The property is considered under the Route 28 Business policies of the Plan. Converting property into the Revised 1993 Zoning Ordinance is consistent with the goals of the Comprehensive Plan. Staff recommends approval of the application. BACKGROUND Equinix RP II, LLC has submitted an application for a Zoning Conversion to convert a portion of Parcel C within Beaumeade Corporate Park from Planned Development Industrial Park (PD-IP) under the Revised 1993 Zoning Ordinance to PD-IP in the newly amended Revised 1993 Zoning Ordinance. The parcel is currently subject to ZRTD with proffers that reference the Zoning Ordinance in effect at the time of approval, and not any future amendments. The purpose of this application is to allow the property to be developed under the current Zoning Ordinance and any future Ordinance amendments. Attachment 1a A-1

2 ZRTD Ashburn North-Equinix Community Planning First Referral June 12, 2015 Page 2 The property is located south of Gloucester Parkway, west of Loudoun County Parkway, and north of the W&OD Trail. Surrounding uses include Redskins Park to the east, vacant land and the Ashby Pond Continuing Care Retirement Community to the north, a Dominion Virginia Power substation is located to the west, and data center uses to the south within Beaumeade Corporate Park. COMPLIANCE WITH THE COMPREHENSIVE PLAN The subject site is governed by the Route 28 Business policies outlined in Loudoun County s Revised General Plan and is located within the Ashburn Community of the Suburban Policy Area and within the Route 28 Highway Improvement Transportation District (Revised General Plan, Chapter 6, Suburban Community Boundaries Map and Route 28 Corridor Plan Planned Land Use Map). The application has been reviewed under the Revised General Plan Economic Development Policies of Chapter 4, Suburban Policies and the Route 28 Business Policies of Chapter 6, the Green Infrastructure policies of Chapter 5, and the Design Guidelines of Chapter 11. ANALYSIS & RECOMMENDATION The County envisions the Route 28 Corridor as a major economic and employment center with predominately commercial development within distinct land development patterns (Revised General Plan, Chapter 6, Route 28 Corridor Plan, Land Use Text). The Route 28 Corridor Plan Land Development Patterns Map identifies the subject site as suitable for Route 28 Business uses (Revised General Plan, Chapter 6, Route 28 Corridor Plan Land Development Patterns Map). The subject site is planned for Route 28 Business (Revised General Plan, Chapter 6, Route 28 Corridor Plan, Route 28 Land Development Patterns Map) which supports up to 100% office and flex uses with floor area ratios (FAR) between 0.4 to 1.0 (Revised General Plan, Chapter 6, Route 28 Corridor Plan, Route 28 Business Area Policies, Policy 1 and 8). The Revised General Plan provides policy direction encouraging property owners within the Route 28 Tax District to convert to the Revised 1993 Zoning Ordinance in order to provide consistent development patterns within the District. The Plan states: The County will look at developing incentives to encourage Route 28 Tax District landowners to opt into the revised zoning ordinance (Revised General Plan, Chapter 4, Economic Development Policy 14). While the PD-IP zoning district allows for uses envisioned for the Route 28 Business areas, the PD-IP district does not necessarily maximize the development potential envisioned for Route 28 Business areas. The County encourages Route 28 Tax District landowners to rezone to appropriate zoning districts in the revised zoning ordinance that are consistent with A-2

3 ZRTD Ashburn North-Equinix Community Planning First Referral June 12, 2015 Page 3 the County s overall land use vision (Revised General Plan, Chapter 6, Route 28 Corridor Plan, General Policy 22). Staff encourages the Applicant to consider developing under the newly adopted Route 28 Corridor Business (CB) Optional Overlay District that permits a 0.6 Floor Area Ratio by-right and up to a 1.0 Floor Area Ratio with incentive elements to maximize the property s development potential. Other incentives include higher permitted lot coverage, reduced setbacks, parking space requirement reduction for structured parking, and others. Plan policies support the proposed conversion and Staff recommends approval. cc: Ricky Barker, AICP, Director, Planning and Zoning (via ) John Merrithew, AICP, Assistant Director (via ) A-3

