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Home My WebLink AboutAgenda - 09-08-2014 - C13 ORANGE COUNTY BOARD OF COMMISSIONERS AND PLANNING BOARD QUARTERLY PUBLIC HEARING ACTION AGENDA ITEM ABSTRACT Meeting Date: September 8, 2014 Action Agenda Item No. C.1 SUBJECT: Comprehensive Plan and Unified Development Ordinance Text Amendments and Zoning Atlas Amendments to Establish Two New Zoning Overlay Districts in the Efland Area DEPARTMENT: Planning and Inspections PUBLIC HEARING: (Y /N) Yes ATTACHMENT(S): INFORMATION CONTACT: 1. Comprehensive Plan / Future Land Use Perdita Holtz, Planner III 919 - 245 -2578 Map and Unified Development Ordinance Craig Benedict, Director 919- 245 -2592 (UDO) Amendment Outline Form (UDO /Zoning- 2013 -09) 2. Chart Distributed at Public Information Meeting PURPOSE: To continue the public hearing until December 1, 2014 on Planning Director initiated amendments to the Comprehensive Plan, Unified Development Ordinance, and Zoning Atlas to establish two new zoning overlay districts in the Efland area. The primary purpose of the overlay districts is to provide for a more village and urban style of development in an area of the county served, or intended to be served, by public water and sewer systems. BACKGROUND: The proposed amendments were heard at the February 24, 2014 quarterly public hearing (materials available at: http:// orangecountync .gov /occlerks /140224.pdf). As a result of comments made at the hearing, staff was instructed by the Board of County Commissioners (BOCC) to hold a meeting in the community and the public hearing was adjourned to September 8, 2014. Staff held a public information meeting about the proposed zoning overlay districts on April 7, 2014 at Efland- Cheeks Elementary School. Approximately 33 people attended the meeting where staff explained the proposed amendments and provided the purpose /rationale for each proposed standard (see Attachment 2). The materials used /presented at the public information meeting are available at: httD : / /oranaecountvnc.aov /Dlannina/ includes/ Pror)osedEflandZoninciOverlavDistrict .asp. Staff encouraged meeting attendees to contact staff if they wanted to meet one -on -one with staff or in small groups to further discuss the proposed overlay districts. Community members contacted Planning staff in mid - August to set up a meeting with staff to discuss the proposed overlay districts and to request that the public hearing process be extended. Staff met with community members on August 18 at the Ruritan Club in Efland. As a result of the meeting, a regular meeting date /time has been established so that community 4 members and staff can work together on the final form of the proposed amendments. Because the process is expected to take several months, staff is recommending the public hearing be continued again to a date /time certain (as is required by State statutes /case law). Because the 2015 meeting calendar has not yet been adopted, staff is recommending that the public hearing be adjourned to the December 1, 2014 regular BOCC meeting at which time it is expected that the public hearing will be re- adjourned to a meeting in March 2015. The form in Attachment 1 contains additional information and analysis regarding these County initiated amendments, which are consistent with the adopted Efland- Mebane Small Area Plan, and has been updated to reflect the currently proposed process. Because the proposed Comprehensive Plan /UDO amendments are lengthy and are not expected to be directly discussed at the September 8 quarterly public hearing, they have not been included as an attachment to this abstract. At this time, the amendment package has not been changed (except to correct a cut - and -paste error) from the materials presented at the February 24 hearing (link to materials above). FINANCIAL IMPACT: See Section C.3 of Attachment 1. RECOMMENDATION: The Planning Director recommends the Board: 1. Open the public hearing that was adjourned at the February 24, 2014 quarterly public hearing. 2. Accept any additional public, BOCC, and Planning Board comment on the proposed amendments. 3. Adjourn the public hearing until December 1, 2014 at which time it is expected the public hearing will be further adjourned until a March 2015 meeting date. Attachment 1 COMPREHENSIVE PLAN / FUTURE LAND USE MAP AND UNIFIED DEVELOPMENT ORDINANCE (UDO) AMENDMENT OUTLINE LIDO / Zoning- 2013 -09 Two New Zoning Overlay Districts in the Efland Area A. AMENDMENT TYPE Map Amendments ❑ Land Use Element Map: From: To: ® Zoning Map: Add Two New Zoning Overlay Districts in the Efland Area From: To: ❑ Other: Text Amendments M Comprehensive Plan Text: ._.._ . - __ - - -. - - -- - -- -. _ . _.- __- -_.._. Appendix F — Land Use and Zoning Matrix: Add tick marks to potentially allow a "Special Zoning Overlay District" in all of the Transition land use classifications. ® UDO Text: ❑UDO General Text Changes ®UDO Development Standards []UDO Development Approval Processes 3ection(s): Text Amendments to: Sections 2.5.7 and 4.4 Add New Sections: 4.5, 4.6, 6.6.3 and 6.6.4. Renumber Existing Sections: 4.5, 4.6, and 6.6.3 Reference Changes in Existing Sections: 4.5.1, 6.8.12, and 7.13.2. ❑ Other: B. RATIONALE 1. Purpose /Mission To consider Comprehensive Plan, UDO, and Zoning Atlas amendments to establish two new zoning overlay districts in the Efland Area. This proposal is the staff recommended version of the text amendment considered by the BOCC at its February 5, 2013 meeting but it was not adopted. Agenda materials from the February 5, 2013 meeting can be viewed at: http:// www. orangecountync .gov /occierks /130205.pdf 