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HomeMy WebLinkAboutAgenda - 04-08-1998 - 2aY O ~J ORANGE COUNTY BOARD OF COMMISSIONERS CHAPEL HILL TOWN COUNCIL CARRBORO BOARD OF ALDERMEN ACTION AGENDA ITEM ABSTRACT Meeting Date: Apri18, 1998 Action Agenda Item # 2 . a SUBJECT: JPA 2-98 PROPOSAL TO AMEND THE JOINT PLANNING AREA LAND USE PLAN AND MAP TO INCORPORATE THE FACILITATED SMALL AREA PLAN FOR CARRBORO'S NORTHERN STUDY AREA DEPARTMENT: Planning PUBLIC HEARING: X Yes No ATTACHMENT(S): INFORMATION CONTACT: Roy Williford --968-7713 - Staff Analysis Patricia McGuire - 968-7713 - Recommended Small Area Plan Map - Resolution - Facilitated Small Area Plan for Carrboro's Northern Study Area TELEPHONE NUMBERS: Hillsborough - 732-8181 Durham - 688-7331 Mebane - 227-2031 Chapel Hill - 967-9251 PURPOSE: To receive public comment on a proposal to amend the Joint Planning Area (JPA) Land Use Plan and Map to incorporate the Facilitated Small Area Plan accepted by the Board of Aldermen on August 19, 1997 BACKGROUND: In February 1992, the Board of Aldermen for the Town of Carrboro determined that a comprehensive planning effort was needed for those areas of the town's jurisdiction which are expected to receive the bulk of any growth and development occurring in the coming years. Under population projections at the time, this growth was expected to include nearly 12,000 new residents by the year 2010, and associated civic, business, and commercial ventures. Due to environmental constraints associated with the protection of the University Lake water supply to the south and west of Carrboro, growth was expected to occur primarily to the north and east of the town, areas where public water and sewer service could be extended. 010 The projected growth areas include property located along the northeastern border of Carrboro and Chapel Hill, most of which was within the Town's Extraterritorial Jurisdiction, and the areas designated Transition Areas I and II by the 1987 Joint Planning Agreement. The bulk of this area was located outside of the city limits, but within the Town's planning jurisdiction, and was termed the Northern Study Area (NSA). Based on the jurisdictional categories included in the Joint Planning Land Use Plan, the land area within the NSA may be classified as follows: Classification Area (Acres) City Limits 740 Extraterritorial Jurisdiction 253 Transition Area I 1,319 Transition Area II 1,475 The Northern Study Area plan proposes to cluster a bulk of the new residential development by encouraging village-scale development, to conserve natural and environmentally sensitive areas, allows density bonuses for affordable housing meeting certain development criteria, and sanctions neighborhood- and community-scale commercial centers. The overall target density for the northern Study Area is approximately the same as the current density of the town: 2.1 dwelling units per acre. The target density for mixed-use areas is approximately five dwelling units per acre. These development management options have been selected in order to minimize the negative impacts of new development on environmental quality, transportation, taxation, and existing neighborhoods. These elements should discourage a sprawled pattern of monotonous development, preserve Carrboro's unique, small town character, and allow the creation of new, neighborhood-scale communities which can be connected to existing and new areas via a network of open space corridors. Ten goals and supporting objectives were established by the planning process for the Northern Study Area. This plan attempts to balance community, conservation and development objectives within the Transition Areas and extraterritorial jurisdiction that lie to the north of Carrboro's town limits. Community and conservation objectives include allowing patterns of growth which minimize negative impacts and maximize positive impacts on the community and allow for the efficient provision of town services, the provision of a variety of housing types and styles, development of a multi-modal transportation system, conservation of natural and environmentally sensitive areas, and the protection of environmental quality, and the encouragement of active farmland preservation. The proposed JPALUP amendment eliminates the one-unit-per-acre cap on density within Transition Area II, and adopts, by reference, the NSA plan. 2 oil RECOMMENDATION: The Orange County, Chapel Hill, and Carrboro Planning Staffs recommend approval of the proposed