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HomeMy WebLinkAboutAgenda - 04-08-1998 - 3a0 2 '7 ORANGE COUNTY BOARD OF COMMISSIONERS CHAPEL HILL TOWN COUNCIL CARRBORO BOARD OF ALDERMEN ACTION AGENDA ITEM ABSTRACT Meeting Date: Apri18, 1998 Action Agenda Item # 3 . a SUBJECT: PROPOSAL TO AMEND THE JOINT PLANNING AREA LAND USE PLAN TO INCORPORATE THE NORTHWEST SMALL AREA PLAN (JPA-3-98) DEPARTMENT: Planning PUBLIC HEARING: X Yes No ATTACHMENT(S): - staff Analysis - Map -Northwest Area Plan Study Area - Map -Conceptual Land Use Plan - Northwest Small Area Plan INFORMATION CONTACT: Rob Wilson 968-2728 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 to incorporate the Chapel Hill Northwest Small Area Plan as accepted by the Chapel Hill Town Council on September 11, 1995. BACKGROUND: In January, 1993, the Council initiated a small area planning process for the northwestern portion of the Town's planning jurisdiction. The Northwest Small Area Plan study area generally consists of the land south of Interstate 40, including a portion of the land north of Weaver Dairy Road, the land west of Airport Road (N.C. Highway 86), and the land north of the University of North Carolina's Horace Williams tract and Homestead Road. The western boundary of the area generally follows Rogers Road. A rail line bisects the study area. The study area is also split into three drainage basins: New Hope Creek, Booker Creek and Bolin Creek. The Northwest Small Area Plan Work Group met regularly from May, 1993 to December, 1994, and recommended the Northwest Small Area Plan to the Council on December 20, 1994, as a proposed addition to the Town's Comprehensive Plan. On September 11, 1995, the Town Council requested that the Plan be considered at a Joint Planning Area Public Hearing. Including approximately 1,680 acres, the Northwest study area presently includes the Northwood, Parkside, Rainbow Heights, Billabong Lane and 02~ Rogers Road neighborhoods. The study area also includes the existing landfill, the Greene Tract, the Chapel Hill North Development, the Southern Orange Human Services Building, the Duke Power Building and the Northern Community Pazk. The recommended Northwest Small Area Plan provides a vision to guide development in this Town growth azea. Accordingly, the Recommended Plan incorporates the following "building blocks" as part of the long range vision for the Northwest Area: Protection of Existing Neighborhoods, Affordable Housing, Open Space, Greenways, Village Pattern, Employment Campus and a Transportation Corridor. In general, the Plan proposes a Village Pattern of development along the rail line corridor, primarily located on the Greene tract. The Plan assumes that the Greene tract would be developed and would not be used for landfill purposes. Generally decreasing residential densities aze proposed as distance from the village center increases, in an effort to help preserve the chazacter of existing neighborhoods. The Plan also suggests several greenways. The Plan proposes a new large Community Park in the northwest corner of the Greene tract, and that a portion of the Greene tract be used for affordable housing. Since the Greene tract is jointly owned by the Towns of Chapel Hill and Carrboro, and Orange County, any future use of the tract would require the agreement of all three jurisdictions. The Plan proposes an Employment Campus land use along Eubanks Road, near the Interstate 40 and N.C. 86 interchange. This Employment Campus would be intended to serve primarily as a place for employment rather than for shopping. The Plan also recommends a feasibility study on the concept of establishing a Transportation Corridor along the rail line that bisects the Northwest study area. In summary, the Plan seeks to balance community, conservation and development objectives within the Northwest study azea. A clustered pattern of growth is envisioned in order to permit the preservation of open space for pazks and greenways, while also buffering existing neighborhoods from future development. Non-residential uses aze strategically envisioned to take advantage of the close proximity of Eubanks Road to Interstate 40 as well as the potential Transportation Corridor that would bisect the azea. RECOMMENDATION: The Orange County, Chapel Hill, and Carrboro Planning staffs recommend approval of the proposed amendment 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 decision and then to the Orange County Planning Boazd for a recommendation to the County Commissioners. A proposed schedule for consideration. is as follows: 2 0 2'~ 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 03~J 031 ., MEMORANDUM To: Orange County Board of Commissioners Chapel Hill Town Council Carrboro Board of Aldermen Orange County Planning Board John Link, Orange County Manager W. Calvin Horton, Chapel Hill Town Manager Robert Morgan, Carrboro Town Manager FROM: Orange County Planning Staff Chapel Hill Planning Staff Carrboro Planning Staff DATE: Apri18,1998 SUBJECT: JPA-3-98 NORTHWEST SMALL AREA PLAN - Proposed Amendment to the Joint Planning Area Land Use Plan and Map The purpose of this Joint Planning Area Public Hearing is to receive public comment on a proposal to amend the Joint Planning Area (JPA) Land Use Plan and Map to incorporate the Chapel Hill Northwest Small Area Plan as accepted by the Chapel Hill Town Council on September 11, 1995. Background In June, 1989, the Chapel Hill Town Council adopted a Comprehensive Plan for the Town of Chapel Hill and its planning jurisdiction. At the conclusion of this community-wide comprehensive planning