HomeMy WebLinkAboutAgenda - 09-09-2013 - C5ORANGE COUNTY
BOARD OF COMMISSIONERS AND
PLANNING BOARD
QUARTERLY PUBLIC HEARING
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 9, 2013
Action Agenda
Item No. C.5
SUBJECT: Town of Hillsborough /Orange County Central Orange Coordinated Area Land
Use Plan
DEPARTMENT: Planning and Inspections PUBLIC HEARING: (Y /N) Yes
ATTACHMENT(S):
1. Comprehensive Plan /Future Land
Use Map and Unified Development
Ordinance (UDO) Amendment
Outline Form (Other- 2013 -02)
(Sections for public hearing on
pp. 9 - 12)
2. Draft Future Land Use Plan Showing
County Planning Jurisdiction Only
3. Flowchart of Process
INFORMATION CONTACT:
Tom Altieri, Comprehensive Planning
Supervisor, 245 -2579
Craig Benedict, Planning Director, 245 -2592
Abigaile Pittman, Transportation /Land Use
Planner, 245 -2567
PURPOSE: To hold a public hearing on the draft Town of Hillsborough /Orange County Central
Orange Coordinated Area (COCA) Land Use Plan.
BACKGROUND: Consistent with the Hillsborough- Orange Interlocal Land Management
Agreement (December 2009), the Town of Hillsborough adopted a Future Land Use Plan in
March 2013 for its planning jurisdiction and some additional areas of County jurisdiction. These
additional areas of County jurisdiction are located within the Town's Urban Service Boundary for
its public water and /or sewer services and generally located around the Town's fringe. Orange
County staff, Board of County Commissioners (BOCC), and the public provided input on future
land uses during the Town's planning and adoption process.
January 29, 2013 BOCC Work Session: The BOCC reviewed the Town's draft Future Land Use
Plan and submitted comments for its consideration that were fully addressed before it was
adopted by the Town. Materials discussed during this work session, including BOCC comments
addressed by the Town, are available online at:
http: / /www.co. orange .nc.us /occierks /130129.pdf
BOCC Authorization to Proceed: In general and consistent with the Agreement, following Town
adoption, the BOCC is to consider endorsing the Plan or arranging for negotiation and
agreement on any changes. At the June 18, 2013 BOCC meeting, the Board authorized staff to
proceed with the development and adoption of the COCA Land Use Plan according to the
outline and schedule provided in the Attachment 1.
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The portions of the Town of Hillsborough Future Land Use Plan that lie outside Town
planning jurisdiction (See Attachment 2) are the focus of this public hearing and being
considered to become part of the Town of Hillsborough /Orange County Central Orange
Coordinated Area (COCA) Land Use Plan.
September 9, 2013 BOCC and Planning Board Joint Public Hearing: Attachment 1 also
includes the draft COCA Land Use Plan (pp. 9 -12) for public hearing tonight. Areas of existing
County jurisdiction are made clear in Attachment 2. Following public hearing, Planning Board
recommendation, and BOCC adoption, staff will prepare a new outline and schedule for BOCC
approval before moving forward with Comprehensive Plan amendments to implement the Plan.
Open House: Orange County Planning staff held an open house on August 27th at the
Hillsborough Town Barn to help inform the public of the joint land use planning process and
next steps. This meeting was held in coordination with Town staff.
Next Steps:
September 9 — Joint Quarterly Public Hearing to endorse Future Land Use Plan (map and
land use classifications) for areas within the Urban Services Boundary.
October 2 — Planning Board recommendation to BOCC.
November 5 — BOCC receives Planning Board recommendation, considers adoption, and
provides direction to staff on any additional information that may be required before
authorizing next steps.
