ARLINGTON COUNTY, VIRGINIA County Board Agenda Item Meeting of April 21, 2018 SUPPLEMENTAL REPORT DATE: April 18, 2018 SUBJECT: Request to authorize advertisement of public hearings by the Planning Commission and County Board on the draft Four Mile Run Valley Policy Framework. DISCUSSION: This supplemental staff report replaces the Jennie Dean Park concepts shown in the staff report dated April 11, 2018 with those herein and provides an update on additional community meetings that have occurred since that date. This report also includes online comments that were received in response to the draft Policy Framework between February 2, 2018 and March 26, 2018 (see Attachment 5). Additionally, this report responds to correspondence from a local property owner who raised concerns about how the 4MRV vision is expressed in maps and graphics contained within the Policy Framework, and suggested other editorial revisions. Planning Commission Meeting: On April 11, 2018, the Planning Commission held a public hearing to consider the draft Policy Framework advertisement request. After a staff presentation, a report from the Four Mile Run Valley (4MRV) Working Group Chair, reports from several advisory boards and commissions, and public comment, the Planning Commission discussed the Policy Framework and posed questions to staff. The Planning Commission s discussion centered on the major Area Plan policy recommendations, including Land Use, Building Height, Open Space, and Environmental elements; and the Park Master Plan concepts, including a review of the recent work done by the 4MRV Working Group, the Jennie Dean Park Committee and staff relating to the design of Jennie Dean Park. Subsequent to the Planning Commission s discussion, the Commission voted 8-0-1 to recommend authorization of advertisement of the draft Policy Framework. Four Mile Run Valley Working Group Meeting: After the February 20, 2018 County Board Work Session, a five-member Jennie Dean Park Committee (JDPC), comprised of 4MRV Working Group members, was established to review park design concepts that had previously been discussed with a goal of reconciling staff and community recommendations and to address safety concerns. On April 12, 2018, the 4MRV Working Group received a report from the JDPC, County Manager: # #### County Attorney: ***** Staff: Richard Tucker, DCPHD, Planning Division Marco Rivero, DPR, Planning Division 49.
which included two new park design concepts, and discussed the merits of the two concepts (see the following pages to review the JDPC concepts). Following the Working Group discussion, the Working Group voted 14-9 to recommend Concept 1 (shown below). Staff will consider the Working Group s recommendation, as well as other input, in formulating a staff recommendation as part of the May Policy Framework adoption staff report. As part of JDPC s presentation, a written report was provided to the Working Group outlining the group s charge, meeting discussion summaries, key issues, concerns, and recommendations, as well as an analysis of the two new concepts provided by the Committee. A copy of this written report is attached to this supplemental report. As part of this supplemental report, updated renderings are provided for the two concepts developed by the JDPC. Staff recommends that the renderings shown below replace those included within the original staff report, dated April 11, 2018. The updated renderings convey clarifying information that was requested by the JDPC at their last Committee meeting on April 5, 2018. The updated renderings provide the following: Consistent labeling of all park amenities within both concepts. Clear arrows indicating entrances to the park. A legend detailing the various park amenities. Jennie Dean Park Committee Concept 1, Phase 1-2 -
Jennie Dean Park Committee Concept 1, Phase 2-3 -
Jennie Dean Park Committee Concept 2, Phase 1-4 -
Jennie Dean Park Committee Concept 2, Phase 2 Property Owner Correspondence: Staff recently received a letter from a local property owner expressing concerns about how the area between S. Nelson Street and Walter Reed Drive (Subarea B) is depicted, as compared to the area west of Walter Reed Drive (Subarea A) on the Concept Plan Map (p. 21) and Future Land Use Map (p.45) in the Policy Framework. The concern expressed is that while a continuation of industrial and service commercial uses is intended for both subareas, the additional recommendation to encourage arts uses in Subarea B, and how that is depicted on these maps, could lead to misinterpretation of the County s intent and how industrial and service commercial businesses might be treated in the future. The property owner also highlighted a number of inconsistencies and errors in the draft Policy Framework; many of which have already been addressed by staff in the revised document attached to the staff report dated April 11, 2018. Staff will continue to review the Policy Framework in light of these comments and attempt to clarify the vision and intent; which is to encourage, rather than mandate, the expansion of arts uses in Subarea B over time, as change naturally occurs in the area. Staff is also continuing to refine the Policy Framework to ensure consistency and clarity and correct minor errors and omissions. Online Public Comments (see Attachment 5): Members of the public were invited to review the draft Policy Framework online and post comments during a nearly two-month period between February 2, 2018 to March 26, 2018. Many of the comments were editorial in nature and staff has continued to refine the draft document to address errors and omissions. - 5 -
