HomeMy WebLinkAboutAgenda - 11-05-2013 - 6dORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: November 5, 2013
Action Agenda
Item No. 6 -d
SUBJECT: Town of Hillsborough /Orange County Central Orange Coordinated Area Land
Use Plan
DEPARTMENT: Planning and Inspections
ATTACHMENT(S):
1. Comprehensive Plan /Future Land
Use Map and Unified Development
PUBLIC HEARING: (Y /N) Yes
INFORMATION CONTACT:
Tom Altieri, Comprehensive Planning
Supervisor, 245 -2579
Ordinance (UDO) Amendment Craig Benedict, Planning Director, 245 -2592
Outline Form (Other- 2013 -02) Abigaile Pittman, Transportation /Land Use
(Sections for consideration on pp. 10 Planner, 245 -2567
-13)
2. Draft Future Land Use Plan Showing
County Planning Jurisdiction Only
3. Excerpt of Draft Minutes — September
9, 2013 Quarterly Public Hearing
4. Excerpt of Draft Minutes — October 2,
2013 Planning Board Meeting
5. Resolution Approving the COCA Land
Use Plan (Areas within Urban Service
Boundary)
PURPOSE: To receive the Planning Board's recommendation, close the public hearing, and
make a decision on a resolution ratifying the draft Town of Hillsborough /Orange County Central
Orange Coordinated Area (COCA) Land Use Plan.
As a reminder, the reconvening of this hearing is solely to receive the Planning Board
recommendation and any additional written evidence submitted since the September 9, 2013
Quarterly Public Hearing. This hearing is not intended to solicit additional input from the public.
While the BOCC may ask staff questions related to the review of a given item, comments from
the public shall not be solicited.
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, the Board of County Commissioners (BOCC), and the public provided input on
future land uses during the Town's planning and adoption process.
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 Attachment 1.
Attachment 2 is provided as a tool to help distinguish between future land uses proposed in the
County's existing planning jurisdiction from those within the Town's existing planning
jurisdiction.
Public Hearing: The proposed draft Future Land Use Plan was heard at the September 9, 2013
joint public hearing. No members of the public spoke on the proposed draft. However, the
Board requested additional information on "immediate and future steps contemplated to make
the maps and land use visions of the Town and County coincide" (See Immediate and Next
Steps Section). Attachment 3 includes draft minutes of the September 9, 2013 joint public
hearing.
Procedural I nfo rm ati o n
Consistent with Comprehensive Plan amendment process and in accordance with Section
2.3.10 of the Unified Development Ordinance, any evidence not presented at the public hearing
must be submitted in writing prior to the Planning Board's recommendation. Additional oral
evidence may be considered by the Planning Board only if it is for the purpose of presenting
information also submitted in writing. The public hearing is held open to a date certain for the
purpose of the BOCC receiving the Planning Board's recommendation and any submitted
written comments.
Links to Additional Materials:
History of Town of Hillsborough /Orange County Joint Planning -
http: / /www.co. orange. nc. us / planning / documents/ TownofHiIIsboroughandOrangeCountyJointPla
nning.pdf
Hillsborough- Orange Interlocal Land Management Agreement -
http: / /www.co.orange.nc.us /planning /documents /Hillsborough-
OrangelnterlocalLandManagementAgreement .pdf
Planning Director's Recommendation:
The Planning Director is recommending one minor change that involves deletion of a reference
to minimum lot size in the "Rural Living" Future Land Use Classification as currently defined (pp.
12 and also identified below). This change, which is referenced in the attached Resolution, is
deemed necessary so as not to inadvertently prohibit the clustering of residential lots as an
acceptable and in some cases preferable means of meeting maximum density requirements.
Staff notes that it is the only reference to minimum lot size among all of the various Future Land
Use Classification definitions as proposed.
"Rural Living. These areas reflect existing very -low density residential uses with densities
below 0.5 dwelling units per acre (at least a a 2 aGFe m434mum lot °iW 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."