effort, the Council indicated a desire to develop more detailed "small area plans" for three relatively undeveloped portions of the Town's planning jurisdiction. In particulaz, the Council desired to see additional fine tuning of the comprehensive plan for the southern, northeast and northwestern portions of Chapel Hill's jurisdiction. Accordingly, in June, 1992, the Chapel Hill Town Council adopted the Southern Small Area Plan for the portion of the Town's planning jurisdiction south of Morgan Creek. In January, 1993, the Council initiated a small azea planning process for the northwestern portion of the Town's planing jurisdiction. The Northwest Small Area Plan Work Group met monthly from May, 1993 until December, 1994. During the Work Group's planning process, the Group held three neighborhood meetings to receive public comment and also coordinated with the Town of Carrboro's Small Area Plan Work Group. On December 20, 1994, the Work Group unanimously recommended the Northwest Small Area Plan to-the Council as a proposed addition to the Town's Comprehensive Plan. C?3 The Chapel Hill Town Council held a public hearing on the recommended plan on Mazch 1, 1995. On June 26, 1995, the Council reviewed all of the comments received from the Public Hearing and the recommendations from different advisory boazds, and scheduled a work session on August 30, 1995. At the work session on August 30, 1995, the Council and representatives from the Orange County Boazd of Commissioners and the Carrboro Boazd of Aldermen discussed several key issues regarding the Plan. Following this work session, on September 11, 1995, the Council adopted a resolution asking Orange County and Carrboro to hold a joint work session on the Greene Tract and to hold a Joint Planning Public Hearing on October 11, 1995. A Public Hearing was not held on the plan, but instead joint work sessions were held on the Greene Tract and the proposed Northwest Small Area Plan on October 11, 1995. At the conclusion of the Joint Planning work session held on October 11, 1995, Chapel Hill, Carrboro and Orange County elected officials agreed to put the Northwest Small Area Plan on hold for six months until the Landfill Owners Group recommended a new landfill site and then made recommendations on the future use of the Greene Tract. A yeaz later, on September 6, 1996, the Chapel Hill Town Council asked the Landfill Owners Group to make a recommendation on the future use of the Greene Tract by January 1, 1997, in order that the Northwest Small Area Plan could be considered at an April, 1997 Joint Planning Public Hearing. On January 27, 1997, the Town Council received a report from Richazd Frank, Chair of the Landfill Owners Group, concerning its resolution on the Greene Tract. This resolution requested that no action be taken on those parts of the Plan which pertain to the Greene Tract, and that the Council consider options that reflect both the possibility that OC-17 will be used for solid waste activity and the possibility that it will not. The resolution suggested that a task force be formed to study the Greene Tract. No Town Council action was taken on this resolution. No further actions were taken until February 23, 1998, when the Chapel Hill Town Council considered applications for the April 8, 1998, Joint Planning Public Hearing. Noting that the Carrboro Northern Small Area Plan was on the agenda, the Chapel Hill Town Council requested that the Chapel Hill Northwest Small Area Plan also be included on the agenda. In particular, the Town Council noted that the two small azea plans aze interrelated and that it would be desirable for the towns' northern small area planning endeavors to move forward together. The Orange County Board of Commissioners responded by agreeing to include Chapel Hill's Northwest Small Area Plan on the Joint Planning Area Public Hearing meeting agenda. Summary of the Northwest Small Area Plan The Northwest Small Area Plan study azea is generally the land south of Interstate 40, including a portion of the land north of Weaver Dairy Road, the land west of Airport Road (N.C. 86), and the land north of the University of North Cazolina's Horace Williams Tract and Homestead Road. The western boundary of the area generally follows Rogers Road. A rail line bisects the northwest area, and a lazge pazcel of property in the center -of the azea (known as the Greene Tract) is jointly owned by the Town of Chapel Hill, the Town of Carrboro, and Orange County. 2 033 ., The Recommended Plan incorporates the following "building blocks" as part of the long range vision for the Northwest Area: • Protection of Existing Neighborhoods • Affordable Housing • Open Space • Greenways • Village Pattern • Employment Campus • Transportation Corridor The Plan proposes a Village Pattern of development along the rail line corridor, primarily located on the Greene Tract. The plan assumes that the Greene Tract would be developed and would not be used for landfill purposes. Generally decreasing residential densities are proposed as distance from the village center increases, in an effort to help buffer and preserve the chazacter of existing neighborhoods. The Plan also proposes that the sale or lease of the Greene Tract be contingent upon at least a portion of the Greene Tract being used for affordable housing. A new lazge Community Park is also proposed in the northwest corner of the Greene Tract. This proposed pazk is intentionally located in the northwest corner of the tract in an effort to help buffer and protect the character of the Rogers Road neighborhood. The Plan also suggest several