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Subject
Twinbrook Neighborhood Plan
Recommendation
Conduct Worksession: discuss the Planning Commission Recommended Draft of the TNP together with staff recommendations for amendments to Chapter 2: Land Use, Chapter 4: Commercial and Industrial Areas and Chapter 5: Transportation.
Change in Law or Policy
Adoption will modify planning policies as they relate to the Twinbrook neighborhoods. Modifications to the Zoning Ordinance may be required subsequent to adoption.
Discussion
Background
On June 11, 2008, the Planning Commission approved a resolution to approve the modified Twinbrook Neighborhood Plan (TNP) and forward it to the Mayor and Council with a favorable recommendation. The Mayor and Council held a Public Hearing on October 13, 2008 and held the first of three worksessions on the plan on January 12, 2009. The first worksession focused on the introduction to the plan, the residential areas and the history of the neighborhoods. A copy of the Planning Commission Recommended Draft of the TNP was included with the briefing materials.
The second worksession will take place on February 9, 2009 and will focus discussion on Chapter 2: Land Use, Chapter 4: Commercial and Industrial Areas and Chapter 5: Transportation. Citizen testimony was received at both the Public Hearing and in writing. A summary of testimony received on the issues under discussion - together with the relevant Plan recommendations - can be found at Attachment A.
A third, and final, worksession is scheduled for February 23, 2009, which will focus on Chapter 6: The Environment, Chapter 7: Community Facilities, and Chapter 8: Implementation.
Twinbrook Neighborhood Plan Vision
The primary vision of the TNP is the retention and protection of the residential neighborhoods. The plan lays out recommendations for protecting the single-family neighborhoods (as discussed on January 12, 2009), and seeks to direct any new development towards the existing commercial and industrial areas. The plan does this by recommending that the commercial and industrial areas redevelop as mixed use centers that allow for varying levels of residential uses, depending upon the location, through the implementation of mixed use zones. These new mixed use zones would allow the existing uses to continue, while also allowing for the development of residential uses. The zones recommended are in line with those already approved by the Mayor and Council as part of the revision of the Zoning Ordinance and new Zoning Map.
The Plan also offers a series of recommendations for the shorter term that are aimed at ensuring the current maintenance and viability of the areas.
Chapter 2: Neighborhood Land Use
Chapter 2: Land Use describes the general land use and zoning categories within the Twinbrook neighborhoods and gives a brief overview of the proposed zoning changes recommended in the Plan. The chapter also discusses the potential impacts of development proposed outside the planning area, both within the City limits at Twinbrook Station, and outside the City in the area covered by the MNCPPC Twinbrook Sector Plan. Staff has updated Chapter 2 to reflect the new Zoning Ordinance. Chapter 2: Land Use (Amended by Staff - January 2008) can be found at Attachment B.
There are approximately 1,300 acres of land within the two Twinbrook Planning Areas (7 and 8), of which the vast majority is devoted to single-family housing. Less than 3% of the land area is zoned for commercial and industrial uses.
There is very little vacant land available in Twinbrook, and there is little vacant land immediately adjacent to the city limits that can be annexed in and developed. Future development within the existing corporate limits of Rockville will be either the redevelopment of existing sites, such as Twinbrook Station, or in-fill on the few remaining vacant or underdeveloped lots.
The TNP recommends zoning changes for the existing multi-family communities and the existing commercial and industrial areas. The table on page B-7 summarizes the approximate maximum development that each change might yield: more information can be found in Chapter 3 for residential properties, which were discussed on January 12, 2009, and in Chapter 4, which will be discussed below, for the commercial and industrial areas.
Plan Recommendations
There are no recommendations in Chapter 2.
Testimony Received
One item of testimony was received on Chapter 2. The speaker was concerned about the inclusion of floating zones in the discussion of Redevelopment – Implementation Strategies.
Staff Recommendations
The new Zoning Ordinance offers neither floating zones, nor form-based zones, and staff recommends that references to them should be deleted from the text (pages B-8 and B-9).
Chapter 4: Commercial and Industrial Areas
Chapter 4 gives an overview of the current conditions in the existing commercial and industrial areas and makes recommendations for both the near term and the longer term. The Planning Commission Recommended Draft of Chapter 4 can be found at Attachment C. The recommendations can be found on pages C-1 - C-4.
The Planning Commission directed City staff to provide illustrations of what the Veirs Mill Road and Lewis Avenue areas might look like if they were to redevelop. A series of concepts were developed that were used by the Planning Commission as they discussed the plan and zoning recommendations. The concepts are available on-line at http://www.rockvillemd.gov/masterplan/twinbrook/.