In general, next steps will need to include 2030 Comprehensive Plan text and map
amendments, additional public outreach, and a public hearing. Next steps may also include
Extraterritorial Jurisdiction (ETJ) swaps for areas defined in the Hillsborough- Orange
Interlocal Land Management Agreement (See Exibit A, top right -hand corner of p. 13). Any
process to swap ETJ areas must be initiated by the Town of Hillsborough before any public
notification, outreach and hearing can take place. The BOCC will also need to approve
schedules and processes, including notification and outreach methods, before Orange
County's next steps are initiated.
Attachment 3 is a flowchart to help illustrate the planning process.
Notification Procedural Requirements
Although this item does not involve a Comprehensive Plan amendment at this time, legal ads
for the public hearing were placed in a newspaper of general circulation in the county in
accordance with Section 2.3.6 (A), (B), and (C) of the Unified Development Ordinance.
Links to Additional Materials:
History of Town of Hillsborough /Orange County Joint Planning -
http: / /www.co. orange. nc. us / planning / documents/ TownofHillsboroughandOrangeCountyJointPla
nning.pdf
Hillsborough- Orange Interlocal Land Management Agreement -
http: / /www.co.orange.nc.us /planning /documents /Hillsborough-
OrangelnterlocalLandManagementAgreement .pdf
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FINANCIAL IMPACT: See Section C. 3 in Attachment 1.
RECOMMENDATION(S): The Planning Director recommends the Board:
1. Receive the draft Future Land Use Plan as detailed in Attachment 1 (pp. 9 -12).
2. Conduct the public hearing and accept public, BOCC, and Planning Board comment on
the proposed amendments.
3. Refer the matter to the Planning Board with a request that a recommendation be
returned to the BOCC in time for the November 5, 2013 BOCC regular meeting.
4. Adjourn the public hearing until November 5, 2013 in order to receive and accept the
Planning Board's recommendation and any submitted written comments.
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Attachment 1
COMPREHENSIVE PLAN / FUTURE LAND USE MAP
AND
UNIFIED DEVELOPMENT ORDINANCE (UDO)
AMENDMENT OUTLINE
Other - 2013 -02
Town of Hillsborough /Orange County Central Orange Coordinated Area
(COCA) Land Use Plan
A. AMENDMENT TYPE
Map Amendments
❑ Land Use Element Map:
From:
To:
❑ Zoning Map:
From:
To:
❑ Other:
Text Amendments
❑ Comprehensive Plan Text:
Pection(s): None at this stage.
❑ UDO Text:
❑UDO General Text Changes
❑UDO Development Standards
[]UDO Development Approval Processes
Pection(s)--
❑ Other: Town of Hillsborough /Orange County Central Orange Coordinated Area
Land Use Plan
B. RATIONALE
1. Purpose /Mission
Initiate the implementation of the Hillsborough- Orange Interlocal Land Management
Agreement (2009) beginning with the adoption of a joint Town of
Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan. The
intent of the coordinated planning areas defined in the Agreement is to provide clear
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and consistent guidance for land use /zoning decisions, coordinated growth patterns,
and a distinction between areas that are to have urban characteristics from those
that are to remain rural.
Subsequent implementation of the Agreement will result in:
• 2030 Comprehensive Plan amendments to implement the joint Land Use
Plan,
adjustment of the Town's Extra Territorial Jurisdiction (abandonment of some
existing ETJ by the Town and the County granting new ETJ); and
• amendments to the County's Unified Development Ordinance.
2. Analysis
The required analysis will be part of the subsequent evaluation, development and
approval of project implementation actions.
3. Comprehensive Plan Linkage (i.e. Goals and Objectives)
Land Use Goal 1: Fiscally and environmentally responsible, sustainable growth,
consistent with the provision of adequate services and facilities and a high quality of
life.
Objective LU -1.1:
Coordinate the location of higher intensity / high density residential and non-
residential development with existing or planned locations of public transportation,
commercial and community services, and adequate supporting infrastructure (i.e.,
water and sewer, high -speed internet access, streets, and sidewalks), while avoiding
areas with protected natural and cultural resources. This could be achieved by
increasing allowable densities and creating new mixed -use zoning districts where
adequate public services are available.
