HomeMy WebLinkAboutShaping Orange County's Future Final Full ReportSHAPING ORANGE
COUNTY'S FUTURE
TASK FORCE
Report a d Recommendations
April 5, 2000*
* The Task Force Provisional Recommendations were adopted April 5, 2000, and
revised on .tune 22, 2000. On September 12, 2001, the Task Force met and agreed &
consider the report to be final.
ACKNOWLEDGEMENTS
The Shaping Orange County's Future (SOCF) Task Force wishes to acknowledge the governments and Boards of
Carrboro, Chapel Hill, and Orange County for their commitment to and financial support of this project. The Task
Force particularly thanks the representatives from these boards who worked to shape the process for the project and
those who served on the SOCF Steering Committee and provided guidance to the Task Force in implementing the
project. The Task Force also thanks the Town of Hillsborough for their participation.
Most especially the Task Force wishes to thank the many county citizens who participated in the project through
meetings, surveys, and other events.
SOCF Task Force Members:
SOCF Steering Committee Members:
Ellen Ironside, Co -Chair
Joyce Brown, Chair
Macon 011is, Co -Chair
Margaret Brown
Leo Allison
Jay Bryan
William Barrows
Bill Crowther
Kathy Buck
Jacquelyn Gist
Carole Crumley
Alice Gordon
James Foust
Rosemary Waldorf
Linda Foxworth
David Brower, Advisor
Kevin Foy
Theresa Grywalski
Primary Staff:
Norm Gustaveson
David Stancil, Project Coordinator
Warren Jones
Pam McIntosh, Project Planner
William Latta, Sr.
Robert Lauterborn
Participating Staff:
Marty Mandell
Michelle Adams, OC Planning
Errol McCauley
Craig Benedict, OC Planning
Hervey McIver
Chris Berndt, Chapel Hill Planning
Bernadette Pelissier
Kendal Brown, Chapel Hill Planning
Rachel Phelps- Hawkins
Marc deBree, OC Planning
Peggy Pollitzer
Erin Dissly, OC Planning
Kenny Ray
Lora Franklin, OC Planning
Carl Shy
Adhir Kackar, OC Planning
Allen Spalt
Eileen Kugler, OC Health Department
Louise Tate
Patricia McGuire, Carrboro Planning
James Ward
Greg Payne, OC Economic Development
Eddie Williams
Dianne Reid, OC Economic Development
Susan Prothro Worley
Roger Waldon, Chapel Hill Planning
Aaron Nelson (UNC Liaison)
Roy Williford, Carrboro Planning
Beth Young, OC Planning
Town and County Managers:
Cal Horton, Chapel Hill
Project Consultants:
John Link, Orange County
Andy Sachs, Dispute Settlement Center
Bob Morgan, Carrboro
Kit McGinnis, sustainability consultant
Eric Peterson, Hillsborough
Thanks also go to the many other government staff and other experts who contributed their time to the project
including: Ted Abernathy, Kendall Abernathy, John Alderman, Marcia Angle, Barbara Baker, Quinton Baker, Don
Belk, Fleming Bell, David Bonk, Esquirido Braddy, Don Brannon, Randy Bridges, Michael Brown, Sally Brown,
Ben Callahan, Anna Cassily, Ed Cheney, Marvin Collins, Maui Pryor -Cook, Keith Cook, Jane Cousins, Don Cox,
Robert Dowling, Donna Dyer, Tommy Dyer, Warren Faircloth, Tara Fikes, Hudson Fuller, Jeannie Garten, Ray
Greenlaw, Margaret Hauth, Amy Hawley, John Hodges- Copple, Kim Hoke, Sheila Holeman, Jonathan Howes, Mike
Jennings, Ann Johnson, Bob Jones, Ann Kaplan, Carol Laing, Carolyn Leith, Lucy Lewis, Bob Lockwood, Livy
Ludington, Larry Massenburg, Sarah Magruder, Phil Mason, Tom Maynard, Karen McAdams, Slade McCalip,
Prudence Meehan, Chris Moran, Peter Morcombe, David Moreau, Catherine Nelson, Maria Palmer, Jerry
Passmore, Neil Pederson, Blair Pollock, Gwendolyn Price, Dan Reimer, Pat Rhodes, Richard Richardson, Kim
Roberts, Sue Russell, Howard Stier, Bob Strayhorn, Bill Strom, David Thaden, Paul Thames, Tom Waldrop,
Trawick Ward, Nick Waters, Jim White, Tim Williams, Rachel Willis, Kenneth Withrow, Donna Ryland, Dispute
Settlement Center facilitator volunteers, and to the many others we are sure to have forgotten.
This report is dedicated to the memory of Barbara Page:
1 011
Task Force member Barbara Page wasn't one to mince words. The first memory many of us
have of Barbara is at our conflict-resolution retreat in November 1996 — talking about getting
down to business and addressing the lack of community between Northern and Southern Orange.
Her untimely death over the holiday period in 1996 -97 saddened us all.
It is to Barbara's memory that the Task Force dedicates this report —and our hope that this
document will help bridge some of the lack of community that Barbara felt strongly about.
TABLE OF CONTENTS
Introduction..................................................................................... ..............................1
SectionI: Trends ............................................................................ ............................... 5
Overview............................................................................................... ............................... 6
HistoricalPerspective ............................................................................ ..............................7
RecentTrends ....................................................................................... ..............................9
ProjectedTrends .................................................................................. .............................11
Section II: Values Shaping The Vision (or Statement of Values) ............................14
Section III: Sustainability and Community - Building ................... .............................17
Introduction........................................................................................... .............................18
Theme1: Sustainability ......................................................................... .............................19
Theme 2: Community - Building .............................................................. .............................20
Goals and Recommendations for Sustainability and Community - Building ..........................21
Goal 1: Put Community - Building First ....................................... ...............................
22
Goal 2: Address Citizen Concerns about Representation in Government ................26
Goal 3: Create and Maintain a Centralized Information Base for
Decision - making .......................................................... ...............................
30
Goal 4: Improve Government Efficiency and Effectiveness ....... ...............................
32
Goal 5: Adopt Policies to Move the Community Toward Sustainability .....................36
Section IV: Critical Areas to Maintain or Improve Quality of Life ........................... 40
Introduction......................................................................................... ...............................
41
Environmentand Land Use .................................................................. .............................42
Goal 1: Promote Land Use Patterns that Meet Our Citizens' Needs While Protecting
Natural Resources ....................................................... ...............................
42
Goal 2: Conserve Natural Areas, Farmland & Other Important Open Space ............
47
Goal 3: Create Environmentally Sustainable Transportation Systems that Meet
People's Needs ............................................................. .............................50
Goal 4: Pollution Prevention and Waste Reduction ................... ...............................
56
Goal 5: Protect Our Water Supply ............................................... .............................60
Economy............................................................................................. ...............................
62
Goal 1: Support a Diverse Economy that Meets Local Needs ... ...............................
62
Housing................................................................................................ .............................67
Goal 1: Ensure Availability of Affordable, Quality Housing ........ ...............................
67
HumanServices ................................................................................... .............................70
Goal 1: Ensure Availability of Affordable, Quality Child Care .... ...............................
70
Goal 2: Promote Public Safety .................................................... .............................72
Goal 3: Support Seniors' Quality of Life ...................................... .............................75
Goal 4: Promote Health and Mental Health ............................... ...............................
78
Education............................................................................................ ...............................
81
Goal 1: Provide Quality K -12 Education .................................... ...............................
81
Goal 2: Support Lifelong Learning .............................................. .............................84
Section V: The Citizens' Roundtable .......................................... ............................... 87
Section VI: A Vision for the Year 2030 ........................................ ............................... 92
Section VII: Definitions .............................................................. ...............................
108
Section VIII: List of Appendices .................... ............................... ............................114
INTRODUCTION - PURPOSE AND PROCESS
In December 1996, a group of 30 citizens met for the first time to begin work on a
comprehensive initiative called "Shaping Orange County's Future ". Their charge
was to develop a quality growth and community - building plan for all of Orange
County (both its towns and rural areas) that addresses a multitude of issues with
implications for the county's current and future quality of life.
This group was the outgrowth of a report from a steering committee of elected
officials and interested citizens after a 1993 conference on quality growth plans for
the county.
This group of citizens — known as the Shaping Orange County's Future Task
Force — has developed a vision and a set of recommendations after over 400 hours
of meetings, community forums, outreach activities and brainstorming sessions.
The subsequent pages of this document spell out this vision for the future and
recommendations for attaining it.
Why Shaping Orange County's Future?
In a county that has seen many citizen committees and studied many far - reaching
and difficult policy issues over the last few decades, one might ask why Shaping
Orange County's Future is needed.
The answer to that question is found in the very agreement to create the initiative:
"Carrboro, Chapel Hill, Hillsborough and the unincorporated areas of Orange
County are at a crucial period in our history. The next twenty years could
determine whether Orange County will continue to be an attractive, desirable
place to live... We could become like Los Angeles with urban sprawl...Another
possibility is that the fourgoverning bodies working together with each other and
the citizenry could develop an Orange County model as determined by the values
and visions of the people...
With growth, we must snake sure that we better our community, improve our
relations with each other and, hopefully, lay the foundation forfuturegenerations
to lead fulfilling lives...
At a 1993 conference... sponsored by the Assembly of Governments, nationally
recognized quality growth planner, Dr. John DeGrove said that we could grow
smart- or we could grow dumb. The way to grow smart... (is) to develop a
comprehensive quality growth strategy. "
So, while we have undertaken many studies and plans over the years, these efforts
have infrequently been coordinated at the local government level to ensure that
town plans and county plans are consistent. Most plans to date have focused on
land use issues, without delving into the deeper quality of life, sustainability, and
community - building issues that are directly relevant to a comprehensive planning
process.
1
The Process
Shaping Orange County's Future was designed to learn about our citizens' hopes
and dreams, concerns and interests regarding the future, and to find common
ground among all of these interests in order to both imagine and plan a future that
truly reflects the "values and visions of the people ".
In June 1994, the elected boards agreed to a 15 -step process, which can be found
as Appendix A to this document.
The process called for a diverse citizen committee to be formed from across the
county to examine local issues through the use of citizen committees, and to
explore the underlying concepts of sustainability and community- building.
Focus of the Report
In a project with such a broad scope and so many activities, it is not possible to
fully address every issue that has arisen. Instead, the Task Force has opted to
produce a focused report that addresses:
Overarching themes that affect the way we live
Important goals and recommendations that could enhance the
sense of community and address the issue of growth, and
A set of specific action strategies, where appropriate, to focus
efforts in future years.
Additional detail on topics may be found in the extensive Appendix section of the
report, which is available upon request. Appendices A through Q (citizen
committee reports, and staff reports on past and projected trends, and
Recommendation Summary Tables) can also be found on our website,
www.co.oran e.nc.us /shaping /default.htm .
Note: Because this is a visioning project focused on actions to accomplish a
desirable future, there will undoubtedly be many questions and issues that arise as
how to accomplish the future outlined in this report. One of the follow -up steps in
this process is an evaluation by the county's elected boards and staffs on the ideas
contained herein -the implications, costs and ramifications of pursuing this
course.
A brief summary of the many activities of the Task Force is provided in the table
below.
N
SOCF Timeline and Activities
November 1996- February 2000
➢ November, 1996 - Task Force retreat focusing on team - building and conflict resolution
➢ December 10, 1996 — First Task Force meeting
➢ February- March, 1997 — Community SWOT
( Strengths/ Weaknesses /Opportunities /Threats) Exercise conducted
➢ May -June, 1997 — "What's On Your Mind" Community Forums and citizen surveys
➢ July- August 1997 — Plans for Citizen Committee Process
➢ September 1997 — Speaker Series for 6 Committee Topical Areas
➢ October 1997 - Citizen Committees formed (Economy, Education and Cultural Arts;
Environment and Resources; Human Services, Health and Safety; Land Use and Growth;
Transportation, Infrastructure and Services
➢ February — May 1998 — Children's Visioning Project to obtain 5th graders input into
shaping the future and teach them about planning and community building
➢ February 1998 — Sustainability "Umbrella" Committee begins work
➢ March 1998 — Community- Building "Umbrella" Committee begins work
➢ April 1998 — 6 Citizen committees complete reports
➢ June 1, 1998 — Interim Report and Update to Assembly of Governments
➢ June 25, 1998 — Reports of the Sustainability and Community- Building Committees
received
➢ July- September, 1998 — Synthesis Work Group prepares report coalescing work to date
➢ September- October, 1998 — Conflict /Opportunities Committee wrestles with identified
difficult issues
➢ October 1998 — January 1999 — "Orange County Profile" prepared by staff and received
by Task Force
➢ November 1998 - Step Six Work Group prepares plan for beginning to develop scenarios
of future and examines data needs
➢ January — March 1999 — Staff produces "Baseline Scenario — Year 2030" based on
current trends
➢ February -April 1999 — Task Force splits into three facilitated scenario work groups to
analyze baseline and develop a preferred vision of the future
➢ May -June 1999 — Task Force develops "A Preferred Scenario for Year 2030 ", to be
developed as a newspaper insert
➢ July- August 1999 — Task Force begins examining ways to take scenario and create
recommendations and the final report
➢ August - September, 1999 — Task Force conducts two "storyboarding" sessions to
brainstorm possible recommendations
➢ October, 1999 — Newspaper insert runs in Chapel Hill News, Village Advocate, and
News of Orange
➢ October 1999 — Task Force asks staff to develop "strawman" final report based on
guidance from Task Force
➢ November 1999 — Strawman report presented to Task Force.
➢ April 2000 — Task Force adopts provisional report and transmits to elected boards.
In order to know where we would like to go it's important to know where we have
been and where we are likely to go if present trends continue. The next section of
this report addresses some of these trends regarding county growth and offers
projections for future growth.
3
SECTIONI
TRENDS
HISTORICAL PERSPECTIVE,
RECENT TRENDS, AND FUTURE
PROJECTIONS
Overview
In order to understand the relevant issues for creating a desirable future, it is important to
examine what past trends, and projections of these trends into the future, can tell us. Due to the
limits of space, this section largely focuses on the impacts of growth in the County since this is a
major impetus for the project. How much growth the County experiences, both in totality and
rate, as well as how this growth is handled will have major implications for quality of life in the
county.
A much more detailed look at status and trends relating to all the major issues covered by the
project, from j obs to housing to health care can be found in Appendices B and C. Appendix B,
the Orange County Profile, provides in -depth coverage of trends in recent years for all major
issues. Appendix C is a Baseline Scenario for the year 2030 that was created based on
projections of current trends. Details on data sources and how the projections were made can be
found in these appendices.
This section begins with a presentation of a historical overview of Orange County circa 1800 and
1900, and then details recent trends focusing on the impacts of growth on the County. This is
followed by a summary of projected trends.
on
Orange County - 200 years ago
The start of this period, 1775, found America
still a British colony, but not for very much
longer. It was a time of incredible change and
development for Orange County and the
Nation. The United States declared its
independence, created a constitution, and set
legal precedents with landmark cases decided
by the Supreme Court. As the 18th century
concluded, divisiveness over the issue of
slavery grew stronger. The US finally
banned the importation of Africans for
slavery in 1807.
SNAPSHOT -- 1800
• Thomas Jefferson is elected President
of the United States.
• Approximately 60 million buffalo roam
the Great Plains.
• African - Americans in Philadelphia
petition congress to end slavery.
• US population: 5,308,483
• Orange County population: 15,657
(Orange County at this time included
parts of what is now Durham County)
In Orange County, most farms tended to be small subsistence farms rather than the expansive
plantations found in other parts of the south. In fact, three - quarters of the landowners owned less
than 500 acres of land, most of it uncleared, and only three percent of landowners held more than
1,000 acres. While these Orange County agriculturists were much less dependent on slavery than
other southern counties, 20% of our population in 1790 was enslaved. This number had risen to
27% by 1800.
The most pressing local political issues of this period, however, were not generally related to
agriculture and slavery, but rather to independence, taxation, and the creation of a new
government. Orange County (created in 1752) was in its infancy as a political entity and was
working hard to determine its place in regional and state politics. In 1782, Hillsborough was
even selected as the state capital, although it lost that place to Raleigh only a year later. In 1789,
the University of North Carolina, the first state - supported university in the country, was
chartered and surveyed on top of New Hope Chapel Hill.
In the early 1800s, places like Cedar Grove, Caldwell, Oaks, and White Cross were all important
centers for local farming communities. While Hillsborough remained the primary economic hub
for the region, these smaller communities played an important role as supply stations for
everyday goods and services and as gathering points for social activities. Overall, the character
of Orange County during this period was agricultural, with burgeoning institutions of
government and education, and a population largely of Scots -Irish and German extraction.
Bustling with activity and growth, it continued to play a major role in the region as an economic
and political center, and even had a stake in larger, national issues as well.
7
Orange County - 100 years ago
This period of Orange County's history is
shaped by the bust, boom, and bust again
of the agricultural sector. Still dealing
with the social and economic effects of the
civil war, the nature of farming in the
county changed, small towns became
larger, and new towns sprang up along the
rail lines. It was an exciting time as
Orange County started to develop an
identity which it would carry into the
modern era. However, 1875 saw Orange
County farmers in bad shape, with the
value and size of farms shrinking.
Due to financial burdens, changing regulations and new patterns of land ownership, cash crops
slowly replaced subsistence farming in Orange County. Bright leaf tobacco became a major crop
in the northern parts of the county. Cotton became the main cash crop of the southern part of the
county. Along with crop types, farm ownership patterns were also changing. In fact, by 1910,
25% of black farmers in Orange County owned their own land. At its 1920s peak, tobacco was
selling for about 25¢ per pound. Cotton prices in 1910 were about 30¢ per pound.
Post -Civil War financial troubles also interrupted the development of public education in Orange
County. However, small log and framed single -room school houses continued to emerge in the
county. By the 1880s, African American schools numbered 31 and white schools, 33. By the
end of the 19th century both white and black churches had been organized in Hillsborough,
Chapel Hill, and the surrounding rural areas.
Just after the turn of the century, taxes became more burdensome for Orange County residents as
the county paid for its expanding railways and roads. Also Carrboro's history began during this
period. First named Venable in 1911, its name was officially changed to Carrboro in 1913.