4 COUNTY OF LOUDOUN DEPARTMENT OF PLANNING AND ZONING ZONING ADMINISTRATION REFERRAL DATE: July 7, 2015 TO: FROM: APPLICATION: Jacqueline Harlow, Land Use Review Planner Mark A. Depo, Planner, Zoning Administration ZRTD , Ashburn North - Equinix 1st Submission Review PROPERTY: Tax Map: /80//13////C2/ PIN: Staff has reviewed the provided Ashburn North - Equinix Rezoning Statement of Justification dated May 18, 2015; Proffer Statement dated April 22, 2015; and Concept Development Plan (CDP) Sheets 1-3 dated May 19, 2015 for the above referenced Rezoning Route 28 District (ZRTD) application. CONCEPT DEVELOPMENT PLAN Sheet 1 of 3, Cover 1. General Note 1. Amend the second sentence by removing the word as that follows property. 2. General Note 4. Staff recommends that the second sentence include the zoning of the Property (PD-IP) and include Loudoun County when referring to the referenced zoning ordinances, as follows: The purpose of this ZRTD application is to convert the PD-IP zoning of the property from the 1993 Loudoun County Zoning Ordinance in effect on July 12, 2012 to the Revised 1993 Loudoun County Zoning Ordinance, as amended. 3. General Note 19. Zoning Staff questions whether the modification to permit private streets is applicable to this application. If so, Zoning Staff further questions whether such modification may be applied to this ZRTD request or whether a new modification must be requested and approve with this application. Sheet 3 of 3, Concept Development Plan 4. Please be advised, in reference to the listed yard (setback) requirements of the PD-IP zoning district, Zoning Ordinance Section 4-505(B)(1) requires that no outdoor storage, areas for collection of refuse, or loading space shall be permitted in such setbacks. STATEMENT OF JUSTIFICATION 5. Zoning Map Amendment Matters for Consideration. In the first full sentence of Page 2, amend the referenced Zoning Ordinance Section from (E) to (E). Attachment 1b A-4

5 ZRTD , Ashburn North - Equinix July 7, 2015 Page 2 6. Zoning Map Amendment Matters for Consideration. Revise Pages 2-4 to address the issues of consideration of Zoning Ordinance Section (E)(1) to (6). The Zoning Map Amendment issues of consideration have been amended and Section (E)(1) to (15) are no longer valid. A-5

6 COUNTY OF LOUDOUN DEPARTMENT OF PLANNING AND ZONING ZONING ADMINISTRATION REFERRAL DATE: August 25, 2015 TO: FROM: APPLICATION: Jacqueline Harlow, Land Use Review Planner Mark A. Depo, Planner, Zoning Administration ZRTD , Ashburn North - Equinix 2 nd Submission Review PROPERTY: Tax Map: /80//13////C2/ PIN: Staff has reviewed the provided Ashburn North - Equinix Rezoning Statement of Justification dated July 30, 2015; Proffer Statement dated July 30, 2015; and Concept Development Plan (CDP) Sheets 1-3 dated May 19, 2015 (Revised August 5, 2015) for the above referenced Rezoning Route 28 District (ZRTD) application. STATEMENT OF JUSTIFICATION Pursuant to Section (E), the applicant shall address all the following in its statement of justification or plat unless not applicable. Issues of Consideration (1) Appropriateness of the proposed uses based on the Comprehensive Plan, trends in growth and development, the current and future requirements of the community as to land for various purposes as determined by population and economic studies and other studies and the encouragement of the most appropriate use of land throughout the locality. (2) The existing character and use of the subject property and suitability for various uses, compatibility with uses permitted and existing on other property in the immediate vicinity, and conservation of land values. (3) Adequacy of sewer and water, transportation, and other infrastructure to serve the uses that would be permitted on the property if it were reclassified to a different zoning district. Zoning Justification Concerns Issue is addressed in the Statement of Justification. Zoning will defer Statement of Justification comments regarding this issue to the Department of Planning and Zoning, Comprehensive Planning. Issue is addressed in the Statement of Justification. The proposed use is consistent with the approved use of the property. Correct the spelling of compatibility in the issue statement. Issue is addressed in the Statement of Justification. Zoning will defer Statement of Justification comments regarding this issue to the Department of Transportation and Capital Infrastructure. A-6

