HomeMy WebLinkAboutAgenda - 02-21-1995 - X-B 1
ORANGE COUNTY
BOARD OF CC O[ISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: February 21, 1995
Action Agenda
Item #
SUBJECT: REPORT ON THE CHAPEL HILL NORTHWEST SMALL AREA PLAN AND
POTENTIAL USE OF THE "GREENE TRACT"
DEPARTMENT: PLANNING PUBLIC HEARING: Yes x No
ATTACHMENT(S) : INFORMATION CONTACT:
- Excerpts from draft Mary Willis, Ext 2583
Northwest Small Area Plan David Stancil, Ext 2590
- Map of Area
TELEPHONE NUMBERS:
Hillsborough - 732-8181
Chapel Hill - 967-9251
Durham - 688-7331
Mebane - 227-2031
PURPOSE: For information only.
BACKGROUND: In January 1995, the Town of Chapel Hill's
Northwest Small Area Plan Work Group completed 19
months of planning and deliberation by recommending
a draft small area plan to the Chapel Hill Town
Council for an area generally west of Airport Road
and north of Estes Drive, containing a substantial
portion of the Town's ExtraTerritorial Jurisdiction
and Joint Planning Area Transition Area. The
Northwest Area includes both portions of the
existing landfill on Eubanks Road, and a parcel
known as the "Greene tract. "
The future use of the "Greene Tract" has generated
considerable discussion over the past decade. It
was purchased in 1984 by Orange Regional Landfill
Owners Group, and was designated on the Joint
Planning Area Land Use Plan as "Future Potential
Landfill Site (Pending Further Study) . " The Greene
tract was identified along with several other
locations as a possible landfill site by the
Landfill Site Search Committee, but was not
selected as one of four finalist sites.
The future of the Greene tract also generated
significant comment during the Towns' Northwest
Area plan preparation. The goals and objectives of
the plan call for the Greene tract to be used as a
park and village center, and not as a landfill.
2
Specifically, Work Group's recommendations call for
the Greene tract to become the focus of a village
pattern of development in the Northwest Area. The
recommended plan envisions the Greene tract and its
rail corridor as the focal point (or "village
center" ) of a high density/high intensity node.
Residential development on the order of 6 to 10
units per acre would surround the village center of
office and commercial uses, and would be located
within walking distance of the center. A community
park of approximately 50 acres with a greenway
connector is planned for the northwest corner of
the Greene tract.
The Town Council has called a March 1 public
hearing to receive comment on the recommended plan.
RECOIrMNDATION: As the Board decides.
3
Summary
Where We Are The protection of existing residential
neighborhoods is a primary objective of the
The Chapel Hill Town Council has created an recommended Northwest Area Plan.
Urban Services Boundary around Chapel Hill.
The area within that boundary is proposed to be The Plan proposes a Village Pattern of
eventually developed to urban densities. This development along the rail line corridor, primarily
land is now, for the most part, largely located on the Greene tract. The plan assumes
undeveloped. Through this Small Area Planning that the Greene tract will be developed and will
Process,the Town seeks to address the question of not be used as a landfill. Generally decreasing
how the land in the northwest portion of Chapel residential densities are proposed as distance from
Hill could best be developed. the village center increases. The Plan also
proposes that a portion of the Greene tract could
Where We Want To Go be used for affordable housing.
The Small Area Plan for the Northwest Area The Village Pattern is an alternative to traditional
presents a plan for the preservation and subdivision development. The village is intended
development of the land generally south of to create a pedestrian-friendly environment that
Interstate 40, including the land north of Weaver will provide residents with easy access to a village
Dairy Road, the land west of Airport Road (N.C. center that will have neighborhood stores and a
86), and the land north of the University of North central transit stop. The opportunity also exists to
Carolina's Horace Williams tract and Homestead develop a transportation corridor in coordination
Road. with the rail line corridor. Such a transportation
corridor could be used as a pedestrian/bikeway,
This Plan represents an integral part of the Town's busway, or light rail transit corridor.
Comprehensive Planning process. This Small Area
Plan is intended to provide a more detailed land The plan also supports the Town's Comprehensive
use plan for the relatively undeveloped northwest Planning goals of encouraging local economy by
area, which is a part of the Town's projected. recommending an Employment Campus along
urban services area. By reflecting on the Eubanks Road, near the Interstate 40 and N.C. 86
environmental constraints and special interchange. This Employment Campus would be
characteristics of the Northwest Area, and by intended to serve as a place of employment rather
making an effort to incorporate changing than as a shopping area.
conditions in this area, it is the intention of this The Plan also proposes a new large Community
plan to provide a long range vision for Park in the northwest corner of the Greene tract.