K
Noting the one area for deletion and clarification described above, the Planning Director
recommends approval of the proposed draft COCA Land Use Plan based on the following:
• Consistency with the adopted Hillsborough- Orange Interlocal Land Management
Agreement;
• Provides additional guidance for coordinated land use and zoning decisions;
• Better distinguishes between areas to have urban characteristics from those that are to
remain rural;
• Consistency with the goals and objectives of the 2030 Comprehensive Plan; and
• Prerequisite to 2030 Comprehensive Plan Amendments that will further implement the
Interlocal Agreement and operationalize joint planning.
Planning Board Recommendation:
The Planning Board considered this item at its October 2, 2013 meeting. The Planning Board
unanimously voted to recommend approval of this item. The Planning Board draft minutes
are included in Attachment 4.
"Immediate and Future Steps" — What Joint Planning Steps Come Next ?:
Since the public hearing, Orange County received a letter (dated September 10, 2013)
conveying Town Board action and adoption of a resolution indicating its interest in releasing
areas west of town from its Extraterritorial Jurisdiction (ETJ) and requesting jurisdiction over
areas defined in the Interlocal Land Management Agreement. Coordination between the
respective staffs was also requested to begin identifying the required steps and to process the
exchange.
Orange County Planning staff and Staff Attorney met with the Town's Planning Director and
Attorney on October 16 to begin developing a coordinated approach to the Extraterritorial
Jurisdiction (ETJ) swaps. Based on staff collaboration, it is recommended that immediate next
steps include processing the ETJ exchange. This exchange would occur prior to County 2030
Comprehensive Plan amendments to implement the COCA Land Use Plan and different from a
simultaneous approach that staff conveyed as an option when questioned on future steps,
steps which admittedly had not yet been determined by staff the night of the hearing. As full
achievement of Town and County future joint land use visions is a significant undertaking,
involving many steps, this incremental approach is recommended to ensure that the process is
manageable and most understandable.
Therefore, immediate steps following BOCC approval on the draft Town of Hillsborough /Orange
County COCA Land Use Plan include BOCC authorization to proceed with the development of
a schedule and process, including notification and outreach methods, to execute the ETJ swaps
identified in the Interlocal Agreement. This authorization to proceed, with additional specifics,
may be a proposed item for the November 19, 2013 BOCC meeting.
Following the completion of ETJ swaps, additional future steps will include 2030
Comprehensive Plan text and map amendments to implement the COCA Land Use Plan,
Unified Development Ordinance (UDO) text amendments, additional public outreach, and a
public hearing. The BOCC will also be asked to authorize a schedule and a process, including
notification and outreach methods, before these future steps are initiated.
FINANCIAL IMPACT: See Section C. 3 in Attachment 1.
M
RECOMMENDATION(S): The Interim Manager recommends the Board-
1 . Receive the Planning Board's recommendation of approval;
2. Close the public hearing;
3. Consider approving and authorizing the Chair to sign the Resolution (Attachment 5)
ratifying the Town of Hillsborough /Orange County Central Orange Coordinated Area
(COCA) Land Use Plan, Areas Within Urban Services Boundary (detailed in Attachment
17 pp. 10 -13); and
4. Authorize staff to proceed with the development of a schedule and process, including
notification and outreach methods, to execute the ETJ swaps identified in the Interlocal
Agreement.
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-
Section(s)- None at this stage
..............
❑ 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
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 proposed draft COCA Land Use Plan is being recommended based on the
following:
• Consistency with the adopted Hillsborough- Orange Interlocal Land
Management Agreement;
• Provides additional guidance for coordinated land use and zoning decisions;
• Better distinguishes between areas to have urban characteristics from those
that are to remain rural;
• Consistency with the goals and objectives of the 2030 Comprehensive Plan;
and
• Prerequisite to 2030 Comprehensive Plan Amendments that will further
implement the Interlocal Agreement and operationalize joint planning.
Further analysis will be part of the subsequent evaluation, development and approval
of 2030 Comprehensive Plan 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.
