ARLINGTON COUNTY, VIRGINIA County Board Agenda Item Meeting of September 19, 2015 DATE: September 17, 2015 SUBJECTS: Abingdon Elementary School Use Permits A. U-3415-15-1 USE PERMIT for an existing elementary school, Abingdon Elementary School, and approximately 30,000 gross square feet in additions; with a modification to Zoning Ordinance requirements to permit a reduction of on-site parking spaces from 116 to 83 parking spaces; located at 3035 S. Abingdon St. (RPC# 29-015-007). B. U-3421-15-1 USE PERMIT for secondary parking at Fairlington Villages Community Center parking lot for Abingdon Elementary School (Arlington Public Schools); located at 3001 and 3005 S. Abingdon St. (RPC# 29-013-PCA). Applicant: Arlington County School Board 1726 N. Quincy St. Arlington, Virginia 22207 C.M. RECOMMENDATIONS: 1. Approve the subject use permit for an existing elementary school and approximately 30,000 gross square feet in additions with modifications to Arlington County Zoning Ordinance (ACZO) requirements to permit a reduction of on-site parking spaces from 116 to 83, subject to the conditions of the staff report. 2. Approve the subject use permit for secondary parking at Fairlington Villages Community Center parking lot for up to 15 parking spaces, subject to the conditions of the staff report, with yearly administrative reviews (from September 2016 through September 2020) and a County Board review in April 2021. County Manager: ##### County Attorney: ***** Staff: Marco Antonio Rivero, DCPHD, Planning Division Dennis Sellin, DES, Transportation Division Bethany Heim, DPR 49.
ISSUES: There are two (2) use permit requests for an existing elementary school and additions of approximately 30,000 gross square feet at Abingdon Elementary School; and for secondary parking at Fairlington Villages Community Center (FVCC) parking lot for Abingdon Elementary School (the use of up to 15 parking spaces at FVCC). Concerns that have been raised during the public review process include: remediation of existing stormwater management and potential soil erosion issues on the site, construction procedures/maintenance for the school project, and the perceived loss of open space between APS and Court Bridge II properties. SUMMARY: The proposed addition and renovation at Abingdon Elementary school is part of the School Board s FY 2015 FY 2024 Capital Improvements Plan (CIP), which was adopted by the Arlington School Board in June 2014 and by the Arlington County Board in July 2014. The CIP included funding for approximately 1,102 new elementary school seats (including new seats at Abingdon Elementary School, McKinley Elementary School, and a new 725 student elementary school to be determined within South Arlington) by FY 2019 in order to accommodate increased enrollment within the school system. The proposed design of the school additions provides updated educational and community facilities, enhances the school s presence in the community, allows for sustainable building and area design, and balances the needs of pedestrians, bicycles, and automobiles. The proposed design also addresses the need to expand the school within a limited site area while respecting the surrounding neighborhood and taking into consideration environmental issues and parking demands. APS has agreed to install stormwater management facilities on the site in compliance with state and local regulations, and will mitigate any existing drainage issues. APS will also implement Leadership in Energy and Environmental Design (LEED) components, even though it will not be a LEED certified building because the project includes both new construction and renovation of the existing school building. County staff will review the documentation during and after construction to ensure compliance with the LEED components as set forth in Condition #19 of this use permit. APS also requests the use of up to 15 parking spaces (of the 30 existing parking spaces) at the Fairlington Villages Community Center (FVCC) for secondary parking. Staff supports the secondary use of parking at the FVCC for Abingdon Elementary School, because it minimizes the impact of providing all required on-site parking at the school. Secondary parking at FVCC increases the ability to provide greater outdoor recreational facilities at the school, as well as other natural features (greater landscaping, rain gardens, etc.). Furthermore, APS use of the parking lot will not interfere with or cause parking to be unavailable to the FVCC for its primary uses. The 15 spaces requested for secondary parking by APS would allow for approximately 15 remaining spaces to be used by FVCC patrons during the agreed upon days and hours within the license agreement; staff believes this is satisfactory given there is little overlap between APS s use of the parking lot and FVCC. Therefore, staff recommends that the County Board approve the subject use permits for an existing elementary school and approximately 30,000 gross square feet in additions with modifications to Arlington County Zoning Ordinance (ACZO) requirements to permit a U-3415-15-1 & U-3421-15-1-2 -
reduction of on-site parking spaces from 116 to 83, subject to the conditions of the staff report; and for secondary parking at Fairlington Villages Community Center parking lot for up to 15 parking spaces, subject to the conditions of the staff report, with yearly administrative reviews (from September 2016 through September 2020) and a County Board review in April 2021. BACKGROUND: Abingdon Elementary School was originally built from 1949-50. There have been several additions to expand the school, including in 1964, 1970 and 1990 (Figure 1). In February 1966, a rezoning (Z-1846-66-1) of property was approved from RA14-26 Multiple-Family Dwelling District to S-3A Special District. The elementary school was constructed without a use permit. Because there was no use permit approved for the original elementary school, the subject use permit approval would address both the existing school and the proposed addition. The current Arlington County Zoning Ordinance ( 12.4.7.B.) includes a provision that Any school operating and accredited by the state board of education prior to August 8, 1992 may continue to operate without obtaining a use permit. However, since APS is currently proposing a significant addition to the school, which would require a use permit, it is appropriate that the entire school site be included in this use permit. The existing Abingdon Elementary School is primarily a partial, two-story building. The original school building was constructed with ten (10) classrooms. In 1964, a building addition was constructed with added classrooms and support spaces. In 1970, a, a two-story addition with classrooms, a new library and other support spaces and a gymnasium were constructed. A new administrative wing was constructed and renovation of the existing school occurred in 1990. See Figure 1 for a graphic representation of the original school footprint and its various additions. U-3415-15-1 & U-3421-15-1-3 -
Figure 1: Existing school and additions over time (does not include existing relocatables). Original School (1949): Additions (1964): Additions (1970): Additions (1990): Total Existing: 22,874 SF 13,928 SF 36,219 SF 5,315 SF 78,336 SF Source: APS The school currently contains 40 permanent classrooms and four (4) relocatable classrooms located to the southeast of the existing school. The existing elementary school building requires major building system upgrades including updated HVAC, electrical/plumbing, interior furnishings, and other improvements. The School Board s FY 2015 FY 2024 Capital Improvements Plan (CIP) was adopted by the Arlington School Board in June 2014 and by the Arlington County Board in July 2014. The CIP included funding for approximately 1,102 new elementary school seats (including new seats at Abingdon Elementary School, McKinley Elementary School, and a new 725 student elementary U-3415-15-1 & U-3421-15-1-4 -
