STAFF REPORT #17-2000-0007 CHANGE OF ZONING PLANNING COMMISSION MEETING DATE: November 16, 2017 (Applicant Provided Materials / Traffic Study = Blue) 1. APPLICATION: A public hearing for an application submitted by The Elko County School District requesting a public hearing for changes in zoning on two (2) parcels of land to facilitate the construction and operation of a public elementary school for a maximum student attendance of 750 (Spring Creek Elementary School #3) in the Spring Creek Subdivision. Parcel No. 050-001-032, a change of zoning from Commercial 1 (C1) to Public (P). Parcel No. 050-006-001, a change of zoning from Open Space (OS) to Public (P). 2. LOCATION: Parcel No. 1, APN 050-001-032, Lot 1, Block 2, Tract 106-D as shown on the Reversion To Acreage Map, recorded on November 29, 2007, in the Office of the Elko County Recorder as Map No. 2741, Document #585098, being an 11.01 acre parcel; and Parcel No. 2, APN 050-006-001, Parcel A, Tract 106-D as shown on that certain Subdivision Map of Spring Creek Corporation, recorded on December 7, 1972, in the Office of the Elko County Recorder as Map No. 72495, being a 3.460± acre parcel. Page 1 of 53
3. BACKGROUND INFORMATION: Assessor Parcel Numbers. 050-001-032 & 050-006-001 Owner(s) of Record: Spring Creek Association Current Zoning: 050-001-032, Commercial 1 (C1) 050-006-001, Open Space (OS) Previous Applications on Property: 050-001-032, Nov. 2007, Map of Reversion 050-006-001, None Size of Property: 050-001-032, 11.01 Acres 050-006-001, 3.46 Acres Access: Parkchester Drive, Direct Master Plan: Spring Creek Lamoille Master Plan, Plan Area 3 R3 Overlay District: N/A FEMA: CPN 32007C 6125E, Flood Zone X, No Requirements Water Basin: 048, Dixie Creek-Tenmile Creek Area Water service: Spring Creek Utilities, Great Basin Water Sewer Service: Spring Creek Utilities, Great Basin Water Comments: Attached or Incorporated as Received 4. PROJECT IMPACTS: A. AFFECT UPON THE EXISTING LAND USE PATTERN IN THE AREA: 1) Parcels to the north are zoned Commercial 2 (C) and Commercial 3 (C3). 2) Parcels to the south are zoned Residential 2 (R2). 3) Parcels to the east are Agricultural Residential (AR). The (AR) parcels rear yards are in near proximity of the Commercial 1 (C1) parcel in this request. Four of the five total parcels are developed with homes. 4) Parcels to the west are zoned Commercial 2 (C2). 5) The area uses are generally commercial in nature. The proposed will bring additional traffic to area businesses. 6) Uses to the east and adjacent to the proposed are Agricultural Residential use with the rear property lines abutting the project area. There are Residential 2 (R2) uses abutting the southern boundary of the project area. Page 2 of 53
7) The proposed Spring Creek Elementary School #3 will include the construction of an elementary school containing a maximum of 750 students. Project access will be provided from two locations on Parkchester Drive. Page 3 of 53
B. AFFECT UPON THE HEALTH, SAFETY AND GENERAL WELFARE OF THE AREA: ACCESS: There are two primary ingress / egress points being Parkchester Drive to the south and north of the project site. Parkchester Drive is a paved road with a paved travel width of approximately twenty-six feet (26 ) within an eighty-foot (80 ) ROW. Parkchester Drive is substandard in construction. Parkchester Drive fronts the applicants parcel. The second primary access is Parkchester Way to the west being a paved roadway of less than twenty feet (20 ) within a sixty-foot (60 ) ROW. The proposed Spring Creek Elementary School #3 development will be located east of Parkchester Drive, north of Country Club Parkway, and south of Spring Creek Parkway. The project site is currently undeveloped land. The project's impact will affect the adjacent street network. Page 4 of 53
The Parkchester Drive intersections with Country Club Parkway, Parkchester Way, and the South Project Access and the Country Club Drive / Parkchester Way intersection have been identified for AM and PM peak hour capacity analysis for the existing and existing plus project scenarios. Project access will be provided from two locations on Parkchester Drive. The project is anticipated to generate 968 average daily trips with 338 trips occurring during the AM peak hour and 210 trips occurring during the PM peak hour. EXISTING AND PROPOSED ROADWAYS AND INTERSECTIONS: Country Club Drive is a two-lane roadway with one through lane in each direction in the vicinity of the site. The speed limit is posted for 35 miles per hour near the site. Roadway improvements generally include paved travel lanes with a striped centerline and graded shoulders. Parkchester Drive is a narrow, two-lane roadway with one through lane in each direction in the vicinity of the site. The speed limit is not posted adjacent to the site. Roadway