amendments as contained in the attached analysis. Following conclusion of the public hearing, the matter should be referred to the Towns of Chapel Hill and Carrboro for decisions and then to the Orange County Planning Board for a recommendation to the Board of County Commissioners. A proposed schedule for consideration is as follows: Chapel Hill Planning Board Recommendation -May 12, 1998 Town Council Decision -May 26, 1998 Carrboro Planning Board Recommendation -April 16, 1998 Board of Aldermen Decision -May 12, 1998 Orange County Planning Board Recommendation -June 3, 1998 Board of County Commissioners Decision -June 22, 1998 3 ol~ 013 MEMORANDUM TO: FROM: ORANGE COUNTY BOARD OF COMMISSIONERS CHAPEL HILL TOWN COUNCIL CARRBORO BOARD OF ALDERMEN ORANGE COUNTY PLANNING BOARD ORANGE COUNTY MANAGER CHAPEL HILL TOWN MANAGER CARRBORO TOWN MANAGER ORANGE COUNTY PLANNING STAFF TOWN OF CHAPEL HILL PLANNING STAFF TOWN OF CARRBORO PLANNING STAFF RE: JPA 2-98 NORTHERN STUDY AREA PLAN -Proposed Amendment to the Joint Planning Area Land Use Plan and Map DATE: APRIL 8, 1998 The purpose of this public hearing is to receive comment on a proposal to amend the Joint Planning Land Use Plan (JPALUP) and Map to incorporate the Facilitated Small Area Plan for Carrboro's Northern Study Area accepted by the Boazd of Aldermen on August 19, 1997. The plan covers both Transition Areas I and II as specified in the JPALUP, as well as azeas within Carrboro's city limits and extraterritorial jurisdiction. Back rg ound In February 1992, the Board of Aldermen for the Town of Carrboro determined that a comprehensive planning effort was needed for those areas of the town's jurisdiction which are expected to receive the bulk of any growth and development occurring in the coming yeazs. Under population projections at the time, this growth was expected to include neazly 12,000 new residents by the year 2010 and associated civic, business, and commercial ventures. Due to environmental constraints associated with the protection of the University Lake water supply to the south and west of Carrboro, growth was expected to occur primazily to the north and east of the town, azeas where public water and sewer service could be extended. It was decided that this planning effort would take the form of a small azea plan and that a group of citizens that included residents, property- and business- owners from within the town and study area would participate in the process. O ~ ~~ Staff Analysis Memorandum - JPA 2-98 page 2 By late 1993, the planning process was underway, with Town staff providing support to the 31-member Small Area Plan Work Group. In February 1996, a public hearing on the Small Area Plan for Carrboro's Northern Study Area -Proposed Draft for Presentation was held. Due to the issues raised during the hearing, the Board of Aldermen proposed that a facilitated planning conference be held, at which a consensus plan would be developed. A Steering Committee made up of elected officials and residents of the study area was established to plan the workshop. The planning conference took place on two Saturdays, approximately one month apart, in the Spring of 1997, with staff of the Orange County Dispute Settlement Center serving as facilitators and Randall Arendt of the Natural Lands Trust providing professional planning assistance. As the plan primarily affected development in the unincorporated portions of Carrboro's planning, jurisdiction, funds for the conference were provided by all three parties to the Joint Planning Agreement, Carrboro, Chapel Hill and Orange County. Approximately 150 citizens participated in the process. The original plan was revised in accordance with the consensus of the participants and the Facilitated Small Area Plan for Carrboro's Northern Study Area (NSA) was finalized. The Facilitated Small Area Plan for the Northern Study Area Carrboro's Northern Study Area encompasses all of the Transition Areas covered by the 1987 Joint Planning Area Land Use plan and portions of the ETJ and town limits (see attached map). The study area is characterized by residential activity, with a small commercial node, specified in the JPALUP, at the Calvander intersection. The existing plan established the transition areas adjacent to the town's urban areas as those areas were in the process of changing from rural to urban uses, or were already urban in use and were projected to be provided with urban services. The town's 1977 Land Use Plan, Land Use Ordinance and other policy documents