school to be determined within South Arlington) by FY 2019 in order to accommodate increased enrollment within the school system. The overall plan includes funding for: renovations at Washington-Lee High School, additions and renovations at Abingdon Elementary School, continued funding for additions and renovations at McKinley Elementary School, new elementary school seats in South Arlington, 1,300 new secondary school seats, and new secondary seats at the Arlington Career Center. The proposed renovation and expansion at Abingdon Elementary School was one of the projects listed in the CIP to provide space for an additional 136 students to bring the total building capacity from 589 students to approximately 725 students. Enrollment as of September 2014 is approximately 630 students, with approximately 41 students using four (4) relocatable classrooms. Once the proposed addition is constructed, the relocatable classrooms will no longer be necessary. The planning process for the Abingdon renovation and expansion incorporated the APS process, the Building Level Planning Committee (BLPC), and the County s Public Facilities Review Committee (PFRC) and required both committees to work in tandem in designing the school s additions. The design process includes three (3) phases: a conceptual phase, a schematic phase, and a final phase during which a use permit for the project is reviewed by the County Board. A. The following provides additional information about the Abingdon Elementary School site and location (3035 S. Abingdon St.): Site: The 392,323 square foot (9.007 acres) site is bounded on the north by South Woodrow Street and 29 th Street South, on the south by South Abingdon Street and 30 th Road South, on the east by Fort Reynolds Park and the Arlington County Equipment Division Trades Center, and on the west by Fairlington Villages tennis courts and other community facilities and South Abingdon Street. Residential uses surround the school site on the north, south, and west (across 29 th Street South, South Abingdon Street, and 30 th Street South) (Figure 2). Zoning: The site is zoned S-3A Special District. The purpose of the S-3A Special District is to encourage the retention of certain properties in a relatively undeveloped state. Land so designated may include publicly or privately owned properties which have distinct and unique site advantages or other features which make them desirable to retain as active or passive recreation (including but not limited to: parks, schools, pathways, and other public facilities). Schools are a permitted use by provision of a use permit subject to ACZO Section 15.4. Land Use: The site is identified on the General Land Use Plan (GLUP) as Public. Neighborhood: The site is located within the Fairlington Citizens Association. The Fairlington Villages and Court Bridge I and II Condominiums are also located adjacent to the school and were represented on the PFRC. U-3415-15-1 & U-3421-15-1-5 -
Location of 3035 S. Abingdon St. (Abingdon Elementary School) N O R T H Figure 2: Aerial photograph of the school and surrounding residential uses. Source: Google Maps B. The following provides additional information about the Fairlington Villages Community Center parking lot site and location (3001 and 3005 S. Abingdon St.): Site: The site is bounded on the north by Fairlington Villages Community tennis courts and Abingdon Elementary School, on the south by South Abingdon Street, on the east by Fairlington Villages Condominiums, and on the west by Fairlington Villages community facilities, South Abingdon Street, and 29 th Street South (Figure 3). Zoning: The site is zoned RA14-26 Multiple-Family Dwelling District within the Arlington County Zoning Ordinance. Land Use: The site is identified on the General Land Use Plan (GLUP) as Low- Medium Residential (16-36 units per acre). Neighborhood: The site is located within the Fairlington Citizens Association. U-3415-15-1 & U-3421-15-1-6 -
Location of 3001 and 3005 S. Abingdon St. (Fairlington Village Community Center and Associated Facilities) Location of 3035 S. Abingdon St. (Abingdon Elementary School) N O R T H Fairlington Villages Community Center Parking Lot Figure 3: Aerial photograph of the Fairlington Villages Community Center and associated parking lot and the surrounding residential and school uses. Source: Google Maps U-3415-15-1 & U-3421-15-1-7 -
A. Abingdon Elementary School New Use Permit (U-3415-15-1) The following provides additional information about the site: Existing School Capacity 589 Students in the building (Enrollment is 630 students as of September 2014 including four (4) relocatable classrooms) Proposed School Capacity 725 Students Total Site Area 392,323 sq. ft. (9.007 acres) 1 Density Proposed GFA 30,000 sq. ft. (additions only); 108,336 sq. ft. (entire school) Proposed FAR 0.08 additional FAR; 0.28 total FAR (This includes existing school (78,336 sq. ft.) and addition (30,000 sq. ft.) for a total of 108,336 sq. ft.) S-3A Max. Permitted GFA N/A Building Height Average Site Elevation (ASE) 183.93 ft. Main Roof Elevation from ASE 223 ft. for main roof; approximately 230 ft at the highest point to rooftop, mechanical units. Main Roof Height Number of Stories S-3A Max. Permitted Height Parking Proposed Main, Redesigned Parking lot (off-street) Parking lot expansion (off-street) Shared Parking Lot with Fairlington Villages (off-street) 39.3 ft. to main roof; approximately 46.3 ft at the highest point to the rooftop, mechanical units. 3 stories (primary addition only); new 1-story gymnasium 45 ft. for all other buildings (excluding single-family dwellings (35 ft.) and high schools and school administration buildings that are located on sites that are nineteen (19) acres or more (75 ft.)). 67 parking spaces 16 parking spaces 15 parking spaces Total Provided 98 parking spaces Required 2 116 parking spaces Coverage Ratio Existing 28.3% Proposed 33.3% Maximum Allowed There is no coverage requirement for the S-3A Zoning District. LEED Certification No LEED certification (inclusion of LEED elements are part of this use permit request and documented in Condition #19 of the use permit). 1 Commonwealth of Virginia Department of Education recommends a school site size of 4 acres plus 1 acre per 100 students for elementary schools. For Abingdon, the recommendation works out to approximately 11 acres for the school site at the anticipated 725 student capacity. 2 Requires modification to parking regulations per Arlington County Zoning Ordinance (ACZO), Section 14.3. U-3415-15-1 & U-3421-15-1-8 -