improvements generally include paved travel lanes with graded shoulders. Parkchester Way is a narrow, two-lane roadway with one through lane in each direction in the vicinity of the site. The speed limit is not posted. Roadway improvements generally include paved travel lanes with graded shoulders. The Parkchester Drive/Parkchester Way Intersection is an unsignalized threeleg intersection with stop sign control at the west approach, all approaches contain single lanes from which all traffic movements are made. With development of the project, the intersection will be improved as a four-leg intersection with stop sign control at the east and west approaches. The site plan indicates that the east approach will contain single ingress and egress lanes. The Parkchester Drive/South Access Intersection does not currently exist but is anticipated to be constructed as an unsignalized three-leg intersection with stop sign control at the east approach. It is anticipated that the north and south approaches will contain single lanes from which all traffic movements are made. The site plan indicates that the east approach will contain separate left and right turn lanes. The Country Club Parkway/Parkchester Drive Intersection is an unsignalized four-leg intersection with stop sign control at the north and south approaches. All approaches contain single lanes from which all traffic movements are made. Page 5 of 53
The Country Club Parkway/Parkchester Way Intersection is an unsignalized three-leg intersection with stop sign control at the north approach. All approaches contain single lanes from which all traffic movements are made. EXISTING VEHICLE TRIP COUNTS: Page 6 of 53
ESTIMATED TRIP GENERATION TOTALS: In order to assess the magnitude of traffic impacts of the proposed project at the key intersections, trip generation rates and peak hours had to be determined. Trip generation rates were obtained from the Ninth Edition of ITE Trip Generation (2012) for Land Use 520 Elementary School". Trips generated by the project were calculated for an average weekday and the weekday peak hours occurring between 7:00 AM and 9:00 AM and 2:00 PM and 4:00 PM, which correspond to the peak hours of the school. Table 1 shows a summary of the average daily traffic (ADT) and peak hour and peak volumes generated by the proposed school. (next page) Page 7 of 53
TRIP DISTRIBUTION AND ASSIGNMENT: The distribution of the project traffic to the key intersection was estimated based on the proposed school attendance zone. Figure 2 shows the anticipated trip distribution. Page 8 of 53
PEAK HOUR TRIPS: The peak hour trips shown in Table I were subsequently assigned to the key intersections based on the trip distribution percentages. Figure 3 shows the trip assignment at the key intersections for the AM and PM peak hours. Page 9 of 53
EXISTING PLUS PROJECT TRAFFIC VOLUMES: Page 10 of 53
INTERSECTION CAPACITY ANALYSIS: The key intersections were analyzed for capacity based on procedures presented in the Highway Capacity Manual (6th Edition), prepared by the Transportation Research Board, for unsignalized intersections. The latest computer version of the Highway Capacity Software, prepared by the McTrans Center, University of Florida, was used to analyze the intersections. The result of capacity analysis is a level of service (LOS) rating for each unsignalized intersection minor movement. Level of service is a qualitative measure of traffic operating conditions where a letter grade "A" through "F", corresponding to progressively worsening traffic operation, is assigned to the intersection or minor movement. The Highway Capacity Manual defines level of service for two-way stop controlled intersections in terms of computed or measured control delay for each minor movement. Level of service is not defined for the two-way stop controlled intersection as a whole. The level of service criteria for unsignalized intersections is shown in Table 2. (next page) Page 11 of 53
Table 3 shows a summary of the key intersections for the existing worksheets are attached. AM and PM peak and existing plus hour level of service and delay results at the project scenarios. Country Club Parkway / Parkchester Drive Intersection: The Country Club Parkway / Parkchester Drive intersection was analyzed as an unsignalized fourleg intersection with stop sign control at the north and south approaches for all scenarios. The intersection minor movements currently operate at LOS A during the AM and PM peak hours. For the existing plus project traffic volumes, the Page 12 of 53