Objective LU -1.2:
Evaluate and report on whether existing and approved locations for future residential
and non - residential developments are coordinated with the location of public
transportation, commercial and community services, and adequate supporting
infrastructure (i.e., water and sewer services, high -speed internet access, streets and
sidewalks).
Land Use Goal 3: A variety of land uses that are coordinated within a program and
pattern that limits sprawl, preserves community and rural character, minimizes land
use conflicts, supported by an efficient and balanced transportation system.
Objective LU -3.1:
Discourage urban sprawl, encourage a separation of urban and rural land uses, and
direct new development into areas where necessary community facilities and
services exist through periodic updates to the Land Use Plan.
2
5
Land Use Goal 6: A land use planning process that is transparent, fair, open,
efficient, and responsive.
Objective LU -6.1:
Undertake a comprehensive effort to inform and involve the citizens of Orange
County in the land use planning process.
Objective LU -6.2:
Maintain a cooperative joint planning process among the County municipalities and
those organizations responsible for the provision of water and sewer services to
guide the extension of service in accordance with the Comprehensive Plan, the
Orange County - Chapel Hill - Carrboro Joint Planning Agreement and Land Use Plan,
and the policies of the municipalities.
4. New Statutes and Rules
N/A
C. PROCESS
1. TIM EFRAME /MILESTONES /DEADLINES
a. BOCC Authorization to Proceed
June 18, 2013
b. BOCC Public Hearing
September 9, 2013 (quarterly public hearing)
November 5, 2013 (BOCC receives Planning Board recommendation, considers
adoption, and provides direction to staff on next steps)
c. BOCC Updates /Checkpoints
d. Other
2. PUBLIC INVOLVEMENT PROGRAM
Mission /Scope: Public Hearing process consistent with NC State Statutes and
Orange County ordinance requirements. Additionally, staff will hold one Public Input
Meeting in August to review the Plan that was adopted by the Town of Hillsborough in
March 2013. Town staff will attend the meeting.
At the February 21, 2013 joint meeting with the Town of Hillsborough, BOCC
members and the County Manager had questions about the concept of a Central
Orange Rural Buffer and notification of the public if such a concept were to come
3
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forward from staff. There were also general questions regarding notification and
some concern expressed over the notification of the public within areas to be effected
by Extraterritorial Jurisdiction (ETJ) swaps. Link to minutes of the joint meeting with
Hillsborough: http: / /server3.co.orange.nc.us: 8088 /weblink8 /0 /doc /28127 /Page1.aspx
At this time, staff is recommending a public hearing on land uses within the Urban
Services Area only, which the Town adopted in March. The Urban Services Area
includes the Town's existing planning jurisdiction (Town Limits and ETJ) plus some
additional areas of County jurisdiction. These are the areas to be served by Town
public water and /or sewer services and are generally located around the Town's
fringe (darker blue and orange areas on attached Interlocal Agreement map).
Staff will ask the BOCC to approve separate Amendment Outline forms before the
ETJ swap is initiated and to determine if staff is to further explore a Rural Buffer
concept around Hillsborough. Therefore, subsequent Amendment Outlines will
describe respective citizen outreach and public notification plans.
a. Planning Board Review:
October 2, 2013
b. Advisory Boards:
c. Local Government Review:
d. Notice Requirements
This item will be included in the Quarterly Public Hearing legal ad which will be
published on August 28 and September 4, 2013
e. Outreach:
❑ General Public: Public Input Meeting August 2013
❑ Small Area Plan Workgroup:
❑ Other:
3. FISCAL IMPACT
Existing Planning staff will accomplish the work required to develop the Town of
Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan. The
required legal ad will be paid with Departmental funds already budgeted for this
purpose.
D. AMENDMENT IMPLICATIONS
See Sections B.1 and C. 2. Of this Amendment Outline.