Building, Massing, and Site Design: The Building Level Planning Committee (BLPC) and the Public Facilities Review Committee (PFRC) reviewed many designs for the building design and massing of the proposed addition, and narrowed the options down to: Option 1: a design that maintains the existing gymnasium in the rear (with minor improvements), an improved and relocated front entrance, and a three (3) story addition in the rear; or Option 2: a design switching the gymnasium and cafeteria. Under this second plan a new gymnasium would be in the in the front, northern part of the site (at the location of the existing cafeteria) with an improved and relocated front entrance area. An improved cafeteria and a three (3) story addition would be at the rear, southeastern portion of the site. A majority of the BLPC and PFRC supported the location of the gymnasium towards the front of the school (or Option 2 described above). Members of both committees expressed that the more prominent placement of the gymnasium would enhance the civic presence of the site, since members of the community may also use the gymnasium after hours. BLPC and PFRC committee members also thought the placement of the cafeteria closer to the play area was a benefit of the proposed design. In addition, BLPC and PFRC committee members generally felt the placement of the three (3) story addition to the rear of the site reduced the visual impact on the surrounding community. However, members representing Court Bridge II residents expressed concern about the visual impact of the gymnasium on their adjacent community. Court Bridge II did not object to the frontal placement of the gymnasium if adequate buffering, including preservation of green space and enhanced landscaping were included. Figure 4 shows the proposed site layout, and Figures 5-9 show renderings of the overall entrance, gymnasium addition, front entrance vestibule addition, three (3) story main addition, among others. U-3415-15-1 & U-3421-15-1-9 -
Figure 4: Proposed Site Layout (provided by HCM) 1. Approximately 7,500 gross square foot gymnasium addition and support spaces. 2. Approximately 20,600 gross square foot, three (3) story classroom addition and support spaces. 3. Approximately 300 gross square foot entry vestibule addition for administrative and support spaces. 4. Approximately 600 gross square foot addition on the south corner of the school to allow for a new fire access lane and also the renovations required to relocate the school kitchen. 1 2 3 4 N O R T H Figure 5: Front Entrance Perspective and Gymnasium Addition, West Elevation (provided by HCM) U-3415-15-1 & U-3421-15-1-10 -
Figure 6: Gymnasium Addition, Northwest Elevation (provided by HCM) Figure 7: Front Entrance Vestibule Addition, West Elevation (provided by HCM) U-3415-15-1 & U-3421-15-1-11 -
Figure 8: Three (3) Story Primary Addition, North and East Elevations (provided by HCM) U-3415-15-1 & U-3421-15-1-12 -
Figure 9: Relocated Cafeteria, South Elevation (provided by HCM) The primary addition will be three (3) stories, and approximately 20,600 total square feet. The first floor will be at a slightly lower elevation from the lower level of the existing building. The second floor of the addition will align to the second floor of the existing building. The third floor of the addition will be one (1) story above the two (2) story section of the existing building. The primary addition will include: twelve (12) full size classrooms, three (3) flexible classrooms, restrooms and other circulation and support spaces. The materials for the primary addition will be a combination of brick, glass, fiber-cement and metal cladding. The primary addition will connect to the existing school via extended corridors off of the existing media center on the lower and main levels of the existing school building. A new stairwell and elevator will be located where the addition connects with the existing building and another stairwell at the eastern end of the primary addition. Furthermore, a fire access/emergency lane will run parallel to the relocated front entrance vestibule and cafeteria leading in to the rear of the three (3) story addition (where the new playground facilities will be located) and will provide emergency access to this side of the school building. The new single-story gymnasium (7,500 gross square feet) will be located at the current main entrance to the school which will house a new gymnasium and support spaces in close proximity to the existing play field and will also provide better community access. Secondary exits will be located around the gymnasium and will contain translucent glass paneling. A single-story front entrance vestibule addition (300 gross square feet) will complement the administrative and support spaces sited at the current cafeteria location of the school. The vestibule addition will improve entrance control and security for students, staff, and visitors. Finally, a single-story addition (600 gross square feet) on the south corner of the school will allow for a new fire U-3415-15-1 & U-3421-15-1-13 -
access/emergency lane and also the renovations required to relocate the kitchen to the existing gymnasium space. The additions provide the following elements: Enhance existing pedestrian route around the school, especially from the expanded parking lot, play field, associated playground facilities, and around the new three (3) story addition. Creates a new civic presence to the school with the addition of a new gymnasium facility close to the play field and relocated front entrance vestibule. Allows for two separate play areas (one to the north and one to the south) for Pre- Kindergarten/Kindergarten children (north side closest to play field) and for older children towards the rear of the school site, adjacent to the three (3) story addition. Uses the topography of the site to reduce potential height impacts (the roof of the proposed gymnasium addition would be approximately the same height as the roof of the existing school). Furthermore, the rear three (3) story addition will be setback greatly from the 29 th Street South right-of-way that it will not be noticeable. Provides good solar orientation for the primary addition and opportunities for scenic views from the various picture windows located at the northeast corner of the primary addition. Renovations to the existing school are proposed, including but not limited to, renovation and expansion of existing classrooms, renovation of the media center, and other support spaces. The scope of the site work includes: A new entrance plaza providing a direct entrance to the relocated, main entrance vestibule. A new bus loop is proposed to properly and safely separate school bus pick-up and dropoff traffic from parent pick-up and drop-off activities. The existing parking lot which will be expanded to accommodate up to 67 parking spaces and a new, secondary parking lot will accommodate 16 additional parking spaces (located parallel to 29 th Street South) for a total of 83 on-site parking spaces. Installation of a stormwater management facility primarily on the main parking lot (with smaller facilities located throughout the school site) and urban planters/gardens. Installation of new, underground drainage pipes, renovation of play field (with new permeable pavement track), and expanded blacktop/playground facilities next to the primary addition and fire/emergency access area. A new outdoor instructional terrace/classroom adjacent to the primary addition and rear playground facilities. U-3415-15-1 & U-3421-15-1-14 -