specified those portions of the study area as suitable for residential development. Since 1987, additional portions of the study area have been developed at urban densities of between one and three units per acre. In February 1992, the Board of Aldermen for the Town of Carrboro determined that a comprehensive planning effort was needed for those areas of the town's jurisdiction which are expected to receive the bulk of any growth and development occurring in the coming years. The new plan places primary emphasis for development in the study area on residential activity, although no site-specific proposals are included. The Facilitated Plan proposes the use of net, rather than gross, residential density calculations, with reductions based on natural constraints such as floodplains, steep slopes, and utility easements. The plan also proposes to cluster a bulk of the new residential development by encouraging village- scale development, conservation of environmentally sensitive areas, density bonuses for affordable housing meeting certain development criteria, and neighborhood- and community-scale commercial centers. The overall target density for the northern Study Area is approximately the same as the current density of the town: 2.1 dwelling units per acre. The target density for mixed-use areas is approximately five dwelling units per acre. These development management options have been selected in order to minimize Staff Analysis Memorandum - JPA 2-98 Page 3 O 1 S the negative impacts of new development on environmental quality, transportation, taxation, and existing neighborhoods. These elements should discourage a sprawled pattern of monotonous development, preserve Carrboro's unique, small town chazacter, and allow for the creation of new, neighborhood-scale communities which can be connected to existing and new azeas via a network of open space corridors. The mixed-use and office/assembly districts described in the plan allow for small-scale commercial and light manufacturing activities to occur in the study azea. Conditional- use, floating zones in both categories aze to be established, which will require that rezoning requests for these uses be supported by master plans for site development. The plan proposes no changes to the commercial node at Calvander. This plan attempts to balance community, conservation and development objectives within the Transition Areas and extraterritorial jurisdiction that lie to the north of Carrboro's town limits. Community and conservation objectives include allowing patterns of growth which minimize negative impacts and maximize positive impacts on the community and allow for the efficient provision of town services, the provision of a variety of housing types and styles, development of a multi-modal transportation system, and the conservation of natural and environmentally sensitive azeas. The Boazd of Aldermen established an Ordinance Drafting Committee on September 16, 1997 to develop regulations that would implement the plan. Recognizing the uncertainty which might have been created as to the effect of revisions to the land use ordinance on any pending development applications, asix-month moratorium on the review of Special and Conditional Use Permit applications was placed on the Northern Study Area. Between November, 1997 and May, 1998, the moratorium will prevent the review of development applications which might be rendered obsolete by any ordinance amendments, and preserve the status quo of major tracts of land located within the Northern Study Area. Changes to the JPALUP require approval by all three governing boazds. The drafting committee has submitted joint planning amendments to Orange County staff for review, and has identified regulatory changes that are needed to support the key elements of the plan. Amendments to the Town of Carrboro Land Use Ordinance and supporting design standards are being developed to formalize the plan's concepts, including traditional neighborhood developments, affordable housing, and floating zones. Proposed Amendments The proposed amendments affect the Joint Planning Land Use Plan and Joint Planning Agreement. The changes will incorporate the facilitated plan, by reference, into the Joint Plan, will remove the 1-acre cap on density in Transition Area II, and will eliminate the division of Cazrboro's Transition Area into Transition Area I and Transition Area II. Draft resolutions for consideration aze attached. The proposed amendments to the plan text are as follows: ol~ Staff Analysis Memorandum - JPA 2-98 Page 4 1. Section V of the Plan ("Joint Planning Operating Principles") is amended on page 59 by deleting the entire first paragraph at the top of the page, which begins with "The portion of the Transition Area...." and includes numbered subparagraphs 1 through 5. (The deleted language divides Carrboro's Transition Area into Transition Area I and Transition Area II and prohibits the density of Transition Area II from exceeding one unit per acre until at least 75% of the area within Transition Area I meets certain developmental thresholds). 