While staff has not addressed these comments specifically, as with the Comment Matrix that was developed from input received at community meetings that staff attended, the more substantive comments and ideas cover the following range of topics: The unique history of Nauck and Jennie Dean Park; The value of auto repair, pet services and other service commercial and industrial business that are located within the study area; Floodplain, stormwater and environmental considerations; Discussion of arts uses; Park and recreation improvement ideas; and Pedestrian and biking safety concerns. Staff will continue to consider these comments as the Policy Framework is further refined in advance of the County Board s final action in May. - 6 -
ATTACHMENT 3 4MRV Parks Master Plan Background/Evolution Jennie Dean Park: As part of the PMP process, several alternatives were formulated to address the siting of park elements for Jennie Dean Park. After extensive community feedback and discussions with the Working Group, which began in 2016 and continued through the summer of 2017, a community open house was organized on July 19, 2017 where staff shared three (3) alternatives for Jennie Dean Park. The alternatives addressed issues and trade-offs for consideration to move forward with a preferred alternative. Evaluation criteria were developed based upon input received by the Board, the Working Group, and from the public gathered at two (2) public workshops and through additional outreach opportunities. The resulting criteria covered the siting of six (6) design elements with the goal of optimizing the desired comprehensive replacement and realignment of existing park features (exclusively for park purposes) and the addition of new park amenities to meet the growing demand for active and casual use recreation, cultural resources and natural resource preservation: 1. Diamond fields addressing orientation, space utilization, proximity to adjoining streets and the Resource Protection Area (RPA), and potential for incorporating a rectangular field overlay for unprogrammed use by the community. 2. Playground, Picnic Shelter, and Restroom facilities addressing potential for shade, proximity away from incompatible adjoining program uses (e.g., dog park and roadway) and close to compatible uses (e.g., restroom). 3. Natural Areas/Casual Use Open Space providing opportunities for tree canopy and if the area is associated with Four Mile Run or adjacent to Four Mile Run Drive. 4. Parking whether parking is provided using existing or expanded surface parking lots or through expanded on-street parking spaces. 5. Athletic Court Sports whether expanded opportunities are provided for athletic courts, proximity to the RPA, and whether the replacement courts need to be phased for construction. 6. Environmental/Regulatory/Noise Impacts potential for addressing the RPA, floodplain, and stormwater management needs and requirements, impact on existing mature trees and relationship to adjoining neighborhoods. Other major questions that surfaced during this process included (but were not limited to): 1
Jennie Dean Park implementation phasing contingent upon additional land acquisition including the Greater Washington Educational Telecommunications Association, (WETA) property at 3620 27th St S. as well as smaller properties on S. Four Mile Run Drive. Expanding recreational opportunities for changing usage patterns and needs. Fencing/netting and use restrictions associated with diamond fields. Defining specific areas to meet expanding casual use open space needs. During the October 3, 2017 4MRV Working Group meeting, the Working Group discussed the various Jennie Dean Park elements that the Working Group and community had previously reviewed. The goal of this discussion was to assess preferences among Working Group members, where possible, on various individual elements (e.g. playground, athletic courts, diamond fields, open space, etc.). This feedback plus continued feedback staff received from the community and associated civic associations, provided for two (2) refined alternatives that were presented to the Working Group on December 5, 2017. The two (2) refined concepts included: (1) the comprehensive replacement and realignment of existing park features: diamond fields, playground, athletic courts, picnic shelter and restroom; (2) an enhanced pedestrian and bicycle experience/added connectivity; and (3) opportunities for new streetscape and tree canopy. After receiving additional Working Group and community feedback through the winter, staff provided a recommended concept to the Working Group on February 6, 2018 (as part of the overall, 4MRV draft Policy Framework discussion), which is shown below in phases: 2
The recommended concept was provided because it addressed the following: Rectangular Field Overlay: The placement of a rectangular field overlay provides for an opportunity of unprogrammed use whenever the diamond fields are not programmed. Diamond Fields: In this concept, the diamond fields minimally impact the RPA (fields to be located above the RPA). The fields are currently lighted and would be lighted using best practices to minimize impact. Sport Courts: The two (2) lighted, tennis courts and one (1) lighted, basketball court would be installed during a future phase of construction (existing facilities are lighted). During the interim period, park users may visit Barcroft Park, Ft. Bernard Park, or Drew Park for use of athletic courts. Casual Use Open Space Network: This concept provides for a contiguous, casual use open space network that wraps the park on all sides and provides access to the Four Mile Run stream (through a new riparian path and overlook). Activity Zone: This concept establishes a lively activity zone that allows complimentary amenities to be within proximity to each other. It positions the playground and picnic area near natural parkland and the Four Mile Run stream, casual use open space, restrooms and away from the major roadway (Four Mile Run Drive). During community outreach, park users shared that they enjoyed having the playground and picnic areas close to shade and the stream and away from busy streets. 3