7 ZRTD , Ashburn North - Equinix August 25, 2015 Page 2 (4) The requirements for airports, housing, schools, parks, playgrounds, recreational areas and other public services. (5) Potential impacts on the environment or natural features including but not limited to wildlife habitat, wetlands, vegetation, water quality (including groundwater), topographic features, air quality, scenic, archaeological, and historic features, and agricultural and forestal lands and any proposed mitigation of those impacts. (6) The protection of life and property from impounding structure failures. Issue is addressed in the Statement of Justification. Issue is addressed in the Statement of Justification. Zoning will defer Statement of Justification comments regarding this issue to the Environmental Review Team. Issue is addressed in the Statement of Justification. Zoning will defer Statement of Justification comments regarding this issue to the Environmental Review Team and Building and Development. CONCEPT DEVELOPMENT PLAN Zoning has no additional comments related to the Concept Development Plan. A-7

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11 COUNTY OF LOUDOUN, VIRGINIA DEPARTMENT OF ECONOMIC DEVELOPMENT MEMORANDUM DATE: July 2, 2015 TO: FROM: THRU: Jacqueline Harlow, Planner, Department of Planning and Zoning Buddy Rizer, Director, Department of Economic Development Karen Lanham, Real Estate Intelligence Manager, Department of Economic Development SUBJECT: ZRTD , Ashburn North Equinix The Department of Economic Development (DED) is responding to a request from the Department of Planning and Zoning for referral review of the proposed Ashburn North Equinix application. The applicant proposes to rezone acres from PD-IP governed by the Revised 1993 Loudoun County Zoning Ordinance through ZRTD (approved on ) to PD-IP governed by the most recent version of the Revised 1993 Loudoun County Zoning Ordinance as amended. DED is supportive of this application as it will allow the applicant to maximize the property s development potential. Attachment 1c A-11

12 County of Loudoun Department of Transportation and Capital Infrastructure MEMORANDUM DATE: June 24, 2015 TO: FROM: Jacqueline Harlow, Project Manager Department of Planning and Zoning Rory L. Toth, CZA, Senior Transportation Planner DTCI, Transportation Planning & Operations Division SUBJECT: ZRTD Ashburn North-Equinix First Referral Background This Zoning Map Amendment in the Route 28 Tax District (ZRTD) proposes to rezone approximately acres from the PD-IP (Planned Development Industrial Park) zoning district under the Revised 1993 Loudoun County Zoning Ordinance (as rezoned with ZRTD approved in July 17, 2012) to the PD-IP zoning district under the Revised 1993 Zoning Ordinance (Zoning Ordinance), as amended. The site is located west of Loudoun County Parkway (VA Route 607), north of Beaumeade Circle (VA Route 3037) and the W & OD Trail and south of Gloucester Parkway (VA Route 2150). The site is currently vacant and has two existing ROW access points (one opposite Redskin Park Drive and the other approximately 700 feet to the south) along Loudoun County Parkway. A vicinity map is provided as Attachment 1. This review is based on materials received from the Department of Planning and Zoning on May 28, 2015, including (1) an information sheet, dated May 27, 2015; (2) a Statement of Justification dated May 18, 2015; (3) Draft Proffer Statement dated April 22, 2015; (4) Concept Development Plan (CDP) ( ZRTD Plat ) prepared by Pennoni Associates, Inc., dated May 19, 2015; and (5) the Generalized Traffic Statement for Zoning Map Amendment Applications in the Route 28 Tax District, revised July 2012 (commonly referred to as the Route 28 Generalized Traffic Statement ), which reviews and compares the traffic impacts of various land uses under the 1972, 1993 and Revised 1993 Zoning Ordinances. Compliance with the Countywide Transportation Plan The site is located within the Suburban Policy Area (Ashburn Community). The transportation network is specifically governed by the policies of Countywide Transportation Plan (2010 CTP) and the Bicycle & Pedestrian Mobility Master Plan (2003 Bike & Ped Plan). The Department of Transportation and Capital Infrastructure s (DTCI s) assessment of the transportation network is based on review of existing, planned and programmed transportation facilities, review of the Route 28 Generalized Traffic Statement, and applicable County policies. Attachment 1d A-12