Other new communities forming along rail links were Efland, University Station, and
Blackwood. Finally, two giant steps toward the modern world we know today were undertaken
during this period: the beginning of aviation as a means of transportation with the Wright
Brothers first flight in 1903; and the generation of electricity for growing manufacturing
operations, provided by large companies like Southern Power, now Duke Power, which still
operate in Orange County.
Recent Trends
Population
Between 1950 and 1990 Orange County's
population increased by 173%. The policy
question is whether these trends are desirable
and whether we should work to alter them in the
future.
ORANGE COUNTY POPULATION
Source: US Census
As of 1990 57.4 % of county residents lived
within the municipal limits of the county's four
towns: Carrboro, Chapel Hill, Hillsborough and
Mebane (Orange Co. portion only). On a
township basis, Chapel Hill Township contained
the largest percentage of persons (66 %) and
Little River the lowest (2 %). The population
distribution in the other townships was:
Bingham 5 %, Cedar Grove Township 4 %,
Cheeks 6 %, Eno 6 %, and Hillsborough 11%.
Housing Growth
Approximately 91% of the county's housing
stock was built after W.W. II and 61 % was
constructed after 1970.
Between 1950 and March 1990, the number of
housing units in Orange County increased from
8,422 to 38,683, an addition of 30,261 dwelling
units. This increase was in response to
countywide population growth experienced
during the same time period. Between 1950 and
March 1990 the number of households in
Orange County increased by 364%, an actual
increase of 28,322 households. The majority of
housing added in the county was concentrated in
what are now municipal portions of the county.
For every 1 rural dwelling constructed between
1950 and 1990, approximately 2 were built in
municipalities.
X,
Source: US Census: 1950 -1990
Within the municipalities residential
development has largely been focused in Chapel
Hill, which has accounted for 64% of all
residences built in municipal portions of the
county, between 1950 and 1990. The numbers
for Carrboro, Hillsborough, and the Orange
County portion of Mebane, have been 28 %, 7%
and 0.69% respectively.
Comparative information on local housing costs
is shown below:
Farmland Loss
As the graph below illustrates, the amount of
total farmland' in the county has declined by
138,763 acres (or 76 %) from 1967 to 1996.
Harvested cropland in the county has declined
by 49,730 acres or 68.3% over the same time
period.
1967
1977
1989
1992
1996
Aye wd Farniand and Harvested Cropland Orange CouitY
1967 -1996
183 263
67,885
156,878
32,900
wa
27,100
67,491
23,800
44,E ❑ Harveged cropland El Tatal Farrr�land
23,000
5,000 55,000 105,000 155,000 205,000
Suce: Orange Co^ Ooopuahve Extem on 333 ce
Farmland loss in the county has been triggered
by a variety of factors. Higher land values, loss
of federal price supports, increased
environmental regulation, increased taxation, the
advent of the corporate farm, and changing
market forces have reduced the overall
profitability of farming. Of particular concern in
10
recent years has been the increasing trend of
conversion of farmland to residential use. Data
is not available to determine what percent of
farmland has been converted for residential
purposes.
Loss of Prime Forests
A study done by the Triangle Land Conservancy
for Orange County showed that in 1988 prime
forests3 covered nearly 90,000 acres or about
35% of Orange County. Nine years later the
study found that 10% of these prime forests had
been lost or reduced in size.
1 Farmland refers to land upon which any of the
following agricultural activity takes place:
cultivation of soil for crop production, planting
and production of trees and timber, and the
raising of livestock for individual and public
use, consumption and marketing.
2 Harvested cropland refers to land upon which
crops were harvested or hay was grown, this
includes land in orchards, citrus groves,
vineyards, nurseries and greenhouses.
3 Prime forest is defined as hardwood or mixed
hardwood forests at least 40 acres in size that
are undisturbed, or only slightly disturbed by
human activity.
Projected Trends
This section takes a look at the next 30 years and
suggests where we are likely to be headed given
current trends and policies.
Projected Population & Housing Growth
An estimated 65,850 persons are projected to be
added to the current population by 2030. The
annual population growth rate is projected to be
1.45% between 1998 and 2030. In 2030 an
estimated 178,740 persons will live in the
county. The growth rate (1.45 %) will be
considerably slower than the 1960 -1998 growth
rate of 2.57%, but the actual number of people
added will be almost as many, with 65,850
people added between 1998 and 2030 compared
to the population gain of 69,920 people from
1960 to 1998.
200,000
150,000
100,000
50,000
0
Projected Orange County Population
2000 2010 2020 2030
Source: Woods and Poole Economics Inc.
A breakdown of housing unit projections by
township reveals the following, based on the
assumption that distribution patterns for units
built from June 1998 to July 2030 will be the
same as for units built between April 1990 and
June 1998:
It is important to note, however, that we are
already seeing changes to the previous
distribution pattern, particularly with an increase
in building activity in and around Hillsborough.
11
The projected growth will put pressure on the
county's education and transportation systems,
as well as on our water and air quality and the
integrity of natural areas.
Education
Based on the expected population growth by the
year 2030, school enrollment will increase by:
• 6,520 elementary students;
• 2,740 middle school students; and
• 200 high school students.
Based on these projections and continuation of
current trends (same ratio of students in public
schools, same public school structure and
capacity standards) another 10 elementary
schools, 4 middle schools and 2 -3 high schools
will be needed by 2030, for a total of 16 -17 new
schools.
Transportation
Projections suggest an annual increase in daily
vehicle miles traveled (VMT) of 2.34 %.
Average VMT is expected to increase from 35
miles per driver per day to 45 by 2030, if past
trends continue.
Increasing Daily Vehicle Miles in Orange
County
ITI ITi ITi
- :111 11
Total
.111 11
Rjral '.. •
•r- 0.00
Year
Extrapolated from current trends.
This increase would be attributable to
continuation of current
• regional land use patterns;
• commuting patterns of county drivers; and
• transportation infrastructure provision.
Land Developed
In next 30 years it is projected, under current
patterns, that 2/3 as much land will be developed
as has been developed from the time of
European settlement to the present day. An
estimated 46% of land in the county will be
developed by 2030, as compared to an estimated
28% in 1998, if current trends continue. Chapel
Hill Township will be largely built out, with
remaining undeveloped acreage mainly in the
Rural Buffer.
Loss of Prime Forests
If the trend in prime forest loss from 1988 to
1996 continues (a reduction of 1,000 acres per
year), by 2030 there would be less than 47,000
acres of prime forests left, or about 52% of the
90,000 acres existing in 1988.
12
Demographic Changes
The table below depicts important demographic
changes the county is likely to see:
These changes are important because they
indicate how some service provision needs will
change in the future. The steepest increase will
be in the Latino population, which will comprise
an estimated 8% of the population by 2030.
Children and seniors will also increase
disproportionately in relation to total population
increase.
SECTION II
STATEMENT OF VALUES
14
VALUES SHAPING THE VISION
SOCF's vision for the year 2030, as well as the goals and recommendations, reflect at their core
the following set of shared values. These values act as a compass, guiding our direction and
serving as a warning if we should run off course. They represent what we hold in high esteem,
and help us to define a desirable future for Orange County.
A Shared Set of Values:
Sustainable, renewable use of resources and environmental stewardship through joint
planning, cooperation and action.
Towns which are friendly and accessible, centers of education, culture, and civic life;
places where individuals and neighborhoods thrive along with the institutions,
organizations, and businesses which serve their needs.
AP Rural areas which retain natural, visual and economic resources by maintaining the
integrity of forests, streams and open space through voluntary incentives, thus preserving
the land's continuing potential for agriculture and other appropriate uses.
The development of children and youth, as well as adult citizens in various phases of
their lives, by providing excellent elementary and secondary education, cultural
experiences, and lifelong learning opportunities all of which foster intellectual, social and
spiritual growth, develop marketable skills, and contribute to the fulfillment of individual
potential.
A strong commitment to the well -being of all individuals, young and old, of any race or
ethnicity, and with any disability, by providing for basic physical and social needs,
including those which support children and families, in an atmosphere of safety, equity,
dignity, justice and economic opportunity.
Governance that provides necessary public services efficiently, proactively establishes
collaborative ties within the region and state, encourages civic participation, and is fully
representative of all the county's citizens, responsive to their needs, consistent and fair,
socially just in decision - making, and accountable for the promises and obligations
incurred on citizens' behalf.
A shared sense of community, civil, collaborative, vibrant, friendly, caring and both
diverse and inclusive; where citizens feel responsible to and for one another; where
involvement in community life is both encouraged and anticipated; where the
contributions of all are welcomed and respected.
15
SECTION III
A SUSTAINABLE COMMUNITY
AND COMMUNITYBuiLDiNG.,u
THE FRAmEwoRKFoR GOALS AND
RECOMMENDATIONS TO SHAPE ORANGE
COUNTY'S FUTURE
17
Introduction
The next two sections of this report offer a series of goals with recommendations and action
strategies to achieve those goals. The first section focuses on achieving our two overall themes:
Sustainability and Community- Building. These themes serve as a framework for all of SOCF's
work. The next section (Section IV) is again organized into a series of goals, recommendations
and action strategies, but focuses on five topical areas which are important to address:
Environment and Land Use, Economy, Housing, Human Services, and Education.
This section begins with an explanation of the two SOCF themes, Sustainability and
Community - Building, and then presents goals, recommendations, and action strategies to address
these two broad objectives.
ffelol
Theme 1m. Sustai'mnability
A goal central to the SOCF project is for Orange County to move toward becoming a
sustainable community. What that means is that we must seek to develop a community that
meets the needs of the present generation without compromising the ability of future
generations to meet their needs.
Principles of Sustainability
The meaning of sustainability can be further understood by examining four basic principles
regarding human needs, natural systems, and the relationships between them. These principles
are basic, indisputable truths that govern life on earth. They are global in nature, but apply to our
local community as well.
1. For a given natural resource, if the depletion rate exceeds the replacement rate, the resource
will be available for only a finite time. Thus, unchecked use of resources has
implications for our future generations.
2. Human activity produces harmful substances, which must be mediated to maintain balance in
the natural systems. Human - generated waste, such as plastics, sewage, and carbon
monoxide, must be carefully managed to minimize and eliminate damage to the earth.
3. Earth's ecosystems, of which humans are a part along with other living beings, are
interdependent and most stable when they include a diversity of species. Overuse and
pollution of the natural environment has implications for maintaining the earth's biodiversity.
4. Human needs span physical, economic, environmental, cultural, social, and spiritual
dimensions. Human needs can be met equitably, justly, and with dignity without
compromising the physical environment. Achieving greater fairness is essential for social
stability and the cooperation needed for making large -scale changes within the framework
laid out by the first three principles.
These global principles are locally relevant because our community is part of a region, part of a
continent, and part of a world. Our individual and collective decisions and actions affect the
quality of human life and the quality of our natural environment not only in the local community,
but also in the world. By understanding these principles, and the consequences of continuing to
violate them, we establish a common basis for working toward becoming a sustainable
community.
19
Theme 2m. Community - Building
Though community - building is part and parcel of being a sustainable community, the way we
interact with one another to build community is so basic to the outcomes we hope to achieve that
it seemed appropriate to adopt the concept as a project cornerstone in its own right.
Principles of Community Building
Community - building is the means by which past generations in a given locale are bound to new
generations, and how the current residents relate to one another. Each generation must establish
the ways in which it will embody respect for, and give specific meaning to, the following general
principles* in order that they and their successors may experience and advance the concept of
"community":
1. Developing an awareness and understanding of the local traditions, history,
heritage and memories;
2. Creating and maintaining a sense of identity and belonging;
3. Honoring a framework of shared values;
4. Establishing and maintaining networks of supportive individuals and a climate of
caring, trust, teamwork, and shared responsibility;
5. Establishing and maintaining institutional arrangements that diminish
polarization, teach diverse groups to know one another, and encourage coalition -
building, dispute - resolution, negotiation, and mediation;
6. Supporting wholeness within diversity while allowing healthy conflict and an
atmosphere of open dissent;
7. Establishing and maintaining collaborative ties among leaders of different
generations, jurisdictions, communities, economic sectors, and organizations.
8. Supporting strong individual communities that recognize and accept responsibility
for the larger community's well- being;
9. Maintaining the existing infrastructure of neighborhood associations,
congregations, citizen groups, youth- serving organizations, and professional and
volunteer associations; and
10. Fostering a community -wide commitment to the common good.
Applying these principles to community issues and decision- making will help people to work
together effectively and live in harmony.
* Adapted and modified from an influential article written by John Gardner, entitled "Building Community ", published in
1996 by Independent Sector, Washington, D.C.
NEI
Goals and
Recommendations:
Sustal ability and
CommctnitymBullding
21
GOAL 1: Put Comm unity Building First
Rationale
To have a truly sustainable community we must foster multicultural involvement in the local
traditions, history, heritage, and memories. We need to fully include all people within the
community, minorities, seniors, children and youth, and people with disabilities. Thus, our
community's diversity and inclusiveness is the foundation for creating and maintaining a vibrant,
healthy community life. We need to strengthen relationships and understanding between Orange
County's rural and urban residents, among residents of varying ethnic, racial, and economic
backgrounds, and between the University of North Carolina and all of its Orange County
neighbors. It is also important to understand that in order for our community to be truly diverse
we need to ensure that people who work here can afford to live here. Thus, the availability of
affordable housing for low and moderate income households is a critical requirement.
To deepen the sense of community in Orange County, the community building principles
listed in the previous section must be applied whenever we attempt to understand and
make decisions about our area's problems and directions. In particular the local elected
boards, the University of North Carolina at Chapel Hill, and the Orange Water and Sewer
Authority each have a responsibility to advance and expand the building of community because
of their obvious and determinative influence in so many of the issues facing Orange County.
The pressing problems of each year, or five or ten years, may stay the same or they may change.
Certainly, they will increase in number and complexity. What we need, then, as a basis for
generating specific solutions to those problems, is a shared sense of community among all of our
county's individuals and institutions.
We do have much in common here in Orange County: our rich cultural life and history, and our
dedication to the community's accomplished artists and artisans. The presence of UNC, as well
as many other organizations and institutions provide the community with cultural opportunities,
galleries, and performance space. Parks and recreational activities also provide opportunities for
Orange County residents to build community through sports and outdoor activities. The county
also celebrates its significant cultural history, both historic and prehistoric, and its abundance of
historic resources.
The county's cultural, recreational, and historic resources must be solidly supported and nurtured
by the community, so that each Orange County resident has the opportunity to participate in and
enjoy these remarkable assets which enrich all of our lives.
Open space, farmland preservation, natural resource protection, and environmental quality are
widely shared values in Orange County. All of these provide citizens with many opportunities
for meaningful volunteer efforts in their support, for partnerships between the University and the
community at- large, for unique identity- enhancing events, and for the highly participatory and
effective interjurisdictional collaboration required for their safekeeping.
WJ
Recommendation 1: Foster community interaction and activity.
Action Strategies:
A. Increase opportunities for residents from different parts of the county and different
backgrounds to work together.
The SOCF process has raised our expectations for what is possible through the collective efforts of a
diverse set of citizens. To continue building a sense of community, we must continue to invent and
embark upon joint projects that embody such shared values as our desire to provide basic human
services to all of our citizens, to preserve open space and the environment, and to develop our young
people to their fullest potential.
B. Create multi -use community facilities
that would enable a variety of functions such as a school, community center, senior center, senior
care facility, adult learning center, teen center, day care facility, medical clinic, branch library, arts
space, and outdoor recreation. Locate these centers in town neighborhoods and villages located in
town transition areas.
C. Promote neighborhood design, for new neighborhoods which encourages social
interaction.
D. Create more all- county shared events, such as an Orange County Fair, art, drama,
and music festivals.
Strive to make events multi - cultural and of interest to all residents of the county.
E. Improve relationships between the University and Orange County residents.
The University is both a means by which some community- building takes place and an
impediment to it. We note with enthusiasm the community building aspects of the UNC athletics
program, and our citizens' access to the University's libraries, cultural events, and amenities. We
acknowledge with appreciation the University's role in attracting our base of highly educated and
active citizens, and the valuable links beyond Orange County generated by the University's
cultural and academic programs. While there are many positive links between the University
and the larger community, there are also some things that could be done to improve those
connections. The University could:
■ Increase staff assigned to local and community relations.
■ Elicit citizen and county representation on appropriate UNC committees and boards;
■ Increase the University's contributions to local problem solving by encouraging faculty and
staff involvement.
■ Hold "open houses" on various topics, information sessions, and celebrations.
■ Make a more public statement of the campus resources and activities available to local
citizens.
■ Share recreational facilities and services on a planned schedule.
F. Publish an Orange County community handbook/calendar
for organizations and their activities, community events, cultural and artistic opportunities, etc.
A copy to be available to every family and in the library. Encourage UNC to do the same
covering events and campus organizations which provide community activities (i.e. Think Again,
the continuing education publication which has information on all the not - for - credit learning
opportunities the University makes available). Publish this information on the internet as well.
G. Establish partnerships between urban and rural residents through community
support for local farming by:
■ having farm tours for school children as well as adults;
■ creating links with organizations that support farming;
■ supporting marketing and consumption of local farm products; and
■ surveying local citizens' needs /desires for farm products.
23
Recommendation 2: Support purposeful inclusion of all people.
Action Strategies:
A. Support the Human Rights and Relations Commission and its charge to b_
community:
■ Form a broad -based coalition utilizing existing organizations to develop a plan to foster
multiculturalism in the community.
■ Provide adequate staffing for plan development.
B. Comply fully with the Americans with Disabilities Act (ADA).
Create a position for a full -time County Disability Services Coordinator. The goal of creating
the position would be to ensure that governments, businesses and individuals act in full
compliance with the ADA. The coordinator would initiate and oversee a public awareness
campaign, conduct an inventory of businesses and government agencies to determine compliance
with ADA regulations, act on discrimination complaints, serve as an advocate for persons with
disabilities, and serve as staff to the Orange County Disability Awareness Council.
C. Improve services for Latinos /Hispanics and other non - English - speaking
populations.
■ Service provision should be integrated and include:
• referrals to and information about available services in our community;
• translating and interpreting;
• assistance with housing concerns, financial and consumer issues, and emergency
assistance.
(It is suggested that such services be located at schools since children are already located
there. Public safety needs should be addressed as described under Public Safety on page 62,
Recommendation 3.)
Recruit bi- lingual employees to government positions, and provide Spanish language
training to employees.
