HomeMy WebLinkAboutAgenda - 09-18-2001 - 9d 1
ORANGE COUNTY
ORANGE COUNTY BOARD OF COUNTY COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 18, 2001
Action Agenda ,
Item No.
SUBJECT: Clarified Amendments to Orange County Private Road Subdivision
Regulations: Section IV-13-3-d-1 and Appendix A Private Road Standards
DEPARTMENT: Planning PUBLIC HEARING: Y/N No
INFORMATION CONTACT:
ATTACHMENT(S): Craig Benedict, ext. 2592
1. Sliding Scale Chart Karen Lincoln, ext. 2594
2. Ordinance Amending the Orange County
Subdivision Regulations TELEPHONE NUMBERS:
Section IV-B-3-d-1 (Private Roads) Hillsborough 732-8181
Appendix A. Private Road Standards Chapel Hill 968-4501
3. Draft 7-11-01 Planning Board Minutes Durham 688-7331
Durham 688-7331
PURPOSE: To consider proposed amendments to the Orange County Subdivision Regulafions,
Section IV-B 3-d-1 Roads and Appendix A. Private Road Standards regarding justification for private road
subdivisions of three or fewer lots and provisions for private road subdivisions with 60,000 sq. ft lots if the
subdivision preserves 50%open space.
BACKGROUND: The Orange County Board of County Commissioners and the Orange
County Planning Board, at a public hearing on May 29, 2001, received comments on
proposed amendments to the Orange County Subdivision Regulations. Proposed
amendments to Section RI-B 3-d-1:
1. Clarify language pertaining to the intent and substance of private road justification for
three-lot subdivisions (page 4); and
2. Provide justification for a private road to allow a zoning lot size of 60,000 sq. ft. in
subdivisions that provide 50% open space (also known as Sliding Scale Open
Space/Cluster Provision). The chart on page 10 demonstrates the benefits of the 60,000
sq. ft. lot with 50% open space option over other possible outcomes using a sliding scale.
The proposed amendment starts on page 5.
The proposed amendment to Appendix A. Private Road Standards (page 8)adds language to further
clarify the differences between public and private roads.
2
Comments from the public hearing follow.
1. Delete the following criteria from private road justification for a three-lot subdivision:
a. The provision that the road would not meet density requirement to be accepted into
the State Maintenance Program. Staff has incorporated this comment in the
proposed amendments.
b. The provision restricting further subdivision of three-lot subdivisions from the parent
tract and reference section of the subdivision regulations that pertains to classification
of subdivisions. (A subdivision where not more than five lots are created from any
tract of land within a ten-year period is classified as a minor subdivision, see Section
III-B. Classification of Subdivisions on page 12.) Staff has added language to
further clarify the provision. The provision is necessary to prevent
misconception that three-lot subdivisions automatically justify a private road
regardless of requirements stipulated in other parts of the subdivision
regulations.
2. Include text as well as charts giving requirements for private roads in conventional
subdivisions and cluster subdivisions. Staff has incorporated this comment in the
proposed amendments.
3. Add a statement that the 60,000 sq. ft. zoning lot required for a private road (in zoning
districts/overlay districts where maximum density is 1 dwelling unit per 2 acres or greater)
does not negate the smaller lot size allowed in subdivisions eligible for a density bonus
under the flexible development standards. (However, density bonuses are only allowed in
specific areas as stated in Section IV-B-10-G.3 of the subdivision regulations.) Staff has
incorporated this comment in the proposed amendments.
FINANCIAL IMPACT: There is no immediate financial impact associated with this
decision item.
RECOMMENDATION(S): The Planning Board unanimously recommends that the Board of
Commissioners adopt the proposed amendments. The Administration recommends that the
Board of Commissioners adopt the proposed amendments.