2. Section VI of the Plan ("Future Land Use -Joint Planning Area") is amended on page 71 by deleting from the first paragraph under the heading "Transition Areas" everything after the first two sentences. (The deleted language references and describes the division of Carrboro's Transition Area into Transition Area I and Transition II as described above). 3. Section VII of the Plan ("Overview of Implementation Strategies") is amended on page 91 by adding under the heading "Coordination with other Plans" a second paragraph to read as follows: "Without limiting the generality of the foregoing, the "Facilitated Small Area Plan for Carrboro's Northern Study Area," accepted by the Carrboro Board of Aldermen on August 19, 1997, is specifically incorporated by reference into this Plan and supersedes any provisions of this Plan that are inconsistent with the Small Area Plan with respect to the CJDA Transition Area." Analysis Article 2.2.14 of the Orange County Zoning Ordinance specifies the reasons for which the Comprehensive Plan may be amended. As the JPA Land Use Plan is a part of the Orange County Comprehensive Plan, it is necessary to review any proposed changes for consistency with the reasons stated there. a) Because of changed or changing conditions in a particular area or areas of the county. Not Applicable. None are cited in the amendment request. b) To correct an error or omission: Not Applicable. None are known. c) In a response to a change in the policies, objectives, principles, or standards governing the physical development of the County. This amendment is a refinement of the policy expressed in the 1986 Joint Planning Land Use Plan for the Transition Areas. The plan attempts to achieve a better balance between the impacts of expected population growth, the orderly extension of public services and facilities and conservation of natural and sensitive areas. The plan has been developed to accommodate development similar to that found in the Town presently in those portions of the study area most suited for it, leaving other areas to be developed at significantly lower densities or left in their present state. Staff Analysis Memorandum -JPA 2-98 Page 5 O Compatibility of Amendment with Existin~Joint Planning Area Policy Proposed amendments to the JPA Land Use Plan aze evaluated for compatibility with Joint Planning Operating Principles. These policy statements aze listed on pages 51-53 of the Plan and were originally taken from the Orange County Land Use Plan and the Chapel Hill discussion paper on Land Use Plan Assumptions. The principles aze grouped into seven categories. The categories and compliance status of the Northern Study Area Plan aze presented in the following table: Principle Compliance Open Space Yes University Lake Watershed Not applicable Higher Intensity Uses/Transition Area Yes Rural Areas Yes Urban Form Yes Utility Extensions Yes Allocation of Growth Yes The six applicable principles and their compliance are discussed in further detail below. Open Space Principle: The existing open space system in Chapel Hill Township, which includes Duke Forest Lands, the UNC buffer azound University Lake, the Morgan Creek Wildlife area, and existing agricultural and forest land, should be protected from intrusion from incompatible land uses. (OC) Staff Comment: The NSA Plan identifies Duke Forest Lands as part of the existing open space system. No changes to this system are proposed. The plan identifies additional open space/greenway areas in the Bolin Creek corridor. The plan also alters the permitted density of any tract of land based on the primary and secondary constraints found there, and requires that constrained areas be set aside as either part of the 40 percent open space or as part of the undeveloped portion of private lots. The plan aims to maintain the character and natural beauty of the study area through the preservation of scenic vistas, the adoption