F
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E. SPECIFIC AMENDMENT LANGUAGE
See attached Town of Hillsborough Future Land Use Plan (2013).
Primary Staff Contact:
Tom Altieri, AICP
Planning Department
(919) 245 -2579
taltieri @orangecountync.gov
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9 ALLORY
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- Mixed Resid.Neighborhood
- Mixed Use The Urban Services Boundary indicates the limits of Hillsborough water and sewer service consistent with an
Inter-local Agreement with Orange County,OWASA,Chapel Hill,Carrborc,and Hillsborough. Future Land Uses
-
Neighborhood Mixed Use ,,,could be used by Hillsborough and Orange County as the basis for approving zoning designations on colored
- Permanent Open Space parcels and those within the boundary,consistent with the Inter-local Agreement between Orange County and
Rural Living Hillsborough.
_ Retail Service Areas inside the Urban Services Boundary without a Future Land Use designation have not yet been discussed
Small Lot Residential by the Planning Board. Areas outside the Urban Services Boundary with a Future Land Use designation are due
-Suburban Office to the boundary crossing a parcel. Areas outside the Urban Services Boundary with current utility service from
-Town center the Town of Hillsborough will retain service.
— Urban Neighborhood
—WorkingFarm
10
Adopted March 11, 2013
Hillsborough, NC Future Land Use Plan
The Future Land Use Plan is composed of a map showing Future Land Use Designations and a brief text
detailing those designations and how they align with zoning districts listed in the Hillsborough Unified
Development Ordinance. Together, the map and text constitute the Future Land Use Plan for the Town of
Hillsborough and lands within its jurisdiction. The Plan is adopted as a component of the Hillsborough
Comprehensive Plan and is subject to amendments following the procedure established in the Unified
Development Ordinance.
Nothing in this document limits the Hillsborough Town Board of Commissioners authority to regulate
land use within its jurisdiction. Future Land Use Designations are not a guarantee that land will remain
zoned in any particular use district, and are subject to the availability of infrastructure, including but not
limited to water, sanitary sewer, and streets necessary to support designated or proposed uses.
Future Land Use Classifications
Natural Resource. These areas are unique natural areas or environmental sensitive areas. The primary
designation is for the 100 -year flood zones along the Eno River and Cates Creek. The Eno River
floodplain is a natural area of national significance. This designation does not follow parcel boundaries
and overlays other designations listed here.
Permanent Open Space. These areas are intended for long -term use as open space, parks, or natural
areas that protect scenic, historic, cultural, and environmentally valued lands. They include lands that are
permanently protected, though not necessarily publicly owned or accessible, through private conservation
easements or other private conservation measures, and publicly held park or conservation lands. Zoning
Districts: Agricultural - Residential; Protected Watershed & Protected Watershed Critical Area
Working Farm. These areas reflect existing agricultural use in locations where continued agricultural use
is desirable for the foreseeable future. Zoning Districts: Agricultural - Residential; R -40
Rural Living. These areas reflect existing very-low density residential uses with densities below 0.5
dwelling units per acre (at least a 2 -acre minimum lot size) that occurs in areas without public water and
sewer service, in locations where continued low- intensity use without public water and sewer is desirable
for the foreseeable future. Zoning Districts: Agricultural - Residential; Protected Watershed &
Protected Watershed Critical Area; R -40
Small Lot Residential Neighborhood. These areas provide opportunities for a lower density than pre -
WWII or neo- traditional neighborhood living. These areas include detached single - family residential
uses in post -WWII subdivision developments which range in density from 0.5 dwelling units per acre to 3
dwelling units per acre. Zoning Districts: R -10; R -15; R -20; Entranceway Special Use; Mixed
Residential Special Use; Residential Special Use
Medium - Density Residential. These areas include existing and future areas for development of more
dense residential neighborhoods that provide a diversity of housing types and housing options. Areas
include single - family detached units, mobile homes, townhouses, duplexes, condominiums, apartments,
senior housing, and other multi - family dwelling units. Housing densities should range from 3 -8 dwelling