1 5 0 2. Analysis As required under Section 2.8.5 of the Unified Development Ordinance, the Planning Director is required to: `cause an analysis to be made of the application and, based upon that analysis, prepare a recommendation for consideration by the Planning Board and the Board of County Commissioners'. The following information is offered: The proposed zoning overlay districts are consistent with the recommendations made in the adopted Efland- Mebane Small Area Plan (http: / /orangecountync.gov /planning/ documents /EflandPlanADOPTED06270g.pdo which called for design standards in the "core area" of Efland. The primary purpose of the overlay districts is to provide for a more village and urban style of development in an area of the county served, or intended to be served, by public.water and sewer systems. The affected area is also designated as a Commercial - Industrial Transition Activity Node ( CITAN) on the County's Future Land Use Map. It is pertinent to note that some of the zoning districts allowed in a CITAN land use classification allow residential uses "by right" (e.g., residential uses, including single family residential, are allowed in the County's commercial zoning districts). The proposed overlay districts requirements have been written so that the requirements will not pertain to existing or new single - family detached residential uses. New non - single- family residential uses (e.g., duplexes, multi - family) and new non - residential uses proposed in the overlay districts will be required to conform to the requirements of the overlay districts. Existing uses are not required to come into conformance with the new requirements as long as they continue to operate in the manner in which they are currently operating. The new requirements pertain to new development or substantially modified existing development. Because County development regulations pertain primarily to areas that are not intended to be served by public and water systems, which tends to result in larger lot sizes and lower density, some of the County's regulations are not suitable for areas intended to have denser or.,more intensive development on smaller lots. For example, some of the land use buffer requirement in Section 6.8 of the UDO would be infeasible to meet on a parcel of property that is less than 100 feet in width and has an area measurement typically referred to in square feet rather than in acres. However, in areas of the county slated for denser development than the outlying rural areas, smaller sized lots with buildings closer together is to be expected. Therefore, development regulations must be modified to reflect these physical differences while continuing to strive for quality development. The proposed overlay districts endeavor to encourage development while ensuring quality. Development will still be required to meet the impervious surface limitations contained in Section 4.2 of the UDO. Because the impervious surface limitations stem from State statutes /rules, modifications to the allowable percentages are not permitted except as allowed in Section 4.2.8. The primary reason the former proposal was not adopted was disagreement over whether sidewalks (publicly owned /maintained) and /or privately owned /maintained connecting walkways would be required in the Efland Village Overlay District. More information about this topic is available in the Amendment Form for the former project, viewable at: http:// www. orangecountync .gov /occlerks /130205.pdf. The link to the October 2011 work session materials where the BOCC discussed and gave direction on 2 A I- "the sidewalk issue" is: http:// www. orangecountync .gov /OCCLERKS /1110062.pdf and the Minutes from this work session can be found at: http: / /server3.co.orange.nc.us: 8088 /weblink8 /0 /doc /23818 /Page1.aspx. The current proposal does not include a requirement for public sidewalks or private connecting walkways. The current proposal includes requirements for private internal pedestrian circulation systems for large projects (defined in the text). 3. Comprehensive Plan Linkage (i.e. Principles, Goals and Objectives) Obiective 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. (See also Economic Development Objectives ED -2.1, ED -2.3, ED -2.10, and Water and Wastewater Objective WW -2.) Objective LU -3.7. Ensure that new development patterns in non - residential nodes encourage a clustered, walkable development pattern and discourage strip development. Objective LU -3.8: - -- - - -_ —� – - - - - -- - - - - -- Develop a process for implementing small area plan recommendations through the revision of County policies and regulations. Objective LU -3.9: Create new zoning district(s) which allow for a mixing of commercial and residential uses, a mixing of housing types, and creates a more pedestrian friendly development pattern. New districts should be applied in areas where public services exist or are planned for in the future, in areas that promote higher intensity and high density uses on the Future Land Use map. Objective H -3.6: Work within the Orange County government system to identify and resolve existing policies which may be at odds with historic preservation goals, green building approaches, and workforce and affordable housing efforts. (See also Cultural Resources Objective CR -3 and Economic Development Objective ED -4.1.) 