Opinion ID: 2658241
Heading Depth: 2
Heading Rank: 3

Heading: East Campus

Text: The eight-acre East Campus project proposed in AU‟s 2011 Campus Plan and further processing application is intended to transform what is currently an underutilized outdoor parking lot located across Nebraska Avenue from the Main Campus and adjacent to the Westover Place townhome community on its east side. Six new buildings are contemplated for the East Campus: three devoted to academic and administrative uses, and three dormitories that will house 590 undergraduates (excluding freshmen). A number of features of the East Campus project are intended to mitigate adverse impacts on the nearby residents of Westover Place. In particular, the three dormitories will be situated at least 100 feet from the property line with Westover Place and oriented so that no dormitory 27 windows face in that direction.32 Two of the academic/administrative buildings will be placed between Westover Place and the dormitories, so as to block noise from the dorms and activities in two courtyards in the center of the East Campus. These so-called “buffer buildings” will be about 34 feet high, roughly the same height as the Westover Place townhouses. To reduce noise and other adverse impacts on the neighbors, the buffer buildings will not have entrances, balconies, or terraces facing Westover Place. AU also proposes to create a buffer zone between the buildings and Westover Place consisting of a landscaped berm and other plantings. This buffer zone is to be 55 to 60 feet deep, except for a 40-foot wide “pinch area” in front of a small open area reserved for parking. In support of its assertion that the East Campus development would not create objectionable conditions relating to noise for the residents of Westover Place, AU submitted a study prepared by an acoustics expert. The study concluded that noise from the East Campus ordinarily would be within the limits prescribed by the District‟s noise ordinances and would not disturb neighboring residences. AU and its expert acknowledged the possibility that the production of loud noise 32 The tallest of the three dorms, with a height of 62 feet, will be located along Nebraska Avenue at least 300 feet from Westover Place. The other two dorms will each be 54 feet tall and will be over 100 feet away from the property line. 28 (e.g, “party” music) in dormitory rooms with their windows open could disturb some neighborhood residents, depending on their location, but University staff in the dorms would be responsible for controlling this.33 Like all of AU‟s student residence halls, each East Campus dormitory is to have a resident assistant on each floor along with a resident director and desk receptionist, and each will be subject to residence hall regulations that prohibit disorderly conduct and specified activities. In addition, AU committed not to permit outdoor sound amplification on the East Campus. To safely accommodate the increased pedestrian traffic between the East Campus and the Main Campus, AU proposed the installation of an additional crosswalk with a traffic signal across Nebraska Avenue in the middle of the block. An analysis by AU‟s traffic expert concluded that the signal was warranted and would facilitate pedestrian traffic without causing unacceptable delays. The Department of Transportation agreed with AU that the proposed mid-block signal was warranted and would alleviate safety and traffic concerns, “in part because the pedestrian crossings would be spread over three intersections” on the block. The 33 With closed windows, AU‟s expert concluded, there would be no noise problem. 29 Department anticipated working with AU on signal timing to ensure that the addition signal would have “minimal to no effect on traffic.” The Office of Planning supported the East Campus project with several caveats. To reduce the density of student housing on the site, the Office recommended limiting the East Campus dormitories to 400 beds. In addition, it recommended that the dormitories be built at least 125 feet from the Westover Place property line and that the buffer zone be at least 65 feet wide and fenced to prevent recreational use of the zone by students. ANC 3D and petitioners opposed the East Campus project, arguing on multiple grounds that despite the preventive and ameliorative measures, the development would be objectionable to neighboring property because of its density, the number of students expected to reside there, and the size of its buildings compared to the townhouses in Westover Place. They argued that the “buffer” plans were inadequate to shield Westover Place from noise generated on the East Campus and other adverse impacts; that the development would worsen traffic congestion and endanger public safety; and that measures were needed to prevent AU students from taking over the recreational playground space at the nearby Horace Mann Elementary School to the detriment of community residents. ANC 3D also offered a variety of recommendations to limit or control the use of the East Campus, such as a condition that meeting space 30 should either be eliminated or located underground, and a proposal that outdoor recreational space be set aside on the East Campus for student residents.34 The Commission ultimately concluded that the East Campus site was appropriate for the development that AU proposed. The East Campus, the Commission stated, will not be “out of character with its surroundings,” as the site is just across Nebraska Avenue from the largest part of AU‟s Main Campus and near several other institutional uses also fronting on Nebraska Avenue. Furthermore, the Commission noted, “[t]he abutting lower-density residential community, Westover Place, already borders some high-density developments,” i.e., large apartment buildings along Massachusetts Avenue on the south and east. The Commission found that the East Campus project is not likely to create objectionable conditions or adversely affect the use of neighboring property, considering especially the site design, including the location and design of the “buffer buildings”; elements of building design, such as the location of entrances and the absence of balconies; the number of student beds in the 34 ANC 3E, on the other hand, viewed the East Campus as “an appropriate site for development, including student housing on the order AU is proposing.” It noted that other alternatives equally “faced resistance” from the community. The ANC believed that AU had proposed “an adequate buffer” to protect Westover Place residents from objectionable conditions, and that traffic and pedestrian issues were manageable. 