Joint Use of Open Space/Athletic Fields: The current facilities at the Abingdon Elementary School site include a black top (basketball court) which mainly contains an existing relocatable building (temporary classrooms), and playground areas on the west and south ends of the school. There is a grass play field and track encompassing the play field in the western corner of the site. The play field and track will be reconfigured on the site, but the programmable space within the proposed play field and track will maintain the same dimensions as the existing facilities. The dimensions are 265 feet by 120 feet (which includes a 12 foot wide track). APS works with Arlington County s Department of Parks and Recreation (DPR) to provide programming of outdoor and indoor community facilities (such as the gymnasium, multipurpose room/cafeteria, etc.) for summer camps, youth community sports leagues, classes and other groups during evening and weekend hours. This agreement is outlined within the Arlington Public Schools Use of School Facilities Policy and subsequent Standalone Policy Implementation Procedures (PIP). DPR schedules use of the all indoor and outdoor facilities during evenings and weekends, if needed, to support DPR programs and operations. Furthermore, when requested by the community, DPR will coordinate outdoor field space needs with the community if there is interest in using facility space for their community drop-in use around the APS and County programs. The gymnasium will be relocated as part of the project, and the grass play field and track will shift slightly south from its current location (in order to accommodate an expanded, main parking lot and a new secondary parking lot). The size of the grass play field and track itself will not change as a result of its minor relocation. APS will continue to work with DPR to provide programming after the project is complete. Furthermore, there is an APS owned, grass field space between the school and Court Bridge II properties (north of the site) which will be reduced to accommodate the reconfiguration of the school s main parking lot. As a result, APS will plant a series of evergreen trees which will act as a visual buffer from the Court Bridge II property to the school s main parking lot and new gymnasium. Other features, such as benches and tables will also be installed for continued community use. The final landscape plan (proposed Condition #21) shall provide greater details about this and all open spaces on the site. Sustainability: APS is committed to using the LEED green building rating system to guide the environmental components of its new construction projects. Langston-Brown, Washington-Lee, Yorktown, and Wakefield High Schools all used LEED effectively to guide green design and construction. Discovery Elementary School on the Williamsburg Campus will also be constructed to a minimum LEED silver certification. Due to the nature of the project at Abingdon Elementary School, including additions and minor building renovations, it will not be eligible for LEED certification. However, the project team is committed to incorporating LEED components in the project and APS has committed to including energy efficiency, reduction of water use, and the use of daylighting where possible. Specific use permit language lists the LEED elements that will be incorporated in the design and construction process (Condition #19). County staff will review the documentation during and after construction to ensure compliance with the specified LEED components. Stormwater will be managed in accordance with the Chesapeake Bay Preservation Ordinance. U-3415-15-1 & U-3421-15-1-15 -
Transportation: Abingdon Elementary School is a neighborhood serving school that relies on student arrival typically by one of four modes: 1) walking, 2) biking, 3) APS bus or 4) drop-off and/or pick-up by a family vehicle. The Abingdon Elementary School site is nearly landlocked, with frontage only on a portion of the northwest edge of the play field, as shown in Figure 4. All vehicular access and parking are from 29 th Street South (identified on the Master Transportation Plan (MTP) map as a Type E Primarily Single Family Residential Neighborhoods arterial street.) Primary pedestrian access to the site is via a pathway through Fort Reynolds Park (off of 31 st Street South), and via a paved walkway off of South Abingdon Street west of 30 th Road South. Figure 10 details site access and circulation, and the surrounding streets. Figure 10: Abingdon School: Site Access and Circulation (proposed) Twenty-Ninth Street South provides vehicular access to the school and its main entrance, parking, and bus loop. The majority of drop-off and pick-up of students by private vehicles occurs onsite, with some taking place on nearby streets. Transportation Analysis: Toole Design Group prepared a traffic and transportation report dated May 2015 (Toole Report). The Toole Report analyzes the impact of the school expansion and identifies the changes needed to the transportation network and operations to improve the school s multi-modal performance. These areas included: 1) vehicular traffic impacts from the trips expected to be generated by the school expansion; 2) staff travel to school, to evaluate both the parking demand for the expanded school and data used to recommend transportation demand management strategies for staff; 3) student travel modes to school, which includes a component of the trip generation as well as data used to make recommendations regarding infrastructure and U-3415-15-1 & U-3421-15-1-16 -
operational improvements to mitigate the impacts of these travel choices; and 4) the existing onstreet parking supply and utilization. Traffic Impact Analysis: Using existing mode split data, Toole analyzed the traffic impacts on the surrounding roadway network of the existing school (assuming 627 enrolled students and 136 full-time and part-time staff) and the impacts of expanding the school to a capacity of 725 students with a staff of 146. The analysis showed: During the school arrival peak hour (7:05 am to 8:05 am) the school generates approximately 384 vehicle trips, and during the school dismissal peak hour (2:35 pm to 3:35 pm) approximately 177 vehicle trips. Currently, all movements at the studied intersections around the site operate at levels of service (LOS) B or better at arrival and dismissal. The proposed expansion to support 725 students would generate approximately 60 new am peak arrival trips and 28 pm peak dismissal trips (assuming no TDM program). With the projected increased traffic associated with the expansion, all movements would operate at LOS B or better during school arrival and school dismissal peak hours, with the exception of 29th Street South and South Abingdon Street, where the westbound approach would operate at LOS C during the school arrival peak hour in the future condition. Further, when modeling for inclement weather, the intersection would operate with an overall LOS C and westbound approach LOS D during the school arrival peak hour. Streets, Sidewalks and Site Circulation: Twenty-ninth Street South: Twenty-ninth Street South is approximately 36 feet wide from curb to curb. The road is currently configured with parking on both sides of the street, and two (2) travel lanes. On both sides of 29 th Street South, there is a 2.5-foot planting strip, and a four-foot-wide sidewalk. At the intersection of 29 th Street South and South Woodrow Street, which provides access to and from the school and the Court Bridge I and II condominiums, there is a high-visibility crosswalk. On the school side, the crosswalk leads to a walkway to the school and playfield. APS proposes to realign and replace this crosswalk, as part of the changes to the location of the school driveway. The crosswalk will be striped for high visibility, and ADA-compliant curb ramps on both sides of 29 th Street South will be installed. APS proposes to widen the sidewalk along the east side of 29 th Street South to six feet, along the school site frontage, with a five-foot planting strip. No other changes will be made to 29 th Street South. U-3415-15-1 & U-3421-15-1-17 -
