Subject
title
Mandatory Referral Application 2027-397-MRF, to Develop the 131-acre Site as the RedGate Park and Arboretum, a Predominantly Passive Recreation Park, Arboretum, and Regional Destination, Located at 14500 Avery Road in the Park Zone; City of Rockville Recreation and Parks Department, Applicant.
end
Department
PC - Development Review
Recommendation
Staff recommends approval of Mandatory Referral Application 2027-397-MRF, based on the required findings and subject to the conditions outlined in this staff report.
Case: Mandatory Referral Application 2027-397-MRF
Location: 14500 Avery Road (“Property”)
Staff: Nelson Ortiz, Principal Planner
Community Planning and Development Services
nortiz@rockvillemd.gov <mailto:nortiz@rockvillemd.gov>
Applicant: City of Rockville, Maryland
Recreation and Parks Department
111 Maryland Avenue
Rockville, MD 20850
Filing Date: July 22, 2026
Planning
Commission Date: October 14, 2026
The Recreation and Parks Department for the City of Rockville, Maryland (“Applicant”) has filed a mandatory referral application to develop the Property as the RedGate Park and Arboretum consistent with the master plan approved for the Property in October 2022. As envisioned by the RedGate Park and Arboretum Master Plan (“RedGate Plan”), the Property will be transformed into a mostly passive recreational park, arboretum, and regional destination. It will include family-oriented recreational and entertainment opportunities, reforestation efforts, educational programming, public art, open lawns, gardens, natural habitats and several other elements.
The application is being processed as a Mandatory Referral in accordance with applicable state law governing the construction of public projects. The Planning Commission’s review is to determine consistency with the “Plan” as defined under Section 3-205 of the Land Use Article of the Annotated Code of Maryland, specifically as it relates to the location, character, and extent of the proposed site development. Pursuant to the Land Use Article, the Planning Commission has 60 days from the date of submittal of the application to render its decision on the project or it is deemed to be approved. The Applicant may appeal a decision of denial by the Planning Commission to the Mayor and Council, which can vote to overturn the ruling by a two-thirds vote and proceed with the project.
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Location: |
14500 Avery Road |
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Planning Area: Land Use Designation: |
Planning Area 17 - Southlawn and RedGate P - Public Parks |
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Zoning District: |
Park Zone |
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Property Area: |
131 acres |
Surrounding Land Use and Zoning
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Location |
Zoning |
Planned Land Use |
Existing Use |
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North |
IL (Light Industrial) Zone |
SI - Service Industrial |
Industrial Development |
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East |
R-200 (Suburban Residental) Zone |
CI - Civic and Public Institutional |
Open Space and Public Institutional |
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South |
PARK Zone |
P - Public Park |
Open Space |
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West |
IL (Light Industrial) Zone, MXB (Mixed-Use Business), and PD-RF (Planned Development - Redgate Farm) |
CI - Civic and Public Institutional and OCRM - Office Commercial Residential Mix |
Industrial and Office Development |
Site Analysis
Aerial Map
The Property is 131 acres in size and is comprised of five separate parcels situated near the northeastern Rockville corporate limits. A small length of the Property fronts East Gude Drive to the west, the southern boundary fronts Norbeck Road, and a portion of the eastern boundary fronts Avery Road. Primary access to RedGate Park is from Avery Road. The Property is zoned Park and the land use designation is P (Public Park). Since the Property was formerly a golf course, closed in 2018, its existing characteristics and conditions reflect those of a golf course. The Property has gently rolling topography with the site generally sloping toward existing streams and ponds located within the park. There are existing paved paths throughout including wider, steeper golf cart paths. Much of the Property is open with scattered mature trees and natural landscapes while the edges are mostly wooded. The Property is currently improved with the former clubhouse with an attached outdoor deck and the former golf cart storage building. The Property is served by an existing surface parking lot located by the clubhouse and accessed from the main park entrance on Avery Road.
The City of Rockville seeks to make several improvements to RedGate Park consistent with the RedGate Plan. The application documents identify the primary phase and provide the framework for future phases of development for the site.
The first phase of development includes:
• Playground - will be a nature-based and inclusive playground that that will incorporate the existing topography in the play experience. The play equipment is intended to be nature-inspired and serve children of all ages. The children’s playground will be located near the clubhouse building and will have paved pathways and accessible routes.