Encourage the UNC School of Education to increase its focus on bi- lingual /ESL training
and education.
Provide English as a Second Language classes (ESL) so that non - English speakers have an
opportunity to learn English. (See also Education Goal 1, Recommendation 6, page 69 and
Goal 2, Recommendation 2, page 70).
D. Encourage diverse citizen participation:
■ Aggressively recruit a diversity of citizens, with an emphasis on recruiting people from
under - represented groups, for local boards and volunteer organizations.
■ Send representatives to African American and Latino centers, housing complexes, and
churches to foster dialogue.
E. Ensure that affordable rental and owner - occupied homes are available for low and
moderate income households.
See page 58 for details on action strategies to address housing issues.
a
Recommendation 3: Reshape local governance for community - building.
A framework that establishes effective communication among public officials will lead to a
stronger sense of community among citizens. Public officials can lead by example and by
authority in this important and vital endeavor by adopting community- building principles
into ordinance form and putting them into practice as they conduct and consider their
business. Establishment of a community building ordinance will ensure that a community -
building framework will be maintained, even as boards of public officials change with new
elections, appointments, or resignations.
Action Strategies:
A. Have the Board of Orange County Commissioners, the Hillsborough Town Board,
the Chapel Hill Town Council, the Carrboro Board of Aldermen, and the Boards of
Education for the Chapel Hill- Carrboro City Schools and Orange County each
approve a set of ordinances that would specify how community building would be
integrated into their own individual procedures as well as into the processes by
which they conduct their collective work across jurisdictions.
The Boards as constituted could approve ordinance language as provided to them, such as the following:
■ A general definition of what is necessary to insure community building and maintenance.
■ Principles for discussion that would apply to each elected Board, joint board meetings, and the various
advisory boards, committees, work groups and task forces that assist the boards with policy and decision
making. Examples of such discussion principles could be found in those adopted by the Carrboro Board of
Aldermen, or in Roger Schwarz's article, "Groundrules for Effective Groups," published by the UNC
Institute of Government.
■ Principles and steps for collaborative conflict resolution could be adopted. The steps for such a process
might include acknowledgement that there is a conflict and the need to settle it; identification of the affected
parties and effective ways for them to participate in face -to -face sharing of information about the dispute;
joint brainstorming by all parties as to potential solutions and shared evaluation of the ideas; selection of a
plan that all agree upon; setting aside time to implement the plan and evaluate how it is working; and the use
of mutually acceptable third party neutrals (mediators and facilitators) who could help parties use the conflict
resolution process.
■ Principles for how citizens are to conduct themselves at public hearings. Examples of such principles can be
found in those adopted by Carrboro's Board of Aldermen.
■ A definition of "consensus" that would permeate the framework.
B. Support and commit to the participation by appointed and elected officials in
programs that reinforce the shared community building framework, explore
community building principles, and provide opportunities to develop community
building skills.
The commitment to such government official education could be made by joint policy enactment, and might
include a recommendation that members of advisory boards participate, as well recommending that elected
officials take a refresher course at the midpoint of their terms.
By making such a commitment, the Commissioners and members of the various town boards would be
demonstrating to citizens that they are willing to learn about community building and abide by their own
rules. Such modeling by boards and commissions would set an example to motivate citizens to follow the
disciplines of community- building, consensus decision - making, and conflict resolution.
The program(s) might cover:
• the set of ordinances, rules, policies and agreements approved by the local jurisdictions for consensus
and decision making described above; and
• the use of effective communication, conflict resolution, mediation, meeting facilitation and other
community- building and community- maintenance techniques.
25
Recommendation 4:
Action Strategies:
Ensure adequate space is available for cultural arts.
A. Provide and promote gallery space in all public and quasi - public buildings.
B. Encourage displays of art and arts performances in public spaces and in businesses.
C. Create partnerships between high schools and the community to create cultural arts
centers
which are accessible at reasonable costs for appropriate community events.
D. Establish a space for arts and community groups
to have shared offices /meeting space to plan projects and foster partnerships.
E. Promote the accessibility of space
for artists' studios and cooperatives.
Recommendation 5: Support greater funding for cultural arts.
Action Strategies:
A. Create incentives to support local artists.
B. Create a public - private partnership to fund the arts.
Recommendation : Establish better collaboration and communication
among artists, the community, and community
leaders.
Action Strategies:
A. Develop a county arts incubator
in collaboration with the Economic Development Commission.
B. Establish a community arts resources center
to be a central place for providing and sharing information about grant availability and proposal
writing, marketing, and the activities of artists and arts organizations nationwide. Such a center
could also serve as a meeting place to plan joint ventures.
C. Broaden the Orange County Arts Commission database to include rural and
immigrant arts.
we
Recommendation 7:
Action Strategies:
Support historic preservation.
A. Increase developer and citizen awareness of significant historic resources and the
need to protect them;
and offer rewards to developers who successfully incorporate and preserve county history in their
proj ects.
B. Identify and protect important corridors, areas, and sites of historic and cultural
significance;
C. Encourage heritage tourism
by protecting historic and archaeological sites and opening selected sites for a county "historic trail ".
D. Support the preservation and sharing of the county's history
through displays and museum exhibits.
Recommendation : Improve parks and recreation facilities and services.
Action Strategies:
A. Improve and expand park and recreation facilities:
■ Create more parks and nature trails adjacent to schools, and in high density areas.
■ Create rustic woodland trails along creeks.
■ Create a joint effort involving Duke, UNC, and local governments to develop three to four unpaved, rustic
woodland trails for hiking between county landmarks and parks /open space.
■ Develop bikeways.
■ Develop a teen center in Hillsborough.
B. Fund acquisition of land and easements for future parks, rustic woodland trails, and
bikeways as follows:
■ Issue bonds.
■ Pursue public /private partnerships.
■ Develop new funding sources for parks, such as improving payment -in -lieu systems and exploring impact
fees.
■ Provide incentives for landowners to donate small plots of vacant land for neighborhood benches and
playgrounds.
C. Increase community access to parks located in the county:
■ Expand access to existing school facilities for community recreation and cultural uses.
■ Establish an open facilities policy for OWASA lakes and for all parks in the county, to allow citizens of any
jurisdiction to use them.
D. Provide more outdoor education services
including nature interpretation, and lessons in outdoor skills and sports.
27
GOAL 2. M Address Citizen Concerns about
Representation in Government
Rationale
Two issues have been raised concerning citizen
representation in government, one in regard to lack of
representation for residents living in town extra - territorial
jurisdictions (ETJs), and the other in regard to rural citizen
representation on the Board of County Commissioners.
Citizens in the Town ETJs have expressed concern about
being regulated by the towns, without having a say in who is
elected to town boards. This issue of regulation without
representation is a difficult one without easy answers.
Carrboro's institution of a "planning board" for the Northern
Transition Area provides an example of a possible
mechanism for addressing such citizens' concerns.
The issue of County Commission representation was first
raised in the SOCF process during Community Forums held
in the summer of 1997. Since then it has reappeared and
been discussed on numerous occasions, and is unanimously
considered by the Task Force as one of the most critical
issues for the SOCF initiative to address. For many rural residents who have spoken with the
Task Force, it is the primary issue that they feel needs to be addressed.
Many residents feel their viewpoints are not represented adequately through the current process
for electing County Commissioners. This has led to divisions within the county. Changing the
system by which County Commissioners are elected so that all residents feel they have
representation in the government could go a long way toward building community within the
county.
For a brief history of County efforts to address this issue including formation of a task force to
study the issue in 1993 and drawing of a draft plan in 1996 please see Appendix N. This
appendix also has information on methods of elections and parameters that new election plans
must meet
Recommendation 1: Address issue of representation on the Board of
County Commissioners.
Action Strategies:
A. Convene a short -term study committee with geographical representation and
racial /gender /ethnic diversity
with the specific task of analyzing options for making the Board of County Commissioners more representative of
the county's rural citizens. The group should have a short (6 month) timeframe and be charged to come up with
recommended options for changing the elective process, (including looking at increasing the size of the
board if determined to be needed), for the County Commissioners to choose from and put on a referendum
for a County -wide vote. Any such options should not dilute minority voting and representation and be consistent
with one person /one vote Federal mandate. The Committee should also explore the issues behind feelings of need
for a change in method of election, to help address any needed policy changes.
B. Make sure that any development of new electoral system options addresses diversity
and looks at previous work and other types of reform voting methods.
Recommendation : Ensure adequate representation for citizens living
outside municipal limits, but inside municipal
planning jurisdictions (i.e. in Town Extra Territorial
Jurisdictions (ETJs)).
Action Strateu:
A. Convene a short -term study committee for each ETJ made up of diverse
representation (including citizens living in ETJs) to look at making Town elected
boards more responsive to citizens residing in ETJ or transition areas.
The study committee should consider options such as Town referendum/special legislation allowing limited voting
authority for ETJ /transition residents and /or the establishment of a liaison -type seat on the elected board for those
living in these areas.
Recommendation : Continue to ensure that all Town and County
advisory boards and commissions have broad -based
representation, in terms of gender, race and
ethnicity.
Recommendation 4: Continue current (and ensure in the future) a public
process that focuses efforts to make government an
open process in full public view, using tools like
public hearings and forums, televised meetings, the
Internet, and future technologies to provide vehicles
for citizen involvement.
W1,
GOAL 3: Create and Mam'Ntain a Centralized
.Information Base for Decision-making
Rationale
Data collection and analysis are critical to effective decision - making, and to becoming a more
sustainable community. More complete data is needed for policy- makers to better:
• determine the effectiveness of policies and programs;
• determine the limits of resources (land, water, air) to support growth in the county (see
Recommendation 2 under Goal S on page 34);
• determine the fiscal impacts of growth; and
• monitor sustainability indicators (see recommendation 1 under Goal 5 on page 34).
Much data and information are collected by various agencies and educational institutions, yet
there is no central office for compilation and distribution of this information. Lack of a central
database impedes the sharing of information, resulting in inefficiencies when different
departments and organizations duplicate data collection. Of equal importance is the fact that
some data may not be used at all if it is not readily accessible or people are not aware that it even
exists.
A central database would greatly facilitate use of collected data, and would ultimately result in a
savings of staff time for data collection and analysis. It would also provide a single reliable
source to guide the use and interpretation of data, and would help in evaluating what services are
needed and how effectively they are being provided.
This important shared task can help to build a stronger sense of cooperation and collaboration
among the jurisdictions of the county. A central source of data will also provide citizens with a
better understanding of the basis of governmental decision - making which, in turn, will foster
more citizen support and participation.
CEO
■
Recommendation : Provide a central information base for decision -
making.
Action Strategy:
A. Create ajointly- funded, county -wide intergovernmental Data Center for the
purpose of collecting and analyzing data in the following areas:
• Economy
• Environment
• Human Services
• Education
• Local Government and School Finance
• Transportation
Such an agency should be supported by all Orange County governments and
jurisdictional agencies. Information from the data center would be available to all
agencies, organizations and individuals.
The Data Center could serve as a center for compilation and dissemination of
information
collected from various local and state offices and other organizations. A listing and
description of all available data could be made available on the internet, along with
actual data wherever feasible. The State Center for Geographic Information and
Analysis is an example of an existing data center at the state level.
31
GOAL 4n, Improve Government Efficiency and
Effectiveness
Rationale
As our community grows and our collective needs change and expand, many of our expectations
of government services have also grown. Without question, we demand more services from local
government and the public schools today. In North Carolina, the most constant and reliable
revenue source to provide services is the property tax, and as such, our levels of service and our
choice to fund excellent school systems often leads to increased property taxes.
As property taxes rise governments are pressured to provide services more efficiently at lower
costs. "Efficient' service could be defined as productive of desired effects without waste of time
and materials. Unless we are willing to forego certain services, or accept cutbacks in education
priorities, tax increases will likely continue to be a part of our foreseeable future. As this occurs,
governments will continue to be pressured to look at innovative ways to cut costs by reducing
waste and inefficiencies.
Providing services efficiently with reduced waste, can help achieve our sustainability goals.
However, it is important to note the possibility of conflict between what may be fiscally most
efficient and what is most sustainable. In such cases there is a great need to balance the impacts
and remember that decisions that move the county away from being a sustainable community
will (or are likely to) have negative impacts that are never quantified and put into the fiscal
equation. For example, if one bases a decision on whether to buy recycled paper solely on cost
of the paper, one would be forgetting the external cost of cutting down more trees to make the
new, "cheaper" paper. These externalities that are left out of the equation may or may not be
quantifiable, much as the value of a forest in terms of providing wildlife habitat or aesthetic
value is difficult to quantify. Our vision of future government services must then be cognizant
that some "efficiencies" are best foregone for other, long -term benefits.
The Task Force finds that there are current programs and future opportunities to improve
efficiency in service provision and government spending recommended below.
Wj
Action Strateu:
A. Create a coordinated Government Efficiency Project to combine and build upon work
already done by the individual governments to achieve greater efficiency. The Project
should study the feasibility and impacts of combining some Town and County
services to reduce redundancy and provide services more efficiently and more cost
effectively. One example previously identified is consolidation of the three Parks and
Recreation Departments.
Recommendation 2: Explore options forgetting the legislature to allocate
more powers to local governments to allow them to
better plan for and manage growth.
Action Strate�v:
A. Initiate and support efforts to change state legislation to allow for Home Rule, and
local authority to institute desired programs, such as Transfer of Development
Rights, Impact Taxes, and Inclusionary Zoning.
Recommendation 3: Look at alternative revenue sources to pay for Town
and County services.
Action Strategy:
A. Research feasibility and impact of creating alternative revenue sources including
consideration of a local sales tax, a real estate transfer tax, and increasing impact
fees (or taxes).
Recommendation 4: Ensure that decisions regarding infrastructure
provision are consistent with environmental
protection and fiscal goals.
Action Strategies:
A. Adopt coordinated Adequate Public Facilities Ordinances for the entire county to
ensure that development does not outstrip existing services or cause undue financial
burden to taxpayers;
33
B. Determine carrying capacity of land and decide where to invest resources such as
water, sewer, landfill and parks.
C. Coordinate local and regional water /sewer boundaries with urban growth
boundaries. Support the signing of the proposed Water and Sewer Management,
Planning and Boundary Agreement, from Water and Sewer Boundary Task Force. These
boundaries should maintain the existing rural buffer around Chapel Hill /Carrboro.
D. In accord with the Water -Sewer Boundary Agreement, ensure that any water and
sewer extensions into rural areas needed to address failing systems are designed to
serve onlY the area experiencing failure and not allow for additional tap ons.
E. Explore new water and wastewater technology options that are created over time, and
have been proven to be effective.
F. Consistent with the actions of the Schools and Land Use Councils, ask the school systems
to collaborate up front with local governments in the school site selection process, to
ensure land use implications are considered. Coordinate and integrate planning the
location and design of new schools and community buildings into overall growth
management, sustainability goals, and into the overall comprehensive plans of the
jurisdictions. Design should incorporate mixed -use facility goals (see Education
recommendations, page 68).
G. Provide equal funds per square foot of building space to the Orange County and
Chapel Hill /Carrboro school systems for building new schools and remodeling or
renovating old ones. (Cost of the land is not part of the allocated amount).
Recommendation 5:
Action Strate�v:
Quantify (where possible) the effects of different
patterns of growth on local budgets and tax
burdens.
A. Conduct a cost -of- services study to examine the "real" costs of different types of land
uses and development (agricultural, residential, commercial, office, industrial).
Recommendation 6:
Action Strategies:
Work with UNC and UNC Health Care System on
issues of fiscal equity regarding costs and benefits
to the community.
A. Follow up on and support the recommendation of the joint UNC and Town of Chapel Hill
Task Force on Fiscal Relationships to examine in more detail the positive and negative
tax revenue implications of future University and UNC Health Care System growth.
B. Continue efforts to achieve and maintain fiscal equity (regarding costs and benefits)
between the University and L1NC Health Care System and the Orange County
community.
Recommendation 7: Work to coordinate our land use and transportation
planning boundaries.
Action Strategies:
A. Review periodically extra - territorial and planning jurisdictions to assure that
boundaries are still consistent with land use patterns and efficient service provision and
planning.
B. Review and revise, if necessary, existing metropolitan planning organization (MPO)
boundaries for the Durham - Chapel Hill - Carrboro and Burlington - Alamance MPOs
to see if they adequately meet transportation planning needs and involve all
stakeholders. Consider whether areas in western Orange County outside of MPO's
should be included.
C. Look at the existing Triangle J Council of Governments to see if its boundaries reflect
the Triangle region and meet local needs.
Recommendation : Improve communication and awareness among local
governments regarding each jurisdiction's programs
and initiatives.
Action Strate�v:
A. Institute a mechanism that ensures that all local government staffs communicate
and are aware of the initiatives and programs of other local governments in the
county.
Recommendation : Improve and streamline the development review
process, while protecting citizens' rights, for
commercial and residential development in areas
targeted for development.
Action Strate�v:
A. Provide clear guidelines and positive incentives for developments that meet the
community's goals.
35
GOAL 5: A dop t Policies to Move the Community
Toward Sustainability
Rationale
Moving toward sustainability will take a concerted effort on the part of local governments to be
leaders in educating the public on sustainability, assessing the limits of the county's natural
resources (land, water, and air), formulating policies to become more sustainable, and measuring
the success of such policies.
we
Recommendation 1:
Action Strategies:
Set sustainability indicators and
benchmarks /targets to achieve.
A. Use the list of 44 sustainability indicators created by the SOCF Sustainability
Committee as a starting point. (See Appendix O for a list of the 44 indicators and a
report detailing their feasibility in terms of data availability and other factors.) As
appropriate, for each indicator set a benchmark, that is, a target to be achieved. (For
example, by 2005 achieve a 40% reduction in solid waste produced.)
B. Create a permanent county database for these key indicators (as part of a centralized
database for the county, as described in Recommendation 3 on page 29).
C. Track progress with annual sustainability reports to the community.
D. Use the indicators to help determine the effectiveness of current policies and as a
basis for making needed policy changes.
Recommendation 2:
Action Strategies:
Understand and assess natural resource limitations
to ensure sustainable use of resources and limits to
growth.
A. Examine status and trends of each resource, based on a small number of key
indicators.
B. Establish a general guide of standards and criteria based on resource limits that will
help define parameters of sustainability for Orange County.