13 Existing, Planned and Programmed Transportation Facilities ZRTD Ashburn North Equinix DTCI First Referral Comments June 24, 2015 Page 2 The site is located west of Loudoun County Parkway (VA Route 607), north of Beaumeade Circle (VA Route 3037) and the W & OD Trail and south of Gloucester Parkway (VA Route 2150). Descriptions for planned conditions of CTP roads are taken from Appendix 1 of the 2010 CTP; descriptions of planned bicycle and pedestrian facilities on CTP roads are taken from Appendix 6 of the 2010 CTP and the 2003 Bike & Ped Plan. Loudoun County Parkway (VA Route 607) (segment between Harry Byrd Highway (VA Route 7) and Waxpool Road (VA Route 625)) is classified as a minor arterial in the 2010 CTP. As currently constructed, Loudoun County Parkway varies between two and four-lanes, with and without medians, (U2/U4M) in the vicinity of the site. It its ultimate condition, the 2010 CTP calls for this segment to be a six-lane divided (U6M) minor arterial roadway within a 120- foot ROW. Left- and right-turn lanes are required at all intersections. According to 2014 Daily Traffic Volume Estimates from VDOT, the segment of Loudoun County Parkway from Waxpool Road to VA Route 7 carries approximately 15,000 vehicles per day. It is noted that the developer of Beaumeade North (Lerner) is currently widening the remaining two-lane section of Loudoun County Parkway (for a total of four lanes as shown on construction plans and profiles CPAP ) across the site frontage from the W & OD Trail north to Gloucester Parkway. The expected completion date (by the developer) of this segment of Loudoun County Parkway is Fall It is important to note that modified process site plan STMP is currently processing in the County on the subject site. This site plan proposes approximately 1,161,222 square feet of data center uses or a maximum 0.6 FAR (the maximum allowed FAR approved with ZRTD & SPEX and the Revised 1993 Zoning Ordinance) on the site. It is noted that STMP (active) contains a label which states that the existing ROW for the southern entrance along Loudoun County Parkway will be vacated and a proposed ROW line is depicted. Please see the Transportation Comments and Recommendations section of this referral for additional comments on this matter. Loudoun County Parkway is referenced in the 2003 Bike & Ped Plan as a baseline connecting roadway along which bicycle and pedestrian facilities are envisioned. Furthermore, Appendix 6 of the 2010 CTP calls for 10-foot wide shared use paths (within a 14-foot wide public access easement or within the ROW) along both sides of planned six-lane roadways. Currently, there are no bicycle and pedestrian facilities along Loudoun County Parkway in the vicinity of the site. However, STMP (active) depicts a 10-foot wide asphalt trail within a 14-foot wide easement along the entire site s frontage with Loudoun County Parkway along with a 10- foot trail connection south to the W&OD Trail. Patriot Drive is a proposed private street running in an east-west direction, ending in a cul-desac, which provides access to the subject site (opposite Redskins Park Drive) from Loudoun County Parkway. According to STMP (active), dual left-turn lanes will be provided onto northbound Loudoun County Parkway and a shared thru/right-turn lane onto southbound Loudoun County Parkway. One thru-lane and one left-turn lane are provided along Patriot Drive into the subject site. In addition, DTCI notes that STMP (active) depicts a five-foot wide sidewalk along the southern side of Patriot Drive, consistent with the 2003 Bike & Ped Plan (Chapter 4, Walkways & Sidewalks Policy 2a). A-13