• Picnic Pavillions - one large and two medium picnic pavilions are proposed flanking a central green space. Compatible forms, materials and detailing will be shared amongst the three picnic pavilions. The final locations of the picnic pavilions are tentative but will generally be located near the children’s playground and the clubhouse building and have paved pathways and accessible routes.
• Restroom building - will be cohesive with the identity of park and will be constructed of similar architectural materials, proportions and details as the picnic pavilions.
• Community Garden - will serve a recreational and education purpose and offer a variety of gardening options including wheel-chair accessible beds, raised beds, small and large garden plots, accessible pathways, a tool shed, gathering and seating areas. The community garden will be located north of 6 Taft Court (city government building) near the western edge of the Property.
• Dog Park - will include two adjacent but separated areas for small and large dogs. The lawn areas will include natural landforms, shade, and seating opportunities. The dog park will be located adjacent to the community gardens.
• Trail improvements - new and upgraded pathways will be provided throughout the park and follow the park’s existing topography where practical. Most park features and all park experiences will be accessible to all as envisioned by the RedGate Plan. An existing driveway from 14645 Rothgeb Drive (city service yard/facility) will be used to maintain and access the community garden, dog park, and other amenities and facilities in the park.
The application identifies a potential trail connection from Taft Court and a sidewalk along Avery Road. These connections are part of an ongoing study to increase pedestrian connections to RedGate Park.
Features identified for future phases of development include an amphitheater, aqua garden, additional trail improvements and enhancements, boardwalks, golf clubhouse repurpose, park entry feature and modifications to the entry driveway.
Although the above describes several park amenities and features, the 131-acre RedGate Park and Arboretum will be transformed into a predominantly passive park with about 90% of the site remaining natural for passive use. Implementation of the RedGate Plan began soon after its adoption. In 2023 and 2024, the City received grants to assist in the reforestation efforts of RedGate Park. A total of 3,429 trees and shrubs have been planted, primarily in the northern and southern ends of the park.
Project Analysis and Findings
Master Plan
The application is being processed as a Mandatory Referral in accordance with applicable state law governing the construction of public projects. As such, the City’s review of the proposal is to determine consistency with the “Plan” as defined under the Section 3-205 of the Land Use Article of the Annotated Code of Maryland, specifically as it relates to location, character, and extent as it pertains to the proposed site development. As per the referenced state code, “Plan” means the policies, statements, goals, and interrelated plans, including the City’s Rockville 2040 Comprehensive Plan for private and public land use, transportation, and community facilities documented in texts and maps which constitute the guide for the area’s future development.
This application is compliant with the City’s Comprehensive Plan and the location, character, and extent are also consistent with the Plan.
Location
The application is located within Planning Area 17 - Southlawn and RedGate. The subject property is situated in the northeast corner of the City, at the intersection of Norbeck Road and East Gude Drive. This property’s land use designation is P (Public Parks) in the Comprehensive Plan (page 399). This land use designation includes all public parks and open space, like RedGate Park.
Character
Because this project is focused on site improvements to align the property with the Re-Imagining RedGate Park Master Plan, developed by the Department of Recreation and Parks, this project is consistent with the Comprehensive Plan.
One of the key issues identified during the development of the 2040 Comprehensive Plan (page 397) is an interest in the future use and design of RedGate Park, which was formerly a municipal golf course. The first recommended City Project in this Planning Area (Project P1) is to conduct a community planning process to determine the future recreational uses of RedGate Park (page 398). That planning process has since been completed by the Recreation and Parks department, resulting in the “Re-Imagining RedGate Park Master Plan,” adopted in 2022.
Extent
Planning for the transition of the former RedGate golf course into a municipal park is identified as an action (Action 21.1) in the Land Use element of the Comprehensive Plan (page 49), as well as an action (Action 3.3) in the Recreation and Parks element (page 92).
This mandatory referral application has been submitted to begin implementing the projects and design features identified in the master planning effort that resulted from these recommended actions and projects. Thus, this application is compliant with the City’s Comprehensive Plan, and the location, character, and extent are also consistent with the parameters outlined in the Plan.
Forestry
Natural Resources Inventory/Forest Stand Delineation
This property is subject to Chapter 10.5 of the City Code, otherwise known as the Forest and Tree Preservation Ordinance (FTPO). The Natural Resources Inventory/Forest Stand Delineation (NRI/FSD) for this site was approved on June 1, 2026 (2025-35-NRI). This site is zoned as park, characterized by diverse environmental features, including forests, landscape trees, a 100-foot floodplain, and wetlands. There is an existing forest conservation easement (FTP2001-00021) on the site. The current proposal for this site prioritizes protections of these features.