South Abingdon Street: Although Abingdon School has no frontage on this street, it is a principal approach to the school. The second-most used pedestrian access point to the school is located at a mid-block crossing of South Abingdon Street, just west of 30 th Road South. APS proposes to upgrade this mid-block pedestrian crossing, replacing it with a raised crossing, and curb bulbs to shorten the crossing distance. (This pedestrian crossing is monitored by a crossing guard during school arrival and dismissal times.) APS also proposes to improve the existing walkway from this crossing to the school entrance, by re-paving the walkway, improving lighting, and adding benches. Additionally, at the intersection of South Abingdon Street and 29 th Street South, APS proposes to upgrade the existing pedestrian curb ramps and crosswalks. Crossings at all four legs of the intersection will be upgraded to high-visibility crosswalks, and all curb ramps will be retrofitted to be ADA-compliant. Site Circulation: The primary pedestrian access point to Abingdon School is through Fort Reynolds Park, entering the park from 31 st Street South. Over half of all students who walk use this path to get to school, and over two-thirds go home using this path. (This pedestrian crossing is monitored by a crossing guard during school arrival and dismissal times.) APS is proposing to add lighting to the portion of the pathway that is on its own property, to improve pedestrian access and safety. Drop-off and Pick-up Activities: The majority of morning arrival and afternoon dismissal dropoff and pick-up activities occur in the pick-up and drop-off loop on the school site. After buses have left, parents are allowed to use the bus loop for drop-off. Some pick-up and drop-off activities occur on 29 th Street South, on 31 st Street South, and at the Fairlington Village Community Center parking lot for the tennis courts on South Abingdon Street. The school has developed an efficient system for vehicle pick-up and drop-off that utilizes dashboard signs, teachers and student safety patrols. Although this system functions well given existing space constraints, there is opportunity to further separate modes and reduce potential conflict points between buses, vehicles and pedestrians on the site. APS is proposing to reconfigure its school bus and drop-off loops as part of the Abingdon Elementary School expansion project. A new parent drop-off/pick-up area will be incorporated into the design, to be separated from the bus loop area. The drop-off/pick-up area will accommodate up to 32 vehicles. Bicycle Access: According to the Arlington County bicycle map, there are on-street bicycle routes along South Abingdon Street, 28 th Road South, 30 th Street South, and 31 st Street South. There are striped on-street bicycle lanes on Walter Reed Drive and Arlington Mill Drive. There are nearby connections to the off-road W&OD and Four-Mile Run trails. There is also one Capital Bikeshare station in the vicinity of the site, on 31 st Street South, at the entry to Fort Reynolds Park. APS has agreed to provide a minimum of one outdoor bicycle parking space for every 30 students, and one secure bicycle parking space for every 20 staff members. Transit: Abingdon Elementary School is served by the WMATA 7 bus line. Four different routes (7A, 7C, 7F, 7Y) provide frequent service to/from various bus stops located around the school. U-3415-15-1 & U-3421-15-1-18 -
Roadways served include 31st Street, Abingdon Street, 29th Street, Walter Reed Drive and Arlington Mill Drive. The 7A and 7Y routes provide the most frequent service (every 8 to 9 minutes) starting at 4:45 am and extending until 11:20 pm. The additional two routes (7C and 7F) provide service during peak hours, operating every 20 minutes and connecting to the Pentagon Metro station. Parking and Loading: Parking and loading for Abingdon Elementary School are provided from the site driveway on 29 th Street South. Parking: The school currently has 78 on-site parking spaces (with some teachers and staff currently parking along neighborhood streets close to the school. APS is proposing to expand the existing on-site parking by five (5) additional parking spaces, for a total of 83 parking spaces onsite. Based on the Zoning Ordinance the school would be required to have 100 off-street parking spaces (22 parking spaces in addition to the existing 78) to support the current enrollment of 630 students, and 116 off-street parking spaces (38 parking spaces in addition to the existing 78) to support the proposed expansions to 725 students. Table 1 shows the existing and proposed number and location of parking spaces for the school use. In February 2013, the County Board approved a Zoning Ordinance Amendment (ZOA-13-01) to allow flexibility in parking regulations for schools subject to the following findings: that the proposed development creates or preserves open space, reduces impervious surfaces, minimizes site disturbance and impact on trees, as well as implements a Transportation Demand Management (TDM) Plan for the site. APS is proposing to modify the parking (discussed in more detail below) in order to preserve open space on the site. If all 116 parking spaces required by the Zoning Ordinance were to be put on-site, there would be a significant adverse impact to open space, including to tree preservation and landscaping and opportunities for outdoor education, and loss of recreation space on an already constrained site. This proposal preserves open space by placing 83 parking spaces on-site and entering in to a secondary parking agreement with the Fairlington Villages Unit Owners Association (explained in more detail within Part B of this staff report) for the use of up to 15 parking spaces at the Fairlington Villages Community Center parking lot. The impacts of the requested modification are alleviated by the availability of on-street spaces, a secondary parking agreement with the Fairlington Villages Unit Owners Association for the use of up to 15 parking spaces at their community center s parking lot, and the provision of a TDM Plan. Additional information about parking, including the modification requested with this application, is located in the discussion section. U-3415-15-1 & U-3421-15-1-19 -
Current Design Capacity Student Capacity Required Parking Per ACZO Existing Elementary School 589 94 Existing Lot Parking Spaces Lot Expansion Total Existing Elementary School with Relocatables 630 100 78-78 Proposed Design Capacity Student Capacity Required Parking Per ACZO Existing Lot Lot Expansion Total Expanded Elementary School 725 116 78 5 83 3 Table 1: Existing and proposed parking at Abingdon Elementary School. Loading: The loading for the school is provided in two (2) locations: (1) off of the expanded driveway within the main parking lot (where the dumpsters will be relocated next to the proposed gymnasium addition); and (2) off of the proposed fire/emergency access lane that begins at the new bus loop and wraps around the relocated kitchen/cafeteria area. Both loading areas are accessed off of 29 th Street South. Proposed with this use permit, the dumpsters would be better screened (Condition #34). Transportation Demand Management: In addition to Arlington County policy to apply transportation demand management (TDM) programs to all significant new development, including public facilities, Zoning Ordinance Section 14.3.7.C, which provides for reduced school parking, also requires the provision of a TDM plan. Staff recommends and APS agrees that the TDM for Abingdon Elementary School include the elements listed in Condition #47, which provide for mitigation of traffic and parking impacts of the school. These elements include: appointment of a TDM/Parking coordinator whose responsibility is to oversee implementation of the TDM, including development of measures to educate staff and students about travel alternatives, and incentivize travel by both staff and students by modes other than single occupant and single student vehicles. The TDM also includes performance monitoring requirements so that the County can track the effectiveness of the TDM program, which will be used both to measure the success of the programs at the campus and to inform future school TDM program recommendations. 3 83 parking spaces will be redistributed between the main parking lot and a new, secondary parking lot built on the Abington Elementary School site. Use permit plans show the main parking lot containing 67 parking spaces and the new, secondary parking lot containing 16 parking spaces. Furthermore, with APS entering in to a shared parking agreement with Fairlington Villages Unit Owners Association for the use of up to 15 parking spaces at their community center s parking lot, this increases the number of off-street parking spaces to 98. U-3415-15-1 & U-3421-15-1-20 -