Existing Commercial Areas
There are approximately 19.35 acres of commercially zoned land in the Twinbrook neighborhoods – on Veirs Mill Road and at the Burgundy Center.
The Veirs Mill Road corridor acts as both a common area and a dividing line between the two Twinbrook communities, and contains the main commercial area serving the neighborhood. Shopping centers are located on both sides of Veirs Mill Road at the intersection with Atlantic Avenue, and there is an additional small retail site on Atlantic Avenue. The area comprises 17.41 acres, with approximately 11 acres on the northern side of Veirs Mill Road, with the balance on the southern side of the road. It was previously zoned C-2, the City’s former general commercial zone, which allowed for not only the existing single story neighborhood retail structures, but also a variety of retail and office uses. C-2 also allowed Office buildings up to 75 feet high (six stories), with an FAR of 2.0 by right.
The Veirs Mill Road commercial area serves both the surrounding neighborhoods and customers from further afield. The community has expressed concern about the future viability of the neighborhood shopping centers, their security, appearance and maintenance, and the challenges they face in acting as “good neighbors” to the residential areas around them.
This area offers the potential for accommodating a portion of the residential growth that is anticipated within the City and the region over the next twenty-five years. It could be redeveloped into an attractive neighborhood center that would provide a “gathering place” for the neighborhood while meeting citizens’ retail and service needs. Office and residential uses could complete the “mix”. The TNP therefore recommends that:
- The previously zoned C-2 commercial properties be zoned Mixed-Use Neighborhood Center Zone (MXNC) to create the conditions for such a center.
- The center should have a maximum height of 65 feet, facing onto Veirs Mill Road.
- Atlantic Avenue should be connected through the Shopping Center to McAuliffe Drive to create two developable blocks and improve traffic circulation.
- Traffic calming and pedestrian safety and accessibility should be emphasized in the entire Veirs Mill Road commercial area.
- The City should explore the possibility of establishing a City of Rockville Police sub-station in the Veirs Mill Road commercial area.
- The City should review its policies towards neighborhood commercial centers, with a view towards strengthening the relationships between the business and residential communities, and the City.
- The City should give consideration towards using vacant commercial space in the Veirs Mill Commercial area for community use, especially for teenagers and senior citizens.
Testimony Received
A considerable amount of testimony was received about the Veirs Mill Road commercial area, both from property owners concerned about the future viability of their property and the protection of their property rights, and from citizens expressing concerns about the proposal for a maximum height of 65 feet.
The owners of the Twinbrook Shopping Center would like to retain the 75-foot height allowed under the C-2 zone to retain sufficient economic incentive for any future redevelopment. The owners of the Twinbrook Mart condominium, who have the additional constraint of their ownership structure, expressed similar sentiments.
The owners of the Twinbrook Shopping Center were also concerned that the plan recommendation for the extension of Atlantic Avenue could have an adverse impact on any future plans. It will be noted that much of the citizen testimony is similar in nature and was written in response to a letter sent out by the Twinbrook Citizens Association.
Staff Recommendations
Zoning: The TNP recommends the development of a mixed use neighborhood zone to help implement the vision of a neighborhood center that would retain the existing uses, including a wide range of goods and services, at a neighborhood scale, while adding residential uses. However, according to the owners, the MXNC zone as laid out in the new Zoning Ordinance may not include sufficient incentives to bring this vision to life. In addition, it may have some adverse short-term effects because it limits the size of certain uses and may limit future leasing options available to the owners should they need to replace tenants for spaces larger than 2,500 square feet.
The new Zoning Ordinance and Map have recommended that commercial centers similar to the Veirs Mill Road area, such as College Plaza, be zoned MXCD (Mixed-Use Corridor District), which is the “replacement” zone for the C-2 General Commercial Zone.
Staff therefore recommends that the Mayor and Council consider the MXCD zone for the former C-2 sites in the Veirs Mill Road area: it will allow the owners similar redevelopment potential as the C-2 zone, with the 75-foot height limit, offer them more flexibility as they wish to redevelop and – because the 30 degree layback slope would apply – should have a reduced impact on the neighborhood. Staff also notes that the Advisory Group and Planning Commission recommended a maximum height of 65 feet.
Extension of Atlantic Avenue:The owner of the Twinbrook Shopping Center has requested that the following language be inserted:
“If the Shopping Center redevelops, then the extension of Atlantic Avenue through the Shopping Center to McAuliffe Drive should be studied to determine if the extension will improve traffic circulation in the surrounding community and if the extension can be designed to be compatible with the proposed redevelopment.”