14 ZRTD Ashburn North Equinix DTCI First Referral Comments June 24, 2015 Page 3 It is important to note that ZRTD and SPEX , which was approved by the County on July 17, 2012 allows up to 0.6 FAR of uses and included numerous transportation improvement proffers and conditions in the vicinity of the site. In addition to the subject site, ZRTD also included the adjacent property to the north (PIN ). The ZRTD application, to an extent, has retained many of the previously approved transportation improvement proffers and conditions. Please see the Transportation Comments and Recommendations section of this referral for additional comments on this matter. Review of Traffic Statement for Route 28 ZMAP Applications to the Current Zoning Ordinance The Route 28 Generalized Traffic Statement included with this application (provided as Attachment 2) was approved by the Board of Supervisors on May 20, 2008 and revised in July The purpose of this generalized traffic statement is to expedite the processing of zoning conversion (ZRTD) applications. The preparation and scoping of a separate traffic study requires additional time and expense prior to the acceptance of rezoning and special exception applications at the initial checklist stage. The use of a ready-made generalized traffic statement, which the Applicant includes with the initial application submittal, helps to facilitate this process. DTCI notes that the Route 28 Generalized Traffic Statement was primarily intended for conversion applications within the PD-OP and PD-IP zoning districts. The Route 28 Generalized Traffic Statement indicates that the intersection of Loudoun County Parkway (VA Route 607) and Waxpool Road (VA Route 625) (the nearest intersection to the site included in the generalized traffic statement) operated at LOS F during the AM and PM peak period based on traffic data from the timeframe. The generalized traffic statement also forecasts that in the future (2015) this intersection would operate at LOS F in the AM and PM peak period. Trip Generation from Proposed Development The application draft proffers do not limit the development on the site to any particular use. As stated previously, Staff notes that a site plan (STMP (active)) has been submitted to the County for review and the latest submission currently proposes 1,161,222 square feet of data center uses in the PD-IP zoning district under the Revised 1993 Zoning Ordinance as amended. It is understood that the Revised 1993 Loudoun County Zoning Ordinance approved at the time ZRTD & SPEX was approved allowed for up to 0.4 FAR of PD-IP uses with a 0.6 FAR by special exception with numerous special exception conditions and proffered commitments. It is important to note that under the Revised 1993 Zoning Ordinance, ZOAM was approved on April 2, 2014, which increases the allowable by-right FAR from 0.4 FAR to 0.6 FAR of PD-IP uses by-right, which would yield approximately 1,161,222 square feet of FAR on the acre site. Based on the trip rates published in the Institute of Transportation Engineers (ITE) Trip Generation Report, 9 th Edition, DTCI has developed the following table to show a comparison of trips potentially generated by the most intense traffic generating use (i.e. office) versus data center uses allowed under the Revised 1993 Zoning Ordinances. A-14