greenways. In particular, the plan recommends that a greenway be developed to connect the Town's Northern Community Pazk to the new "Greene Pazk." The use of the Greene Tract for land uses such as a village pattern and a pazk would require the approval of all three governments that share ownership of the tract: Chapel Hill, Carrboro, and Orange County. The Plan also supports the Town's Comprehensive Planning goals of encouraging the local economy by recommending an Employment Campus land use along Eubanks Road, near the Interstate 40 and N.C. 86 interchange. This Employment Campus would be intended to serve primarily as a place for employment rather than as a place for shopping. Since the Employment Campus would be a new land use category, the plan recommends creating a new Employment Campus zoning district. A Transportation Corridor is recommended in coordination with the rail line. This Transportation Corridor could focus on promoting the use of a variety of alternative modes of travel, ranging from pedestrian and bikeway facilities to light rail transit. The Plan recommends a feasibility study of the Transportation Corridor concept to investigate the short-term and long- term options for this idea. Proposed Amendment to the Joint Planning Area Land Use Plan and Map The proposed amendment to the Joint Planning Land Use Plan and Map will incorporate the Northwest Small Area Plan, by reference, into the Joint Planning Land Use Plan and Map. This amendment is proposed asfollows: - 3 03~~ 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 "Northwest Small Area Plan for. Chapel Hill's Northwest Study Area," accepted by the Chapel Hill Town Council on September 11, 1995, 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 Chapel Hill's northern Transition Area. Analysis Article 2.2.14 of the Orange County Zoning Ordinance states the reasons for which the Orange County Comprehensive Plan may be amended. Since the Joint Planning Area Land Use Plan is a part of the Orange County Comprehensive Plan, it is necessary to review those reasons stated in the Orange County Zoning Ordinance for applicability to this request. In particular, the reasons that may be cited from the Orange County Zoning Ordinance for changing the Orange County Comprehensive Plan are as follows: A) "Because of changed or changing conditions in a particular area of the County." B) "To correct an error or omission in the Comprehensive Plan." ~:~ C) "In response to a change in policies, objectives, principles or standards governing the physical development of the County." This amendment is a refinement of the policy expressed in the 1986 Land Use Plan for the Joint Planning Transition Areas, and therefore, is justified in accordance with reason (C). The Chapel Hill Northwest Small Area Plan would supersede existing land use policies for this area and represent a change in policies, objectives, principles and standards governing the physical development of the County. Comaatibility of Amendment with Ezistin~ Joint Planning Area Policy Proposed amendments to the Joint Planning Area Land Use Plan are evaluated for compatibility with Joint Planning Operating Principles. These policy statements are listed on pages 49-53 of the Plan. The principles are grouped into seven categories. The categories and compliance status of the Northwest Small Area Plan are summarized in the following table: Princi le Com fiance O en S ace Yes Universi Lake Watershed Not a licable Hi er Intensi Uses/Transition Area Yes Rural Areas Not a licable Urban Form Yes Utili Extensions Yes Allocation of Growth Yes 4 03 These seven categories and their compliance with the Northwest Small Area Plan aze further discussed below. Open Space Principle: The existing open space system in Chapel Hill Township, which includes Duke Forest Lands, the UNC buffer around University Lake, the Morgan Creek Wildlife azea, and existing agricultural and forest lands, should be protected from intrusion by incompatible land uses. Staff Comment: Although the Northwest Study Area is adjacent or in close proximity to Duke Forest Lands along Eubanks Road and north of Interstate 40, the Small Area Plan does not propose for any land uses to intrude into these areas. The Northwest Small Area Plan does seek to preserve significant stream corridors that drain into these areas, while also identifying additional open space/greenway areas. University Lake Watershed Principle: University Lake water supply watershed should be developed in a manner which will protect the quality of the water supply. Very low density residential, low intensity commercial and agricultural land uses aze appropriate in this area. The University Lake Watershed Area should be protected for reasons of water quality; developments should occur only at low densities, and water and sewer lines should not be extended into this watershed. Staff Comment: The Northwest Study Area does not include land in the University Lake watershed. Therefore, this principle is not applicable to the Northwest Small Area Plan. Higher Intensity Uses/Transition Areas Principle: The more intensive land uses aze most appropriately located within the towns and then within the azeas adjacent to the Towns likely to become urban. A transition area should be designated, between existing developed areas and the rural buffer, as a target azea for riew development to occur. Staff Comment: The Northwest Study Area falls within an area designated as a "transition area " in the Joint Planning Area Land Use Plan. Rural Areas Principle: The rural residential and agricultural character of