Staff believes that the site is too large to be developed as one long block: introducing the street grid would reinforce the desired mixed-use development pattern, and break up the site into smaller lots and therefore reduce the overall massing of buildings on the site. In addition, there are benefits to the street extension which offer safer pedestrian circulation by utilizing an existing signalized intersection.
Staff recommends that the Mayor and Council consider retaining the plan recommendation.
Burgundy Park Shopping Center
The Burgundy Park Shopping Center is a small neighborhood convenience center located at the intersection of Baltimore Road and First Street on the western boundary of the area. The 1.94-acre site was previously zoned C-1 Local Commercial, which is intended to allow small-scale, neighborhood oriented, goods and services. The TNP recommends:
- Rezoning the Burgundy Center to MXC to retain the small-scale nature of the Center, but expand the uses to allow for a limited amount of residential units, should the owners wish to redevelop in the future.
Testimony Received
Testimony was received from citizens both in support of the plan recommendations and against the inclusion of residential units and additional density.
Staff Recommendations
The MXC zone retains approximately the same development standards as the previous C-1 zone (i.e. maximum height of 30 feet). The zone also contains provisions limiting residential units to an upper floor with the aim of creating small scale mixed use centers. The maximum allowable height is lower than the maximum allowable height for the surrounding properties in the R-60 zone.
Staff recommends retention of the plan recommendation of MXC, which is consistent the new Zoning Ordinance and Zoning Map.
Existing Industrial Areas
The Twinbrook area has a relatively small industrial area adjacent to the Twinbrook Metro Station. The Lewis Avenue Industrial area comprises four sites with a total land area of approximately 5.40 acres that was previously zoned I-2 (Light Industrial). The low-rise office buildings at 12720 and 12750 Twinbrook Parkway in the Twinbrook Parkway Service Industrial area were zoned I-1 (Service Industrial). Many of the sites appear to have very little room for expansion, and the 1982 Twinbrook Neighborhood Plan recommended that the light industrial zone notbe permitted to expand in size or height.
The TNP makes specific recommendations for each of the two areas but recommends that both areas should remain within Planning Area 8 (and not be part of the Metro Performance Area of the Rockville Pike planning area, like the adjacent Twinbrook Station) and that no automobile-related uses should be allowed within the area.
Many in the community value the Lewis Avenue businesses and believe that the service nature of the area should be retained. However, this area offers the potential to absorb some of the population growth that is anticipated in the next twenty years. A shift towards a mix of uses is an emerging trend and sites that are adjacent to Metro are proving to be especially attractive for residential development. The TNP therefore recommends:
- Confirm I-L zone. Amend I-L zone to allow Dwellings, multiple-unit, as a Conditional Use.
Testimony Received
Testimony was received from citizens – who wished to see more residential uses – and from a property owner who believed that he would not be able to retain his business.
Staff Recommendations
The I-L zone allows all Service and Light Industrial Uses, and therefore all existing owners and tenants should be able to continue their operations without fear of nonconformity.
However, the I-L zone, as written in the new Zoning Ordinance, provides for very limited residential uses, and staff recommends that the plan recommendations be retained, with a further recommendation that the Zoning Ordinance be amended accordingly.
This 766-square foot house occupies a 0.50-acre site adjacent to the future Twinbrook Station and the Twinbrook Metro, in between the former Suburban Propane site and the Cambridge Walk Townhomes. The site has a narrow street frontage on Halpine Road. For many years the house acted as an office for a construction business and construction equipment was stored in the rear yard. The site is zoned R-60 and is a nonconforming use. The property was recently sold, and the new owner has indicated that he wishes to retain the nonconforming use for the near term, and would like to redevelop the site as multi-family residential units over the longer term.
The Plan recognizes that there is a great deal of redevelopment in the immediately adjacent area and makes the following recommendation:
- Maintain the R-60 zone for single family housing on the site if it is developed, or acquire the site for additional park and green space, should it become available. The Mayor and Council should explore ways to eliminate the existing nonconforming use and convert it to parkland or single-family residential use.
Testimony Received
Several items of testimony were received on the property. There was a range of concerns: stronger plan language should be included; concern about the possible use of eminent domain; fear that the site would be used for a road and a desire for townhouses on the site.
Staff Recommendations
Most citizens would like to see the site changed, but there was not consensus on an alternative to that offered by the plan. Staff recommends retention of the plan recommendation.