Recommendation : Create strong mechanisms for regional planning
involving local municipalities, counties, major
institutions, and citizens.
Develop local participatory and collaborative inter- governmental processes that provides
the setting and framework for achieving shared goals and responsibilities, but support the
separate identity of each participating government. Current joint meetings and efforts to
collaborate among local governments in Durham, Orange and Chatham counties should be
continued and enhanced.
37
Action Strategies:
A. Work with Durham and Chatham Counties and their recent visioning efforts to
develop a "Triangle- West" regional vision and plan, which can be a model for
regional planning statewide.
The regional plan should:
• involve all municipalities, major institutions and counties in the area;
• be driven by consideration of environmental and resource limitations; and
• develop guidelines for a Growth Budget to allocate scarce resources in each area, and control the amount and
timing of growth.
B. Lobby the NC General Assembly for a statewide planning mechanism that would
require regional planning and local government cooperation.
Recommendation 4: Adopt and implement policies embodying a
governmental commitment to using the most
sustainable technology and practices.
(County and Town Governments need to take a leadership role in moving toward
sustainability. The following would apply to all area local governments.)
Action Strategies:
A. Adopt green building standards for all new government construction.
Standards should include guidelines on
• environmentally sensitive site design;
• use of non -toxic or least toxic building materials;
• use of materials that can be recycled and that contain recycled content;
• energy and resource efficient design;
• use of renewable energy sources; and
• maintaining good indoor air quality.
B. Adopt a policy to systematically replace older vehicles with new low or no emissions
vehicles that are alternatively fueled and /or fuel- efficient. The policy should include
targets for percent of fleet changed over and a timeline for transition.
C. Establish a program to reduce vehicle miles driven by government employees.
Measures to reduce vehicle miles traveled could include:
• carpooling and vanpooling;
• public transportation incentives;
• telecommuting;
• teleconferencing;
• flex -time scheduling to avoid travel during peak traffic; and
• other appropriate strategies.
D. Purchase products made using fair labor practices.
E. Establish a comprehensive reduction, reuse, and recycle program.
Such a program should include components for:
■ reducing office paper waste through use of the internet where feasible, reuse of paper for scrap or draft
printing for personal use, and requiring two -sided photocopying of documents whenever possible;
■ purchasing durable, minimally packaged, energy efficient products;
■ giving preference to purchasing products containing recycled content, and /or are readily recyclable;
• collecting recyclables, including high -grade office paper, mixed paper, corrugated cardboard, aluminum cans,
and glass and plastic recyclable containers; and
• educating staff on waste reduction policies.
F. Join the Cities for Climate Protection Campaign. This program requires communities
to complete an emissions inventory and implement practical strategies to reduce
emissions. The program provides support for implementing an emissions reduction plan,
and plan implementation results in savings on energy spending, as well as reduction of
green house gas emissions and local air pollution. (Information on the program can be
found on their website at www.iclei.org /us /us_ccp.html).
Recommendation 5: Institute a sustainability education program.
Action Strategy:
A. Institute a county -wide program administered at the county level to promote
concepts of sustainability and educate the public on sustainability including
programs focused on:
• reducing per capita water consumption;
• reducing use of harmful household chemicals (from lawn care products to cleaning products);
• promoting landscaping that uses regionally native plants which require less water and less fertilizer, herbicide
and pesticide inputs and reduce erosion; and
• helping businesses take a greener approach to cut wastes, especially toxic wastes and reduce resource use.
&G,
SECTIONIV
CRITICAL AREAS TO
MAINTAIN OR. zl'MPR 0 VE OUR
QUALITY oF LIFE;
I. ENVIRONMENT AND LAND USE
2 ECONOMY
.3. HOUSING
4. HUMAN SERVICES
S. EDUCATION
aul
Introduction
This section covers goals, recommendations and action strategies specific to issues of
environment and land use, economy, housing, human services, and education. The section is
organized under these five topical focus areas. Please keep in mind, however, that these
recommendations also interweave aspects of sustainability and community- building, the two
underlying themes which are the foundation of this report.
41
Focus Area 1. Environment and Land Use
GOAL I : Promote Land Use Patterns tha t Meet
Our Citizens'Needs While Protecting
Natural Resources
Backiround /Rationale
There are three questions related to growth and development that are crucial to understanding
future needs. First, how much growth are we likely to see in the future, and what is our best
estimate in terms of the number of new persons, new houses, new cars that the County will see?
Second how much growth is desirable or can be accommodated without degrading our quality of
life? Finally, are there ways to accommodate the growth to lessen any negative impacts, both
environmental and social, taking into consideration community opinion, forums and focus
groups?
Based on current trends, SOCF estimates that another 66,000 people may live in the county by
2030. If trends from the past ten years continue —45% of this growth will be within current town
borders, and —55% will be in the rural areas of the county.
To prevent sprawl and help maintain the county's rural character, we must identify areas of the
county in which to promote denser, mixed -use development - and channel growth in these areas
in order to minimize the environmental, social and fiscal impacts of development.
The governments of Carrboro, Chapel Hill and Orange County agreed on a Joint Planning Land
Use Plan in 1986 in a joint effort to minimize the environmental, social and fiscal impacts of
increasing development in this area of the county. Their plan concentrated growth in the towns
and urban transition areas by limiting water and sewer extensions into and beyond the rural
buffer, and called for protection of drinking water supply watersheds like University Land and
Cane Creek.
Land use patterns can affect the sense of community in a neighborhood or town. They should be
designed to enhance desirable aspects of community character in new and old neighborhoods,
and create and maintain socioeconomic diversity.
SOCF envisions that the goal to promote land use patterns that meet people's needs and protect
natural resources can be achieved through recommendations that address two objectives. 1) We
need to use available tools to focus growth in desired areas and limit development in areas we
wish to conserve. 2) We need to manage development and create land use patterns that maintain
quality of life and help to build community.
The first two recommendations below address these two objectives and the third describes a
process for improving citizen participation and community planning throughout the county.
M
■
Recommendation : Develop a countywide plan to focus two- thirds of
future growth into Chapel Hill, Carrboro,
Hillsborough, Mebane, and "transition areas" and to
limit growth in rural areas. Parallel to this planning
process, equal thought and efforts should be given
to the current and as yet untested growth
management "tools" and policies in order to control
the negative and unwanted side effects of this
growth.
Action Strategies:
A. Create an inter - governmental "Growth Management Board" with representatives from
all designated "future" growth areas in the county to cooperatively develop:
• fair formulas for accommodating future growth in the designated areas;
• growth targets for each area;
• estimated growth budgets (using realistic "carrying capacity" estimates for each area); and
• a five year time horizon for each plan.
The basic intent of this general concept is to seek full participation of all sections of the county to
cooperatively plan for the pressures of growth in the county.
B. The second major aim of this Board is to explore existing and new ideas for growth
management and to recommend to local planning boards their findings to:
• Evaluate and explore the range of zoning options to use for managing orderly growth.
(There are many unique cases that often do not easily and equitably fit this sometimes
rigid formulation. It is important to look at zoning theories that are partially based on
performance standards and requirements.)
• Limit extension of water and sewer; to work together with the county and region to
establish boundaries for extending these services.
• Evaluate Adequate Public Facilities Ordinances to manage growth and encourage
development to pay for its real costs.
• Encourage a program for voluntary purchase of development rights and also of lands to
preserve contiguous areas of environmental importance (including farmlands) that should
not be developed.
■ Seek to establish a Transfer of Development Rights program.
• Provide positive incentives to developers who build in targeted areas.
• Pursue infill and redevelopment of land in Chapel Hill, Carrboro, Hillsborough and
Mebane, but only where appropriate to:
• be compatible with and enhance the neighborhood;
• protect, strengthen and nurture existing neighborhoods, their associations and
community life;
• encourage the addition of small -scale commercial enterprises compatible with
neighborhood character and which provide services or products; and, where possible,
are within walking distance;
• consider vertical expansion (building up, not out), where it is in keeping with the
surrounding areas and the environment;
• encourage redesign and redevelopment of existing buildings instead of demolishing
and rebuilding new ones;
• assure new development meets design standards.
43
■
Recommendation : Promote land use patterns that create%nhance
quality of life and sense of community, and that use
land and other resources efficiently.
Action Strategies:
A. Municipalities and their Extra Territorial Jurisdictions (ETJs)
Within municipalities and their ETJs (see Definitions section) promote "compact mixed -use"
development (CMU's) in areas of Towns targeted for growth:
• Provide for CMU's in areas best served by urban services (the existing Towns and
transition areas), by limiting development options in other areas.
• Encourage CMU's to be comprehensive in nature - including residential,
commercial, social and civic components, and light industry where appropriate.
• Establish effective and specific design standards for site and building design of any
mixed -use development.
Require CMU's to integrate housing of different values, styles and sizes.
Establish basic guidelines for CMU's that are adhered to by all jurisdictions so that:
• most residences are within a 15- minute walk to commercial activity;
• all residences have easy walking and bike access within the development and to
neighboring developments; and
• developments are people- friendly and enhance the sense of community by requiring
some or many residences to have vehicles parked in rear.
B. Transition Areas
In Transition Areas (see Definitions section), create "village" style development to focus
development and develop highly diverse communities with a genuine sense of place
to live and grow. A suitability analysis should be conducted to determine possible locations for
villages within the Transition Areas. These "villages" should:
• Integrate uses (residential, commercial, light industrial, and institutional);
• Be centered around a town square with a multi -use community center (that would serve
as a focus for community services, cultural activities and community life) and compact,
mixed used development;
• Require a mixture of housing sizes, density and single and multi - family units;
• Be pedestrian- oriented and have bicycle paths;
• Be served by bus or transit service.
• Be surrounded by a growth boundary and incorporate open space within that boundary;
• Be located near, but not on major transportation corridors;
• Allow "villages" to be zoned at an appropriate density for creating village style
development and highly diverse communities.
C. Rural Areas
Support development of citizen - driven Small Area Plans for the County's
five identified rural community centers (Caldwell, Carr, Cedar Grove, Schley, and
White Cross). These centers have served historically as centers for services to local rural
populations and foci for community activity. Support the creation of "hamlets" (see
definitions section) in these locations - small -scale (non water and sewer
dependent) development to provide an expanded mix of housing, local commercial
enterprises and community services that enhance rather than destroy the
community character of these places. These "hamlets" are not meant to expand
beyond the existing rural community node boundaries, or encourage provision of water
and sewer services to these areas.
Explore the feasibility of expanding the existing Rural Industrial Node
(located in northern Orange near Prospect Hill at the confluence of NC 86 and NC 49),
which could provide local jobs to rural residents, and perhaps develop into a village,
similar to that within the current transition areas (see Action Strategy B, above). Pursue
planning for this area in conjunction with nearby Caswell and Person counties.
D. Create a joint land use plan with a focus on preserving and protecting the rural and
farm lands that make up most of the county. Ideas must come from citizens working
with elected officials, and funds provided to make the ideas succeed.
45
■
Recommendation : Adopt a process to develop, in small increments,
specified large -scale areas (i.e. areas where growth
is preferable) as Hamlets, Villages or Compact
Mixed -Use Developments using a citizen - driven
process.
Action Strategies:
A. Identify, with citizen input, relatively undeveloped large -scale areas where planned
growth is preferable.
B. Create a Small Area Plan designing the layout for each growth area. Once the
location for development is determined, a citizens task force comprised of stakeholders
(including, but not limited to, land owners, developers, and persons with professional expertise)
designs the area layout using a set of design guidelines. These should include guidelines for
integrating uses, diversity of housing types, pedestrian oriented development, and
environmentally sensitive design. A map would be produced showing where mixed use areas,
residential areas, transportation corridors, and open space would be located.
C. Allow development of relatively small parcels of land incrementally over
time. Landowners, who would be involved from the start, could then sell relatively small
parcels to be used for the designated purpose. In villages and CMUD's, local government could
purchase the community center land and contract construction, perhaps in stages. Roads and
bicycle and pedestrian paths would also be built in stages as the development grew.
D. Allow variability and flexibility about how builders /developers use each parcel to
achieve the broader development goals set forth by citizens. At this point, with buy -in
on the goals of the plan, citizens must trust in the initiative and innovation of business,
commercial and home - building interests. Within the bounds of the design guidelines,
development should be market - driven.
Eel
GOAL 2: Conserve Na tural Areas, Farmland and
Other Important Open Space
Backiround /Rationale
In the Task Force discussions and community forums, a prominent issue has been protection of
natural areas and open space. Widespread support has been demonstrated for the importance of
protecting the most critical natural and cultural areas. Orange County took a significant step
forward to this end in January 1999, with the formation of an Environment and Resource
Conservation Department to oversee, implement, and coordinate goals for land protection and
resource conservation. As a part of this, the Department has prepared a Lands Legacy program to
preserve and protect the most important areas within the county.
Orange County and the four towns, working through this department and existing agencies such
as the Triangle Land Conservancy and the Eno River Association, have an opportunity to be the
catalyst in preserving the many critical natural and cultural places that exist in the county. In
regard to land conservation, the new Lands Legacy initiative should be fully funded to
implement land and development rights acquisition programs and other land conservation
strategies, working with the Town staffs to develop a Transfer of Development Rights program.
47
Recommendation 1: Use the Lands Legacy program to develop a
comprehensive Countywide Natural Areas
Conservation /Open Space Plan that addresses the
following.
Action Strategies:
A. A program to protect important natural areas; conserving areas identified in the 1988
Natural Areas Inventory for Orange County as well as buffers around these areas and corridors
among them, and large, contiguous tracts of hardwood forest as outlined in the 1997 and 1999
reports titled A Landscape with Wildlife for Orange County (Parts I & II), as well as other
environmentally sensitive areas.
B. Identify and protect the most important prime farmlands in the county, so that these lands
may be kept in production;
C. Recognize that open space needs vary in different parts of the county (including
preservation of farmland and land for recreation);
D. Set annual goals as benchmarks for preservation of certain natural areas and wildlife habitat
(i.e. "x" acres per year);
E. Integrate all of the above to maintain as best as possible:
• a viable ecosystem for plants and wildlife;
• corridors critical for animal migration;
• critical habitats;
• an agricultural landscape; and
• outdoor recreational opportunities.
F. Coordinate the preservation of natural areas and open space in both rural areas and
towns
Recommendation 2: Achieve Natural Areas /Open Space Conservation
Plan objectives through:
Action Strategies:
A. Fee - simple land acquisition of the most important and threatened areas;
B. Purchase of conservation easements that allow the owner to maintain title to the land in
exchange for certain rights and protection (particularly important for farmland);
C. Purchase of Development Rights, where appropriate;
D. Transfer of Development Rights from natural area lands to identified receiving areas;
E. Tax exemptions for actively farmed land and managed forestland;
F. Explore development of a forest banking system that provides an annual return to owners
of large, hardwood forests in exchange for the conservation of the forest. These forests would be
selectively harvested on a generally longer rotation in order to maintain a healthy forest
ecosystem.
G. Purchase of timber rights for properties that provide a wooded visual resource, but don't
have significant natural resources warranting purchase or easement.
Recommendation : Secure and increase funding for acquisition of land
and development rights.
Action Strategies:
A. Increase local funding through bonds for open space and natural areas.
B. Create a dedicated local funding source for acquisition of these areas.
C. Aggressively pursue grants from state and Federal agencies to assist in acquisitions
D. Increase advocacy for state and federal funding for programming, land acquisition and
administration.
E. Support State and Federal proposals to fund natural lands acquisition and farmland
preservation.
F. Maximize purchasing power through use of federal, state, and land trust partnerships.
G. Explore development of a land conservation revolving fund.
Recommendation 4: Educate and encourage homeowners, landscapers,
and nurseries to use native or non - invasive exotic
plants in landscaping. Invasive ornamental plants
grow aggressively and threaten native species in
many natural habitats.
GOAL 3: Create Environmentally Sustainable
Transportation Systems that Meet
People's Needs
Background /Rationale
Transportation issues in Orange County revolve around a two - pronged axis: air quality and
traffic. Auto pollution accounts for approximately 75% of the county's nitrogen oxide
emissions according to the NC Division of Air Quality. The county may be designated non-
compliant with new EPA rules in 2000, largely due to these emissions. The vast majority of
vehicle trips in the county are in Single Occupancy Vehicles.
A second problem with this auto - dependency is
the amount of traffic we are experiencing in
Orange County and the Triangle. Dependence on
the private auto, along with new national air
quality standards, and air quality and traffic
problems in the Triangle area, necessitate that we
rethink how we travel from place to place and the
number of daily trips and miles we drive. It is
clear that we need more environmentally sound
transportation systems, along with land use
patterns that decrease the need for vehicles as
previously discussed.
Another important transportation need is the provision of adequate transit for those unable to
own and drive an automobile.
50
Recommendation 1:
Action Strategy:
Help guide decisions on investment in alternative
transportation options by determining citizen
willingness to use such options.
A. Conduct a scientifically -valid survey both regionally and locally of a representative sample
of residents to determine interest and willingness to use various alternative forms of transit.
Recommendation 2:
Action Strategies:
Based on the survey (under Recommendation 1) and
other valid assessments of need, expand the
availability and use of public transportation.
A. Designate specific locations for public transportation nodes throughout the county. Nodes
will accommodate pedestrians, parking and bicycle racks, and be interconnected by dedicated
public transportation corridors — dedicated so that public transit vehicles will not compete with
private autos and trucks for corridor lanes.
B. Increase bus service between Hillsborough and Chapel Hill /Carrboro.
C. Lobby for increased federal and state funding for public transportation
D. Expand the public and special transportation network for seniors and the disabled — both
frequency and location.
E. Place park and ride lots at appropriate locations.
51
■
Recommendation : Promote consideration and creation of auto - limited
zones in higher density areas, so as to make these
areas more pedestrian - friendly and reduce use of
private autos.
Action Strategies:
A. Work with UNC to make the main UNC campus an auto - limited zone. Students,
faculty and staff would park out in park and ride lots and take frequently run shuttle service to
campus. Parking would still be provided for handicapped drivers, visitors, and Carolina Inn
guests.
B. Conduct an analysis of potential areas and a way to transition to auto - limited zones
in downtown Chapel Hill and Carrboro.
C. Encourage Hillsborough to explore the possibility of creating an auto - limited zone in a
portion of the downtown area.
D. Provide shuttle service from park and ride lots to the University and downtowns. The shuttles
must be spaced at frequent intervals during peak times.