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AN ORDINANCE AMENDING THE ORANGE COUNTY
SUBDIVISION REGULATIONS
SECTION IV-B-3-d-1. ROADS AND
APPENDIX A. ORANGE COUNTY PRIVATE ROAD STANDARDS
THE BOARD OF COUNTY COMMISSIONERS OF ORANGE COUNTY ORDAINS THAT THE SUBDIVISION
REGULATIONS ARE HEREBY AMENDED AS FOLLOWS:
(Bold print indicates language to be added. print indicates language to
be deleted. Bold underlined print indicates language added based on comments from
the public hearing. print indicates proposed language deleted
based on comments from the public hearing.)
Section numbers in this document refer only to this document, and do not agree with
regulation section numbers.
SECTION 1: REWORD BEGINNING PARAGRAPH OF JUSTIFICATION FOR PRIVATE ROADS; REDUCE
THE DOUBLE LOT SIZE PROVISION To 60,000 SQ. FT. IF AT LEAST 50% OPEN SPACE IS
PROVIDED. ORANGE COUNTY SUBDIVISION REGULATIONS, SECTION IV-13-3-D-1. ROADS, IS
AMENDED AS FOLLOWS:
*IV-B-3-d-1. Roads
Public roads are generally required in all subdivisions and will be required where it is
found that:
1. The subdivision roads would be accepted by the State for maintenance if:
a. They are built in a manner which satisfies the minimum State
design and construction criteria for subdivision roads; and
b. They would satisfy other requirements for addition to the State
maintenance system, including, but not limited to, the general
density standard of at least two occupied residences for each
one-tenth of a mile of subdivision road.
If, upon review of a subdivision plat, it is determined that the general
density standard is met, but a design standard is not, a re-design will be
required where possible. For example, if the number of lots proposed
along a subdivision road would clearly satisfy the density standard, but the
road design was such that the centerline radius did not meet the minimum
standard of 230 feet for level land, a new road design would be required.
Another example is a situation where a landscaped island or entrance
median prevents acceptance of the road for maintenance.
The above criteria and standards are identified in a publication,
Subdivision Roads-Minimum Construction Standards, prepared by and
available from the N.C. Department of Transportation; or -
4
2. The subdivision roads extend existing roads which are public; or
3. The subdivision roads are part of a development which is located in an
area designated as Urban or Transition on the Orange County
Comprehensive Plan; or
4. A proposed road is designated as an arterial or collector on an approved
Thoroughfare Plan for a municipality or in the Orange County
Comprehensive Plan; or
5. The subdivision roads are part of a non-residential development
consisting of office, retail, industrial, and similar businesses, each located
on a separate lot. This provision shall only apply to that portion of a
subdivision being developed for non-residential purposes.
A PFOYate Fead shall be deemed justified feF a FnineF subdWisien Fesulting in ne Fnere than
eannet eemply with FequQFeFnent !.a. as fellows and wheFe the subdoyisien would not M
with the final plat shall eentain a statement that any fuFtheF deyelepment of any Fesulting
A private road shall be deemed justified for a minor residential subdivision
resulting in no more than three lots provided:
1. No new lots have been created from the parent tract, through subdivision
or other manner exempted from subdivision regulations, since the more
recent:
a. date of adoption of this provision; or
b. ten years from the date of recordation of the parent tract if the lot being
subdivided was created using the three-lot private road justification
provision.
The parent tract, for the purpose of this provision, is the lot or tract of
land that is being subdivided.
2. All resulting lots meet Orange County Zoning Ordinance minimum lot area
per dwelling unit and maximum density requirements for the zoning
district, including any overlay district, in which the subdivision is located;
and
3. The read sew�„gthe subdivision, even of eenStMeted to NeFth GaFGlina
DepaFtment of TFanspeFlatlen standaFds, would not be aeoepted onto the
5
Such subdivision of three or fewer lots may provide a private access easement for
one adjacent lot to access the private road in order to reduce the number of access
points on a public road.
For all other subdivisions the Planning Board and the Board of County Commissioners (in
the case of major subdivisions) and Planning staff(in the case of minor subdivisions) shall
consider the following design features when determining whether to permit private roads.