of design guidelines, and the conservation of traditional and non-traditional farming activities. Higher Intensity Uses/Transition Area Principle: The more intensive land uses are most appropriately located within the towns and then within the areas adjacent to the town likely to become urban. (OC) A transition area should be designated, between existing developed azeas and the rural buffer, as a target azea for new development to occur: (CI-I) 014 Staff Analysis Memorandum - JPA 2-98 Page 6 Staff Comment: The Northern Study Area falls within the areas designated as Transition Areas I and II in the Joint Planning Area Land Use Plan. The plan does not propose any changes to areas outside of the Transition Areas. Rural Areas Principle: The rural residential and agricultural character of the Township outside the Towns and adjacent transition areas should be maintained. (OC) Rural lands currently existing between the Chapel Hill/Carrboro urban lands and Hillsborough (rural buffer) should be preserved. (CH) Staff Comment: The NSA plan proposes no changes to the Rural Buffer. In addition, the village-style of development that may occur in the floating, conditional use zones will allow conservation of rural areas within the transition areas as density is transferred into the villages, and less dense development occurs in other areas. Performance standards are to be developed for the proposed business/off ce/assembly area to insure that this use does not create undue negative impacts on neighbors. Urban Form Principle: A compact form of development should be achieved avoiding urban sprawl. The urbanizing areas of the Towns are the major growth centers in the Township. The "infill" of existing urban areas is the guiding principle upon which the Chapel Hill Township Plan is based. "Infill" development of suitable vacant land within the Towns at existing or projected densities, as set forth in the Town' 1977 Land Use Plans should be encouraged. (OC) Staff Comment: Village developments are compact, by design. Carrboro has experienced a high level of infill development since 1977. Approximately 75 acres of land within the city limits remain to be developed. Utility Extensions Principle: The timing of utility extensions and the pace of growth should be coordinated. (CH) Water and sewer service should not be extended outside the boundaries of the Joint Planning Area. (CH) Staff Comment: The limits of the study area were determined in part based on the ability of OWASA to serve the area with a gravity flow sewage system, although such provision will necessarily grow over time and will not occur all at once. The town will continue with the current policy of providing other Town services concurrent with the attainment of minimum service level standards. There are no plans to extend water and sewer service outside the Joint Planning Area. Staff Analysis Memorandum - JPA 2-98 Page ~ O ~ ~~ Allocation of Growth Principle: Areas where public facilities and services are available should be developed before areas where such services are not yet available. (CH) To the maximum extent feasible, no "spillover" growth from the two Towns will occur in Chatham or Durham Counties or in Bingham Township. In other words, all "spillover" development will be absorbed within the boundaries of Chapel Hill Township. (OC) The area north of Town is assumed to be most suitable for absorbing "spillover" because of transportation access, the large, efficiently sewerable area below the Morgan Creek- New Hope Creek divide, and existing growth patterns. (OC) The "Southern Triangle" area will develop only after all the suitable land south of and between the Duke Forest tracts has been developed. (OC) Duke Forest tracts will not be developed over the period 1980-2000. (OC) Staff Comment: Village Development is to occur in areas served, or to be served, by public facilities and services. Conservation subdivision methods will be used in other areas. The plan proposes to contain residential development associated with population growth through the year 2010. The Northern Study Area is located within the area deemed most suitable for absorbing spillover growth. The study area does not include the "Southern Triangle. " There are no plans to develop Duke Forest tracts. Recommendation The Planning staffs of Chapel Hill, Carrboro, and Orange County recommend approval of the proposed amendment to the JPA Land Use Plan and Map. We find the recommendations of the Facilitated Small Area Plan for Carrboro 