2
7
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.
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 .... .
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C. PROCESS
1. TIMEFRAME /MILESTONES /DEADLINES
a. BOCC Authorization to Proceed
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
June 18, 2013
b. BOCC Public Heari
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
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 (Unanimous recommendation to approve)
b. Advisory Boards:
c. Local Government Review:
d. Notice Requirements
This item was included in the Quarterly Public Hearing legal ad which was
published on August 28 and September 4, 2013
e. Outreach:
® General Public: Public Input Meeting August 2013
❑ Small Area Plan Workgroup:
11
9
❑ 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
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
l
See Sections B.1 and C. 2. Of this Amendment Outline.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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
Town of Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan
Areas Within the Town's Urban Service Boundary
September 9, 2013 Orange County
srR XCR Public Hearing draft.
See Attachment 2 as a tool to help
distinguish future land uses
proposed in the County's existing
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-
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Permanent Open Space
parcels and those within the boundary, consistent with the Inter -local Agreement between Orange County and
Rural Living
Hillsborough.
_ Retail Service
Small Lot Residential
Areas outside the Urban Services Boundary with a Future Land Use designation are clue
- 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
Town of Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan
Staff Note: When this Land Use Plan is implemented through Orange County 2030 Comprehensive Plan
amendments, staff will add an introductory section to replace the first two paragraphs below that describes
the joint planning construct and linkage to the Hillsborough /Orange Interlocal Agreement.
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 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
12
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
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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 Complex. 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 Exhibif4A
Legend Central Orange Coordinated Area
Proposed Central Orange
QCoordinated Area Boundary = 33,875 ac.
(White area = 24,412 ac.)
QProposed Urban Service Area = 9,463 ac.
QProposed ETJ Boundary
Proposed ETJ Areas to be Added = 624 ac.
Proposed ETJ Areas to be Deleted = 489 ac.
Proposed Orange County
0 Urbanizing Areas = 1,909 ac.
Proposed Hillsborough
Urbanizing Areas = 1,118 ac.
Existing Rural Residential
0 Existing Agricultural Residential
Existing JPA Rural Buffer
_ Existing Eno River State Park
Existing Water Service Area
0 Outside Urban Services Area = 1,394 ac
Existing Adopted Small Area Plan Areas
_ Existing Hillsborough Town Limits = 3,427 ac.'
Existing Hillsborough ETJ areas = 2,914 ac.'
TFRR.
' Town of Hillsborough has annexed since the 2009 adoption of this map. The new town limits are shown on this map.
Exhibit for September 9, 2013 Orange County Public Hearing
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CPEYENIF s
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UUMIT A"M
DRAFT MINUTES EXCERPT
ORANGE COUNTY BOARD OF COMMISSIONERS
ORANGE COUNTY PLANNING BOARD
QUARTERLY PUBLIC HEARING
September 9, 2013
7:00 P.M.
The Orange County Board of Commissioners and the Orange County Planning Board
met for a Quarterly Public Hearing on Monday, September 9, 2013 at 7:00 p.m. at the DSS
Offices, Hillsborough Commons, Hillsborough, N.C.
COUNTY COMMISSIONERS PRESENT: Chair Barry Jacobs and Commissioners mark
Dorosin, Alice M. Gordon, Earl McKee Bernadette Pelissier, Renee Price and Penny Rich
COUNTY COMMISSIONERS ABSENT:
COUNTY ATTORNEY PRESENT: James Bryan (Staff Attorney)
COUNTY STAFF PRESENT: County Manager Frank Clifton and Deputy Clerk to the Board
David Hunt (All other staff members will be identified appropriately below)
PLANNING BOARD MEMBERS PRESENT: Chair Pete Hallenbeck, and Planning Board
members, Maxecine Mitchell, Johnny Randall, Lisa Stuckey, Stephanie O'Rouke, Paul Guthrie,
and Herman Staats
PLANNING BOARD MEMBERS ABSENT: Tony Blake, Andrea Rohrbacher, Rachel Phelps
Hawkins, James Lea and H.T. "Buddy" Hartley
C. PUBLIC HEARING ITEMS
Chair Jacobs called the public hearing to order. He noted that Pete Hallenbeck would
preside over the meeting.