intersection minor movements are anticipated to operate at LOS B or better during the AM and PM peak hours. The intersection was analyzed with the existing approach lanes for all scenarios. No improvements are recommended at the existing Country Club Parkway / Parkchester Drive intersection. Country Club Parkway / Parkchester Way Intersection: The Country Club Parkway / Parkchester Way intersection was analyzed as an unsignalized three-leg intersection with stop sign control at the north approach for all scenarios. The intersection minor movements currently operate at LOS A during the AM and PM peak hours. For the existing plus project traffic volumes the intersection minor movements are anticipated to continue to operate at LOS A during the AM and PM peak hours. The intersection was analyzed with the existing approach lanes for all scenarios. No improvements are recommended at the existing Country Club Parkway / Parkchester Way intersection. Parkchester Drive / Parkchester Way /North Access Intersection: The Parkchester Drive / Parkchester Way / North Access intersection was analyzed, as an unsignalized three-leg intersection with stop sign control at the west approach for the existing scenario and as an unsignalized four-leg intersection with stop sign control at the east and west approaches for the existing plus project scenario. The intersection minor movements currently operate at LOS A during the AM and PM peak hours. For the existing plus project traffic volumes, the intersection minor movements are anticipated to operate at LOS B or better during the AM and PM peak hours. The intersection was analyzed with the existing approach lanes for the existing scenario and with single lanes at all four approaches for the existing plus project scenario. It is recommended that the Parkchester Drive / Parkchester Way intersection be improved as a four-leg intersection with stop sign control at the east and west approaches. Parkchester Drive / Parkchester Way /South Access Intersection: The Parkchester Drive/South Access intersection was analyzed as an unsignalized three-leg intersection with stop sign control at the east approach for the existing plus project scenario. The intersection minor movements are anticipated to operate at LOS B or better during the AM and PM peak hours. The intersection was analyzed with single lanes at the north and south approaches and separate left and right turn lanes at the east approach. It is recommended that the Parkchester Drive / South Access intersection be constructed as a three-leg intersection with stop sign control at the east approach. Site Plan Review: A copy of the conceptual site plan for the Spring Creek Elementary School #3 development is included within the Traffic Study submittal attached at the end of this report. The site plan indicates that project access will Page 13 of 53
be provided from two accesses on Parkchester Drive. The north access aligns with Parkchester Way and will provide access to a small staff parking lot. The north access will also serve school buses. School buses will enter the north access, stack along the interior roadways south curb to load/unload students, and ultimately use a cul-de-sac to depart the site using the same access. The south access will be located approximately 250 feet south of the north access and will provide access to a larger visitor parking lot. The south access will also provide access to a curb lane for parent drop-off and pick-up stacking. An on-site roadway will run around the perimeter of the visitor parking lot and will allow parents to circulate in a counter-clockwise direction to access the drop-off/pick-up area. The project accesses, interior lanes, parking lots, and bus and parent dropoff / pick-up areas are anticipated to provide good access and internal circulation. It is recommended that the project accesses, parking lots, interior lanes, and culde-sac be designed per Elko County standards. RECOMMENDATION OF TRAFFIC STUDY: It is recommended that any required signing, striping or traffic control improvements comply with Elko County requirements. It is recommended that the Parkchester Drive / Parkchester Way/ North Access intersection be improved as a four-leg intersection with stop sign control at the east and west approaches. It is recommended that the Parkchester Drive/South Access intersection be constructed as a three-leg intersection with stop sign control at the east approach. It is recommended that the project accesses, parking lots, interior lanes, and culde-sac be designed per Elko County standards. ELKO COUNTY CODE TITLE 5 REQUIREMENTS: Average Daily Traffic (ADT) is estimated by the attached traffic study to be 968 vehicle trips per day generated by the school. The following standards are to be applied per Elko County Code Title 5. 5-4-1 (B) 5. Commercial Districts (minimum parcel size between 6,000 sq. ft. and 10,000 sq. ft.): (b) Access Roads: (1) Minimum - 50' wide paved urban commercial standard. (Exceeds 500 vehicle trips per day) Page 14 of 53