There is no right to a private road in any subdivision lafger containing more than three
lots. At a minimum, a private road may be justified if the subdivision meets standards of
1.a and at least two other design features listed below.
1. The location and design of the subdivision is such that it clearly preserves
the rural character of the County through:
a. The provision of lot sizes and building setback lines significantly
greater than required by the underlying zoning district, including any
overlay district requirements, according to the following standards:
1) The following, with respect to lot sizes, shall be deemed as
significantly greater than required by the underlying zoning
district for conventional subdivisions.
(a) All lots in the subdivision must be at least 80,000 square
feet if the minimum lot size of the zoning district is 40,000
square feet or less.
(b)All lots must be at least 120,000 square feet (2.75 acres) if
the minimum lot size or area per dwelling unit of the
zoning district is 80,000 square feet.
(c) All lots must be at least 130,680 square feet (three acres)
if the minimum lot size or area per dwelling unit of the
zoning district is 87,120 square feet (two acres).
(d)All lots must be at least five acres for all other cases.
Zoning district area =80,000 sq. ft. = 87,120 sq. ft. All other
IF per dwelling unit: 540,000 sq. ft. (1.84 ac) (2 ac.) cases
Minimum area per
dwelling unit for 80,000 sq.ft. 120,000 sq. ft. 130,680 sq. ft. 5 acres
Private road: (2.75 ac.) (3 ac.)
Building setbacks for
Private road: Twice those required by Orange County Zoning Ordinance
6
2) The following, with respect to lot sizes, shall be deemed as
significantly greater than required by the underlying zoning
district for cluster subdivisions or subdivisions developed
using flexible development provisions in Section IV-B-10
that are not eligible for a density bonus. The following do
not apply to subdivisions developed using provisions of
Section IV-B-10 Section G.
(a) In zoning districts having a minumum lot size of 40,000
square feet:
• All lots must be at least 80,000 square feet in
subdivisions providing 40% or less open space;
• All lots must be at least 70,000 square feet in
subdivisions providing 41% -49% open space;
• All lots must be at least 60,000 square feet in
subdivisions providing 50% or greater open space.
(b) In zoning districts having a minumum lot size or area per
dwelling unit of 80,000 square feet or two acres (87,120
square feet):
• All lots must be at least 130,680 square feet (3 acres) in
subdivisions providing 40% or less open space;
• All lots must be at least 90,000 square feet (2.07 acres)
in subdivisions providing 41% -49% open space;
• All lots must be at least 60,000 square feet (1.38 acres)
in subdivisions providing 50% or greater open space;
Zoning district area - 80,000 sq. ft. 87,120 sq. ft.
IF per dwelling unit: <40,000 sq. ft. 1 (1.84 ac.) (2 ac.)
AND % open space Minimum Lot Size for Private Road
33% -40% Z 80,000 sq.ft. 130,680 sq. ft. 130,680 sq. ft.
W 3 ac. 3 ac.
41% -49% 70,000 sq. ft. 90,000 sq. ft. 90,000 sq. ft.
2.07 ac. 2.07 ac.
50% 60,000 sq.ft. 60,000 sq.ft. 60,000 sq.ft.
1.38 ac. 1.38 ac.
Building setbacks for
Private road Twice those required by Orange County Zoning Ordinance
3) Building setbacks in all districts must be at least twice
those required by,Orange County Zoning Ordinance.
b. The retention and/or provision of landscaping and use of clustering of
dwelling units to screen the view of the subdivision from public roads,
maintain a wooded or forested character, maintain scenic views, or
preserve wildlife, botanical, historic, archaeological and/or recreation
sites; and/or
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c. The preservation of site features which directly enhance the special or
unique cultural, historical, archaeological or biological characteristics of
the immediate area as referenced in "An Inventory of Sites of Cultural,
Historic, Recreational, Biological, and Geological Significance in the
Unincorporated Portions of Orange County" or, for historic sites, if the
site is deemed eligible by the State Historic Preservation Office for
inclusion in the National Register of Historic Places.