Final Forest Conservation Plan
The approval of a final forest conservation plan (FFCP) is required prior to the issuance of permitting. Predicated on the approved NRI/FSD, the FFCP establishes preservation and planting requirements pursuant to the FTPO based on the proposed development and its impacts. These requirements include forest conservation (via afforestation, reforestation, and preservation) and significant tree replacement.
The FFCP will also prioritize the preservation of environmentally sensitive resources, such as floodplains, stream valley buffers, and other features.
The project has not yet received an FFCP approval. Staff anticipate that to occur in the near future.
DPW - Engineering
Stormwater Management
Stormwater Management (SWM) for this project will be required to be provided in accordance with Chapter 19 of the Rockville City Code. The Applicant will be required to obtain approval of a Pre-Application SWM Concept for the overall site, and a Development SWM Concept for each phase prior to submission of the SWM Construction Plans (permit). The Applicant will be required to comply with the conditions of the SWM Concept approval letters.
Water and Sewer
The project proposes new facilities and connections to the City water and sewer system. The Applicant is required to obtain Water & Sewer Authorization approval prior to Public Works permit submission. The Applicant will be required to comply with the conditions of the Water & Sewer Authorization approval letter.
Public Arts
As condition #21 implies, public art will be incorporated throughout RedGate Park and Arboretum, as may be feasible. A community engagement survey for public art in RedGate Park and Arboretum was conducted in June and July of 2026 and engaged 155 people. (For context, public art engagement surveys typically engage three to twenty people.) Of those who responded, 70% are Rockville residents. A majority of responses indicate that people value the wild and natural character of the park, its dog park, trails, and ability to observe animals and birds. Respondents want public art that is integrated into the natural landscape and does not impose upon or interrupt wildlife. Many people want public art that is functional and serves a dual purpose, such as a shade structure, signage, and benches, while being educational and supporting the visitor’s experience in escaping modernity and connecting with nature. The City’s Arts and Culture program is working with the Applicant and their project consultant, LSG, Inc., to determine the placement and type of artwork that will be responsive to the community engagement survey.
Public notification of the Mandatory Referral application was mailed to all property owners and residents within 500 feet of the subject property. Additionally, staff notified all Homeowners Associations and Civic Associations within the city. At the time of this report, staff have not received any communication from the public regarding the project.
In addition to the public art survey, community outreach opportunities were provided during the RedGate Park master planning effort in 2021 and 2022. Community meetings, surveys, and a project website were all provided to encourage community participation and to receive continual public feedback. These efforts were critical during the master planning process and ultimately informed the final master plan product.
Recommendation and Conditions
The proposed project is consistent with the Master Plan in terms of its location, character, and extent, as outlined in the above analysis and findings. Staff therefore recommend approval of Mandatory Referral Application 2027-397-MRF, based on the findings above and subject to the following conditions:
Planning
1. The proposed site improvements must be constructed and implemented as generally shown on the plans submitted as part of this mandatory referral application.
2. The Applicant must coordinate with staff during the project's 30% and 90% CIP design phases, to ensure that the park design and improvements remain consistent with this mandatory referral application.
3. The Applicant must sign and return the approval letter before finalizing the signature set. The approval letter must be included in the stamped approved signature set.
DPW - Engineering
4. Submission for review, approval, and permit issuance by DPW of the following detailed engineering plans, studies and computations, appropriate checklists, plan review and permit applications and associated fees. The following plans must be submitted on 24”x36” City base sheets at a minimum scale of 1”=30’ unless otherwise approved by DPW.
a. Sediment Control Permit (SCP) - Submit Erosion and Sediment Control plans for all disturbed areas;
b. Stormwater Management Permit (SMP) - Submit Stormwater Management plans for on-site stormwater management;
c. Public Works Permit (PWK) - Submit plans for all work within the Avery Road right-of-way and within any existing or required public easements. Final locations and dimensions of public improvements in rights-of-way and easements including but not limited to water, sewer, and storm drain infrastructure, street signs, street trees, curb ramps, parking spaces and traffic signal infrastructure, and streetlights will be determined in conjunction with the review of all Public Improvements Plans (PWK) and the Forestry Permit.
5. Submit a phasing plan for the construction period. The plan must include, but not be limited to, construction access, pedestrian access, truck routing, staging and construction parking. This plan must be approved before the issuance of the first permit issued by DPW.