(2) If the estimated daily traffic count exceeds the capacity of the standard section, or based upon other factors such as specific use, location, proximity to cross streets, or traffic channelling and controls, the County may require a wider road section such as a 56' paved urban arterial, 70' paved major arterial or other standard. (3) Additional requirements including but not limited to controlled access, intersection control devices, bike lanes, pedestrian facilities, turn lane, on-street parking may be required based upon the results of the independent traffic study or applicable master plan. Road Construction Requirements: The public district zoning requested falls within a commercial area requiring a 50' wide paved urban commercial standard with curb, gutter and sidewalk. It is important to place pedestrian facilities, sidewalk, curb and gutter, across the full frontage of these properties to tie in future commercial uses on the same street. The applicant may request alternate compliance through the Elko County Board of Commissioners. The Spring Creek area has not been developed with sidewalk curb and gutter construction. It is important to place pedestrian facilities, sidewalk, curb and gutter, across the full frontage of these properties to tie in future commercial uses on the same street. Staff will support alternate compliance to a 34 Rural Paved Collector with a 9 minimum aggregate base and 2 ½ minimum asphalt overlay with sidewalk, curb and gutter. This roadway standard will accommodate future business applications. Staff recommends adoption of the following road construction recommendations as outlined in the applicant s traffic study and as listed within this report below: It is recommended that any required signing, striping or traffic control improvements comply with Elko County requirements. It is recommended that the Parkchester Drive / Parkchester Way/ North Access intersection be improved as a four-leg intersection with stop sign control at the east and west approaches. It is recommended that the Parkchester Drive/South Access intersection be constructed as a three-leg intersection with stop sign control at the east approach. Page 15 of 53
It is recommended that the project accesses, parking lots, interior lanes, and cul-de-sac be designed per Elko County standards. C. NOISE: This is a commercial area. Additional traffic noise and children at play is to be similar to that found in the area near the Country Club and Spring Creek Parkway intersection. D. WATER: A will serve letter is required from Great Basin Water Co. E. SEWERAGE: A will serve letter is required from Great Basin Water Co. for use of the commercial septic service. 5. CONSISTENCY WITH EXISTING ZONING AND MASTER PLAN: The Spring Creek Lamoille Master Plan, Plan Area 3 depicts parcel 050-001-032 as Commercial 1 (C1) zoning with the same designation. APN 050-006-001 is depicted as Open Space (OS) zoning with an Open Space (OS). A designation of Public is required for the public elementary school. The request is compatible with area uses. The Spring Creek Lamoille Master Plan was reviewed by the Planning Commission on November 16, 2017 with a recommendation of approval forwarded to the Elko County Commission to apply a zoning designation of Public on this parcel. The request is compatible with area uses. A. COMPATIBILITY OF PROPOSED ZONING WITH EXISTING ZONING AND DEVELOPED USAGE IN THE AREA: 1) APN 050-001-032 was planned as a commercial subdivision and is zoned Commercial 1, (C1). The parcel was reverted to acreage in November of 2007 to make the parcel marketable. 2) APN 050-006-001 is a part of the Spring Creek Green Belt properties and is zoned Open Space (OS). Both parcels make up the proposed site of a new elementary school. The proposed is compatible with developed area uses. Page 16 of 53
B. ZONING INFORMATION: APN 050-001-032 is currently zoned Commercial 1 (C1) per the Spring Creek Declaration of Reservations and per Elko County code 4-4-2 (C1). APN 050-006- 001 is a part of the Spring Creek Green Belt properties and is zoned Open Space (OS). 1. The Spring Creek Association is guided by a Declaration of Reservations document which contains zoning districts somewhat dissimilar from the Elko County zoning districts. 2. The Spring Creek Association fits schools into several of their zoning districts with Open Space zoning coupled with a conditional use for a school being the most proper. (Spring Creek Declaration of Reservations) OS Open Space District 3. Conditional Uses: c. School, attendance at which satisfies the requirements of the compulsory education laws of the State. 3. Spring Creek will review a change in zoning from Commercial 1 (C 1) to Open Space (OS) with a conditional use per their Declaration of Reservations requirements on October 10, 2017. The Spring Creek hearing will satisfy the requirements of their Declaration of Reservations requirements for placement of the elementary school. 4. The Spring Creek hearing does not fulfill the requirements of Elko County Code for changes in zoning but instead is internal to their organization. Page 17 of 53