The following Planning Board members were present: Chair Pete Hallenbeck, Maxecine
Mitchell, Lisa Stuckey, Stephanie O'Rouke, Paul Guthrie, and Herman Staats.
5. Town of Hillsborough /Orange County Central Orange Coordinated Area Land Use
Plan — To review future land uses proposed for areas of County jurisdiction located within the
Town's Urban Service Boundary. This is the next step towards completion of a joint Town of
Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan.
Tom Altieri reviewed the following PowerPoint slides:
Town of Hillsborough /Orange County Central Orange Coordinated Area Land Use
Plan
Quarterly Public Hearing
September 9, 2013
Item C.5
Purpose
Hold a public hearing on draft Town of Hillsborough /Orange County Central Orange
Coordinated Area (COCA) Land Use Plan
History of Joint Planning with Hillsborough
Hillsborough /OC Urban Transition Area Task Force (2004):
• Acknowledgement that the Town's Primary Service Area for public water /sewer, as
defined by Water and Sewer Management Planning and Boundary Agreement, was a
much larger area than it had the ability to serve.
• Principles of Agreement and Map, one of which called for a Joint Strategic Growth Plan
(SGP).
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UUMIT A"M
Hillsborough /OC SGP Phase 1(2006):
• Consultant prepared SGP Report.
• SGP Report called for preparation of Inter -local Agreement.
History of Joint Planning with Hillsborough (Cont.)
Phase B - Hillsborough- Orange Inter -local Land Management Agreement (2009):
• Called for adoption of Joint Land Use Plan (JLUP);
• Established Urban Services Area, Hillsborough Urbanizing Area, and Orange County
Urbanizing Area;
• Identified areas for Town's Extraterritorial Jurisdiction (ETJ) swap;
• Provides for JLUP adoption, administration, and amendment processes.
Inter -local Agreement (2009) MAP
Why Joint Planning?
• Implement Inter -local Agreement.
• Clear and consistent guidance for land use /zoning decisions.
• Achieve coordinated growth patterns.
• Distinguish between areas to have urban characteristics from rural.
Adopted by Town March 2013 MAP
Prior to Town Adoption
BOCC letter to Town providing comments (Oct. 2012) — Part of Town's outreach and public
hearing process (2012 — early- 2013).
Town Planning Board (Nov. 2012) — Addresses BOCC comments as part of its
recommendations.
BOCC Work Session (Jan. 2013) — Review of Town Planning Board recommendations and
how they addressed BOCC input.
BOCC /Hillsborough Board of Commissioners Joint Meeting (Feb. 2013) — Update on Town
process and next joint planning steps.
Following Town Adoption of FLUP
Consistent with the Inter -local Agreement (2009), following Town adoption, the BOCC is to
consider endorsing the Plan (map and descriptions of classifications, pp. 9 -12)
Orange County Public Hearing
Monday, September 9, 2013
Town and County Jurisdictions MAP
County /Town Open House
Held August 27, 2013 at the Town Barn
(101 E. Orange Street).
• Held to help inform public of process and next steps
• 20 people attended
• 1 walk -in at Planning Department
• Response to Plan has been very positive
• Request to protect residential properties along fringe of Urban Service Area
What's Next? Flowchart
Questions and Public Comment
Recommendation
The Planning Director recommends the Board:
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1. Refer the Plan to the Planning Board requesting it return its recommendation for the
November 5, 2013 BOCC meeting; and
2. Adjourn the hearing until November 5, 2013 to receive and accept Planning Board's
recommendation.