E. Provide dedicated bus -only lanes to shuttle people from park and ride lots to UNC campus,
downtown discharge nodes, and other frequently visited destinations.
F. Encourage phasing out use of private auto lots at high schools in order to reduce overall
private vehicle use and encourage bus ridership (both school buses and public transit where
applicable).
Recommendation 4: Make bikeways and sidewalks defining elements of
both new and re- development and incorporate into
existing development.
Action Strategies:
A. Build bicycle lanes on all major thoroughfares within urban areas of the county.
B. Subject to designs that reduce the impact on landowners, include paved shoulders (4' wide) for
all upgrades to major and minor thoroughfares (re- paving or widening)
C. Require all urban thoroughfares to have sidewalks and all rural thoroughfares to have shoulders
for bicyclists and pedestrians.
D. Build sidewalks between schools and residential areas.
E. Create safe pedestrian crossings to transverse major highways where needed.
52
■
Recommendation 5: Encourage use of additional transportation demand
management strategies for large employers,
including:
• Carpools and vanpools;
• Compressed work weeks, in which employees work a full 40-hour work week in fewer
than the typical days;
• Flexible work schedules, which allow employees to shift their work start and end times
(and thus travel times) to less congested times of the day;
• Telecommuting;
• Provision of preferential (HOV) lanes Qfjudged to be efficient) on major roads serving
the area which provide time savings to those using ridesharing; and
• Mixed use development.
53
Recommendation 6: Pursue additional measures to protect air quality.
Action Strategies:
A. Promote ownership of low emission motor vehicles; Seek legislative approval for Orange
County to grant tax incentives for ownership of low emission automobiles, e.g. lower annual
county tax on such vehicles, lower license renewal fees.
B. The County and Towns should take the lead in instituting an ozone action plan as model for
other local governments and industries.
C. Institute hourly monitoring of air quality in the central districts of the four towns during
times of anticipated adverse conditions for air quality. The objective is to provide rapid feedback
to the community on the effects of traffic congestion on local air quality and feedback on the
impact of park and ride lots and other transportation strategies on local air quality.
D. Lobby for greater state inspection of heavy -duty trucks.
Recommendation 7:
Action Strategies:
Reduce congestion and pollution with minimal new
road construction by making the following action
strategies into primary goals of the Transportation
Improvement Program (TIP).
A. Develop multi -modal alternatives (pedestrian, bikeways /HOV lanes, public transit).
B. Make redesign of congested intersections a priority.
Recommendation 8:
Action Strategies:
Local elected officials should work for a better
transportation planning system (including new road
design and construction) within and between their
government jurisdictions. It should also include
inter - county and regional transportation planning.
(See Goal 4, Recommendation 7, page 33).
A. Make it a major priority to work with local state legislative leaders, state associations of county
officials, and state municipal associations with a focus on how to develop a new relationship
between NC DOT and local governments (county and municipal). The aim of this new
relationship is to build in a more creative and authoritative voice on the part of local governments
in local transportation planning, new road construction, corridor evaluation, exiting road
improvement and alternative transportation modes.
54
B. Local governments, under existing planning policies, should continue supporting, as a high
priority, the full and immediate disclosure of all local transportation and thoroughfare plans.
They should encourage inter - governmental cooperation and facilitate greater citizen
interest and participation in evaluating such plans with particular attention to such issues
as:
• Detailed corridor locations and road design;
• Environmental impacts — air and water and particularly on natural areas and watersheds;
• Historic sites, neighborhoods, and structures;
• Impact on long- standing communities and neighborhoods; and
• Alternative ideas and the reasonableness of a no -build alternative.
55
GOAL 4: Pollution Prevention and Waste
Reduction
Background /Rationale
The quality of life in Orange County depends greatly on the impact of human activities on the
environment. This section addresses protection of water quality, and reduction of the amount of
energy consumed and solid and hazardous waste produced in the county.
We need to satisfy water quality standards and protect the water quality of all streams from point
and non -point pollution, particularly those used for public water supplies, and to protect critical
habitat for rare aquatic species. Protection of water quality depends on where and how we
develop the landscape and on monitoring and enforcing regulations, such as regulations on
Underground Storage Tanks.
Energy use reduction should focus on reducing use of non-renewable energy resources and
reducing air pollution from energy use. (Reducing energy use for transportation was addressed
in the previous section on Transportation.)
Reducing and eliminating hazardous wastes and reducing solid waste produced will help protect
water quality from toxics and will reduce costs and landfill space needed.
56
Recommendation 1: Protect water quality.
Action Strategies:
A. Continue current efforts to guide growth away from public water supply watersheds to
prevent new discharges into these watersheds;
B. Fund expanded inspection programs to ensure individual water systems are not polluted
and individual waste water systems and underground storage tanks are non - polluting;
C. Lobby for state construction projects (including DOT and OWASA projects) to
come under local authority for sedimentation and erosion control monitoring and
enforcement, or lobby for the State to adopt regulations as stringent as those of
Orange County. Alternatively, if this is not successful, lobby for increased funding for state to
monitor construction projects under their jurisdiction and some type of stiff penalties for projects
out of compliance.
D. Push the State to develop and release information about stream assimilative capacity.
E. Continue to improve well construction methods.
F. Identify wellhead protection areas that should be protected for ground water quality.
G. Develop an ongoing, long -term groundwater monitoring program to evaluate
groundwater quality and quantity.
Recommendation : Promote environmentally friendly /green building and
site design.
Action Strategies:
A. Provide fast track approval for subdivisions and commercial buildings using
environmentally friendly design standards, including solar power, reclaimed /reused water
reuse systems, low or non -toxic building materials, innovative energy - efficient design, low
impact development design for stormwater management, and cisterns to collect rainwater on
buildings, etc.
B. Achieve legislation to allow a local property tax break for solar houses /green built houses
and commercial buildings.
C. Adopt low impact development design standards for management of stormwater
runoff. Low impact development design emphasizes maintenance of natural drainage processes,
control of stormwater at its source, and use of simple, non - structural, and small -scale solutions,
such as "rain gardens" to capture and filter stormwater runoff from parking lots.
57
D. Modify development standards to reduce the amount of impervious surfaces created by:
• Promoting the use of pervious (i.e. porous) pavement;
• Reducing parking space requirements, and creating maximum limits on number of
parking spaces allowed;
• Encouraging site designs that reduce necessary driveway lengths;
• Reducing required travel lane widths of roads by working with DOT on design standard
requirements.
Note: This action strategy should not be construed to undermine the previous
recommendation promoting bicycle lanes and sidewalks. There is an environmental
trade -off in building these, but the environmental benefits of building them out weigh the
negative impact of creating more impervious surface.
E. Create fee structure for stormwater management which is based on property size and
which is reduced when smaller percentages of a property consist of lawns or high maintenance
vegetation.
F. Improve tree planting requirements for parking lots in order to reduce the tonnage of
auto gas that evaporates into air in hot parking lots.
G. Establish environmental standards that all development proposals must meet for approval.
Cleo
Recommendation 3: Reduce per capita energy use from non - renewable
sources.
Action Strategies:
A. Initiate simple energy accounting studies in all new major construction projects to monitor
trends in energy use, particularly per capita use.
B. Conduct a study to consider subsidizing alternative electrical production.
C. See also the recommendations under Recommendation #2 above regarding energy - efficient
building, and Goal #3 regarding Transportation.
Recommendation 4: Reduce solid and hazardous waste.
Action Strategies:
A. Continue and enhance efforts to promote reduction, reuse and recycling of solid
waste and the elimination of the use of toxic chemicals; meet Orange County's adopted
goal of 45% solid waste reduction by 2001 and 61 % by 2006.
B. Develop and enforce standards for non - toxic, etc. building materials, so when
construction debris and demolition materials eventually enter the landfill they will be essentially
harmless.
C. Encourage building reuse rather than demolition.
D. Require manufacturers to be responsible for taking back packaging to encourage reuse and
internalize the cost of disposal.
E. Raise tipping fees and institute a pay as you throw system.
F. Encourage more regional planning regarding recycling and management of solid
waste, including locating a materials transfer site that would include C &D building materials.
G. Support regional efforts to prevent Shearron Harris from becoming a statewide site
for storing used fuel rods. Shearron Harris should be a storage site only for its own spent fuel
rods and should not be allowed to be a disposal site for spent fuel rods from other nuclear
facilities.
59
GOAL So. Protect Our water Supply
Backiround /Rationale
Water is a limited natural resource. We must continue to assess the limits of water supply and
storage capacity, stay conservatively within these limits, and work to safeguard our drinking
water supplies from pollutants. Water conservation strategies will become increasingly
important as our population grows.
• 1'
■
Recommendation : Continue to assess water supply limits and safety,
and ensure sufficient supply.
Action Strategies:
A. Continue current methods and develop new methods to ensure that planned communities have
sufficient water.
B. Protect groundwater and limit its use to its recharge rates /carrying capacity, as determined
through scientific studies (such as the current Water Resources/USGS effort).
Recommendation 2: Aggressively promote water conservation.
Action Strategies:
A. Establish a water conservation program for all water providers for UNC, all four towns and
the county that:
• provides strong incentives to reduce water consumption, including charging customers for the
true cost of water consumption (done in such a way as to not negatively impact persons with
low incomes);
• promotes landscaping that places minimum demands on water supply through citizen
education, incentives and ordinances to encourage and /or require water conservation
measures;
• develops a database on water use.
B. Develop a water reclamation program for all water providers, identifying possible users of
reclaimed water and providing incentives for use.
C. Permit use of gray -water for watering landscape, flushing toilet, etc. — as this can be done
safely.
D. Use cisterns to collect rainwater on public buildings to provide graywater and lessen impact on
stormwater runoff.
61
Focus Area 2. Economy
GOAL 1: Support a Diverse Economy tba t Meets
Local Needs
Backiround /Rationale
Orange County has a very strong economy due in large part to the county's location in the
Triangle area and to the presence of UNC in Chapel Hill. Though the economy is strong, in some
quarters Orange County has a reputation as being anti - business, largely due to lengthy
development review processes and regulations on the careful location of non - residential
development.
While these processes and regulations accomplish many laudable goals in limiting sprawl and
protecting neighborhood and rural character, they may also have created an undesired and
unintended effect of driving out local businesses. There are ways to accomplish both important
goals. The anti - business image needs to be shed and replaced with a new image and strategy for
economic development for active, yet selective economic development that meets local needs
and is in line with our sustainability goals.
Business diversity, having a balanced mix of larger commercial /industrial operations and
numerous, small businesses/ micro - enterprises, is important to maintaining a healthy economy.
We should build on current strengths such as the presence of UNC -CH and UNC Hospitals, and
make farming a significant part of the economic development program of the county. There is
strong community support for agriculture in Orange County, and preserving agriculture and
promoting markets for local products will support our local economy and preserve farmland.
Businesses should be selectively recruited to three target areas identified by the Task Force:
• Appropriate locations in each of the four towns;
• The Economic Development Districts;
• A new economic node in northern Orange
Through economic development that focuses on creating a j ob base with j obs that pay a living
wage and providing training for such opportunities, we can decrease the disparity between
wealthy and poor in the county.
Business opportunities should be meshed with skills development training. Durham Tech offers
some community college classes in the county and the new Skills Development Center has
started to provide job placement and some skills training. These services, however, are in need
of expansion to adequately serve Orange County's population. Further skills training and
vocational programs are needed in the county in order to increase individual wage potentials,
abilities and employability.
mej
Recommendation 1: Have the Orange County Economic Development
1. Use existing resources (including existing human resources and creating products
from local "waste" resources);
2. Help meet local and regional needs;
3. Promote homegrown, local entrepreneurship;
4. Be non - polluting and environmentally friendly;
5. Capitalize on business opportunities related to creation of environmentally sound and
efficient transportation systems;
6. Provide jobs with decent wage potential (i.e. jobs that pay a living wage or higher);
mid - level /skill /wage jobs;
7. Have a positive impact on the tax base;
8. Purchase locally - produced agricultural products;
9. Support a stable and diverse local agricultural economy, particularly organic
farms that meet local needs;
10. Build on current strengths such as the presence of UNC -CH and UNC Hospitals by
supporting spin -off businesses;
11. Accommodate growing businesses that need to expand.
63
■
Recommendation : Actively recruit and support desirable businesses
that meet the above criteria (at a minimum, that meet
the criteria regarding environmental friendliness,
decent wage potential and positive tax impact).
Action Strategies:
A. Work with the Chambers of Commerce and the Economic Development Commission to establish
and fund a public /private task force which will:
■ make a list of businesses which meet the criteria outlined above;
■ identify specific "best prospect" companies within those business areas which might be
persuaded to come to Orange County;
■ develop a strategy and set of materials to highlight benefits of doing business in Orange
County to attract desirable businesses;
■ learn the requirements of target businesses which seem receptive, e.g. space, skill,
financial, etc.;
■ work with appropriate government and private bodies to develop specific proposals;
■ follow up to make sure everything promised is delivered;
■ work with the community college and the skills development center to provide training to
match jobs with recruited businesses.
B. Make development regulations more flexible to accommodate desired businesses.
C. Have County and Towns construct a shell spec building in order to attract companies
needing immediate space. When sold, build another.
D. Support maintenance and start -up of desirable businesses through a variety of
means:
• non - monetary incentives, including fast -track approval;
• government guaranteed business loans;
■ investment;
• marketing support; and
• other means.
Me
Recommendation 3: Seek Federal, State and private funding to support
sustainable development initiatives.
For example, apply for an EPA Sustainable Development Grant to study feasibility of starting an
eco- industrial park (see glossary on page 93 for definition) in an appropriate location.
Recommendation 4: Improve farming viability by supporting farming -
traditional and new - through a public /private
partnership which:
• (in particular, UNC Hospitals, the University, the school systems, and other local
businesses and institutions);
• backs low- interest financing, particularly for persons wishing to start up a new
operation;
• ensures better protection against nuisance lawsuits;
• exchanges long -term or perpetual farmland preservation for tax and other financial
incentives;
■ establishes partnerships between urban and rural residents by developing
community supported agricultural programs;
■ establishes an Agriculture Center that offers demonstrations, marketing classes, and
facilities for freezing, storing and processing local agricultural products.
Recommendation 5: Consider the long range impacts to the county of
electronic commerce (6-commerce), both positive
and negative.
Action Strategies:
A. Examine the potential negative impacts of e- commerce on loss of local shopping and
business profitability.
B. Support local e- businesses.
65
Recommendation 6: Address affordable housing as an economic issue.
Promote affordable housing in order to support
good businesses.
Note: Affordable housing is dealt with in -depth in the Housing section on page 58.
Action Strategy:
A. Encourage local Chambers of Commerce to appoint a group made up of developers and
business people, with housing advocates to understand and address housing affordability
and diversity as an economic /business issue, and get the business community more
involved in seeking solutions to this issue.
Recommendation 7: Expand services provided by the Skills Development
Center.
Action Strategies:
A. Make the Skills Development Center a comprehensive classroom skills training and
job placement center. The Center should work in connection with community colleges and
high schools to provide marketable skills training, well- funded English as a Second Language
(ESL) and literacy classes, and job placement services.
B. Develop a center with facilities for hands on technical skills application.
Recommendation 8: Develop a partnership involving the Skills
Development Center, high schools, and higher
education institutions with the business community
to train workers and provide job opportunities.
Project needs for trained workforce members; identify prospective "trainees " with appropriate
potential; invest to develop trained workforce.
Recommendation 9: Lobby legislature to locate a branch of Durham
Technical Community College in Orange County (i.e.
a West Campus of Durham Technical Community
College).
Orange County is one of the few counties of its size without a community college.
Focus Area 3. Housing
GOAL I,, Ensure Availability of Affordable,
Quality Housing
Backiround /Rationale
Local housing affordability and quality, and housing policies that can help all citizens obtain
these necessities, are crucial to Orange County's quality of life and to its economy. Housing
affordability and the ability of families to own a quality home, and thereby build an asset base,
are critical issues. In our society, where the income gap has been steadily increasing, expanding
the ability of residents to buy, rather than rent, a home is a fundamental and important step to
narrowing this gap by enabling those with low incomes to build assets.
Orange County's supply of affordable housing is dictated by a variety of factors, the most
significant being project profitability, and availability of land and infrastructure. Affordable
housing in Chapel Hill and Carrboro is also significantly affected by the presence of the
University. The pressure UNC students put on the affordable housing market is immense.
Additionally, because of land use policies that discourage urban services outside of municipal
areas, and stringent development regulations, traditional affordable housing (apartments, single
family homes) is limited to areas within or adjacent to municipalities. Within rural Orange
County, mobile homes constitute the greatest source of affordable housing. But these homes,
though more affordable up- front, depreciate rather than appreciate in value over time, and being
subject only to federal standards rather than the more stringent state standards, are less well -
designed in terms of insulation and fire safety.
Nearly 10% of the county's housing supply is considered to be substandard. Substandard
housing is commonly characterized by excessive cost burden, overcrowding, and structural
problems such as inadequate heating, plumbing, etc.
A wide mix of housing types and options is needed for the county, and provision of safe, durable,
affordable housing to meet the needs of all people should be a top, countywide priority.
67
■
Recommendation : Encourage public and private initiatives to provide
and develop a wide range of affordable housing
options.
Action Strategies:
A. Encourage support of a range of housing options, including:
• Homeownership for those at HUD guidelines (currently 80% of
median income), as well as those from 80 -100% of median;
• Homeless emergency housing;
■ SROs (Single Room Occupancy units);
• Low cost multi - family rental housing especially within Urban Service
Districts that have none;
• A large portion of rental housing with an option to buy;
• Tax credit rental housing that is affordable to those conforming with
HUD guidelines (currently 50% of median income);
• Low income homeownership opportunities, such as those provided by
Habitat for Humanity;
• Modular homes as a viable option for low income homeownership;
• Increased construction and availability of handicapped units, both
subsidized and at market rates.
B. Encourage the University to develop options for iJNC employees to have affordable homes on
University land.
C. Encourage the University to increase considerably the proportion of students housed on
campus as a means of freeing up private housing for others.
D. Work with the legislative delegation to pass legislation on:
Impact taxes, rather than fees;
Inclusionary zoning; and
A real estate transfer tax.
E. Examine means such as a moderated regulatory process, expedited review, increased density,
flexible infrastructure and street standards to see if any of them will promote construction of
affordable housing that will remain affordable for the long term.