the Township outside the Towns and adjacent transition azeas should be maintained. Rural lands currently existing between the Chapel HilUCazrboro urban area and Hillsborough (rural buffer) should be preserved. Staff Comment: The Northwest Small Area Plan supports_ the concept that the Rural Buffer should be preserved. The Plan does note however, that there is a small area east of Duke Forest and west of the current landfill, along Eubanks Road, that differs signifrcantly in character from 5 036 the surrounding Blackwood Division of Duke Forest. In particular, based on the small size of these lots when compared to the larger surrounding tracts of land and the proximity of these lots to the current landfill, the Northwest Small Area Plan suggests that these nine (9) lots may be better placed in Chapel Hill's transition area rather than remaining in the rural buffer. (This issue is also addressed as part of a citizen request that is discussed in a separate memorandum for this Joint Planning Area Public Hearing.) 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 Towns' 1977 Land Use Plans should be encouraged. Staff Comment: The Northwest Small Area Plan proposes to achieve a compact form of development through a village pattern of development. By placing single family residences, townhouses, apartments, offices and commercial uses in close proximity to each other, a village pattern of development promotes a pedestrian environment while also permitting the preservation of other land for open spaces, greenways and stream corridors. The area covered by the Northwest Small Area Plan is within the Town's Urban Services Area as defined in the 1986 Land Use Plan and the 1989 Comprehensive Plan. The Urban Services Area is the Town of Chapel Hill's long range planning area that is expected to have urban development, served by public water and sewer facilities. Utility Extensions Principle: The timing of utility extensions and the pace of growth should be coordinated. Water and sewer service should not be extended outside the boundaries of the Joint Planning Area. Staff Comment: The Northwest Small Area Plan does not include plans to extend water and sewer service outside the Joint Planning Area. Allocation of Growth Principle: Areas where public facilities and services are available should be developed before areas where such services are not yet available. 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. 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. The "Southern Triangle" area will develop only after all the suitable land south of and between the Duke Forest tracts has been developed. Duke Forest tracts will not be developed over the period 1980-2000. 6 Q37 Staff Comment: The Northwest Small Area Plan provides a plan for growth that would occur in areas served or to be served by public facilities and services. The Northwest Study Area does not include any "spillover" growth, and does not include any land located in Chatham or Durham Counties, Bingham Township, or the "Southern Triangle "area. The Northwest Study Area does include the small southeast portion of the Blackwood Division of Duke Forest, which is separated from the main tract and is located south of Eubanks Road and east of Rogers Road. The Northwest Small Area Plan proposes that this portion of Duke Forest remain part of the Rural Buffer. Recommendation 'The Planning staffs of Chapel Hill, Carrboro, and Orange County recommend approval of the proposed amendment to the Joint Planning Area Land Use Plan and Map. We find the recommendations of the Chapel Hill Northwest Small Area Plan to be consistent with the Joint Planning Operating Principles. 7 03~ A RESOLUTION AMENDING ` THE JOINT PLANNING AREA LAND USE PLAN AND MAP 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 Apri12, 1990; and WHEREAS, pursuant to the Joint Planning Agreement, a Joint Planning Area Land Use Plan and Map were adopted on October 13, 1986, byall parties to the Joint Planning Agreement, and have since been amended on several occasions; and WHEREAS, a Small Area Plan that provides a framework for the future use of land within Chapel Hill's northwest transition azea was accepted by the Chapel Hill Town Council on September 11, 1995; and WHEREAS, the Small Area Plan was the product of a two and one-half yeaz planning process that involved numerous public officials, planners, and residents of the affected azea, and included three neighborhood meetings and a Town Council Public Hearing; and WHEREAS, the geographic azea covered by the Small Area Plan includes Chapel Hill's northern Transition Area as identified in the Joint Planning Agreement, which area is also covered by the Joint Planning Area Land Use Plan and Map; and WHEREAS, implementation of the recommendations contained in the Small Area Plan requires an amendment to the Joint Planning Area Land Use Plan and Map; NOW THEREFORE, THE ORANGE COUNTY BOARD OF COMMISSIONERS, CHAPEL HILL TOWN COUNCIL AND CARRBORO BOARD OF ALDERMEN HEREBY RESOLVE THAT THE JOINT PLANNING LAND USE PLAN AND MAP BE AMENDED AS FOLLOWS: 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 pazagraph to read as follows: "Without limiting the generality of the foregoing, the "Northwest Small Area Plan for Chapel Hill's Northwest Study Area," accepted by the Chapel Hill Town Council on September 11, 1995, is specifically incorporated by reference into this Plan and supersedes any provisions of this Plan that aze inconsistent with the Small Area Plan with respect to Chapel Hill's northern Transition Area. 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