Twinbrook Parkway Service Industrial Area
This is a triangular area between Twinbrook Parkway (on the east), Ardennes Avenue (on the south) and Halpine Road (further to the west). It is adjacent to the planned Twinbrook Station development, contains five separate properties and has a combined land area of approximately 8 acres. Three of the five sites lie within the City boundary and two lie within the County. The former Thompson’s Dairy site at the intersection of Ardennes Avenue and Twinbrook Parkway was annexed into the City in 2003 and the owners are proceeding with the construction of a 150,000 square foot, 85-foot high office building. The MXE zone is recommended for this site, in order to comply with the terms of the Annexation Agreement. For the remaining sites, the TNP recommends that:
- The two sites within the City be rezoned to MXB to act as a transitional buffer between the higher densities along Twinbrook Parkway (in the County), Twinbrook Station and the adjoining single-residential family neighborhood.
- The 12720 Twinbrook Parkway site for all multi-family residential use that will create a horizontal mix of uses in the Twinbrook Parkway/Ardennes Avenue/Halpine Road area.
- The City-owned buffer located between 12720 Twinbrook Parkway and Halpine Road should be improved by the owner of 12720 Twinbrook Parkway in accordance with City of Rockville specifications. The owner should work with the City to maintain the buffer in future years.
- Should the two sites within the County annex into the City they should be zoned MXB.
- No auto-related uses should be allowed in the area
Testimony Received
Testimony in support of the Plan recommendations was received from counsel representing the owners of 12720 Twinbrook Parkway, who are considering redevelopment of the current laboratory use with multi-unit residential.
Staff Recommendations
Staff recommends retaining the plan recommendations.
Recommendations for On-going Maintenance and Management of the Commercial and Industrial Areas
A list of recommendations that are aimed at ensuring the maintenance and viability of the existing commercial and industrial areas can be found on pages C-3 and C-4.
Testimony Received
No testimony was received on this issue.
Staff Recommendations
Staff recommends retaining the plan recommendations.
Chapter 5: Transportation
Chapter 5 describes the existing conditions in the planning areas and makes recommendations on all aspects of transportation at the City, County and State level. It can be found at Attachment D. The list of recommendations can be found on pages D-1 - D-4. Staff has made a number of minor edits - identified with the "redline" feature - for clarity and to bring the information up to date.
The Twinbrook neighborhoods are bounded by arterial roads carrying a large volume of both local and nonlocal commuter traffic. The neighborhood's internal circulation system is largely dictated by the land use pattern, and is designed to direct traffic onto a limited number of collector routes. Traffic backups occur at the limited number of entrance and exit points.
Major projects, such as intersection improvements at First Street and Veirs Mill Road and the Veirs Mill Road Bus Rapid Transit Plan (BRT), also bring challenges to the neighborhood and should provide additional impetus for commercial and streetscape improvements in the corridor.
Several large developments, such as Twinbrook Station, will be completed in the near future and it will be important to limit any negative impacts that these developments may have on the Twinbrook neighborhoods.
Traffic and transportation issues are a major concern for the community. Residents are worried about both the volume and speed of traffic on the major roads and through the community, with vehicles cutting through the neighborhood being a primary concern.
The TNP offers a long list of recommendations aimed at improving safety and accessibility throughout the neighborhoods. A few of the recommendations are:
- The City of Rockville should support a soft-wheel circulator trolley that runs clockwise and counter-clockwise from: Rockville Town Center - Rockville Metro – Veirs Mill Road – Twinbrook Parkway – Twinbrook Station - Twinbrook Metro – Rockville Pike – Rockville Town Center to increase connections between the Twinbrook neighborhoods, the Rockville Town Center, Twinbrook Station and Rockville Pike.
- Review the functioning of the intersection of Lewis Avenue and Edmonston Drive to determine how it can be improved, and study the feasibility of additional traffic calming measures on Edmonston Drive.
- Study alternatives to Veirs Mill Road for planned neighborhood and shared-use bikeways to link Town Center with Rock Creek Park. (Consider Rockcrest Park as a bikeway/pedestrian way. Upgrade path and install environmentally friendly street lighting.)
- Study the feasibility of a pedestrian crossing across the CSX/Metro tracks at Halpine Road, or other area locations, to link the neighborhood with the Rockville Pike area.
- Any transit improvement on Veirs Mill Road should be made within the existing right of way and should not increase neighborhood cut-through traffic. A soft-wheel circulator trolley linking Twinbrook to the Town Center, Twinbrook Station and Rockville Pike would be the preferred option.
- Establish dedicated pedestrian routes, with markings, throughout the neighborhood.
- Improve street lighting throughout the neighborhoods.