F. Continue to support the development of a land trust to maintain affordability and
encourage making public land available to non - profits.
G. Develop a dedicated source of revenue from public and private sources (e.g. lending
institutions), or from adequate and substantive bond issues, to provide funding for non-
profit ventures for low - income housing for both rural and urban residents.
Recommendation 2:
Action Strategies:
Ensure safe, quality housing.
A. Increase funding for housing rehabilitation and repair programs for seniors, low income,
and persons with disabilities.
B. Strengthen and enforce the Housing Code to bring sub - standard housing up to standards.
C. Strive for excellence in product design, and produce homes that are safe, durable,
comfortable, cost effective, energy efficient, and appropriate to the existing
community.
Recommendation 3: Assist low income individuals to develop an asset
base.
Action Strategy:
A. Work with lending institutions to establish innovative financial asset guarantee
programs to make it possible for low- income individuals to qualify for loans.
Focus Area 4. Human Services
GOAL IN Ensure Availability of Affordable,
Quality Child Care
Backiround /Rationale
Our children are our future. The kind of care they receive
will greatly affect their health and well -being and that of our
community. Approximately 70% of children live in
households where all parents are working outside of the
home. With the advent of the Work First program this
percentage is likely to rise. At the same time that we have
been coming to rely on child care facilities to care for our
children, studies have shown that the first few years of life
are critical to a child's healthy development, making provision of quality child care services a
critical issue.
Along with quality of child care, affordability is a major issue. Though the majority of parents
rely on child care facilities, government policies and funding have not yet caught up with needs.
In total 60% of child care costs are paid by parents, 39% by government, and I% by the private
sector. Most families in Orange County cannot afford the full cost of child care, and costs are
rising.
70
■
Recommendation : Ensure that quality child care is available to all
children.
Action Strategies:
A. Ensure provision of child care for county families in high quality, safe facilities with
educated child care providers supervising all young children;
B. Involve parents in the total process through classes and hands -on;
C. Create additional affordable (sliding - scale) after - school and summer programs,
available to all children, including those with disabilities, using highly trained, well -paid staff
with trained high school students as assistants;
D. Develop strategies to ensure that early childhood specialists (teachers) are compensated
fairly, including benefits;
E. Encourage businesses to adopt parental leave policies to make it possible for parents to
care for their children at home in their first years:
■ Encourage county and town governments to establish model policies for family
friendly work environments;
• Resolve the dilemma of reconciling parental leave policies to allow parents to care for
young children at home with the federal Work First program, which is encouraging
parents to work rather than care for young children at home. Look for creative
funding sources to equalize discrepancies between "back to work" and parental leave.
■ Search for economic ways to encourage small businesses to adopt parental leave
policies. Perhaps, create a consortium of small businesses to make such approaches
economical; and
• Establish a public awareness campaign promoting family leave policies.
Recommendation 2:
Action Strategies:
Address child care affordability.
A. Work with our legislative delegation to encourage public funding for child care, similar to
K -12 levels; and in the mean time create a plan with identified money sources to ensure that all
families are able to access affordable child care;
B. Share costs with private sector through on -site day care.
71
GOAL 2: Promote Public Safety
Backiround /Rationale
Public safety covers an array of topics: crime, fire protection, emergency management, and
disaster management. The recommendations below address issues seen as being of primary
importance for each topic.
72
Recommendation 1: Eliminate child abuse and partner /spousal abuse.
Action Strategies:
A. Develop a major public relations campaign that focuses on eliminating child abuse and
partner /spousal abuse and promoting positive family relationships.
B. Improve treatment for victims of abuse.
C. Provide appropriate treatment and punishment for abusers.
Recommendation : Continue and build on current community policing
efforts.
Action Strategies:
A. Expand community policing.
B. Encourage neighborhood watch programs in all neighborhoods.
C. Discuss safety issues in a common - sense, non - alarmist manner with children in schools and
adults in other venues.
Recommendation : Address the needs of minority populations as well
as especially vulnerable populations in delivery of
public safety services.
Action Strategies:
A. Develop crime prevention programs serving those populations.
B. Develop relationships with other service providers who have special ties to those
populations.
C. Encourage internships with youth from these populations.
D. Recruit officers with foreign language capability, as needed.
73
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Recommendation 4: Improve adequacy of fire protection by rationalizing
service provision to send the closest fire truck to the
fire.
Action Strategy:
A. Pursue inter jurisdictionally coordinated (among towns and rural areas), long -range planning that
considers rationalization of fire protection through cooperative agreements, or rationalization of
service areas around stations.
Recommendation 5: Promote family disaster preparedness to make every
household self - sufficient for at least three days after
a disaster.
Action Strategy:
A. Incorporate disaster preparedness education into community policing, neighborhood watch, and
school programs.
Recommendation : Create a countywide, integrated communications
system for emergency management which enables
inter - departmental communication among
jurisdictions.
74
GOAL 3: Support Seniors' Quality of Life
Backiround /Rationale
There are currently an estimated 14,000 seniors living in Orange County. This number is
expected to increase by 148% to more than 33,000 by the year 2030. The large senior population
presents opportunities and challenges to the community.
75
■
Recommendation : Maintain Seniors in the least restrictive environment
through a continuum of readily available care,
including Wellness Programs, Homemaker and Home Repair Services, Transport and Escort
Services, Home - Delivered Meals, Adult Day Care, Case Manager /Ombudsman Services, Assisted
Living Arrangements, At -Home Care, Nursing Homes.
Recommendation : Establish Senior Centers in communities throughout
the county as a focus for integrated services for
seniors, including:
Information and Referral; Wellness and Exercise Programs; Nutrition Services; Adult Education,
Leisure Activities; Counseling on Housing, Employment, Volunteering, Finance, etc.; and on -site
services from health Department, Social Services, and other agencies.
Recommendation : Reduce property taxes for Seniors and persons with
disabilities with low to moderate incomes.
Action Strategies:
A. The County, working with the Orange County Department on Aging, should lobby the
legislature to raise the income cap under the Homestead Exemption Act to a higher
percent of median income to cover a larger percentage of lower income seniors and persons with
disabilities.
B. Look into the feasibility of allowing seniors with low to moderate incomes the option to defer
local property taxes until either their house is sold or their death. Look into possibility of
charging interest on deferred property taxes. This would allow seniors on fixed incomes with
rising property taxes the option of remaining in their homes.
Recommendation 4:
Recommendation 5:
Action Strategies:
Provide tax and other financial incentives to
encourage families to provide in -home care of the
elderly.
Provide appropriate work opportunities for seniors
to re -enter the labor market.
A. Provide job- training for seniors.
76
■
Recommendation : Adult continuing education will be a growing need
over the next 30 years. See Goal 2 under Education
on page 70 for recommendations on lifelong
learning.
77
GOAL 4: Promote Health and Mental Health
Background /Rationale
The old adage, "the best defense is a good offense,"
translates in public health thinking into another
favorite, "prevention is the best medicine ".
Recognizing that many health conditions can be
prevented through education, and mental health
problems controlled through treatment, the chief
priorities for intervention at the county level should
be prevention, education and treatment. These
strategies, informed by the inevitability of inheriting
tomorrow those conditions we fail to prevent or treat
today, can best be addressed through the following
actions.
■
Recommendation : Focus local policies, priorities and funds on creating
a healthy environment for residents, and on
promoting healthy behaviors. Policies and funding
should support the following.
Action Strategies:
A. Develop public awareness campaigns on the major preventable causes of premature death.
B. Create ample safe sites for physical activity such as bikeways, sidewalks, jogging trails,
public basketball courts, parks, etc.
C. Provide nutrition education for all populations.
D. Address problems of teen pregnancies and teen abortions, HIV, poor parenting, child
abuse /neglect and sexual assault through better provision of age- appropriate family life
education.
E. Develop a public awareness and education campaign informing the public about mental
illness, its incidence, symptomology, treatment modalities, and prevention.
F. Develop a public awareness and education campaign informing the public about substance
abuse prevention.
Recommendation 2: Evaluate adequacy of health care facilities in
northern Orange County.
Recommendation : Encourage and continue provision and
enhancement of community based services that
meet the demand for treatment for mental health,
mental illness, and substance abuse.
Action Strategies:
A. Continue provision and enhancement of community based services that meet the needs of
children with developmental disabilities and behavioral issues.
B. Continue provision and enhancement of community based services that meet the needs of adults
with physical or mental disabilities, or mental illness.
C. Continue provision and enhancement of community based services that meet the needs of
victims of abuse or trauma.
79
D. Continue provision and enhancement of community based services that meet the needs of teen
or adult substance abusers.
Recommendation 4: Advocate with the legislature and employers to
provide adequate coverage /funding for
health /mental health services.
Action Strategy:
A. Particularly address:
• Health care coverage for those not on a health plan, especially new and expecting
parents;
• Prescription drug coverage for seniors;
• Mental health services.
:1'
Focus Area 5. Education
GOAL 1: Provide Quality K -12 Educa lion
Backiround /Rationale
Orange County residents clearly expect the best in K -12 education. Orange County is home to
some of the most outstanding schools in the state, with two of our high schools among the top
100 public high schools in the country. The education system strives to prepare students to be
responsible citizens, and well- rounded, critical thinkers with marketable skills.
SOCF envisions schools as the center of multi -use community facilities in the future. This
approach would heighten parent and community involvement in the education of our children
and youth, utilize the buildings and grounds more fully, and help to provide important
community services more efficiently, from after school programs for younger children, to senior
care, to cultural arts programs in which high school students and community adults could often
participate together.
Orange County High School
LOW
Recommendation 1: Have schools be part of multi-use community
centers
that can include facilities such as a branch library, senior center, performance and meeting
space, and a park with playing fields. Land for schools should be purchased with this larger
concept in mind. Thus, school systems and local governments should collaborate on identifying
future school sites to ensure that these are adequate and appropriate for such extended uses.
Recommendation 2: Encourage the school boards to look at the
feasibility of reduced class sizes and smaller
schools, while maintaining diversity.
Recommendation : Encourage greater cooperation between the Orange
County and Chapel Hill /Carrboro school systems
and consider appropriateness of school system
merger in the future.
Action Strategies:
A. Foster increased cooperation between the two system administrations.
B. Streamline provision of certain functions where appropriate by combining services.
C. Develop more interaction among the schools so that school children can build community
with each other across schools and school systems.
D. Focus on answering the following questions to determine whether and when school
merger might be appropriate:
• What would be the impact of different size school districts?
• How would merger affect efficiency of administration of the two districts?
• What would the financial impacts be?
• Is there really a serious disparity in opportunity across the two systems?
• Is technology so disparate between the two?
Recommendation 4: Continue to develop a long -range technology plan,
encouraging cooperation between the two school
systems and the University.
Recommendation 5:
Action Strategies:
Improve special needs services.
A. Enhance opportunities for inclusion of special needs children in the school districts.
B. Add additional resources for Exceptional Education Support Services and early education
services.
C. Continue and enhance programs to provide advocates for special needs children to help
their families negotiate the system.
Recommendation : Continue and improve literacy levels for all non -
English speaking children and youth.
Action Strategies:
A. Continue and improve the teaching of English as a Second Language (ESL) in all schools.
B. Provide basic skills training for those ESL students who need additional help.
Recommendation 7: Continue and improve special programs that
prepare at -risk children.
Action Strategies:
A. Continue and improve programs to prepare at -risk pre -K children (i.e. four year olds) for
school.
B. Continue and improve remediation programs for older students to bring them up to or
closer to grade level.
Recommendation : Continue and enhance efforts to provide students
with hands -on, real world experience.
Action Strategies:
A. Continue and enhance vocational training in all schools which prepares students for
technical schools. Enlist participation from local businesses.
B. Continue and enhance skill development opportunities available in apprenticeships and on-
the -j ob- training.
C. Continue and enhance mentor and internship programs at the high school level exposing
students to the nature of careers and career preparation in a variety of fields, such as business,
teaching, law, medicine, and research.
LOW
GOAL 2n, Support Lifelong Learning and Adult
Educa lion
Background /Rationale
Orange County benefits immensely from the excellent educational
opportunities provided by UNC, as well as nearby community colleges, local
community groups and parks and recreation departments. The wide array of
lifelong learning opportunities available locally enriches the lives of county
citizens. These offerings give residents the chance to sharpen their
professional skills, learn new skills, expand their cultural horizons, and enjoy
a variety of leisure activities.
Equally important to helping people get the most out of their lives and contribute positively to
society are lifelong learning and adult education opportunities that provide literacy education,
adult basic education, English as a Second Language (ESL) and citizenship education for all
residents who need or can benefit from such programs.
■
Recommendation : Foster and enhance lifelong learning opportunities
for all adults offered through UNC, area community
colleges, parks and recreation departments, and
community groups.
Action Strategies:
A. Develop and circulate a calendar of community -based lifelong learning opportunities
and continue to circulate the University's listing of such opportunities ( "Think Again ").
B. Seek involvement of the University's Continuing Education Division in planning and
developing a range of non - credit, campus -based enrichment programs for Orange
County citizens.
Recommendation : Enhance Adult Education opportunities focusing on
basic skills, literacy, and preparation for citizenship.
Action Strategies:
A. Ensure that such literacy services, Adult Basic Education, and English as a Second Language
(ESL) classes are available and accessible to all adults who need them.
B. Ensure citizenship education is available for immigrants seeking American citizenship as
well as for young people approaching voting age.
LOW
SECTION V
THE CITIZENS' ROUNDTABLE
THE CITIZENS' ROUNDTABLE "A PROPOSAL OF
THE SHAPING ORANGE COUNTY'S FUTURE TASK
FORCE
Background/Rationale
The Citizens' Roundtable has been described in the SOCF 2030 Vision as a modern substitute
for the "public squares of an earlier America," places where citizens met regularly in villages and
towns to share ideas related to the new nation, its government, and its people. Unlike most
current advisory boards in Orange County and its municipalities which have a specific focus and
purpose (i.e. the Planning Board, the Board of Adjustment, the Recreation Commission), the
Citizens Roundtable would engage citizens in the discussion and analysis of a broad range of
concerns and issues related to our countywide community life.
As we begin a new century and a new millennium, we look back on a period of recent history
within which our diversity has seemed more important than our unity; what divides us more
compelling than what draws us together. Clearly, that diversity itself, coupled with the mobility
of modern life and the electronic technology which has changed our workplaces, social habits,
and ways of communication, are all responsible for this "degree of separation" our society is
experiencing. It would appear that we have less common history, less sense of place, and far
fewer opportunities to interact directly with one another than was the case years ago. As we
assess these new realities, many of us wonder how we can connect as citizens and neighbors to
develop and sustain common values. Thus, we search for meaningful tasks that bring us
together work and ideas that we share, and plans to which we can all contribute.
Purposes
In setting forth the purposes of The Citizens' Roundtable, it is important to note first, that much
of the thrust for this idea comes from the success of the Shaping Orange County's Future
initiative and the work of the Task Force established to lead this effort. Thus, the SOCF Task
Force serves as the model for The Roundtable concept, the model for engaging citizens in
community issues and ongoing community planning. For more than three years, this group of
thirty citizens, appointed by the County Commissioners from a list of volunteers expressing
interest in the project, and supported by county and municipal planning staff, has worked
together to identify community values and, with those providing direction, to articulate a positive
vision of what Orange County could be like thirty years from now.
The purposes of The Citizens' Roundtable will be much the same, that is, to provide citizens
from throughout the county with a place for informal discussion of ideas and concerns of special
importance to them as well as to the larger community and its quality of life. The Citizens'
Roundtable will also serve as a sounding board for ideas and plans on which the elected boards
would like citizen feedback. But most important of all, The Citizens' Roundtable will review
progress on the SOCF recommendations, as presented to the County Commissioners and the
Council of Governments in June, 2000, and make an annual report to those bodies. Additionally,
the group will look at changing conditions and suggest "course corrections" to the original
recommendations.
It should be noted that it is anticipated that The Citizens' Roundtable could become an important
force for building community in Orange County. However, community - building is not its
primary purpose, but rather, an important by- product as was the case with the Shaping Orange
County's Future Task Force. The real purpose of the Roundtable like the SOCF initiative is in
addressing real issues and, through the consensus process, in finding real solutions which, in
essence, represent a true community -wide commitment.
Success of the Roundtable will also depend on the commitment of local elected boards to
seriously consider the recommendations and input of the group.
Structure and Operation
Membership: Initially, in considering the number of appointees to The Citizens' Roundtable, a
group half the size of the SOCF task Force was suggested (15). However, in further discussion
with Task Force members their recommendation was that it should have the same number of
appointees as the Task Force (30), their reasoning being that since not everyone can be present
every time, having 30 ensures solid attendance and diversity at each meeting. And by allowing
people to be absent without guilt, appointees would be encouraged to serve a full term.
Interested citizens would be asked to volunteer and Roundtable appointments would
subsequently be made from that pool of names. It is proposed that all of the county's governing
bodies have an opportunity to make appointments to The Citizens' Roundtable: the County
Commissioners, Chapel Hill, Carrboro, and Hillsborough. There should also be appointees from
those portions of Mebane and Durham within Orange County's jurisdiction. The County
Commissioners should oversee all of these appointments in terms of countywide representation
and diversity in regard to age, sex, race, and other factors such as disability and /or special
experience, training, or education.
Term of Office: A suggested term of Office for appointments to The Citizens' Roundtable
would be three years, long enough for the group to come to know each other well and establish
rapport, and short enough to enable most people to serve a full term. With thirty members, terms
could be staggered with one third rotated off each year. Another approach might be for each
selected group to serve their three -year term together and then, at the end of that term, for a new
group to be appointed. As the SOCF Task Force has observed, such continuity has been a
critical factor in establishing the atmosphere of civility and trust which has contributed so much
to its ability to work well together.
Co- Chairs and Staff: The SOCF Task Force has operated with co- chairs, one representing the
Northern and more rural part of the county and the other, representing the Southern and more
urban part. They have essentially managed the meetings and served as the liaisons with the staff
in planning the agendas and other task force activities. There have been two Orange County
Environment and Resource Conservation Department staff assigned to assist the Task Force in
setting its directions and in taking care of most of its administrative work. They have also
researched and written many of the background documents that particular issues have required.
A third staff member has been a facilitator from the Dispute Settlement Center in Chapel Hill.