2. The number, location and/or size of lots to be located in the subdivision
are such that, even if constructed to State standards, the streets would
not be accepted by the State for maintenance due to density or other
State requirements.
3. At least fifty percent (50%) of the site is to be dedicated and preserved
through restrictive covenants and contains recreation and/or open space
areas of significant botanical, wildlife, historic and/or archaeological sites as
referenced in "An Inventory of Sites of Cultural, Historic, Recreational,
Biological, and Geological Significance in the Unincorporated Portions of
Orange County"
4. In subdivisions to be located in a Protected Watershed as designated in the
Orange County Comprehensive Plan, stream buffers are increased by
twenty-five percent (25%) above those required by Article 6.23 of the
Orange County Zoning Ordinance and the impervious surface allowed is
decreased by fifteen percent (15%) to allow greater infiltration of storm
water runoff to prevent the pollution of water supply reservoirs.
5. The site contains topographic and environmental features, such as
streams, steep slopes, or watersheds, that would be adversely affected by
the use of roads constructed to State standards because of factors such
as significant amounts of earthwork (cut and fill) that would contribute to
increased run-off of stormwater and siltation.
6. The site is already developed to 100% of the capacity which could be
achieved after approval of the subdivision and some or all of the non-
conforming aspects of existing development on the site will be made more
conforming as a result of the proposed subdivision, and all conforming
aspects of the development will remain conforming.
7. There is only one subdivision road proposed. Its length does not exceed
350'feet , it serves no more than five (5) lots, its grade does not exceed
9%, and the land being subdivided is not connected to or part of another
subdivision required to be served by public roads.
The Declaration of Development Restrictions, prepared by the Planning Staff and
recorded concurrently with the Final Plat, shall include a statement that further
subdivision of any of the lots may require that the road be upgraded to a higher private
road classification, or to public standards, and that the cost of the upgrade will be the
responsibility of the subdivider. -
8
Where a parcel being subdivided was created by a previous subdivision approved after
July 5, 1983, then the previous subdivision as well as the proposed subdivision will be
considered in determining whether a private road is still justified.
It shall be the responsibility of the applicant for subdivision approval to supply a written
statement justifying the reasons for private roads in the proposed subdivision.
Compliance with one or more of the above standards does not insure approval of either
a public or private road within a proposed subdivision.
SECTION 2: PRIVATE ROAD STANDARDS. ORANGE COUNTY SUBDIVISION REGULATIONS,
APPENDIX A ORANGE COUNTY PRIVATE ROAD STANDARDS, IS AMENDED AS
FOLLOWS:
ADD LANGUAGE TO CLARIFY DIFFERENCES BETWEEN PUBLIC AND PRIVATE ROADS. THE SECOND
PARAGRAPH IN THE SECTION TITLED"PURPOSE" is AMENDED TO READ AS FOLLOWS:
Purpose
In Orange County, the preference is to serve subdivisions with State-maintained
(NCDOT) public streets or municipal streets. The County recognizes, however, that
private roads may be beneficial in some cases where the developer provides
significantly larger lots, and where a private road graded to a narrower cross-section
saves valuable vistas, trees, or natural resources, and reduces cut-and-fill and overall
land disturbance. Where the developer clearly provides benefits such as enhancing
entrances or streetscapes off an adjoining public road, saving trees, providing large
lots, reducing disturbance, and "fitting" lots better into their natural surroundings, the
County Staff, Planning Board and Commissioners may permit the use of private roads.
The County is concerned about the logical and safe extension of public roads
throughout the County and also notes that private roads cannot be served by school
buses and sometimes not by rescue squads and fire trucks. Private roads are
generally unpaved and property owners who use the road are solely responsible
for maintenance of the road. Therefore, the County will only approve private roads
where the "benefits" outweigh the negative aspects. Private roads will never be
approved simply to save money.