Resource Protection Area (RPA): Access and visibility to the stream were notable community values throughout the process. The concept plan provides for this by concentrating the major recreational elements into an activity zone outside the RPA. Parking: The concept plan shows the retention of an existing surface parking lot (up to 20 parking spaces) with additional parking to be provided on-street through back-end, angled parking along Four Mile Run Drive (approximately 32 parking spaces) and through parallel parking along South Nelson Street (approximately 20 parking spaces). Per Arlington County Zoning Ordinance (ACZO) requirements, Jennie Dean Park would require up to 67 parking spaces. Under the proposed, on-street parking arrangement and the retention of the existing surface parking lot, approximately 72 parking spaces could be provided. After further consideration with DPR maintenance and operations staff, staff provided a refined, recommended concept at the February 15, 2018 Working Group meeting and at the February 20, 2018 County Board work session which shows a proposed rectangular field overlay within the area of the large diamond field. By doing so, it would provide for greater connectivity and visibility through the site, by adding an additional pedestrian pathway at the park s western edge between the diamond fields connecting to the playground, picnic shelter area, and restrooms. This image is shown below under the title Concept from County Board Work Session February 2018 : 4
At the February 15, 2018 Working Group meeting, support for the recommended Jennie Dean Park concept was split evenly amongst the Working Group members. There were members of the Working Group that expressed their preference for Jennie Dean Park should contain the following: (1) an area of open, green space south of Four Mile Run Drive; (2) a playground that is more accessible to neighboring families (not setback within the park); (3) the industrial character of the neighborhood should be captured; and (4) there should be a connection between the park and other parts of the area by incorporating a promenade. At the February 20, 2018 County Board work session, the County Board discussed the details associated with the recommended concept and considerations voiced by members of the Working Group. Furthermore, staff provided an explanation of a previously considered option for Jennie Dean Park referred to as Option 3, Phases I and II ( Option 3, Phases I and II which captured many of the points described above. Previously considered Option 3, Phases I and II are shown below: 5
Previously considered Option 3, Phase I shows the installation of the small diamond field, playground, picnic shelter (shown here as pavilion ) and restrooms, as well as a new 22 space parking lot parallel to South Nelson Street during the first phase of construction. Added casual use open space opportunities would be provided south of Four Mile Run Drive and along the west end of the park. Option 3, Phase II shows the installation of the large diamond field and athletic court facilities (two (2) tennis and one (1) basketball) during the second phase of construction. Added casual use open space opportunities would be provided south of Four Mile Run Drive and along the east end of the park (next to the Phase I installations). The County Board then directed that a new committee of the Working Group be formed (the Jennie Dean Park Committee) which will work with staff to review these concepts in greater detail to determine if: (1) potential safety concerns related to the alignment and siting of the two athletic fields can be addressed; and (2) if the staff recommended option and other options supported by the Working Group can be reconciled. The Jennie Dean Park Committee (JDPC) would be composed of five (5) Working Group members and the results of their work would be shared with the larger Working Group by the end of March 2018. The official Charge of the JDPC was the following: The Jennie Dean Park Committee, part of the Four Mile Run Valley Working Group (4MRVWG), shall consist of five members, including the Chair. All committee meetings will be public, in accordance with Arlington County and Virginia requirements. 6
The Committee will review and evaluate existing alternative concept plans for Jennie Dean Park, giving due consideration to issues, concerns, and recommendations that have been raised by the community. A new concept plan recommendation may be developed but must include all elements (casual use space, large and small diamond fields, tennis and basketball courts, playground, restroom, and picnic area) currently in the park. The JDPC conducted three (3) public meetings on March 1st, March 7th, and March 15th, and a fourth meeting was scheduled for March 21st (the same date as the JDPC report out to the larger Working Group). However, the fourth meeting was cancelled because of a weather-related event. The fourth JDPC is scheduled for April 5th and the JDPC report out to the Working Group will occur on April 12th. As part of the discussions conducted by the JDPC, two (2) new park concepts were created. The new concepts are shown within the PMP Concept Plans section of the staff report. And are currently under consideration by the WG. In addition to discussing the issues addressed within the JDPC Charge, JDPC members worked with a template of the park and the recreation elements that were discussed during their second and third meetings to evaluate alternate park designs. The result of these explorations provided for two (2) new park concepts. Concept 1, Phases I and II (Refinement of Staff Recommendation): Concept 1 refines the staff recommendation (shown within this report as Concept from County Board Work Session February 2018 ) to respond to community concerns. Concept 1, Phase I: 7