5. Following the Spring Creek hearing, if approved, the Elko County Planning Commission will review two (2) changes of zoning to facilitate the new grammar school. APN 050-001-032 Commercial 1 (C-1) to Public zoning. APN 050-006-001. Open Space to Public zoning. B. CONFORMS TO THE EXISTING MASTER PLAN OF THE AREA: Yes, the designated zoning of Public was applied to APN 050-001-032 APN 050-006-001 on December 6, 2017. 6. STAFF COMMENTS: A. AFFECT UPON THE EXISTING LAND USE PATTERN IN THE AREA: The request is compatible with area uses. B. AFFECT UPON THE HEALTH, SAFETY AND GENERAL WELFARE OF THE AREA: The parcel is served with water and sewerage. Area roads are adequate. C. COMPATIBILITY OF PROPOSED ZONING WITH EXISTING ZONING AND DEVELOPED USAGE IN THE AREA: The request is compatible. D. CONFORMS TO THE EXISTING MASTER PLAN OF THE AREA: Yes, designated as Public. E. Prior to the completion of this report comments may or may not have been received from the following agencies listed below. Those received will be incorporated or attached to this report. Elko County Sheriff s Office Elko County Building & Safety Elko County Public Works Elko County Highway Department Elko County Manager Office Elko County Fire District Nevada Department of Transportation NV Division of Forestry NV Division of State Health State of Nevada, DOT Frontier Communications NV Energy Spring Creek Association Elko County School District Great Basin Water Co. Spring Creek Utilities Co. Page 18 of 53
F. In accordance with NRS Chapter 278, the 30 closest property owners were notified at least 10 days prior to this public hearing. The list is attached to this report. 7. STAFF RECOMMENDATIONS, FINDINGS AND CONDITIONS: Based upon the above stated analysis and findings, staff recommends Approval with the following conditions and restrictions. A) The change of zoning on APN 050-001-032 from Commercial 1 (C-1) to Public (P) and the change of zoning on APN 050-006-001 from Open Space to Public is dependent upon approval by the Elko County Commission for changes of designation on both parcels of land within the Spring Creek Lamoille Master Plan. B) At the time of any development, the developer shall comply with all Federal, State, and local building and development requirements and all applicable provisions of N.R.S. and Elko County Code for development. C) If said property is sold in whole or otherwise conveyed to a new owner or owners, the deed of conveyance shall contain verbiage that identifies and adopts the recommendations, findings, conditions and requirements of approval of this specific zone change or property, pertaining to any development. D) Parkchester Drive / Parkchester Way North intersection is to be improved as a fourleg intersection with stop sign control at the east and west approaches. E) Parkchester Drive / South Access intersection be constructed as a three-leg intersection with stop sign control at the east approach. F) The project accesses, interior lanes, parking lots, and bus and parent drop-off / pick-up areas are anticipated to provide good access and internal circulation. The project accesses, parking lots, interior lanes, and cul-de-sac are to be designed per Elko County standards. G) Any required signing, striping or traffic control improvements shall comply with Elko County requirements. H) (Primary Access) Per ECC 5-4-1-(B)-5 (b) (1), A 50' wide paved urban commercial standard is to be applied to the entirety of Parkchester drive. Sidewalk, curb and gutter are be constructed along the parcels frontages with Parkchester Drive to tie in future commercial uses on the same street. I) (Primary Access) Per ECC 5-4-1-(B)-5 (b) (1), A 50' wide paved urban commercial standard is to be applied to the entirety of Parkchester Way. Page 19 of 53
Basis for recommendation: There is a need for the area Grammar school. The site lies within the Great Basin Water Co. service area for water and sewerage. Primary and secondary access are available. The proposed is a good fit for the area zoning districts and existing uses. Note: The recommendations of this report are based on the fact that prior to the completion of this report staff had not received any negative or adverse comments to the proposed. Should testimony from the public arise before or during the public hearing opposed to the proposed or providing adverse or contradictory information, staff may withdraw its recommendations. John W. Kingwell Supervisor, Elko County Planning and Zoning Division (30 Closest Notification List) Page 20 of 53
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