units per acre. Other types of uses that may occur are schools, parks, and other public facilities. Zoning
Districts: R -10; R -15; R -20; Multi- Family; Mobile Home Park; Entranceway Special Use; Mixed
Residential Special Use; Multi- Family Special Use; Residential Special Use
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Adopted March 11, 2013
Attached Residential Neighborhoods. These areas include existing and future areas for the
development of dwelling units at more than 8 units per acre, which generally implies attached dwelling
units. This designation may also be used for unique residential settings like retirement villages or nursing
homes. Zoning Districts: Multi- Family; Multi - family Special Use; Entranceway Special Use; Mixed
Residential Special Use; Residential Special Use
Mixed Residential. The dominant land use in any proposed development is expected to be residential
based on square footage of proposed structures. Developments may contain a single or variety of
dwelling types and densities or may integrate a variety of supportive commercial, public and semi- public
uses and open or public space. Small developments that provide only supportive non - residential land
uses in an infill arrangement serving more than 50 dwelling units in a walkable manner may also be
considered. Zoning Districts: R -10; R -15; R -20; Neighborhood Business; Multi- Family; Multi-
family Special Use; Entranceway Special Use; Mixed Residential Special Use; Residential Special
Use; Special Design Special Use
Urban Neighborhood Established residential neighborhoods that pre -date traditional zoning and land
use regulation. Lot sizes and building types are varied and generally developed on a grid street pattern.
The predominant type is generally low density single family housing with occasional business,
government, park, church or school uses. Infill and redevelopment projects should enhance the unique
character of the surrounding neighborhood and be of consistent scale and appearance. The opportunity to
increase the residential density in a compatible manner is encouraged. Zoning Districts: R -10; R -15;
R -20; Neighborhood Business Special Use; Residential Special Use
Education. These areas are currently developed as public schools and their use is not anticipated to
change. Zoning Districts: Office Institutional
Employment areas. These areas include a wide range of business, light industrial, office, research and
development, along with related/support services uses including restaurants, small scale retail and
convenience shopping/services. Buildings and uses will be sited to limit the visual impact of service and
warehousing operations, while still providing convenience for business functionality. These areas are in
prime locations with good access to major road networks (where capacity exists or is planned) and rail if
needed and should be reserved for high return employment generating uses. Zoning Districts: High
Intensity Commercial; Business Park; Economic Development District; Light Industrial, General
Industrial; Entranceway Special Use; Special Design Special Use
Light Industrial. The Industrial classification is applied to areas that currently support industrial uses or
lands that could accommodate a variety of industrial establishments which employ high environmental
quality standards and have minimal impacts on adjacent uses. These areas incorporate larger tracts of
land because of their nature and function. Industrial developments should provide shared access, and
have a coordinated design and a planned layout. Zoning Districts: High Intensity Commercial;
Business Park; Economic Development District; Light Industrial, General Industrial
Mixed Use. These areas a full range of uses well mixed, both vertically and horizontally, much like a
downtown or village center. Multi -story buildings are the norm and will generally contain a vertical mix
of uses. Uses are expected to be roughly balanced between residential, retail, office, service, public and
semi- public uses. Public open space of both urban and green space is also expected to off -set the
intensity of development. Zoning Districts: R -10; Multi - family; Office Institutional; High Intensity
Commercial; Multi - family Special Use; Residential Special Use; Special Design Special Use
Neighborhood Mixed Use. These areas provide opportunities for goods and services that residents of the
district and surrounding neighborhoods need on a daily basis. Lots with this designation will front on an
2
12
Adopted March 11, 2013
arterial or collector street and back up to single family neighborhoods. Buildings and uses will generally
be in scale with the surrounding neighborhoods and be walkable as well as providing vehicular access.