Flips the diamond fields so the smaller field lies closer to Four Mile Run Drive which provides for more casual use open space, a connecting pedestrian access path, and a more prominent planted buffer closest to Four Mile Run Drive; Sites one (1) tennis court and one (1) basketball court in an area just south of the WETA Studios parcel which improves staff s recommendation by providing the basketball court and one tennis court during Phase I; and Sites a new, fenced playground and restrooms along Four Mile Run Drive. Concept 1, Phase II: Converts the basketball court to a second tennis court; and Sites a new basketball court either just north of the tennis courts or adjacent to the Shirlington Road parking lot. A larger picnic shelter, cluster of picnic tables, and/or small shelter can be sited in either Phases I and II. The JDPC expressed that a concern with this concept is that the 3rd base line of the small field is between 70-80 feet from Four Mile Run Drive. The Committee s Nauck representative voiced that breaking up the open space in this manner along Four Mile Run Drive was undesirable to the community. 8
Concept 2, Phases I and II (New Concept Plan) Concept 2, Phase I: Sites the large diamond field where the small diamond field is located currently within Jennie Dean Park; Moves the small diamond field temporarily to the current site of the larger diamond field (where its boundaries will remain partially in the RPA), with minimal renovations and minimal amenities; Sites two (2) tennis courts in roughly their current location; Sites one (1) basketball court just north-west of the current location; Sites the new playground and restrooms along Four Mile Run Drive. Concept 2, Phase II: 9
Moves and fully renovates the smaller field northward (out of the RPA) into the current location of the WETA Studios parcel; and Sites a new large picnic shelter south of the small diamond field near the RPA. The JDPC expressed concerns with this option including: Delaying the improved replacement of the smaller diamond field; Siting the smaller field in the RPA (even temporarily, given an uncertain timeline for the acquisition of the WETA parcel); Using existing lighting for the smaller field which may not be appropriate for evening play purposes; Existing field lighting is partially retained which delays the installation of improved lighting for (spillover effects to) the Shirlington apartments; and Overall design, particularly fewer opportunities for contiguous, connected casual use open space along the riparian area continuing along Four Mile Run Drive (especially in Phase I). The JDPC report to the 4MRV Working Group will provide other considerations and findings to be presented to the Working Group on April 12, 2018. Staff considers JDPC Concept 1, Phases I 10
and II to be optimal given that most park amenities (except for a second tennis court) would be installed as part of Phase I construction. Furthermore, JDPC Concept 1 provides for contiguous, casual use open space that begins at the corner of S. Nelson Street and S. Four Mile Run Drive and wraps around the entire park site ending at the southern end of S. Nelson Street, which was desired by the community. As part of the RTA report, staff is illustrating the two (2) Jennie Dean Park Committee concepts currently being discussed between the Jennie Dean Park Committee and 4MRV Working Group. However, as part of the final Policy Framework document, only one Jennie Dean Park concept plan recommendation will be included for County Board consideration. Shirlington Park: As part of the PMP process, four (4) alternatives were developed for Shirlington Park to address the issues associated with the mix of uses and users along Four Mile Run Trail and to develop the idea of Shirlington Park as a gateway and transition between Shirlington Village and the arts and recreation oriented uses north of Four Mile Run stream. All proposed alternatives included vegetation and stormwater management, riparian restoration, incorporation of gateways, as well as opportunities for improved wayfinding and placemaking. The concept alternatives included: 1. Baseline Concept this concept included all the common elements noted above and concentrated locations of placemaking elements at specific focal points. 2. A concept with increased emphasis on access to nature this concept with overlooks provided educational and interpretive opportunities focused on telling the story of Four Mile Run s urbanization and renewal. 3. A concept with increased emphasis on public art at defined gateways and overlooks. 4. A concept with a combination of art and nature this concept would integrate public art with the interpretation of nature (combining the elements of the previous two concepts). The concept emphasizing a combination of art and nature was the preferred alternative by consensus of the Working Group and supported by the community. Shirlington Dog Park: After extensive community and Working Group discussion which culminated with a County Board work session in May 2017, the County Board directed the creation of a new committee of the Working Group (the Shirlington Dog Park Committee) to discuss the challenges of having a dog park located within an environmentally sensitive area near Four Mile Run. The Committee provided short and mid-term recommendations that can be made for improving the dog park, while still preserving its existing area. The Policy Framework recommendation for the Park Master Plan is to not provide a redevelopment concept for the Shirlington Dog Park, which is consistent with the guidance received at the work session. 11