Tom Altieri, referring to Slide 8, said comments from the Public Hearing included
concerns regarding limitations on high density residential development on the north side of
town. There were concerns about additional traffic on Churton Street. He said there were also
some issues differentiating colors on the land use plan. He said the County had some specific
requests to change the town classification of some properties near Old NC 86 and 1 -40. He said
these requests were included in the County Planning Board recommendation that was adopted
in March.
He reviewed the flowchart found on page 15 of the abstract. He said, following
endorsement by the Board in November, staff will take the next step to process amendments to
the comprehensive plan in order to implement this joint land use plan. He said this step cannot
be taken until the County Commissioners and the Town Board are on the same page.
Commissioner Gordon referred to the maps on pages 13 and 14. She asked for an
explanation of the map on page 14.
Tom Altieri said the map on page 14 is the map that the town of Hillsborough adopted in
March. He said this make takes the incorporated and ETJ areas and shows them in gray. He
said this is identical to the map on page 9, except one shows land uses within the town
incorporated areas.
Commissioner Gordon asked about the relationship between the maps on pages 13 and
14. She referred to proposed ETJ areas to be deleted and said that the map on page 14 has
areas labeled as ETJ that she thought were supposed to be County area.
Tom Altieri said this ETJ swap part of the process has not been reached yet. He said
there must first be a formal request from the town.
Commissioner Gordon clarified that the swap will all be done at once.
Tom Altieri said yes.
Commissioner Gordon asked how that will work in this process.
Tom Altieri said the Town's request must be received first, and then staff will come back
to the Board with an amendment outline form. He said this form will outline the process for the
swap. He said he does not have more details now.
Commissioner Gordon asked if page 9 is the future land use plan adopted by the town.
Tom Altieri said this is correct.
Commissioner Gordon said this does not look the same as the one on page 14.
Tom Altieri said the map on page 9 shows the land uses within the town of Hillsborough
incorporated area and the present ETJ. He said the map on page 14 shows those areas in
gray.
Commissioner Gordon said these maps do not look the same. She said there are areas
that are different.
Tom Altieri said the town of Hillsborough did not adopt future land uses in the area that
will be given up to the west.
Commissioner Gordon said it looks like the town has adopted future land in the area
being taken in. She said the map on page 14 still has the ETJ area as part of the municipal
area. She asked staff to come up with a timeline to show how these swaps will happen at the
same time and what kind of land use will be put in these areas.
Tom Altieri said this will be done. He said this is proceeding prior to that because the
inter -local agreement was done in 2009, and there is a need to move forward toward
implementation.
Commissioner Gordon said she hopes these issues will be worked out so that things will
mesh. She said there needs to be a plan for the part of the ETJ that is being given up.
t'E?•'
I Tom Altieri said this public hearing is for the County's endorsement of what the Town
2 has already adopted. He said once this is accomplished staff will be able to proceed with
3 bringing forward a process on how swaps will occur and what the land uses will be. He said
4 these areas will most likely be agricultural /residential.
5 Commissioner Price said this is a plan. She said things have changed already and
6 annexation laws have changed. She said there are areas that could or may not be annexed,
7 and these are all future possibilities.
8 Commissioner Dorosin referred to the map on page 13 and asked about the urban
9 services boundaries.
10 Tom Altieri said this is the map that is part of the inter -local agreement that has already
11 been adopted, and the magenta line defines the urban service areas of the town.
12 Commissioner Dorosin stated that the map on page 14 is just a snapshot. He clarified
13 that this is not permanent.
14 Tom Altieri agreed and said this map expresses a vision.
15 Chair Jacobs requested a list of both immediate and future steps contemplated to make
16 the maps and land use visions of the town and County coincide. He said this would address
17 Commissioner Gordon's concerns.
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19 A motion was made by Commissioner Gordon, seconded by Commissioner Pelissier to:
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21 1. Refer the Plan to the Planning Board requesting it return its recommendation for the
22 November 5, 2013 BOCC meeting; and
23 2. Direct Staff to provide a list of both immediate and future steps contemplated in order to
24 make the maps and land use visions of the town and County coincide.