development in this area that will maintain the A network of proposed greenways along perennial
essential values of the Town of Chapel Hill. stream corridors would connect dedicated open
The recommended plan incorporates the following space in the village area with surrounding
"building blocks" as part of the long range vision residential areas and parks.
for the Northwest Area:
A system of local and collector streets are
• Protection of Existing Neighborhoods proposed to provide additional access to parcels
• Affordable Housing located in the interior of the Northwest Area. The
• Open Space Plan also proposes aligning roads to avoid
• Greenways dangerous intersections in close proximity to the
• Village Pattern rail line corridor. N.C. 86, Eubanks Road,
• Employment Campus Homestead Road, and Rogers Road are proposed
• Transportation Corridor to remain as they are and serve as collector roads.
Northwest Small Area Plan Page 1
4
How To Get There The Process
The "Recommended Strategies" Section of the On January 25, 1993, the Town Council
Plan presents a number of ideas on how to make established the Northwest Small Area Plan Work
the Plan a reality. Zoning the land for the Group and charged it with developing a Small
proposed uses and densities is a major strategy. Area Plan for the Council's consideration. The J
Conditional Use Zoning is proposed for the Northwest Small Area is the second area for
village. Also, a new zoning category is which the Council has requested a small area
recommended for the Employment Campus area. plan. The Southern Small Area Plan was adopted
in June 1992.
Adopting Design Guidelines and using the Town's
Development Review process to encourage well- The Work Group met and deliberated monthly
designed uses and to ensure protection of from May 1993 to December 1994. During this
environmentally sensitive areas is another key time, the Work Group held three neighborhood
implementation strategy. meetings designed to give the public information
and to hear ideas and reactions. These meetings
it is also recommended that neighborhood were held on September 21, 1993, February 22,
conservation programs be developed for low and 1994, and on October 6, 1994.
moderate income areas, while also considering
assisting developers of low-income housing with The Work Group also coordinated with the Town
extensions of public water and sewer lines. of Carrboro's Small Area Plan Work Group, that
was simultaneously conducting a similar small
A feasibility study of the Transportation Corridor area planning process. The Carrboro Small Area
concept is suggested, to determine the short-term Plan Work Group has been planning for
and long-term feasibility of using the rail line Carrboro's northern planning jurisdiction, an area
corridor. that is adjacent to the western boundary of Chapel
Hill's northwest small area.
Finally, a spirit of cooperation and collaboration
is recommended with the University of North The two Small Area Plan Work Groups held joint
Carolina at Chapel Hill, Duke University, the meetings in January and October of 1994, and
Town of Carrboro, and Orange County, in an had ongoing liaisons that worked to keep each
effort to best incorporate mutual interests in the Work Group informed of the other's progress.
Northwest Area. The interaction of these two Work Groups was an
integral part of the planning process.
Page 2 Northwest Small Area Plan
5
is adjacent to the study area. The Mill is a small, development of a future Town park. Ballfields
one and one-half story building located beside a and a Community Center are eventually proposed
mill pond and unnamed creek that is a tributary of to be a part of this site. The park also includes a
Old Field Creek. The residence was originally Public Housing component, as a development of
built between 1910-1912 by Eugene Blackwood's 12 duplexes opened in the fall of 1993.
father. The structure was converted to a rental
residence in the 1950s. The Timberlyne Shopping Center development is
located near the intersection of N.C. 86 and
Modern History Weaver Dairy Road. Construction on the
shopping center began in the early 1980s, and a
;T\
\V,The recent history of the area is characterized by second phase was built in the late 1980s. In the
retail/commercial growth, and the construction of early 1990s, several outparcels were developed,
the Orange County Regional Landfill. The Orange including a large office building for the Home
County Regional landfill on Eubanks Road was Health Agency. Although the shopping center is
purchased in 1972, and is owned jointly by not within the study area, it is adjacent to the
Orange County (43%), Chapel Hill (43%), and eastern portion of the area, and it is the primary
Carrboro (14%). By agreement of the three retail/commercial site serving the study area.
jurisdictions, the Chapel Hill Public Works
Department manages the landfill. The Town Council approved a master land use
plan for the Chapel Hill North development in
The regional landfill consists of 203 acres that are January 1990. The development is located at the
bisected into two portions by Eubanks Road. The southeast intersection of N.C. 86 and Interstate 40.