's Northern Study Area to be consistent with the Joint Planning Operating Principles. The plan enhances both the operating principles and the land use categories developed in the Joint Land Use Plan. The NSA plan identifies the social, environmental, and fiscal impacts of urban development and proposes the allocation of this development to the most suitable locations. _, ,. ~ ~ ~_ ~ i t / - ~ ~ i ' r ;_ -_ t I _ , pp ' ~ ~ _ _ I ~ ~i ~ ~ o ~ 1 e '' ~ ,_ `" ~~ '~~ g ~ I _ _ r - ~. ~ _ _ ~ ~, t li ~ ~ ~. u w ~- ~1 I~~~~~~ ~--~ ~ ~ ~- - ~ ~I - ~ fI 'e r ~ ~ p o ` it s ~ I __-- - lj ~ i ~ ~ _ ( I I ~ ,, g ~ y , ~ _, ~ _'~ ~ ~ ~ e Y ~ 1 i ,~ t er` ~11~ ~~~+o+! iil~~si~~~9s+ ~+~ ' X ~a _~_ 1 _I. _~-- `~~ ~ ~ -~--__ ~ I r~} -_ li, _•~ ` _ I ~ 1 ~~ I I ~ I E~ yy y I p # g@ -- -- .. ~. t 1 8 @a., 'JI .~ ~ ~ 5 ~ ,~ '''¢° "~ .ta'4~aj,a~~~ ' _' I ' 1 T -_ -- I11III? ~~ I I ~ j a f t! ~1 il~ $~i a~ai 3 £^ r~ ~ ~. ~ ~ ~ __~ ~ 1~~ 1 ,1 - ~ .~ . ~ iii ~i, ~ ~ 1~ ~~ ~rn;,'~~, ~ I ~. a~-~ ~ ~ , ~i ' ~- __ ,_: 1 ~~ ~ - _ ~ --- i ~ ~ ~~ ~ ~ --- ~ 1 ~~ ~~ ~1 r _ ~n i -- ~ 1,~ ~-~ ~ t i - ~~ ~ ~~ __ ' ~ l I ~ Y~` 'f 1 TS y -~ - _ i ~l~f[Ci~ill~tr~~ _ ~~ ~ ~ ~i +r ,~ - ~ n.~. _ ~,' ~ -- - ~ ~_ 1 ~ ~ ~. ~ ~ _ i I ~ ~ ~,~ - ,~ ~ _ ~ ~ j ~ ~, I ~ i ~• ~, - ~ ~ ~ r 1 ~.. I - _ ,~, ~ i ~~ • ~. ~q ~~ „~ ,~ r, ~ ~ '~ ~_~ ~ y ~ _ '' ~ I~ ~ , ~~ ~ ,, ~ r1 [~ [ ~ ~ i _ ~ MM ~ ~ ~ ~~ i ~ ~;~,a ~ ~ ~ ~ ~ j ~~'e • _ , _ -_ M M ~, a ~~ w ~ i 1~ ~ i • ~, _ ,~~, ~ i ~~ - ~ • r (~f ff 021 A RESOLUTION AMENDING THE JOINT PLANNING AREA LAND USE PLAN WHEREAS, Orange County, the Town of Chapel Hill, and the Town of Carrboro entered into a Joint Planning Agreement, dated September 22, 1987, as amended April 2, 1990, and WHEREAS, pursuant to the Joint Planning Agreement, a Joint Planning Area Land Use Plan was adopted on October 13, 1986 by all parties to the Joint Planning Agreement, and has since been amended on several occasions; and WHEREAS, A Small Area Plan that provides a framework for the future use of land within Carrboro's northern growth area was accepted by the Carrboro Board of Aldermen on August 19, 1997, and WHEREAS, the Small Area Plan was the product of a four year planning process that involved numerous public officials, planners, and residents of the affected area, culminating in a two-day facilitated workshop sponsored by Orange County, Chapel Hill, and Carrboro; and WHEREAS, the geographic area covered by the Small Area Plan includes Carrboro's Transition Area as identified in the Joint Planning Agreement, which area is also covered by the Joint Planning Area Land Use Plan; and WHEREAS, implementation of the recommendations contained in the Small Area Plan requires certain amendments to the Joint Planning Area Land Use Plan; NOW THEREFORE, THE [ORANGE COUNTY BOARD OF COMMISSIONERS] [CHAPEL HILL TOWN COUNCIL] [CARRBORO BOARD OF ALDERMEN] HEREBY RESOLVES THAT THE JOINT PLANNING LAND USE PLAN BE AMENDED AS FOLLOWS: 1. Section VII of the Plan ("Overview of Implementation Strategies") is amended on page 91 by adding under the heading "Coordination with other Plans" a second paragraph to read as follows: "Without limiting the generality of the foregoing, the "Facilitated Small Area Plan for Carrboro's Northern Study Area," accepted by the Carrboro Board of Aldermen on August 19, 1997, is specifically incorporated by reference into this Plan and supersedes any provisions of this Plan that are inconsistent with the Small Area Plan with respect to the CJDA Transition Area.". 2. Section V of the Plan ("Joint Planning Operating Principles") is amended on page 59 by deleting the entire first paragraph at the top of the page, which begins with "The portion of the Transition Area...." and includes numbered subparagraphs 1 through 5. (The deleted language divides Carrboro's Transition Area into Transition Area I and Transition Area II and prohibits the density of Transition Area II from exceeding one unit per acre until at least 75% of the azea within Transition Area I meets certain developmental thresholds). ~~ ~~ ~~~ 3. Section VI of the Plan ("Future Land Use -Joint Planning Area") is amended on page 71 by deleting from the first paragraph under the heading "Transition Areas" everything after the first two sentences. (The deleted language references and describes the division of Carrboro's Transition Area into Transition Area I and Transition II as described above): This resolution shall become effective upon adoption by the governing bodies of Orange County, Chapel Hill, and Carrboro.