He has overseen orientation and training sessions for the Task Force, has served as a facilitator
for many discussions, and has provided ongoing guidance to the group concerning discussion
techniques and operating by consensus. It is proposed that these same leadership arrangements
be maintained for The Citizens' Roundtable, that is, professional planning and facilitation staff.
Concluding Comments
As the SOCF Task Force nears the completion of its work, we are looking to the near future, as
well as that of thirty years hence, with the knowledge that endings are also beginnings. It is time
for new faces and new minds to pick up where others have left off, which is part of the
motivation for proposing The Citizens' Roundtable. For some time now it has been clear to us
that much of what we have in place with the SOCF initiative would continue to be of importance
as the future unfolds. But new citizen concerns and ideas will be needed to plan for that future,
and to shape it to the visions of Orange County's people.
The Citizens' Roundtable we propose is not intended to have its 30 members talking only with
one another but always, to have others sitting at the table with them. Meetings should be held at
various locations around the county so as to regularly involve those from both rural and urban
areas.
"The Citizens' Roundtable" means exactly what it says. We use the term "Citizen" here to
describe ordinary people as distinguished from those who are elected or appointed to official
roles in government. And we use the word "Roundtable" to describe a group gathered for
conference or discussion, whether or not they are seated at a round table! But, as legend tells us,
the famous table around which King Arthur and his knights sat was indeed round, and for a
purpose —to avoid quarrels as to precedence, or the right of priority among its members. For the
fact is, there can be no "head" at a round table. Thus, the Citizens' Roundtable presupposes that
all who sit there for discussion and dialogue are equals. And that presupposes that all will be
heard, and all will be listened to.
XEI
SECTION VI
A VISION FOR THE YEAR 20.30
Note: The SOCF Vision for the Year 2030 was created last year as a precursor to the
SOCF recommendations and provisional report. Through further discussions by
the Task Force, in the process of creating the current recommendations and
action strategies, this vision has been refined and clarified. Therefore, please
note that the vision does not directly link in all cases to the recommendations and
action strategies outlined in Sections III and N.
VISION FOR THE YEAR 2030
INTRODUCTION
This scenario for the year 2030 represents the vision of the SOCF Task Force, after hearing from
citizens around the county and researching the issues, on what a desirable future for all of
Orange County could be. Naturally, this vision includes many aspects of our current high
quality of life that we would like to maintain as well as ideas on what we would like to become.
This vision of the future represents our hopes and aspirations for what the future can be if we
continue to share our ideals and to pursue them with energy and wisdom, together.
SUSTAINING THE ENVIRONMENT
AND MEETING OUR NEEDS
Orange County in 2030 has earned a reputation as one
of the most livable areas in the nation. In large part, this
is due to long- standing countywide commitments to
sustainable use of resources, stewardship of the
environment, and planned efforts focusing on the
management of growth and development. All of these
commitments have helped to keep the economy vibrant
and nurtured a sense of community while protecting the
county's unique character and its natural environment.
JOINT PLANNING
A "Triangle West" comprehensive plan coordinates the jurisdictional plans of the towns and
counties of Durham, Orange and Chatham. Additional regional planning occurs through dialogue
and joint policy- making among Orange County jurisdictions, and neighbors in the Triangle and
Piedmont Triad regions. Joint planning agreements based on environmental and economic
functional units, rather than jurisdictional boundaries, exist where appropriate.
Over the years, significant effort has been expended on increasing interaction between the
leadership of the University of North Carolina at Chapel Hill (UNC) and that of the towns and
county. Chancellors appoint a special liaison to meet regularly with town and county officials to
apprise them of the University's planning initiatives and, in turn, to apprise the Chancellor of
town and county issues and concerns. This system of open communication has resulted in a
more positive and productive relationship than is the case in many "town and gown"
communities by enhancing UNC's role as an active participant in the life of Orange County and
the role of citizens in the University's growth planning efforts. UNC plans cooperatively with
the jurisdictions of the county for growth management.
A comprehensive transportation plan involves collaboration among the governments and citizens
from all jurisdictions in the county and region, as well as the NC Department of Transportation,
and major institutions in the county, such as UNC and UNC Hospitals. The plan has reduced
traffic congestion, air pollution, and the need to pave more land, and provides modes of transit
for those who cannot drive or do not own a vehicle. As a result of this effort, the county has
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reversed trends of increasing vehicle miles traveled (VMT), reduced traffic congestion, and
decreased the percent of Single Occupancy Vehicle trips.
The towns and county have adopted coordinated Adequate Public Facilities Ordinances (APFOs)
which ensure that development is not approved until governments are prepared to provide the
necessary supporting infrastructure, including streets, sewer and water, and schools. Through
joint agreements with Orange County, urban growth boundaries exist around Chapel
Hill /Carrboro, Hillsborough, Mebane, and Durham.
Through this coordinated planning, much of the growth over the last 30 years has been focused
into the four towns: Chapel Hill, Carrboro, Hillsborough, and Mebane, and town transition areas.
In town transition areas creation of "village" style development has been encouraged to develop
diverse communities and preserve local open space. These villages have developed in measured
steps, away from sensitive natural areas. Each village has become a small, yet diverse,
community providing a genuine sense of place to live and grow. By focusing development into
the towns and transition areas and providing incentives for land preservation in rural areas, the
integrity of many of the county's large natural areas has been preserved.
DATA COLLECTIONANDREsouRcE ALLOCATION
Comprehensive environmental data collection and analysis are used to determine resource and
environmental limits and provide guidance to sustainable use. Based on this data, Orange
County, in conjunction with other counties in the region, has, after studying the pros, cons and
feasibility, instituted a Planned Growth Budget, which is a system to fairly allocate use of the
region's finite resources of water, air and land.
PROTECTING WATER SUPPLYAND QUALITY
Data is collected to determine limits to sustainable use of surface and ground water supplies that
do not exceed assimilative capacity, the ability to support healthy aquatic life, and that maintain
adequate year -round water flow. Water conservation has been addressed in several ways. Per
capita use of water has been slowly declining due to the incorporation of water conservation into
the design of all new construction, promotion of the use of landscaping that requires less
watering, and implementation of other short and long term conservation strategies.
Water quality is protected through a variety of means. Vegetative buffers along streams and
rivers protect water quality and provide continuous wildlife corridor habitat. Landscaping is
accomplished with less fertilizer, herbicide and pesticide application in both amount and toxicity.
In rural areas soil erosion continues to be successfully controlled through use of farm and
forestry best management practices and enforcement of regulations. In towns, monitoring and
enforcement of soil erosion regulations has improved so that streams are well protected from
erosion caused by construction and other activities. Ground and surface waters are regularly
monitored for quality, and problems are promptly addressed. Wastewater treatment discharges
are also carefully monitored and limitations are enforced.
Development planning and expansion of sewage treatment capacity considers the costs of
wastewater treatment and the assimilative capacity of the stream. Development is planned to
protect water quality within critical surface water supply watersheds and in groundwater
recharge areas.
PROTECTING AIR QUALITY
Air quality is protected and standards adhered to through achievement of the county's
transportation plan goals. Transportation plan goals to protect air quality focus on reducing
dependency on single occupancy vehicles through provision of alternative means of transit, auto -
free zones and pedestrian- oriented, mixed use development, as well as by encouraging the use of
less - polluting, alternatively fueled vehicles. Increasing emissions reduction technology and use
of alternative - fueled vehicles has greatly reduced air pollution from automobiles in Orange
County as well as across the nation. Air quality is also protected by businesses that are
environmentally friendly and have strategies for reducing emissions, such as using energy
efficient building construction, using solar rather than electric power, buying material locally so
as to reduce truck transit, and promoting telecommuting as a means to reduce vehicle miles
traveled.
ENERGY CONSERVATION
All building construction in Orange County meets energy efficiency standards, and public
buildings must use maximum, cost - effective energy efficiency technology. To further encourage
energy conservation homebuyers are made aware of the energy use of prospective home
purchases. Energy conservation is also achieved through the county's widely used transportation
system.
The towns and county have joined the Cities for Climate Protection Campaign and created and
implemented a local action plan to reduce greenhouse gas emissions in the county.
Implementation of the plan has decreased government energy consumption and provided energy
savings.
FOSTERING AN ECONOMY THAT MEETS LOCAL NEEDS
The county seeks to accommodate and keep growing businesses that need to expand, and it
selectively recruits new businesses that meet the community's needs. In particular, the county
supports and recruits businesses that are non - polluting and environmentally friendly; that employ
local people; that utilize "waste" resources (i.e. reuse waste to make new products); that have a
positive impact on the tax base; and that pay a living wage, thus allowing people who work in
the county to live here as well.
SUPPORTING A DIVERSE ECONOMIC BASE
Orange County's economy is based on a balanced mix of larger institutional, commercial and
industrial operations and numerous, small businesses. UNC and UNC Hospitals continue to be
major economic forces in the county. Businesses have been and are recruited to the towns, the
villages within town transition areas, the Economic Development Districts along I -85, and to a
new economic development node in northern Orange County. Farming has remained a viable
way of life in rural areas and an important part of the local economy. Homegrown, local
entrepreneurship is encouraged, including UNC -CH and UNC Hospitals spin -off enterprises,
innovative agriculture and related businesses, and cultural and heritage arts programs which
attract tourism. A comprehensive skills development center and technical and vocational
community college programs continue to prepare people for mid -level jobs and for entry level
jobs with potential for advancement. Governments support start -up and maintenance of desired
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businesses through a variety of means including incentives, government - guaranteed business
loans, provision of grants, investment, marketing support, and flexible regulations.
Orange County also has a stable and diverse agricultural economy. Recognizing the value of
farmland for retaining rural character and open space, and the importance of domestic agriculture
to our national security, county citizens have made a strong commitment to support local
agriculture. The county provides a variety of incentives and supports to retain farms. County
schools and other local institutions purchase local produce, and business support services provide
local farmers with assistance in marketing products, adopting new technologies, and starting up
value -added businesses that make farming more profitable.
we
WHERE PEOPLE LIVE AND WORK -THE TOWNS,
TRANSITION AREAS, AND RURAL SETTINGS
GR o WTH AND DEVELOPMENT IN THE TOWNS
The towns in Orange County all offer opportunities
and amenities more frequently found in larger places,
much of this due to UNC's presence and the needs of
its students, faculty and staff. Yet the towns retain
their small town feel and friendliness as well as their
own unique character based in their historical roots.
Mixed use development is encouraged in commercial
districts and in downtown areas through allowances
made for increased density and flexibility. The
downtown areas continue to be the activity hubs for
businesses, governments, institutions, and cultural
activities.
Transportation initiatives play an important part in preserving the quality of life which all of the
foregoing describes. Public transit, including paratransit for persons with disabilities, connects
town residents to each other, to major metropolitan areas in the region and to rural areas of the
county. Transit Distribution Centers with rail stations, bus service, park and ride lots, pedestrian
paths, bike lanes, and van/car pool lanes provide convenient, multi -modal transportation options.
Auto - limited zones in areas of downtown Chapel Hill, Carrboro, and Hillsborough, as well as
areas of the UNC campus, alleviate traffic congestion and make these areas safer for pedestrians
and cyclists. Park and ride lots are located at intervals near the edges of the zones and frequent
shuttle service is provided to outlying lots.
Pedestrian - friendly, compact mixed development with neighborhood connector streets is
encouraged. Policies to promote integration of land uses have created walkable communities
with mixtures of housing types, workplaces and commercial development. Infill development
on large tracts is compact, pedestrian- oriented, mixed -use development that follows traffic
corridors. Some older neighborhoods have incorporated small neighborhood services and a
mixture of housing types. In established neighborhoods, infill development is encouraged only if
it is consistent with, and an asset to the existing neighborhood. Multi -use neighborhood
community centers provide schools, parks, community services and cultural activities, and serve
as a focus for neighborhood community activities. Greenspace is introduced where possible as
town and neighborhood parks and greenways.
In an effort to reduce development in rural parts of the county and to preserve natural areas and
the county's rural character, policy incentives are provided for concentrating more development
within the towns and transition areas. The towns of Chapel Hill, Carrboro, Hillsborough and
Mebane all have growth boundaries that plan for orderly and manageable physical expansion and
define a clear line between urban and rural areas.
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GRoWTHAND DEVELOPMENT IN TOWN TRANSITIONAREAS
Villages have been the focus of growth in the town transition areas, which are areas planned for
incorporation, and that have become incorporated into town boundaries. Growth has been
incremental and carefully planned with extensive citizen input. The villages have been designed
to complement the historic and cultural character of their
locations. They are pedestrian - friendly and are formed
around a central mixed -use area with commercial,
industrial, institutional and residential uses, a village
square, a transit center (where appropriate), and a multi-
use community center, decreasing the need for
automobile use. Multi -use centers serve as schools,
community centers, senior centers, senior care facilities,
adult learning centers, child care facilities, health clinics,
libraries, and provide office and meeting space for
government and volunteer organizations. Thus the multi-
use center is a focus for community services, cultural
activities and community life.
Each village has a mixture of housing types and is socio -economically diverse. Incentives
promote the development of affordable and disabled accessible housing.
Villages are developed through citizen and stakeholder input, to design communities that grow in
measured steps. Through consensus, a people- centered design has been developed that sets
broad parameters for development, with local builders and architects having flexibility to design
and build an architecturally diverse mixture of buildings that complement the character of the
area within these guidelines. The result has been development of highly diverse communities
having a genuine sense of place and close -knit community atmosphere.
Each village has a boundary to limit its expansion and incorporate 50% open space within each
boundary.
Public transit connects villages and towns. Each village center has a multi -modal Transit
Distribution Center with bus service, park and ride, pedestrian paths, bike lanes, and van/car pool
lanes. Paratransit for persons with disabilities has improved and expanded in rural areas to serve
all who need it.
GRoWTHANDDEvEwpmENT INRURAL AREAS
Development of Small Area Plans for the county's five
identified rural community centers (Caldwell, Carr, Cedar
Grove, Schley, and White Cross) is encouraged. Each of
these has served historically as a center for services to
local rural populations and a focus for community
activity. The creation of "hamlets" in these locations —
small- scale, non water and sewer dependent development
- is supported to provide an expanded mix of housing,
local commercial enterprises and community services that
enhance rather than destroy the community character of
these places.
The other rural areas of the county allow for large -lot development of three acres (or more in
designated water supply watersheds) lots. When zonings were changed, provisions were made
for the creation of up to five lots at the previous zoning.
These rural areas also contain the "receiving areas" for a Transfer of Development Rights (TDR)
program for the purpose of farmland, natural area, and other land conservation. The TDR
program allows landowners to transfer the right to develop one parcel of land to a different
parcel of land. It protects natural areas and farmland by shifting development from these areas to
areas planned for growth. When the development rights are transferred from a piece of property,
the land is restricted with a permanent conservation easement. Buying development rights allows
landowners to build at a higher density than ordinarily permitted by the base zoning.
CONSER VA TION OF NA TURAL AREAS AND OPEN SPA CE
A "green infrastructure" made up of parks, natural areas, wildlife corridors, farms and other open
space exists. Recognizing the need to protect land for different purposes, some lands are
preserved for resource or endangered species protection, and human use is not allowed or is
restricted. Other lands are designated for human use and activity for recreation or for work such
as farming and timbering. The county's Natural Areas Inventory and other subsequent
assessments have been used to prioritize land acquisition
objectives. The amount of open space preserved in
R.ural Oran ge County in 2030
perpetuity has increased dramatically over the past 30
ears through acquisition of land and development has a network of permanently
Y g q p
rights. Farmland has been voluntarily preserved through r eserved natural areas, wildlife
incentives, such as tax relief, and through initiatives, corridors and open sczce.
such as a voluntary Purchase of Development Rights
program.
Sustainability has become a way of life for all landowners, whether their holdings are large
farms, forest tracts, or quarter acre lots with small gardens and yards. In each case owners take
pride in careful management of the natural resources on their property. They enjoy its use in
their lifetimes knowing they will leave the land's value in place for the next generations.
SERVING DIVERSE EDUCATIONAL NEEDS - DEVELOPING
LEARNERS OF ALL AGES
HIGH Q UALiTy K-1 Z EDUCATION
The community of Orange County highly values education, and schools in the county provide
quality education to all of their students. The education system prepares children to be
responsible citizens, well- rounded critical thinkers, and to have marketable skills. Positive
learning environments are created by maintaining low student - teacher ratios, emphasizing time -
on -task, supporting creative and innovative teaching, and having clear student behavioral
expectations and consequences. Special needs of students are met, and special programs prepare
at -risk, pre- kindergarten children for school and provide remediation for older students.
Programs and curricula are periodically evaluated to assess effectiveness in meeting student
needs. Educational choice exists in the form of public schools, charter schools, and private
schools, with a variety of options available within the public schools such as vocational and
technical skills training programs.
Education helps to create Orange County's strong sense of community, with parents highly
involved with the schools and their children's learning. Students, teachers, administrators, and
parents are all held to high standards, and work cooperatively to achieve them. Schools are
multi -use facilities, which provide opportunities for positive interactions between students and
other persons and groups in the community. Students explore the community through
apprenticeships, workstudy, volunteering, mentoring programs, field trips, and service learning,
and members of the community come to the schools as guest teachers. Partnerships are
encouraged between high schools and the community to create cultural arts centers using school
facilities and involving students with community adults in a number of activities. Also,
schoolchildren from the county and its towns have
regular interaction with one another sharing special arts
and cultural activities several times a year.
While Orange County and Chapel Hill - Carrboro continue
to operate as separate systems, many administrative
processes have been effectively merged and a
cooperative spirit exists between superintendents, staff,
school boards, and teachers resulting in the sense that education is a shared task for the entire
community, rural and urban.
ADULT AND CONTINUING EDUCATION
Adult education is promoted for professional development and personal enrichment. A strong
public /private partnership invests in job and language training. Skills training and job placement
services are provided by a long - established skills development center and by community college
programs. Community college programs with dedicated space also provide opportunities for
lifelong learning. Many apprenticeship and vocational programs are also available. Literacy and
English as a Second Language (ESL) classes are accessible to all who need them, and citizenship
education is provided to newcomers to the United States seeking citizenship. For seniors there
are Learning in Retirement and Peer Learning Programs, many focusing on history, literature and
the arts.