Utilities: Adequate water and sewer facilities are available to serve the school and the proposed additions, with infrastructure improvements including the new stormwater management facility located underneath the main parking lot and smaller bioretention facilities throughout the school site. APS will meet or exceed its requirements for stormwater quantity and quality (also detailed as conditions of approval within Condition #20 and #21 of the use permit). Stormwater Management and Soils: Some residents of nearby condominiums have expressed concern about the proposed school expansion project, specifically the impacts of construction and stormwater management on soil that includes marine clay. These condominiums have a history of settlement and foundation repair issues. APS and its design team have carried out additional geotechnical and structural investigations to ensure a minimal impact of the project to surrounding neighbors, including 13 soil test borings, careful selection of footing locations, and selection of auger cast piles instead of a driven pile system to minimize vibration and disturbance. APS has committed to work with its neighbors to monitor the foundations that abut its property. Regarding stormwater management, APS is proposing construction of two (2) detention facilities, with a total required volume of 11,605 cf. While quality and quantity of run will be addressed in a more detailed design that will be submitted post-approval, APS is proposing to use both bioretention facilities and permeable pavement for runoff reduction, and it is proposing bioretention and underground detention to meet quality and quantity requirements. APS is designing its stormwater management at the site to exceed code requirements. DISCUSSION: Adopted Plans, Policies, and Regulations: Zoning Ordinance Section 4.1 S-3A Special District, the Master Transportation Plan (MTP), the Public Spaces Master Plan, and the Principles of Civic Design in Arlington set forth guidance for the addition to an elementary school for this site. Zoning Ordinance: The following provides a summary of Zoning Ordinance requirements applicable to the Abingdon Elementary School project: Setbacks: Setback standards for buildings in the S-3A district are as generally defined in the Zoning Ordinance Section 3.2.(6), Bulk, Coverage, and Placement Requirements. The standards require that all buildings within the district be sited no closer to the street centerline than 50 feet, and no closer to the property line or street right of way line than 25 feet. Furthermore, side and rear yards may be setback, 10 feet plus one additional foot for each 2 ½ feet, or fraction thereof, of building height above 25 feet, provided that on interior lots no structure shall be located closer than 25 feet from a rear lot line. The primary addition (three (3) story addition) has setbacks of 17.17 feet from the side (east) property line and 257.05 feet from the rear property line (south). The primary addition does not face the street right-of-way. The primary addition s U-3415-15-1 & U-3421-15-1-21 -
building height is 39.3 feet from grade, which requires a minimum side setback requirement of 16 feet from the property line. The gymnasium addition (single-story addition) has setbacks of 303 feet from the 29 th Street South property line (north) and 79.22 feet from the side property line (east). The front entrance vestibule will be setback 44.78 feet from the side property line (west), and the kitchen addition next to the relocated cafeteria will be setback 27.33 feet from the side property line (west). Table 2: Building Setback Requirements Required Setback Proposed Setbacks Front Setback 25 feet 303 feet (Proposed gymnasium from 29 th Street South property line) Side Setback 16 feet Ranging from 17.17 feet to 79.22 feet (on proposed gymnasium, front entrance, kitchen, and primary additions) Rear Setback 25 feet (for interior lots) 257.05 feet (from primary addition to rear property line) Building Height: The Zoning Ordinance Section 3.1.6.2 defines building height in all zoning districts, with the exception of R districts, as being measured from average site elevation. In the S-3A district, in which Abingdon Elementary School is located, building height is a maximum of 45 feet. The average site elevation of the Abingdon campus is 183.93 feet. Building height is 39.3 feet (for the primary addition), which meets ACZO requirements. Parking: See discussion below on modification of parking regulations. Master Transportation Plan (MTP): The MTP contains three major policies: 1) integrate transportation with land use; 2) support design and operation of complete streets; and 3) manage travel demand and transportation systems. In reviewing the use permit for Abingdon Elementary School expansion the following 3 specific policies identified in the modal elements for the MTP were considered: U-3415-15-1 & U-3421-15-1-22 -
Master Transportation Plan: Demand and System Management Element Policy 2. Incorporate TDM measures with respect to all existing public buildings and facilities, irrespective of redevelopment status. Explore strategies and incentives to achieve TDM measures in existing private buildings. Master Transportation Plan: Parking and Curb Space Management Element Policy 6: Ensure that minimum parking needs are met and excessive parking is not built. Divert resources saved by reducing excess off-street parking to other community benefits. Policy 7: Discourage off-street surface parking, particularly when it is located between the curb and the building face. The proposed elementary school expansion complies with the policies of the MTP set forth above. Specifically, the proposal includes TDM measures to reduce the demand for on-site parking, and APS has requested a modification to reduce the amount of required on-site parking spaces. Public Spaces Master Plan: The Public Spaces Master Plan was adopted by the County Board in 2005 and provides guidance on the design, preservation, enhancement, and acquisition of open space in the County. This guidance includes maximizing partnerships with Arlington Public Schools. Arlington County currently has a partnership with APS to provide programming at Abingdon Elementary School after school hours on the play field (and possibly within the new gymnasium once complete). It is anticipated that this relationship will continue after the expansion project is complete. Principles of Civic Design: The PFRC developed a document in December 2008 entitled Principles of Civic Design in Arlington which provides guidelines on building siting, form, and design. These principles are intended to inform the design of civic facilities in Arlington, including buildings and other projects, to ensure they meet community goals for attractiveness, durability, and functionality. The principles reinforce and supplement existing County planning documents and policies, and are meant to promote compliance with certain basic principles, but not to inhibit creative design. The final design for the Abingdon Elementary School addition incorporates many of the principles. Specifically, the primary addition is set back from 29 th Street South and maintains a separation between the street and the use, as well as minimizes the visual impact of a larger structure closest to the street right-of-way (both points were important to the community). This both respects the neighborhood context and creates an addition that is appropriately scaled to the neighborhood. In addition, the primary addition was designed to maximize usable space inside the building and open space adjacent to the rear of the existing school building (that is not programmed for anything specific) while minimizing the footprint of the building. Furthermore, building mass is broken up with both materials and setbacks. Preservation of open space has U-3415-15-1 & U-3421-15-1-23 -