Private roads are a privilege, and not a right, and must be justified by the
particular lot arrangement and benefits provided by each development. It is hoped that
the following regulations and standards convey the sense that private roads can be
used, but only where they clearly meet the spirit as well as the letter of the criteria
contained herein.
SECTION 3: This ordinance shall become effective upon adoption.
g
NOW THEREFORE BE IT ORDAINED by the Board of Orange County Commissioners
that this Subdivision Regulation Amendment is effective upon approval.
Upon motion of Commissioner , seconded by Commissioner
, the foregoing ordinance was adopted this the day of
, 2001.
I, Beverly A. Blythe, Clerk to the Board of Commissioners for the County of
Orange, North Carolina, DO HEREBY CERTIFY that the foregoing is a true copy of so
much of the proceedings of said Board at a meeting held on , 2001 as
relates in any way to the adoption of the foregoing and that said proceedings are
recorded in Minute Book No. of the minutes of said Board.
WITNESS my hand and the seal of said County, this day of ,
2001.
Clerk to the Board of Commissioners
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(1.38 ac.)
<= 245 ft. _>
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. $ Encroachment to
20 ft. — side & rear
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(51 Acres)
20,625 Building Area
8,200 Front Extra for Septic System
4,100 Rear Extra for Septic System
5,000 Sides Extra for Septic System
37,925 Total Area for Building & Septic
(0.87 Acres)
12
*III-B. Classification of Subdivisions
*Amended
9/5/89
5/16/00 All subdivisions shall be considered major subdivisions except those defined
as minor subdivisions in this Section.
A "minor subdivision" is defined as the division of a tract of land that does
not:
(1) Create more than five (5) lots, including the residual acreage, from
any one (1)tract of land in any ten (10) year period.
(2) Dedicate or improve any new public street other than widening an
existing .public street;
(3) Extend public water and/or sanitary sewerage systems other than
laterals to serve individual lots; and
(4) Necessitate the installation of drainage improvements which would
require easements through one (1) or more lots to serve other lots.
Minor subdivisions shall be reviewed in accordance with the provisions of
Section III-C. Major subdivisions shall be reviewed in accordance with the
procedures set forth in Section III-D.
13
MINUTES
ORANGE COUNTY PLANNING BOARD
JULY 11, 2001
6:30 p.m.
MEMBERS PRESENT: Nicole Gooding-Ray (Chair), Lynn Holtkamp (7:30), Barry Katz, Howard
McAdams, Rachel Preston, Hunter Schofield, James Selkirk, Bob
Strayhorn, Maria Tadd, and Theodore Triebel
MEMBERS ABSENT: Craufurd Goodwin, Runyon Woods (both excused)
STAFF PRESENT: Planning Director Craig Benedict, Gene Bell, Joanna Bradshaw, Robert
Davis, Eddie Kirk, Karen Lincoln, and Tina Moon
AGENDA ITEM #1: CALL TO ORDER AND ROLL CALL
Chair Gooding-Ray called the meeting to order.
AGENDA ITEM #2: CONSIDERATION OF ADDITIONS TO AGENDA
None
AGENDA ITEM #3: APPROVAL OF MINUTES -May 2, 2001
MOTION: Preston moved approval of the minutes for May 2, 2001. Seconded by
McAdams.
VOTE: Unanimous
AGENDA ITEM #4: COMMISSIONERS' MEETING ACTION REPORTS
October 3, 2000; October 17, 2000; November 1, 2000; November 21,
2000; December 4, 2000; January 18, 2001; February 7, 2001
There were no comments.
AGENDA ITEM #5: PUBLIC CHARGE
The Chair dispensed with the reading of the public charge.
AGENDA ITEM #6: CHAIR COMMENTS
Chair Gooding-Ray welcomed new Planning Board member Maria Tadd.