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THE UNIVERSITY
UNC's location in Chapel Hill adds another dimension to the educational and cultural life of
Orange County and its towns. The University is a valuable resource, not only to its state and
nation, but to its closest neighbors in Orange County with whom it shares many of its facilities
and programs. Its attractive campus includes an art museum, galleries, planetarium, libraries, a
continuing education center, auditoriums, meeting rooms, sports facilities, professional repertory
theatre, arboretum, and botanical garden all of which are open to the public for special programs,
concerts, recitals, films, lectures, forums, sporting and other events. But most important, UNC
makes accessible to local residents who seek to pursue lifelong learning and other academic
opportunities, an array of substantial continuing education programs, as well as highly respected
degree programs, both undergraduate and graduate. For those over 65, courses leading to an
undergraduate degree are provided free -of- charge and every now and then, an older- than - average
student makes local headlines by earning a long- dreamed of, but never completed, Bachelor's
Degree.
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COMMITMENT TO THE WELL -BEING OF ALL THE
COUNTY'S CITIZENS -HUMAN SERVICES AND HEALTH
CARE
Comprehensive human and health services are readily
accessible and available to all residents. Human services
are provided through a network of care and partnerships
between government agencies and numerous volunteer
organizations. The community is sensitive to and
supportive of the needs of different people. Integrated
services are provided to enable all people, those with
disabilities, those on a low or fixed income,
Hispanics /Latinos, and recent immigrants from other
nations, to meet their basic needs and be fully included in
the community.
CHILD CARE
Orange County residents, working in conjunction with child care advocacy organizations, are
committed to promoting the physical, mental, social, and spiritual well -being and growth of
children and their families. Responsible parenting is promoted, encouraged, and taught. Child
care quality across the board has improved, and unsafe, substandard day care has been
eliminated. Provision of adequate salaries for child care workers has helped improve care
quality by attracting and retaining qualified workers. Constructive supervised activities, such as
after school care, tutoring, summer programs, and cultural and social experiences, are provided
for all young children.
Citizens strongly support advocacy of child care issues such as quality care and prevention of
abuse and neglect. Quality child care is universally affordable (defined as costing no more than
10% of gross income) and accessible. The state government has been successfully lobbied to
fund child care at funding levels similar to what the State allocates for K -12 education, making
quality child care more affordable and therefore accessible. Costs for child care are also shared
with the private sector through their provision of facilities on -site.
Child care is readily available for all families. In addition to free - standing centers and
congregations, child care is now available in association with senior facilities, schools and
businesses. Many businesses have family friendly policies that encourage and support parental
care for infant and toddler children at home.
SENIORS
Senior centers exist throughout the county as part of multi -use community centers. Each center
serves as a focal point for comprehensive, integrated services to seniors. Seniors are able to live
in the least restrictive environment possible through provision of a continuum of readily
available care, from at home assistance to nursing home care. Expanded public transportation
provides increased mobility for many seniors.
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Orange County has also become something of a mecca for active seniors due in part to its being
home to UNC, a university with a national reputation, and to the UNC Hospitals and the
sophisticated medical care available. A number of retirement communities have been developed
which focus on this group of seniors who retire to Orange County from all over the country.
Many in this group share their experience and professional skills through volunteer activities for
children, youth, and other adults, thereby making an important contribution to their new
community.
AFFORDABLE HO USING
A comprehensive affordable housing policy exists due to collaborative efforts of the towns and
county. Affordable housing (defined as housing costing no more than 30% of household gross
income) is available to meet the needs of all individuals in Orange County, including older
adults, persons with disabilities, the mentally impaired, battered women, low- income
households, and the homeless.
To ease the affordable housing crunch in and around Chapel Hill /Carrboro, UNC has
significantly increased the percentage of students housed in University- sponsored housing, as
well as sponsored housing for staff and faculty. This has opened up new housing options in
Carrboro and Chapel Hill for lower- income residents.
HEAL TH AND MENTAL HEAL TH
Health services - physical, mental (including services for drug abuse) and prescription -are well
funded and are easily accessible to all citizens. Health care coverage for new and expecting
parents is provided to enhance family health and well- being.
Preventive health care is emphasized, and education on physical and mental health issues is
provided to all citizens. Due to these efforts people are living more health conscious lifestyles —
they are exercising more, following better diets, and smoking less. Education programs on
health and exercise start at an early age to promote healthy living and improve quality of life.
Community aid and support have helped address drug abuse issues. Many support groups exist,
reducing the isolation such people feel and providing a basis for effecting change.
SAFE COMMUNITY
Crime rates are low due to community policing, extensive citizen involvement in "Neighborhood
Watch" programs, and community awareness and responsiveness to issues of abuse. Community
safety has also been improved by promoting development patterns that enhance community
closeness, and through educational programs for children and adults on safety issues. The
county takes full advantage of available technology so that citizen needs for emergency services
are responded to promptly. Adequate fire protection systems and response times exist, even in
rural parts of the county. The county has an integrated emergency management communication
system that enables effective communication among departments and jurisdictions.
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RESPONSIVE GOVERNANCE AND QUALITY PUBLIC
SERVICES
GOVERNMENT EFFICIENCY AND SERVICE PROVISION
The Town and County governments have found new ways to reduce redundancy in service
provision, and provide services efficiently, and in a cost - effective way. Inter - organizational and
inter - governmental collaboration and coordination are the norm. The governments cooperate on
regional issues, and together rethink and redefine their responsibilities developing new ways to
address inter jurisdictional issues. Turf issues that arise are settled through use of facilitators and
a dispute resolution process. The governments of the county have combined some services to
achieve greater fiscal efficiency. As a result some services that used to be provided separately
by the towns and county are now provided for all citizens by a countywide agency.
Other policies to improve fiscal efficiency include
multiple use of government facilities, selective economic
development that helps balance the residential to non-
residential ratio of the tax base, and other techniques to
address growth impacts. Governments provide quality
services efficiently with clear, fair and timely
administration of regulations.
Ongoing environmental, economic and social data
acquisition and creation of a central information base for
decision - making is a key priority for monitoring
success of government programs and spending, and to determine community progress toward
sustainability.
CinzEN REPREsENTA TION AND PARTICIPATION
The elective process for the County Commission has been changed to ensure that the diverse
interests of all the county's residents are fully represented. All citizens, rural and urban, feel
well represented.
The governments within the county actively pursue community involvement in decision making.
An ongoing Citizen's Roundtable, modeled after the Shaping Orange County's Future Task
Force, is relied upon by the town and county governments to provide an avenue for citizens'
concerns to be transmitted and heard by the elected bodies. The Roundtable is charged to
examine issues, gain broad citizen input, come to consensus, and then make recommendations to
the governing boards, who give serious weight and consideration to this input. The Roundtable is
also charged with monitoring implementation of the adopted SOCF recommendations and
examining the county's vision for any necessary course corrections.
Roundtable members are volunteers who are selected for appointment by each of the governing
boards in the county to reflect the diversity of Orange County's citizens. The Roundtable, as
well as other advisory boards and the governing boards, use facilitation and dispute resolution
techniques to solve community issues.
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In a real sense, the Citizens Roundtable replaces the public square of an earlier America,
providing for open discussion and dialogue among citizens, and the sharing of hopes and dreams
concerning the well -being of our community, now and into the future.
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A SHARED COMMUNITY LIFE - CIVIL, COLLABORATIVE,
CARING
A vibrant community life exists throughout the county. Families, single people, and seniors have
many opportunities for recreation and interaction with other community members. Multi -use
centers, located in town neighborhoods and villages, serve as a focal point for such activities.
These centers are built around schools, with parks and playing fields as well as facilities which
provide a comprehensive range of services such as senior day care, child care, a part -time health
clinic, a branch library, and meeting space. In addition the centers provide cultural and
recreational activities such as ball games, movies, dances, and art classes. The location of day
care and schools with other community facilities brings children and adults together, which
benefits both. Because these centers are located in settings of compact, mixed commercial and
residential development, they are readily accessible places where people of all ages come
together to learn, socialize, receive care, and build community.
Along with the community centers, many services and
activities exist in the county that enrich people's lives.
From volunteer opportunities, to cultural arts, to athletics
and outdoor recreation, to cultural events that celebrate
the rich character of our rural areas and towns, and our
cultural and ethnic diversity, there is always something to
do. The cultural arts — music, theatre, dance, visual arts —
are strongly supported, with many opportunities for arts
education and enjoyment available at numerous facilities
and venues. A community of artists, artisans and writers
thrives through local support. Full advantage is taken of
the county's natural, cultural and historic resources to
provide recreational activities and opportunities for
earning.
The community is inclusive of all people and there is openness, innovation and experimentation.
Purposeful inclusion of families of all economic levels and fostering of shared activities among
various groups has strengthened the sense of community throughout the county. Barriers have
been broken down and community built through full compliance with the Americans with
Disabilities Act, the cultivation of civility, interaction and connection among all racial and ethnic
groups, the creation of socio- economically diverse neighborhoods, and the advancement of open
and active communication between rural and urban citizens of the county. People work, play,
and plan together, and share many common tasks. The community has moved beyond
acceptance and tolerance to something deeper and more meaningful, and that is mutual respect,
understanding, appreciation, and caring.
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SECTION VI
DEFINITIONS
1:
Definitions of Key Concepts
Note: This section does not attempt to define all terms used in the report. In addition, key terms
like Community - Building and Sustainability have pages devoted to their description and are not
included here. If a term is described to a level of detail in the document, it is not included in this
listing.
Adequate Public Facilities Ordinance (APFO): A zoning and /or land development regulation
with the goal of synchronizing development with the availability of public facilities needed to
support that development. The location, amount, type or mix of development is a product of the
County and municipal comprehensive plans and zoning ordinances. Adequate Public Facilities
Ordinances (APFO's) pace growth by affecting the timing of development to ensure that it is
matched with the availability of public facilities as noted by ajointly- prepared Capital
Improvement Plan.
Affordable Housing: Housing that can be purchased at a cost between 2.5 to 3 times a
household's total annual income. Rental housing is considered affordable if a household spends
no more than 30% of total household income on rent including utilities (HUD 2000 Standards).
In Orange, Durham and Wake Counties, most affordable housing programs focus on families at
80% and below of median income.
Auto - Limited Zones: Areas where pedestrian traffic and transit access is encouraged, and use of
personal automobiles is likewise discouraged via limited parking, narrow or "cobblestone"
streets, or other measures. This could be a block of a downtown area, a portion of a campus, or
other areas — to be identified depending on access and transportation needs.
Compact Mixed -Use (CMU) Developments: CMU's would focus development within areas
targeted for growth in the municipalities and their ETJ areas. These would be located in areas
best served by urban services and would be comprehensive and "internal" in nature, including
housing, commercial activities, civic and social components, and light industry (where
appropriate). Design standards would be used to ensure that the CMU is appropriate in scale and
nature to its surroundings, it would include a mix of housing types, values and styles. CMU's
should generally be within a 15- minute walk to commercial areas, have easy walking and bike
access, and be "people- friendly ", enhancing the sense of community among those living and
working in a CMU.
Development: The process of creating new land use activity on previously undeveloped land, for
the purpose of housing, population, and other non - residential uses.
Eco- Industrial Park: A eco- industrial park is a community of manufacturing and service
businesses with enhanced environmental and economic performance through collaboration in
managing environmental and resource issues. Eco - industrial parks embody sustainable
community economic development by bringing together ideas such as industrial ecology,
pollution prevention, sustainable design, architecture and construction, and company partnering.
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Extra - Territorial Jurisdictions (ETJ's): Land outside of (but adjacent to) the corporate limits
of a municipality where the municipality assumes land use planning and development permitting
authority. These are envisioned to be areas which, over time will become part of the
municipality's corporate limits.
Growth: A natural increase, as in size or amount, particularly in relation to housing and
population.
Growth Budget: A Growth Budget is an important policy planning tool for organizing a large
body of key resource data to use as a basis for making tough decisions regarding growth and
balancing demands on resources. Development of a growth budget would involve assessment
and tracking of resource availability /quality for land, water, and air with an eye to examining the
limits on amount and rate of use of these resources so that their quality and intrinsic values are
maintained /not impaired. It would also examine the impacts of growth/development on other
resources such as transportation and sewer infrastructure. This resource assessment would then
be used as a basis for developing a budget that would be a means for allocating these resources,
guided by knowledge of limitations to growth and of what is required for growth in this area. The
budget would be most successful /rational if developed on a regional scale, with broad input and
participation.
Hamlet: A hamlet is a rural configuration of houses and small commercial enterprises and
community services, developed in keeping with the current community character, located at any
one of the five existing Rural Community nodes (centers) in the County (Caldwell, Carr, Cedar
Grove, Schley, White Cross). Hamlets would not have access to public water and sewer lines,
and development of these centers as hamlets is not meant to encourage extension of urban
services tothese areas.
Inclusionary Zoning: Inclusionary zoning is a technique applied to new housing developments
in which a certain portion of the units being constructed are set aside to be affordable to low- and
moderate - income home buyers. This technique may by applied to both rental and owned units,
and single- or multi - family housing projects. Inclusionary zoning ordinances can be either
mandatory, requiring developers to build a specified number of affordable units, or voluntary,
based on development incentives, such as density bonuses which allow a developer to build more
units (at a higher density) on the same site in exchange for the inclusion of a number of
affordable units. Inclusionary zoning ordinances generally contain provisions defining income
eligibility requirements, criteria used for determining the pricing of affordable units, restrictions
on the resale of affordable units (to ensure that new owners do not turn around and resell the
units at market rates), and provisions for the payment of fees in -lieu of construction.
Infill Development: Development that occurs on undeveloped lots in existing town
neighborhoods or developed areas, which may or may not be of higher density or scale than the
surrounding neighborhood.
Living Wages: Wages needed to cover the costs of living that families of different sizes must
meet to be self - sufficient. This number varies depending on the size and composition of the
family.
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Multi -Use Community Centers: Centers strategically located within municipalities and in
villages within transition areas that serve as a focal point for social interaction and life for those
in the surrounding community. The facilities at a multi -use community center would bring
together in one campus uses such as schools, community centers, senior centers, adult learning,
teen centers, day care facilities, a medical clinic, branch libraries, arts space and outdoor
recreation.
Rain Garden: Rain gardens retain and filter water using plants and soils to remove pollutants
from stormwater naturally. Rain gardens are created in low -lying areas, with specific layers of
soil, sand, and organic mulch. These layers naturally filter the rain as it runs into the rain garden.
After a storm, the soil absorbs and stores the rainwater and nourishes the garden's grasses, trees,
and flowers. The traditional system of curbs, gutters, and storm drains carries stormwater runoff
directly to local streams and rivers without any bioretention filtering process. Instead rain
gardens filter and reuse the water, reducing stormwater pollution, while providing attractive
landscaping.
Redevelopment: Development inside towns that replaces existing structures with new and
sometimes different development in the same location.
Rural Areas: Areas in Orange County which lie outside of municipal corporate limits, extra-
territiorial jurisdictions (ETFs) and /orTransition Areas (as defined in the adopted land use
plans).
Rural Economic Development Node (Rural Industrial Node): As designated in the County
Land Use Element, a designated area outside of urban services boundaries and strategically
located as to transportation network that is planned for lower- intensity commercial and industrial
facilities and employment opportunities, at a scale consistent with the lack of urban services.
Small Area Plans: A land use plan for a small community or area that focuses on the
communities needs and desires (while cognizant of overall comprehensive plans for the
Town/County), and is developed by citizens from the area in conjunction with professional and
technical assistance.
Suburban Sprawl: The unmanaged and largely unplanned expansion of developed areas at a
less- than -urban scale (i.e., not usually requiring urban services) into corridors /areas of a rural
nature.
Transfer of Development Rights: A program that enables the right to develop a property to be
legally transferred to another property, in exchange for some type of compensation (usually
monetary). This program can allow a parcel of land with unique resources or constraints present
(within a "selling area ") to transfer its share of expected development potential (i.e., how many
residential lots could be created under existing land constraints and standards) to another
property in a different location, where such development might be more practical because of
location or proximity to urban services (the "receiving area ").
Example: A farmer in a watershed that is designated as a sending area has 100 acres, and the
land could reasonably expect to yield 45 house lots. The farmer sells the rights to develop 42 lots
for $x thousand, and via a legal agreement retains the rights to three new lots for family
members. The development rights are sold to the developer of a residential development in a
Town transition area, who is then allowed to increase the density/ # of lots of his /her
development accordingly.
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Transition Areas: As designated in adopted County and Joint Planning plans, these are areas
that are in transition from a rural land use pattern to a more -urban pattern, and currently (or in
the future) will have access to urban services such as public water and sewer service. In the
adopted plans, these areas are located north and west of Chapel Hill and Carrboro, to the north,
south and east of Hillsborough, in the Mebane /Efland corridor, and at the junction of I -85 and
US 70 at the Durham County line.
Urban Sprawl: Unmanaged and largely unplanned expansion of urban -scale land uses and /or
services into corridors /areas of a rural nature.
Village: A small, unincorporated, self - contained community of less than 200 acres, located
inside designated Transition Areas, that offers a mix of residential, non - residential services and
open space to meet the physical, social and economic needs of the area. Villages should be
designed and developed by area residents and other stakeholders, and offer a focal point for
future development outside of the urban boundaries. Villages may be built to enhance and
augment historic community centers, or may be new sites strategically - located for service
provision.
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SECTION VII
LIST oF APPENDICES
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LIST OF APPENDICES
A. The Development of a Comprehensive Quality Growth Strategy and Community Building
Plan for Orange County ( "The 15 -Step Process ")
B. Orange County Profile
C. Baseline Scenario
D. Economy Committee Report
E. Education and Cultural Arts Committee Report
F. Environment and Resources Protection Committee Report
G. Human Services, Health & Safety Committee Report
H. Land Use and Growth Committee Report
I. Transportation, Infrastructure & Services Committee Report
J. Sustainability Committee Report
K. Community - Building Committee Report
L. Synthesis Report
M. Conflicts and Opportunities Committee Report
N. SOCF Research Paper on Processes for Elective Office in Orange County
O. Measuring Sustainability: An Evaluation of the SOCF Indicators
P. Summary Table for Sustainability and Community- Building Strategies
Q. Summary Table for Critical Areas to Maintain or Improve Quality of Life
All appendices are available upon request for a fee, or can be found on our website at
ht e.nc.us /shagin /fullrept2.htm.
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