larger portion of the landfill that is north of
Eubanks Road is presently in operation. The The Chapel Hill North site is zoned for Mixed
remainder of the landfill that is south of Eubanks Use development. This type of development is
Road is presently under construction. it is designed to encourage a mix of office, retail, and
anticipated that the landfill will continue in residential development, with office use being the
operation until 2002 or 2003. primary component. This land use is intended to
be pedestrian-friendly and oriented towards the
In 1984, the Orange Regional Landfill Owners Town's needs, rather than traffic traveling on
Group (representing Chapel Hill, Carrboro, and Interstate 40. The approved Chapel Hill North
Orange County) purchased a 169-acre parcel Mixed Use development contains a mix of 60%
known as the "Greene Tract." This parcel, which office and 40% retail; there is no residential
is located southeast of the present landfill, was element. In 1991, a special use permit was
purchased to serve as a future landfill. Based on approved for Phase I of the project.
the regulation that landfills are not permitted
within 10,000 feet of airports using jet-powered Sources:
aircraft, the State Division of Solid Waste
determined that the Greene Tract would not be Lefler, Hugh & Paul Wager, eds. Oran-Re County
permitted to serve as a landfill site as long as the 1752-1952. The Orange Printshop, 1952.
Horace Williams Airport remains in operation. Colonial and U.S. Census Reports 1770-1920
Locally, concern exists about a new landfill being Schedule 4, Production of Agriculture in
located in Chapel Hill's future corporate limits. First District of Orange County, 1850-
Presently, the final four potential new landfill sites 1890.
under consideration by the Landfill Search Population Schedules 1770-1920
Committee do not include the Greene tract. Slave Schedules
The Town of Chapel Hill purchased the Maddry Orange County Property Deeds 1750-1920
property on the west side of N.C. 86 for the
Page 8
Northwest Small Area Plan
if
6 ,
Northwest Area - Land Uses (Acres)
Government
Landfill 107
r 214 Residential
266
- =16.%; .
Mixed Use/Office
_- Total Land Area = 1,683 acres
Undeveloped
1015
Chapel Hill North Mixed Use Development plan which recommends that the Greene tract not
be used for a future landfill.
A Master Land Use Plan for the Chapel Hill North
development has been adopted for the 40 acre Horace Williams Tract
parcel of land occupying the southeast quadrant of
the N.C. 86 / Interstate 40 interchange. This Immediately south of Homestead Road and the
Master Land Use Plan calls for a mixed use northwest study area is the University of North
development, with the primary land uses being Carolina's Horace Williams tract. This tract
office (60%) and commercial (40%). consists of 965 acres, and is in both Chapel Hill's
and Carrboro's planning jurisdiction. The rail line
The Town Council has granted a Special Use that runs through the northwest area also runs
Permit for Phase 1 of the Chapel Hill North through the Horace Williams tract. The rail line
development, and construction began in March ends at the University's Power Plant on Cameron
1994. Avenue. The University is presently conducting a
planning process for this tract.
Orange County Regional Landfill
The Horace Williams Airport is currently located
The Orange County Regional Landfill operates off in the southeast corner of the tract (north of Estes
of Eubanks Road, west of the railroad tracks. The Drive Extension), and occupies 227 acres. The
landfill occupies about 202 acres, of which University currently leases a small portion of the
approximately 60 acres is used for landfill tract to the Chapel Hill Public Works and
purposes. This existing landfill is estimated to Transportation Departments.
remain open until the year 2003.
Duke Forest
Greene Tract
The Blackwood Division of Duke Forest is
A relatively large lot in the center of the area, adjacent to the northwest corner of the study area.
known as the Greene tract, is owned jointly by The Duke Forest lands are owned by Duke
the Town of Chapel Hill, the Town of Carrboro, University, and are used for various scientific and
and Orange County. The 169-acre tract was ecological studies. A portion of the Blackwood
originally purchased as a future landfill site. The Division of Duke Forest (Site 17), is one of four
Greene tract, however, is not one of the final four sites under consideration for the new Orange
selected sites, as chosen by the Landfill Search County landfill. Duke University opposes the
Committee. The Work Group has developed a , selection of this site as a potential landfill.
Northwest Small Area Plan Page 27
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9
The Plan
Overview and areas efficiently serviced by public utilities,
services, and transit, avoiding strip development,
This report has examined the environmental and 2) small-scale professional, commercial and
conditions of the study area,established goals and service employers in low-intensity developments
objectives for the area, and identified several designed to minimize conflicts with adjacent
building blocks for various land use patterns that residential development.
could be used in the Northwest Area. Building on
these criteria, this section presents a long-range The development of an Employment Campus in
plan for the Northwest Area. this area also supports the Comprehensive Plan's
Economic Goals of promoting employment in
In formulating the plan, the Work Group also areas central to major transportation systems, with
considered three alternative plans for the area(see surrounding higher-intensity residential uses. In
Appendix). The consideration of all four of these particular, the Comprehensive Plan supports such
plans produced the final recommended plan. a mix of uses in the N.C. 86 and Interstate 40
area.