6. Before issuance of any DPW permit, the Applicant must submit for review and approval by the Office of the City Attorney all necessary deeds, easements, agreements, dedications, and declarations. Drafts of the documents must be included with the initial submission of the engineering plans and must be recorded before issuance of DPW permits, unless otherwise allowed by DPW.
7. If the Applicant proposes work within any easements that are held by entities other than the City and that are not proposed to be terminated or abandoned, the Applicant must demonstrate to DPW’s satisfaction that the applicant has the authority to undertake such work before issuance of any DPW permit.
8. PWK permits must be issued for public infrastructure before the issuance of any building permits.
9. DPW will not approve any Demolition Permits until a Sediment Control Permit (SCP) for the area disturbed by the demolition is issued.
10. The Applicant must obtain approval of a Pre-Application SWM Concept for the ultimate development before submitting any phase-specific Development SWM Concept. The Pre-Application SWM Concept approval will establish the percent ESDV required and safe conveyance study points for the project.
11. The Applicant must obtain approval of a Development SWM Concept before submitting a SWM Construction Plan (SMP permit) for each individual phase of development. The Development SWM Concept must demonstrate that the percent ESDV established in the Pre-Application SWM Concept will be provided at the time impervious area is created or replaced for that phase. The Applicant must comply with all conditions included in the Pre-Application and Development SWM Concept approval letters.
12. The Applicant must obtain approval of a Safe Conveyance Study before approval of any associated Development SWM Concept and before submitting a SWM Construction Plan (SMP permit) for each individual phase of development. The Applicant must comply with all conditions included in the Safe Conveyance approval letter.
13. The Applicant must obtain approval of a Preliminary Erosion and Sediment Control Plan before submitting a phase-specific Erosion and Sediment Control Construction Plan (SCP permit). The Applicant must comply with all conditions included in the Preliminary Erosion and Sediment Control approval letter.
14. The Applicant must receive Water & Sewer Authorization approval before submitting for a Public Works Construction Plan (PWK permit). The Applicant will be required to comply with all conditions of the Water & Sewer Authorization approval letter.
15. Location of any dry utilities shown on the plan is conceptual. Unless otherwise approved by the Director of Public Works, the final layout of the dry utilities must not impact the locations of the proposed storm drain, water, sanitary sewer, SWM facilities, street trees and other public improvements.
16. The 100-foot floodplain buffer shown on the plan is only an approximate representation. If the project’s limits of disturbance (LOD) expand to be within or in contact with the floodplain buffer area, the Applicant must conduct a detailed floodplain study in accordance with Chapter 10 of the City Code, including the submission of all necessary supporting information for review and approval of the 100-year floodplain delineation. If a floodplain study is required, the Applicant must also apply for and obtain a new Natural Resource Inventory (NRI) approval to accurately reflect the 100-year floodplain delineation. No development may occur within the 100-year floodplain without first obtaining all necessary floodplain variance and permit approvals.
17. The existing wetland delineation and buffer areas currently shown are considered to be preliminary and approximate at this stage. If the project LOD expands into these zones, a new, detailed wetland delineation must be completed following the City’s Environmental Guidelines. If a detailed wetland delineation is required, the Applicant must also apply for and obtain a new Natural Resource Inventory (NRI) approval to accurately reflect the wetland and wetland buffer delineations.
18. Submit for review, approval and authorization by the Maryland Department of Environment and U.S. Army Corps of Engineers a Joint Permit Application, for all proposed impacts to wetlands and waterways, including temporary impacts during construction, and for any modifications to the stormwater management pond embankments, including dam safety approval. If permits or authorizations from outside agencies are required, DPW permits will not be issued until all required permits and authorizations from the appropriate state agencies with jurisdiction are received.
DPW - Traffic and Transportation
19. The Applicant must work with DPW for the provision of continuous sidewalk along Avery Road from its intersection with MD 28 to the RedGate Park and Arboretum entrance and with connections to the park’s trails and paths.
20. The Applicant must work with DPW for the provision of pedestrian and bike access from the existing Taft Ct. cul-de-sac to the park’s trails and paths.
Public Art
21. This project is exempt from a required contribution for publicly accessible art per Chapter 4, Article IV, Publicly Accessible Art in Private Development. As referenced in the project narrative of this application, the City of Rockville will implement public art in this project per the requirements of Chapter 4 Article II Incorporation of Works of Art in Public Architecture.