AGENDA ITEM#7: COMMITTEE/ADVISORY BOARD REPORTS
a. Board of Adjustment- McAdams reported that there was a
meeting in June where a case was heard for an assisted living
center. There was opposition from the neighbors, so this case was
delayed until July. The case was approved in July.
b. Agricultural Preservation Board - no meeting
c. Ordinance Review Committee - no meeting
d. Transportation Task Force-Triebel reported that there was a
meeting in June. This was an informational meeting.
14
AGENDA ITEM #10: MATTERS HEARD AT PUBLIC HEARING (May 29, 2001)
a. Orange County Subdivision Amendments
1. Modify Section IV-B-3 Street
a. Amend Section IV-B-3-d-1 Roads
b. Amend Appendix A Private Road Standards, Purpose
Karen Lincoln made this presentation.
BACKGROUND: The Orange County Board of County Commissioners and the Orange County
Planning Board, at a public hearing on May 29, 2001, received comments on proposed amendments
to the Orange County Subdivision Regulations. Proposed amendments to Section IV-13 3-d-1:
1. Clarify language pertaining to the intent and substance of private road justification for three-lot
subdivisions (page ); and
2. Provide justification for a private road to allow a zoning lot size of 60,000 sq. ft. in subdivisions that
provide 50% open space (also known as Sliding Scale Open Space/Cluster Provision). The chart
on page demonstrates the benefits of the 60,000 sq. ft. lot with
50% open space option over other possible outcomes using a sliding scale. The proposed
amendment is on page
The proposed amendment to Appendix A. Private Road Standards (page ) adds language to further
clarify the differences between public and private roads.
Comments from the public hearing follow:
1. Delete from private road justification for a three-lot subdivision
a. The provision that the road would not meet density requirement to be accepted into the State
Maintenance Program. Staff has incorporated this comment in the proposed amendments.
b. The provision restricting further subdivision of three-lot subdivisions from the parent tract and
reference section of the subdivision regulations that defines a minor subdivision (not more than
five lots created from any tract of land within a ten year period). Staff has added language to
further clarify the provision instead of deleting it.
2. Include text as well as charts giving requirements for private roads in conventional subdivisions
and cluster subdivisions. Staff has incorporated this comment in the proposed amendments.
3. Add a statement that the 60,000 sq. ft. zoning lot required for a private road (in zoning districts/
overlay districts where maximum density is 1 dwelling unit per 2 acres or greater) does not negate
the smaller lot size allowed in subdivisions eligible for a density bonus under the flexible
development standards. Staff has incorporated this comment in the proposed amendments.
FINANCIAL IMPACT: There is no immediate financial impact associated with this decision item.
RECOMMENDATION(S): Planning staff recommends that the Planning Board recommends that the
Board of Commissioners adopt the proposed amendments.
The first amendment would reword language justifying a private road in 3-lot subdivisions. The
second amendment would develop a sliding scale that would allow smaller lot sizes on private roads if
the subdivisions provided more open space. The third amendment is some different language to
further clarify the differences between public and private roads.
At the public hearing on May 29th, some comments were made regarding provision three, that the
private road would not meet the density requirements to be taken over by the state for maintenance
even if it were built to state standards. It was recommended that this provision be deleted. Staff
concurs that this is not important enough to put into this section.
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Discussion ensued about the sliding scale of smaller lots and larger amounts of open space.
Benedict said that he would be bringing forward a proposal to the County Commissioners where lots 0
could only be clustered down to 60,000 square feet.
Strayhorn asked a clarifying question that was answered satisfactorily by the staff.
Schofield asked about the building setbacks for a private road. Benedict said that some
encroachments were allowed into some of the buffers.
Schofield made reference to the doubling of the setbacks and said that the benefits might not
outweigh the costs because 80 feet is a lot of distance. This may require a lot more clearing of trees.
MOTION: Katz moved to accept the clarified amendments to Orange County
Private Road Subdivision Regulations as stated above. Seconded by
Schofield.
VOTE: Unanimous