31 residential buildings, where students will be subject to the University‟s residence hall regulations, code of conduct, and other rules governing student behavior; and the provision of a large landscaped buffer between the East Campus and the abutting residences. In addition, the Commission agreed with AU and the Department of Transportation that “the mid-block pedestrian signal will provide a safe means for pedestrians to cross Nebraska Avenue without creating adverse impacts for vehicular traffic.” Thus, the Commission stated, it was “not persuaded” by ANC 3D and the other opponents that the East Campus development is likely to result in objectionable conditions relating to “noise, density of development, student conduct, risks to pedestrians, visual impacts, or other potential adverse impacts,” or that the additional measures recommended by ANC 3D were “necessary or warranted.” On appeal, petitioners put forward a bevy of challenges to the Commission‟s approval of the East Campus development. They argue that the Commission failed to accord great weight to the issues and concerns of ANC 3D and the Office of Planning, and that its conclusions lack support. For the most part, we are not persuaded. 32
To begin with, petitioners contend that the Commission did not address adequately the concerns about the proposed density and scale of development on the East Campus. On the contrary, the Commission acknowledged the ANC and Office of Planning recommendations that the density be lowered (e.g., that the planned number of student beds be reduced), and it explained with reasonable particularity its conclusion that the high density of the East Campus as proposed by AU would not result in objectionable conditions for neighboring properties. We do not agree with petitioners‟ complaint that the Commission failed to consider the availability of alternative locations for student housing to further reduce the density of the East Campus, as was urged by the Office of Planning, ANC 3D, and petitioners.35 It was not the function of the Commission to consider all the possible alternatives to development of the East Campus; its only task was to evaluate whether “the proposed site will become objectionable to neighboring properties.”36 Similarly, AU was “not charged with considering every option that any party in 35 Relatedly, petitioners assert that the Commission “erroneously permitted” AU to “refuse[] to explore alternatives.” But in developing its Campus Plan, AU had investigated alternative locations to meet its housing needs. 36 Glenbrook Rd., 605 A.2d at 32 (citing 11 DMCR § 210). 33 opposition might conceptualize.”37 In point of fact, moreover, the Office of Planning and ANC 3D did not provide detailed alternative proposals; they merely asserted the desirability of locating more student housing at the “core” or “center” of the University campus without working through all the practical questions that their preferred alternative would raise. And while Westover Place and another neighborhood group proffered a private consultant‟s “alternative framework” for more intense residential development in the campus core, the Commission did consider that proposal and found it flawed.38 Its decision was amply supported by the record and therefore not arbitrary or capricious.39 37 Id. (quoting Don’t Tear It Down, Inc. v. District of Columbia Dep’t of Hous. & Cmty. Dev’t, 428 A.2d 369, 379 (D.C. 1981)). 38 The Commission explained that the “alternative framework” supported by Westover Place and another neighborhood group “did not take into account important factors such as financial feasibility, the need for changes to roads and infrastructure, the current use of some of the sites identified as potential locations for new student residences, or the University‟s program requirements, and did not consider the East Campus as an appropriate site for student housing.” 39 Petitioners also object that the Commission found that Westover Place “already borders some high-density developments” without making detailed factual findings about the characteristics of those nearby developments. We do not agree that detailed factual findings respecting the apartment buildings next to Westover Place were necessary to support the Commission‟s determination that the proposed East Campus would not be out of character with its surroundings. In evaluating whether the proposed East Campus would be likely to lead to objectionable conditions, the Commission properly considered the overall character of the neighborhood; but for the purposes of this proceeding, it reasonably could do so in general terms without describing and analyzing the (continued…) 34
Petitioners challenge the Commission‟s conclusion that the East Campus development would not produce hazardous conditions for pedestrians. They argue that the Commission ignored evidence and failed to accord great weight to ANC 3D‟s concerns and recommendations. ANC 3D charged that the East Campus development, even with the addition of a mid-block pedestrian traffic signal on Nebraska Avenue, would increase congestion and exacerbate unsafe conditions around the Main Campus created by the already heavy vehicular and pedestrian traffic in the area. The ANC emphasized that pedestrians often cross the street against the light, decreasing the effectiveness of additional traffic signals. From other sources, though, including the Department of Transportation, the Commission heard experts opine that, while AU could not control pedestrian behavior, the proposed new signaled crossing and (continued…) characteristics of every building in the vicinity of Westover Place. We have no doubt that the Commission appreciated that the proposed East Campus development would not be identical to the other high density developments around Westover Place. That fact does not invalidate its conclusion. 35 other traffic control measures would influence it positively and thus “improve safety.” We do not think the Commission ignored any evidence or recommendations. The Commission heard ANC 3D‟s concern that there would be an increased safety risk, and it heard evidence pro and con about the effectiveness of safety measures, including the installation of a mid-block traffic light and crosswalk to reduce jaywalking. The Commission credited the University‟s evidence and the opinion of the Department of Transportation and, based on that evidence, concluded that AU‟s proposed measures would be sufficient to reduce risks to pedestrians such that there would be no likely objectionable conditions. We see nothing more the Commission needed to do to explain its conclusion or to address the ANC‟s concerns.