The recommended plan combines all of the
planning concept"building blocks": Protection of This Employment Campus land use represents a
Existing Neighborhoods, Affordable Housing, new category that would be primarily
Open Space, Greenways, the Village Pattern, the characterized by small-scale flex-space and office
Employment Campus, and the option of a uses appropriate to the area. In particular, the
Transportation Corridor. Campus would serve as a destination that would
attract employees for the duration of the work
The Recommended Plan day.
One of the first steps in formulating a plan was This new land use will require a new zoning
the protection of existing residential category that will promote , well-designed,
neighborhoods. In particular, the plan seeks to functional places of employment. Some
protect the Northwood neighborhood and the secondary uses that may be considered as part of
Rogers Road and Billabong Lane areas. the "employment campus" concept are service-
oriented uses, research and development uses,
Based on the fact that the northwest area contains and medical facilities.
some of the little land left in Chapel 'Hill that is In keeping with the Town's adopted
suitable for office, commercial or retail use, and
considering that the area has easy access to an Comprehensive Plan Goals, the plan reflects the
interstate interchange, an Employment Campus is Town's existing mixed use land use on the land
shown along Eubanks Road and Millhouse Road. east of N.C. 86 and north of Weaver Dairy Road.
Mixed Use zoning calls for a mix of commercial,
The Employment Campus is intended to support office, and reside.ntial in this area.
the Town's Comprehensive Plan Goal of
encouraging a local economy characterized by Based on the large amount of commercial square
varied scale and types of educational, research, footage (259,200 s.f.) that has been approved as
professional, commercial and service activities. part of the Chapel Hill North development, the
proximity of existing residential neighborhoods,
In particular, the Comprehensive Plan suggests a and in support of the Town's Entranceway
local economy including 1) office, institutional, Protection Goals, the plan reflects an Office-
and commercial employers of small to medium Institutional land use for the lots at the southeast
scale, located in conveniently accessible centers intersection of N.C. 86 and Weaver Dairy Road.
Northwest Small Area Plan Page 35
10
A Village Pattern of development is shown along A transportation corridor developed in
the rail line, south of the Northwood subdivision. coordination with the rail line could be used as a
The village pattern is primarily located on the- pedestrian/bikeway, busway, guided busway, or
Greene tract. light rail transit access to other parts of the Town
including the Northern Park and Ride Lot on
The Village Pattern consists of mostly residential Eubanks Road, the Employment Campus area
uses: single family detached houses, townhouses, along Eubanks Road, Chapel Hill High School,
and apartments. The Village has an office and Seawell Elementary School, the University's
commercial area within easy walking distance of Horace Williams tract, Downtown Chapel Hill,
the residences. Active and passive recreation and possibly the University's main campus.
areas are proposed through various dedicated
open space areas, and a network of greenways A new large Community Park (approximately 50
would preserve perennial stream corridors and acres) is shown in the northwest quadrant of the
provide access to the Town's future Northwest village pattern. The park is located in this
Community Park. quadrant based on the natural physical boundaries
of the area. This park will help meet the future
An interconnected grid street system is proposed, recreational needs of residents. The park will also
which would disperse traffic and promote a help to preserve existing neighborhoods by
pedestrian-friendly environment. The opportunity buffering them from future development. Finally,
also exists to utilize the adjacent rail line as a the park will buffer future development from the
transportation corridor. southern portion of the existing landfill.
The perennial stream corridors are shown as
potential greenways that could provide a network
LEGEND connecting the village area with surrounding
residential areas. In particular, it is recommended
that a greenway be established that would
TRANSPORTATION CORRIDOR connect the Town's Northern Community Park
VILLAGE CENTER (along N.C. 86) to the new Community Park (on
the northwest side of the village pattern). Various
open spaces in the village area would also be
O TRANSPORTATION CORRIDOR incorporated into the greenway network.
ACCESS POINTS
Elsewhere in the area, residential development is
10 DWELLING UNITS PER ACRE shown, with density generally decreasing as
6 DWELLING UNITS PER ACRE distance from the village center increases.
4 DWELLING UNITS PER ACRE Residential densities to the north and west vary
2 DWELLING UNITS PER ACRE from one to two units per acre. Residential areas
1 DWELLING UNIT PER ACRE east of the rail line and west of N.C. 86 show a
density of 4 units per acre.
EMPLOYMENT CAMPUS
MIXED USE The easternmost portion of the study area, on the
OFFICE / INSTITUTIONAL north side of Weaver Dairy Road, is shown with
a density of four to six units per acre. The land
AREAS TO BE PRESERVED between the village and the University's Horace
.. GREENE PARK Williams Property shows a density of four or six
units per acre, reflecting projected future
development on the Horace Williams tract.
Northwest Small Area Plan Page 37