25 3. Adjourn the hearing until November 5, 2013 to receive and accept Planning Board's
26 recommendation.
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28 Chair Jacobs said it took a long time to get Hillsborough to the table to talk about joint
29 planning. He said former elected officials had an overblown idea of how Hillsborough was going
30 to grow. He said this was a breakthrough to sit down and discuss a joint plan.
31 He said some of the intended but not articulated consequences of the plan are that it
32 recognizes the rural buffer to the south of Hillsborough. It also de -facto creates rural buffers to
33 the west of Hillsborough in the upper Eno and to the east, separating Durham from
34 Hillsborough.
35 He said this includes an Orange Grove access management plan that would have been
36 very informative for people in the Eno River EDD.
37 He said this is the kind of plan that the County eventually needs to have with Mebane.
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39 VOTE: UNANIMOUS
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42 Barry Jacobs, Chair
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44 David Hunt, Deputy Clerk
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Attachment 4
DRAFT MINUTES EXCERPT
ORANGE COUNTY PLANNING BOARD
OCTOBER 2, 2013
REGULAR MEETING
MEMBERS PRESENT: Peter Hallenbeck (Chair), Cheeks Township Representative; Lisa Stuckey, Chapel Hill Township
Representative; Maxecine Mitchell, At -Large Bingham Township; Tony Blake, Bingham Township Representative;
Herman Staats, At- Large, Cedar Grove Township; James Lea, Cedar Grove Township Representative; Andrea
Rohrbacher, At -Large Chapel Hill Township; Paul Guthrie, At -Large Chapel Hill Township;
MEMBERS ABSENT: Johnny Randall, At -Large Chapel Hill Township; Buddy Hartley, Little River Township
Representative; Stephanie O'Rourke, Eno Township Representative; Vacant- Hillsborough Township Representative;
STAFF PRESENT: Craig Benedict, Planning Director; Perdita Holtz, Special Projects Coordinator; Michael Harvey,
Current Planning Supervisor; Tom Altieri, Comprehensive Planning Supervisor; Ashley Moncado, Special Projects
Planner; Abigaile Pittman, Transportation /Land Use Planner; Tina Love, Administrative Assistant II
HANDOUTS: Petition regarding Eno Area Access Management Plan; Town of Hillsborough /Orange County
Coordinated Area Land Use Plan Flowchart
AGENDA ITEM 1: CALL TO ORDER AND ROLL CALL
Agenda Item 11: Town of Hillsborough /Orange County Central Orange Coordinated Area Land Use Plan
— To make a recommendation to the BOCC on future land uses proposed for areas of
County jurisdiction located in the Town's Urban Service Boundary. This is the next step
towards completion of a joint Town of Hillsborough /Orange County Central Orange
Coordinated Area Land Plan. This item was heard at the September 9, 2013 quarterly public
hearing.
Presenter: Tom Altieri, Comprehensive Planning Supervisor
Tom Altieri: (Reviewed map). At the public hearing there were no members of the public that spoke but there was
a comment from Commissioner Gordon regarding process and more specifically some questions about the ETJ
swaps that are mentioned and part of the Interlocal Agreement. The ETJ swaps are not part of this process. It is a
good question and Commissioner Gordon is looking down the road at next steps. The swapping process must be
initiated by the Town of Hillsborough and that had not been done prior to the public hearing and it since has. The
County received letter and notification from the Town on September 131h that the Town is prepared to initiate that
process and has asked for coordination with County staff and that a meeting be held to determine how that process
will unfold and when. I don't have those specifics now but certainly will have more soon following that meeting we
anticipate to take place this month. The recommendation is that the Planning Board deliberate as necessary on the
draft plan and provide that recommendation to the County Commissioners in time for their November 51h meeting.
Pete Hallenbeck: I know that Commissioner Gordon had concerns about the area where the municipal was all in
black and gray in the map, did you have a chance to look at that.