15 Table 1-Trip Generation Comparison for Ashburn North, Equinix ZRTD Ashburn North Equinix DTCI First Referral Comments June 24, 2015 Page 4 Maximum Permitted By-Right Uses in the PD-IP Zoning District ITE Code AM Peak PM Peak Weekday Total Revised 1993 Zoning Ordinance 0.6 FAR 100% Office 1,161,222 SF 710 1,812 1,730 12,808 Revised 1993 Zoning Ordinance 0.6 FAR Data Center 1,161,222 SF ,150 Net Difference (Revised 1993 Zoning Ordinance Office Use versus Data Center Use) -1,707-1,625-11,658 As shown in Table 1 above, the existing Revised 1993 Zoning Ordinance could permit up to 100% office uses of up to 1,161,222 square feet or 0.6 FAR on the site by-right. Alternatively, the site could also have up to 1,161,222 square feet or 0.6 FAR of by-right data center uses. This conversion could yield 1,707 fewer AM peak hour, 1,625 fewer PM peak hour, and 11,658 fewer daily vehicular trips than the existing zoning approvals on the property. Transportation Comments and Recommendations DTCI staff has reviewed the Applicant s submitted materials and has the following comments: 1. The specific uses proposed with this application have not been detailed. DTCI understands that zoning conversions typically do not involve a specified land use and that the Board of Supervisors wishes to facilitate the conversions by not requiring detailed plans and studies. Therefore, DTCI is not making specific observations and recommendations regarding traffic impacts for this proposed conversion. 2. Due to the absence of specific development information, the Applicant s concept development plan cannot be evaluated for specific transportation improvements. Therefore, it is unclear what site-specific transportation related improvements may be needed. 3. DTCI notes that the ZRTD application draft Proffer 2 proposes a commitment to regional road improvement contribution of $81,922.50, consistent with the approved proffers for ZRTD Regarding draft Proffer 4, DTCI recommends the proffer language be clarified to state that the trigger for the traffic signal warrant analysis shall be submitted to the County and VDOT with the first site plan for development in excess of 744,130 square feet. On Line 6, the language should include the words if deemed warranted by VDOT after the word If. On Line 12, the words additional traffic signal warrant study should be added after the word an and that the trigger for additional traffic signal analyses should be changed from at zoning permit, to a site plan in excess of 744,130 square feet and constructed or bonded for construction prior to site plan approval. A-15

16 ZRTD Ashburn North Equinix DTCI First Referral Comments June 24, 2015 Page 5 5. Regarding draft Proffer 5, clarify if it is the Applicant s intent to construct a second (dual) left-turn lane beyond the one currently being constructed on Loudoun County Parkway. Revise the proffer accordingly. In addition, regarding draft Proffer 5 Line 1, DTCI recommends the words Prior to site plan and/or CPAP approval be added before the word The. Also, on Line 1, add the words or bond for construction after the word construct. On Line 2, add the words onto Patriot Drive after the word Parkway. 6. Regarding draft Proffer 6, Line 1, DTCI recommends the words within a 14-foot wide public access easement or ROW be added after the word trail. In addition, the aforementioned trail is not shown on the CDP. Revise Sheet 3 of the CDP to depict the 10-foot wide asphalt trail within a 14-foot wide public access easement or ROW along the site s frontage with Loudoun County Parkway. Lastly, Sheet 3 of the CDP and the proffer should be revised to account for and depict the asphalt trail connection between the 10- foot wide trail shown along Loudoun County Parkway and the W & OD Trail, as shown on STMP (active). 7. STMP (active) contains a label which states that the existing ROW for the southern access entrance along Loudoun County Parkway will be vacated and a proposed ROW line is depicted. Please clarify if this ROW will be vacated. If so, DTCI recommends that the CDP be revised to show the vacated/proposed new ROW line and that a proffer be included to state that said ROW vacation and newly created ROW be completed concurrent with STMP (active). Conclusion Due to the general nature of this type of proposal, DTCI has provided comments for information only and, therefore, has no recommendation on this application. ATTACHMENTS 1. Site Vicinity Map 2. Route 28 Generalized Traffic Statement, Revised July 2012 cc: Kathleen Leidich, AICP, Assistant Director, DTCI Lou Mosurak, AICP, Senior Coordinator, DTCI A-16

17 Loudoun County Print Map June 22, 2015 SITE ZRTD , Ashburn North-Equinix ATTACHMENT 1 A-17

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