been a recurring theme during the concept design and schematic design phases of the project, and the requested parking modification relates directly to the preservation of open space and the call for prioritizing the pedestrian and bicycle experience over the automobile. Tree Conservation and Landscaping: There was significant discussion during the PFRC process regarding parking and the impact of expanding parking on the preservation of existing trees. APS submitted a tree survey that shows existing trees on the site and identifies which trees will be preserved (Table 3). APS has noted that the number of trees shown to be removed is conservative, and fewer trees may be removed than shown on the plan. Figure 11 shows the proposed tree removal and the proposed tree planting. Trees to be removed are concentrated in areas that will be most impacted by construction, including: the proposed, main parking lot expansion, the implementation of a new school bus lane/loop and a fire/emergency lane, the secondary parking lot addition, the gymnasium addition, and the primary addition. APS proposes to remove the existing seven (7) anniversary/commemorative trees (the anniversary/commemorative trees are Southern Red oaks) that were planted by the community. The anniversary/commemorative trees have been planted by the community for each decade of Fairlington s existence. In previous discussions with the BLPC and PFRC, these trees had been designated for transferal and/or replacement. The number of new trees planted (per the use permit plan documents) will be equal to the number of trees required by the tree replacement calculations. Additional tree information can be found on the attached use permit plan documents (pages LJ-001 through LJ-008; LJ-101 through LJ-104; L-100 through L-103). U-3415-15-1 & U-3421-15-1-24 -
Figure 11: Trees to be removed (first graphic) and proposed tree planting (second graphic). Existing trees to remain are shown on both graphics. (Source: HCM) Tree Replacement Calculations Total Number of Trees Inventoried: 478 Total Number of Trees to be Removed: 152 Total Number of Trees to be Transplanted: 6 Total Number of Replacements Trees Required (per tree replacement calculations): 150 Total Number of Replacement Trees Provided: 150 Table 3: Tree Replacement Calculations The County s Urban Forester has reviewed the tree survey and replacement calculations and concurs with APS on the information above. In order to construct a secondary parking lot (located adjacent to 29 th Street South and the play field), APS has agreed to plant 15 new trees within the surrounding area, of which seven (7) will be designated as new anniversary/commemorative trees, and relocate some of the original trees (specifically those that are healthy enough) to another location on the school site. These 15 new trees will be planted along the bus loop and between the track and proposed, secondary parking area along 29th Street South. Use permit plan page A-0 indicates those trees to be planted as part of this project and additionally highlights (in green) the seven (7) anniversary/commemorative community trees. These seven (7) trees will receive plaques at the completion of the project to highlight the 70- year history of the Fairlington community. As each decade passes, an additional plaque will be U-3415-15-1 & U-3421-15-1-25 -
added to an existing tree when moving counterclockwise around the school track. The proposed location of the new commemorative trees are indicated within Figure 12 below. APS staff and the Fairlington community agree with this proposed location. Staff proposes site specific Condition #65 of the use permit which details continued maintenance and procedures for any potential changes that may occur to these trees. Figure 12: Proposed location of transplanted, Fairlington Commemorative Trees (Source: HCM) Several parking options were evaluated during the public review process. The primary goal was to preserve open space and trees to the extent possible while still providing additional parking to meet the increased demand of the use. The proposed 16 parking space expansion (within the proposed, secondary parking lot) addresses both the increased demand for parking generated by the expanded elementary school and the preservation of open space on the site. Furthermore, given the site constraints and topography, the location of the proposed parking expansion was the only option that would have a minimal, adverse impact on areas used for play by both the school and the surrounding community. U-3415-15-1 & U-3421-15-1-26 -
Location of new, secondary parking lot. Figure 13: Proposed, secondary parking lot adjacent to 29 th Street South and school play field (Source: HCM) Staff has reviewed the proposed landscape plan and has recommended that further consideration and more detail be shown for, but not limited to the following (before the submission of the final landscape plan, post-use permit approval): the proposed playground equipment and layout, outdoor furniture, specifications for site lighting through a refined lighting plan, and that APS consider providing additional planting/canopy trees on the south side of the play field (this would provide for greater shade and tree canopies within the informal, seating and spectator area of the play field). Consistent with current practice, the final details of the landscape plan will be subject to County Manager review and approval per Condition #21. Modification of Parking Regulations: Section 14.3 of the Zoning Ordinance requires one (1) parking space for every 7.5 students of design capacity for employee parking at elementary and middle schools, plus one (1) space for every 40 students of design capacity for visitor parking. Based on the proposed design capacity of 725 students, the Zoning Ordinance would require approximately 97 employee parking spaces and 19 visitor parking spaces for a total of 116 parking spaces without a modification. The proposed project would accommodate approximately 83 parking spaces on-site by expanding the existing parking area (reconfigured main parking lot U-3415-15-1 & U-3421-15-1-27 -