In concluding that the East Campus would not give rise to objectionable noise conditions for the residents of Westover Place, the Commission relied in part on an expert analysis submitted by AU. The analysis utilized measurements and modeling to predict expected noise from all floors of the student residence halls and some additional noise from the buffer buildings. The analysis showed, and the 36 Commission acknowledged, that while not all noise would be blocked by the buffer buildings, the expected volume even from unblocked paths of allowable noise would be at permissible levels. In addition, AU proffered, excessive noise production that could become objectionable (loud party noise, for example) would be prohibited by the student code of conduct and a ban on the use of sound amplification on the East Campus. The opponents of AU‟s East Campus plans did not submit their own expert noise analysis to counter that of AU, but they did argue that AU‟s analysis was flawed in certain respects and failed to address all their key concerns. In this court, petitioners contend that the Commission ignored evidence and argument that nearby residents of Westover Place might not be adequately protected from excessive noise generated on the East Campus by the measures AU identified. To the extent petitioners are merely reiterating their concern that some noise coming from the upper floors of the residence halls would not be blocked by the shorter “buffer” buildings, we are not persuaded by their argument. The Commission considered and addressed this concern, and it relied on substantial evidence in finding that the unblocked noise would not likely become objectionable. 37 However, petitioners, with the support of ANC 3D and the Office of Planning, also pointed to two specific respects in which, it was claimed, AU‟s analysis fell short: (1) the study did not assess how anticipated noise from the East Campus buildings would compare with background noise levels at night (when an increase in noise might be most objectionable to neighbors); and (2) the study allegedly failed to model or assess the impact of noise from activities and mechanical operations in the buffer buildings. Petitioners argue that the Commission‟s failure to address these alleged omissions requires that they be addressed on remand. Given that the opposition to the East Campus development presented no evidence affirmatively demonstrating that an increase in nighttime noise or noise from the buffer buildings would be objectionable, it may be understandable that the Commission did not find it necessary to address those possibilities in making a reasonable forecast on the record before it that the development as a whole is unlikely to become objectionable because of noise. Even so, we cannot dismiss the concerns identified by petitioners, the ANC, and the Office of Planning on these particular points as fanciful or invalid, and so we are persuaded that the 38 Commission was obliged to “c[o]me to grips” with them.40 Because the Commission did not address these specific challenges to AU‟s evidence in its decision, we hold that it should do so on remand.
ANC 3D and Petitioners voiced the specific concern that East Campus students would interfere with community residents‟ enjoyment of the Horace Mann playground facility. University officials testified that they would cooperate with Horace Mann Elementary School to alleviate this concern and make it sanctionable for AU students to use the recreational area. However, the Commission did not specifically address the issue; it said only that it was “not persuaded” by ANC 3D that requiring AU to provide outdoor recreational space for students in the East Campus was “necessary or warranted.” While “great weight” does not mean the Commission must exhaustively discuss every detail in an ANC‟s submission, this was a fairly prominent concern that the Commission failed to address—a failure made all the more puzzling given the apparent solution offered by AU. On 40 Neighbors Against Foxhall Gridlock v. D.C. Bd. of Zoning Adjustment, 792 A.2d 246, 249 (D.C. 2002) (internal quotation marks omitted). 39 remand, the Commission must deal with this concern with the required particularity and precision.41
The Office of Planning and ANC 3D recommended that the Commission require AU to provide a landscaped buffer, at least 65 feet wide, between the East Campus and Westover Place to reduce light and noise impacts, with a fence to prevent students from using the buffer zone for recreational purposes. AU proposed a buffer 55-60 feet deep for most of its length, with one part only 40 feet deep to accommodate the remaining parking space; and its proposal did not include a fence. Petitioners argue that the Commission did not adequately explain why it accepted AU‟s buffer proposal without modification rather than that of the Office of Planning and ANC 3D. In two respects, we agree. While the small difference between a depth of 55-60 feet and one of 65 feet does not call for additional explanation, the portion of AU‟s proposed buffer that would be only 40 feet wide does seem to constitute a relatively significant deviation from what the Office of Planning and the ANC 41 Spring Valley, 856 A.2d at 1180. 40 sought, such that the Commission should have provided a “reasoned basis” for allowing it.42 The Commission likewise should have addressed the recommendation for a fence to keep AU students out of the buffer zone. It should address both these matters on remand.