Testimony Received
Many of those who offered testimony expressed general concern about traffic and transportation issues. It should be noted, on this issue also, that much of the citizen testimony is similar in nature and was written in response to a letter that was sent out by the Twinbrook Citizens Association.
Staff Recommendations
As noted above, the TNP contains a long list of recommendations aimed at improving safety and accessibility throughout the Twinbrook planning areas.
Staff recommends retaining the plan recommendations.
Mayor and Council History
On January 12, 2009 the Mayor and Council conducted a worksession focusing on the Twinbrook residential areas. A short briefing outlining the proposed schedule for completion of the plan was given by staff on December 8, 2008. A Public Hearing was held on October 13, 2008, with twenty five citizens offering testimony. The Public Record closed on October 31, 2008, with twenty nine citizens offering written testimony. The Mayor and Council appointed the Twinbrook Neighborhood Plan Advisory Group (TNPAG) on March 7, 2005. The Advisory Group Draft of the TNP was presented to a joint worksession of the Mayor and Council and the Planning Commission on December 13, 2006.
Public Notification and Engagement
Notification
- Notices in Rockville Reports, TRC11 and the City’s website.
- Emails have been sent through the Neighborhood Services and Twinbrook Plan listserves.
- Press Release
- Postcards to the affected and adjacent property owners.
The following actions were taken to notify the public about Mayor and Council Public Hearing on October 13, 2008:
- Public Hearing Notices, in English and Spanish, were published in The Gazette on September 24 and October 1, 2008.
- Postcards, in English and Spanish, were sent to every property within the two planning areas.
- Emails have been sent through the Neighborhood Services and Twinbrook Plan listserves.
- The information is also available in Rockville Reports (in English and Spanish), on TRC11 and on the City’s website.
The notification procedures outlined above were followed for each of the Planning Commission Public Hearings. Notification postcards were sent to affected and adjacent property owners when the commercial and industrial properties were discussed during worksessions.
Public Engagement
An extensive public engagement program has been carried out throughout the planning process. Information on the public engagement program - which is ongoing - was included with the materials for the January 12, 2009 worksession.
Boards and Commissions Review
| Dec. 13, 2006 | Presentation to Joint Mayor and Council/Planning Commission Worksession. |
| Jan. 24, 2007 | Planning Commission presentation and discussion. |
| Feb. 21, 2007 | Planning Commission Public Hearing – 24 speakers. |
| Oct. 10, 2007 | Planning Commission Public Hearing – 21 speakers. |
| Nov. 14, 2007 | Planning Commission Public Hearing – 13 speakers. |
| Dec. 12, 2007 | Planning Commission Worksession – Overview of TNP. |
| Dec. 19, 2007 | Planning Commission Worksession – Housing and Historic Resources. |
| Jan 9, 2007 | Planning Commission Worksession – The Industrial Areas. |
| Feb. 13, 2007 | Planning Commission Worksession – Transportation and the Commercial Areas. |
| March 12, 2007 | Planning Commission Worksession – Environment, Community Facilities and Implementation. |
| March 26, 2007 | Planning Commission Worksession – The Industrial and Commercial Areas. |
| April 23, 2007 | Planning Commission Worksession – Discussion and Instructions to staff. |
| June 11, 2008 | Planning Commission Recommend Adoption of TNP as amended. |
Presentations were also made to the Historic District Commission, the Traffic and Transportation Commission and The Commission on the Environment.
Fiscal Impact
There is no fiscal impact associated with this agenda item. However, the TNP contains a number of recommendations that, should the Plan be adopted, will have an impact on both the CIP budget and the annual operating budget.
Next Steps
| February 23, 2009 | Mayor and Council Worksession - Chapter 6 - The Environment, Chapter 7 - Community Facilities, Parks and Open Space and Chapter 8 - Implementation. |
| March 23, 2009 | Mayor and Council Discussion and Instructions to Staff |
| April 20, 2009 | Mayor and Council Introduction (& adoption if changes are minor) |
| June 1, 2009 | Mayor and Council Adoption of TNP (if changes are major) |
Attachments
A. Summary of Testimony Received on Land Use, Current Non-Residential Areas and Transportation Issues
B. Chapter 2: Land Use (Amended by Staff - January 2008)
C. Chapter 4: Commercial and Industrial Areas
D. Chapter 5: Transportation
Department Head:
Susan Swift, Director of Community Planning and Development Services
Approved on: 01/26/2009
Assistant City Manager:
Jenny Kimball, Assistant City Manager
Approved on: 01/29/2009
City Manager:
Scott Ullery, City Manager
Approved on: 02/02/2009
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