4. New Statutes and Rules - Not applicable. C. PROCESS 1. TIMEFRAME /MILESTONES /DEADLINES a. BOCC Authorization to Proceed June 19, 2012 (last year's proposal) - - - -� 3 7 L October 15, 2013 (current proposal) —( uuarterly Nublic Hearing February 24, 2014 (current proposal) The former proposal was heard at the November 19, 2012 joint public hearing. Meeting Minutes and a summary of the questions /comments made at the November 2012 public hearing are part of the February 5, 2013 meeting materials (http://www.orangecountync..qov/occierks/130205.pd 2015 BOCC Updates /Checkpoints February 4, 2014 – approval of legal ad September 8, 2014 – re- adjourn public hearing to December 1, 2014 December 1, 2014 – re- adjourn public hearing to March 2015 d. Other _ 2. PUBLIC INVOLVEMENT PROGRAM Mission /Scope: Public Hearing process consistent with NC State Statutes and Orange County ordinance requirements. a. Planning Board Review: November 6, 2013 – special presentation on NC counties ability to provide /maintain sidewalks (agenda materials are available at: http: / /www.orangecountVnc.gov /planning/ documents /PBAg6ndallov20l3- web.pdf; minutes are available at: http: / /www.orangecountync.gov /planning /documents /11613PBMinutes.pd-O ril 2015 - recommendation b. Advisory Boards: The EMSAP Implementation Focus Group reviewed and commented on the proposed overlay districts as part of the prior process. The Group was not reconvened for the February 2014 reconsideration since significant changes to the former work was not being proposed. Depending on the outcome of the work staff will complete with community representatives, the Group may be reconvened in early 2015 if significant changes to the proposed overlay districts are proposed. 4 E c. Local Government Review: Not applicable d. Notice Requirements Notices to affected and adjacent property owners were mailed on February 7, 2014. A total of 110 letters were mailed to affected property owners and 77 postcards were mailed to adjacent property owners. Legal advertisements were run in The Herald Sun and the News of Orange on February 12 and 19. 25 notification signs were posted in strategic areas of the affected area on February 11, 2014. The signs were posted 3 days before the "deadline date" due to forecasts for snow and ice. e. Outreach: ® General Public: Because significant changes to the prior materials were not being proposed, a separate public meeting for these amendments was not proposed in the Amendment (Outline /Process Form that was approved by the BOCC on October 15, 2013. �4n "open house" style public information meeting for the prior ,proposal was held on November 14, 2012 at the Efland- Cheeks Community Center. Ten people and one BOCC member attended the meeting. �s a result of public comments at the February 24, 2014 quarterly public hearing, the BOCC instructed staff to hold a community meeting. A public information meeting was held on (April 7, 2014 at Efland- Cheeks Elementary School. /approximately 33 people attended the meeting. In mid - August 2014 members of the community requested a meeting with Planning staff. Staff met with several community members on August 18 at the Ruritan Club in Efland. ® Small Area Plan Because significant changes to the prior materials were not Workgroup: being proposed, Planning staff did not suggest additional meetings in the Amendment Outline /Process Form that was approved by the BOCC on October 15, 2013. As part of the prior proposal, the EMSAP IFG met on August 29, 2012 to review and comment on the proposed overlay districts. The group decided that additional meetings were not necessary as the proposed overlay districts were consistent with the intent of the adopted EMSAP. Depending on the outcome of the work staff will complete with lug community representatives, the Group may be reconvened in early 2015 if significant changes to the proposed overlay districts are proposed ❑ Other: 3. FISCAL IMPACT The prior project required a fairly substantial amount of Planning staff time to complete and was accomplished by existing staff. Since significant changes were not being proposed as part of the reconsideration heard at the February 24, 2014 quarterly public hearing, staff time commitments were not overly significant. The legal advertisements, notification mailings, and signs were be paid using Planning Department FY_13 -14 funds budgeted for these purposes. Staff time necessary for this proposal since the February 24, 2014 quarterly public hearing has increased as community meetings have been held and because staff will be meeting with community representatives on a monthly basis for several months. Adoption of the two new zoning overlay districts is not expected to impact County funding needs. D. AMENDMENT IMPLICATIONS Adoption of the amendments will mean that new development (other than detached single family houses) in the affected area will be subject to the requirements of the zoning overlay district. In some cases, such as required buffering, this is a lessening of existing regulations to reflect the smaller sized lots that exist in the affected area. In other instances, such as architectural requirements, the proposed regulations are slightly more restrictive than existing regulations. The regulation requirements are consistent with the recommendations contained in the adopted Efland- Mebane Small Area Plan and are being proposed in order to encourage a more urban style of development in the proposed Efland Interstate Overlay District and a more urban village style of development in the proposed Efland Village Overlay District while also promoting good planning /development practices and quality development._ E. SPECIFIC AMENDMENT LANGUAGE Amendment package presented at the February 24, 2014 quarterly public hearing is available on -line at: http:// orangecountync .gov /occierks /140224.pdf. 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