and new secondary parking lot). Furthermore, APS proposes to implement a secondary parking agreement for an additional 15 parking spaces at Fairlington Villages Community Center parking lot, which would accommodate a total of 98 off-street parking spaces. APS has requested that the on-site parking required per the Zoning Ordinance be reduced and the modification be mitigated through the continued use of available on-street parking that is both contiguous and noncontiguous to the school, through the secondary parking agreement with Fairlington Villages Unit Owners Association and through provision of a TDM as discussed above. As part of Toole Designs Group s analysis for the school they took a comprehensive look at the on-street parking supply and utilization/demand for on-street parking that was in close proximity to the school. They counted the number of vehicles parked on the streets surrounding the school, before school started during morning arrival, just after school started, leading up to afternoon dismissal, and after school had let out. This data was reviewed and analyzed by staff and presented to PFRC to discuss the proposed parking for the project. The Toole Existing Conditions report identified that there was typically a significant amount of available on-street parking near the school, and the Fairlington Villages Community Center lot was typically about 50 percent occupied (the Fairlington Villages Community Center parking lot contains a total of 30 parking spaces), as were many of the nearby streets with on-street spaces. Furthermore, the Toole parking study indicated that there are seven (7) parking spaces on 29th Street South adjoining the school, and the on-street parking analysis showed that there is significant availability surrounding the school site. For this reason, Toole recommended a reduction from the zoning requirement of seven (7) additional parking spaces to be made up through available on-street parking. Because on-street parking in the neighborhood is currently used by teachers and staff, the parking study shows that the proposed modification will not have an undue adverse impact on the surrounding neighborhood. As identified earlier, established MTP policy states that generally: 1) minimum parking needs should be met and that when excess parking is not built it should be in support of other community benefits (such as in this case the preservation of open space), 2) parking between the curb and buildings (the secondary parking lot proposed for this project will not be near the building face, instead adjacent to the play field) should be discouraged, and 3) when parking is reduced projects should include a transportation demand management (TDM) plan. These transportation policies are all generally included in the Section 14.3 of the Zoning Ordinance that permits the County Board to modify parking requirements for schools. Specifically, the Zoning Ordinance identifies the goal to: preserve or create recreational facilities such as play fields, open space, playgrounds, and the like, that will reduce impervious surfaces, minimize grading and preserve existing trees; The County goal expressed in the Zoning Ordinance is in line with one of the primary goals identified by the community for the proposed addition which is to preserve the existing play field located in the western corner of the site, along with the preservation of other usable open space. The existing play field will shift further west from its current configuration to facilitate the addition of a new school bus lane/loop and the addition of a secondary parking lot. However, no programmable open space will be affected by these additions. U-3415-15-1 & U-3421-15-1-28 -
Staff finds that accommodating all the parking required by the Zoning Ordinance on-site could have an overall, negative impact on open space and recreational facilities. Furthermore, the impacts of the proposed modification are mitigated by the TDM program that includes incentives to reduce demand for parking at the school, the availability of on-street parking in close proximity to the school, and the implementation of a secondary parking agreement with Fairlington Villages Unit Owners Association for the use of their community center s parking lot. This issue was discussed as part of the public review, and the PFRC believed that the proposal for parking struck the right balance between providing on-site parking and preserving open space and the environment. Therefore, staff supports the proposed modification to reduce the required parking from 116 spaces to 98 spaces (83 parking spaces at Abingdon Elementary School plus 15 parking spaces at the Fairlington Villages Community Center parking lot). B. Fairlington Villages Community Center (FVCC) Secondary Parking for Abingdon Elementary School New Use Permit (U-3421-15-1) Arlington Public Schools (APS) is requesting to use up to 15 parking spaces (of the 30 existing parking spaces) at the Fairlington Villages Community Center (FVCC) for secondary parking. The Arlington County Zoning Ordinance (ACZO) 14.3.7 requires that parking be provided at a ratio of 1 space per 7.5 students of design capacity for staff parking at elementary and middle schools, as well as 1 space per 40 students of design capacity for visitor parking. This standard would require that 116 on-site parking spaces be provided for the elementary school (its proposed design capacity is for 725 students). This request (up to 15 parking spaces at FVCC) coupled with the request to permit approximately 83 parking spaces on-site by expanding the existing parking area (reconfigured main parking lot and a new secondary parking lot; which is covered within Part A of this report), reduces the amount of on-site parking that will be provided at Abingdon Elementary School (116 total on-site parking spaces originally required; 98 total off-street parking spaces proposed; and 83 total on-site (Abingdon Elementary School) parking spaces proposed). ACZO Section 14.3.7.C.1 permits the use of off-site parking to be used for elementary, middle and high schools and for uses associated with noncommercial recreation and community center buildings and grounds to count towards the parking requirement at the elementary school site. Through an agreement (referenced in this report as the Abingdon Parking License Agreement ), the applicant has secured the permission of the Fairlington Villages Unit Owners Association ( FVUOA ) for the use of the FVCC parking lot located at 3001 and 3005 S. Abingdon St. (southwest of the Abingdon Elementary School site). The Fairlington Villages Board of Directors voted unanimously to approve the shared parking use at their September 1, 2015 meeting. This use permit is contingent upon the School Board s final approval of the Abingdon Parking License Agreement which is expected to occur at their September 24, 2015 meeting. U-3415-15-1 & U-3421-15-1-29 -
Pursuant to the agreement with FVUOA, APS will have exclusive use of 15 of the 30 parking spaces between the hours of 8:30 a.m. and 4 p.m., and shared use of the parking lot between the hours of 7:30 a.m. to 8:30 a.m. and 4 p.m. to 5 p.m., Monday through Friday during the authorized usage days as detailed within the Abingdon Parking License Agreement (attached to this report). The aforementioned period covers when school staff will be present and also activities occurring before and after school. Secondary parking at FVCC will not be adversely impacted. There are few to no programmed activities at the center during the day and afternoon hours. Usage of the center facility and grounds (tennis courts, etc.) mainly occurs during evening hours and on weekends. Figure 14 shows the location of the FVCC parking lot. Figure 14: Location of Fairlington Villages Community Center parking lot (15 spaces used by APS) (Source: APS) Staff supports the secondary use of parking at the FVCC for Abingdon Elementary School, because it minimizes the impact of providing additional required on-site parking at the school. Secondary parking at FVCC increases the ability to provide greater outdoor recreational facilities at the school, as well as other natural features (greater landscaping, rain gardens, etc.). Furthermore, APS use of the parking lot will not interfere with or cause parking to be unavailable to the FVCC for its primary uses. The 15 spaces requested for secondary parking from APS would allow for approximately 15 remaining spaces to be used by FVCC patrons during the agreed upon days and hours within the license agreement; staff believes this is satisfactory given the little overlap that exists for APS s use of the parking lot. U-3415-15-1 & U-3421-15-1-30 -