Tom Altieri: I have and what she if referring to is the area shown within the Town's existing ETJ and is included in
the area that is to be swapped with Orange County. It will become Orange County's jurisdiction. There is an area
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that is presently in the County's jurisdiction that is to become Town of Hillsborough ETJ and therefore it has colors
on the maps in those areas.
(Planning Members and staff reviewed maps)
Pete Hallenbeck: (referring to area on map) That area is Duke Forrest and critical watershed so it is really unlikely
there will be factories or condominiums in that area.
Tom Altieri: That is exactly why the Town is entertaining this swap and it makes sense to both parties.
Craig Benedict: ETJ is usually intended for growth and they can't grow there so we are giving them areas such as
near the interchange that would allow them growth. We need some clarity with regard to the `rural living' category
within Orange County planning jurisdiction.
Pete Hallenbeck: One of the things driving this is that Hillsborough historically had this very large bite of the County
they it was anticipating for services and then figured out how much it would cost to do water and sewer and the
other thing that really affected this was that 1 -40 came along and this area between 1 -40 and 1 -85 is pure gold. It
developed in a way that no one could anticipate prior to knowing about 1 -40. What we are really deliberating on
here is saying yes this is a good process in having the County and Hillsborough get together and come up with an
agreement on how things should go and coordinate their planning efforts to go in that direction.
Tony Blake: The swap makes sense.
Tom Altieri pointed out areas on the map in regard to the Town of Hillsborough's plans on when to potentially
service with water and sewer.
MOTION made by Paul Gutherie to approve the draft Town of Hillsborough /Orange County Coordinated Future Land
Use Plan. Maxecine Mitchell seconded.
VOTE: Unanimous
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RES -2013 -091
Attachment 5
ORANGE COUNTY BOARD OF COMMISSIONERS
RESOLUTION APPROVING THE TOWN OF HILLSBOROUGH /ORANGE COUNTY
CENTRAL ORANGE COORDINATED AREA LAND USE PLAN,
AREAS WITHIN THE TOWN's URBAN SERVICE BOUNDARY
WHEREAS, Orange County and the Town of Hillsborough worked cooperatively to
prepare a Strategic Growth Plan Report (dated November 2006) that
called for preparation of an Interlocal Agreement for areas surrounding the
Town of Hillsborough; and
WHEREAS, a Hillsborough- Orange Interlocal Land Management Agreement (dated
June 2009) was approved and called for preparation of a Joint Land Use
Plan; and
WHEREAS, North Carolina Session Law 1987 -233 authorizes Orange County and its
municipalities to engage in joint planning programs; and
WHEREAS, the Town of Hillsborough adopted a Future Land Use Plan (dated March
2013) for its Urban Service Area, which includes its planning jurisdiction,
additional areas of County jurisdiction, and is to become the Central
Orange Coordinated Area (COCA) Land Use Plan for areas within the
Town's Urban Service Area; and
WHEREAS, the Draft COCA Land Use Plan was heard at the September 9, 2013
Quarterly Public Hearing; and
WHEREAS, the Orange County Planning Board has reviewed the Draft COCA Land
Use Plan and unanimously recommended approval; and
WHEREAS, the Board finds that the COCA Land Use Plan for areas within the Town's
Urban Service Area will further carry out the intent and purpose of the
Interlocal Agreement and is consistent with the goals and objectives of the
Orange County 2030 Comprehensive Plan;
NOW THEREFORE BE IT RESOLVED by the Orange County Board of Commissioners
that the attached document titled "Town of Hillsborough- Orange County Central Orange
Coordinated Area Land Use Plan, Areas Within the Town's Urban Service Boundary" is
hereby approved to include the following change to the "Rural Living" Future Land Use
Classification:
"Rural Living. These areas reflect existing very -low density residential uses with
densities below 0.5 dwelling units per acre (at least a 2 aGFe minimum lot 4e 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."
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RES -2013 -091
Adopted by Orange County:
This the day of , 2013.
Barry Jacobs, Chair
Orange County Board of Commissioners
Donna Baker County Seal:
Clerk to the Orange County Board of
Commissioners