Sites may be single use or, mixed use, may incorporate residential uses or may be solely residential at a
higher density than the adjacent neighborhood. Zoning Districts: R -10; Multi- family; Neighborhood
Business; Neighborhood Business Special Use; Central Commercial; Central Commercial Special
Use; Multi- Family Special Use; Residential Special Use
Retail Services. These areas focus on retail and commercial uses. They should be located near
residential and employment areas to provide good access to commerce and personal services. Retail areas
can have a range of characteristics depending on their primary markets. The larger scale regional draws
are more automobile- oriented and draw people from throughout the region. These areas should be located
near interstate access, and they may include larger scale stores like "big boxes ", warehouse clubs, and
large specialty retailers. Smaller, accessory uses can also locate in these areas to provide convenience
shopping and include restaurants and smaller specialty retailers; often located on out - parcels or in smaller
shopping centers. Zoning Districts: Neighborhood Business; Neighborhood Business Special Use;
Central Commercial; Central Commercial Special Use; General Commercial; High Intensity
Commercial; Entranceway Special Use; Special Design Special Use
Suburban Office Comnlex. These areas provide opportunities to for office and employment enterprises
which do not rely on walk -in customers or have a manufacturing component. Businesses may be large or
small but will generally arrange themselves in a campus setting with limited walkability and supporting
services. Developments of this type should be kept small in nature to limit the peak transportation impact
and limited vitality. Zoning Districts: Limited Office; Office Institutional; Business Park; Economic
Development District; Entranceway Special Use; Special Design Special Use
Town Center. This area incorporates the historic structures, civic uses, commercial opportunities, and
the active pedestrian environment that is the downtown core of Hillsborough. The core commercial areas
are to be preserved and enhanced over the long -term and should provide mixed -use opportunities that
combine second -floor residential units with ground floor commercial, office, or institutional uses.
Zoning Districts: R -20; Office Institutional; Central Commercial; Central Commercial Special Use
Town of Hillsborough/Orange County Strategic Growth Plan Phase II Exhibit 1A
Central Orange Coordinated Area
Legend X
Proposed Central Orange �y �o \ \TFR
QCoordinated Area Boundary=33,875 ac. oy P ELPS °� goy /RNC'
(White area=24,412 ac.)
QProposed Urban Service Area=9,463 ac.
QProposed ETJ Boundary �O FARO
Proposed ETJ Areas to be Added=624 ac. _
Proposed ETJ Areas to be Deleted=489 ac. C-1, Urban Services Area/
sTMaRYSRo
Annexation Boundary
Proposed Orange County �-
0 Urbanizing Areas=1,909 ac. 92 Existing 1 unit/1 ac
Proposed Hillsborough °oq Z Density
Urbanizing Areas=1,118 ac. 70
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Existing Rural Residential
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Existing JPA Rural Buffer
_ Existing Eno River State Park
Existing Water Service Area �: s
0 Outside Urban Services Area=1,394 ac. CORNELIUS ST
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Existing Adopted Small Area Plan Areas pd u ,_-
_ Existing Hillsborough Town Limits=3,427 ac.'
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Datum: NortfiAm erican 11983 0
Town of Hillsborough has annexed since the 2009 adoption of this map.The new town limits are shown on this map.
Exhibit for September g, 2013 Grange County Public Hea °" ng,
Attachment 2 N
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Orange County Public Hearing.
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Town & County
Interlocal Agreement (Dec. '09)
Town Outreach and Hearing
2012 Through Early -2013
(With Input from County)
Town Adopts Future Land
Fuse Map for its Jurisdiction
and its Urban Services Area
(March '13)
County Outreach and Hearing
County Planning Board
Recommendation (Oct. '13)
County Commissioners
Consideration (Nov. '13)
County Commissioners
Authorize Next Steps and
Schedule
County Outreach and Hearing
'County Planning Board
Recommendation (TBD)
County Commissioners
Consideration (TBD)