HomeMy WebLinkAboutAgenda - 09-20-1995 - IX-C A
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ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 20, 1995
Action Agenda
Item I
SUBJECT: ADVERTISEMENT - OCTOBER 11, 1995 JPA PUBLIC HEARING
DEPARTMENT: PLANNING PUBLIC HEARING: YES _X—NO
ATTACHMENT(S) : INFORMATION CONTACT:
- Proposed Legal Notice Gene Bell, Ext. 2589
- Agenda Item 16 from Chapel Hill
Town Council Meeting on 9-11-95 TELEPHONE NUMBERS:
Hillsborough - 732-8181
Chapel Hill - 967-9251
Durham - 688-7331
Mebane - 227-2031
PURPOSE: To consider the legal notice for the semi-annual
JPA Public Hearing scheduled for October 11, 1995.
BACKGROUND: In 1989, the Chapel Hill Town Council adopted a
revised Comprehensive Plan. A feature of that
plan was the creation of an Urban Services
Boundary around the Town. The areas within that
boundary are proposed to be eventually developed
to urban densities. Through a series of small
area plans, the Town seeks to address the question
of how land in these areas can best be developed.
On January 25, 1993, the Town Council established
the Northwest Small Area Plan Work Group and
charged it with developing a small area plan for
the Council's consideration. On December 20,
1994, the Work Group presented a recommended plan.
This draft Northwest Small Area Plan includes the
Greene tract, a 169 acre parcel of land centrally
located in the plan area and owned jointly by
Chapel Hill, Carrboro, and Orange County.
Because a majority of the Northwest Small Area is
in the Joint Planning Area and requires joint
action for adoption, the Chapel Hill Town Council
adopted a resolution (included in attachments) at
their meeting on September 11. It requests that
Orange County and Carrboro consider the plan at a
Joint Planning Area Public Hearing on October 11.
RECOMMENDATION: The Administration recommends approval of the
Notice of JPA Public Hearing for October 11, 1995.
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NOTICE OF PUBLIC HEARING
ORANGE COUNTY BOARD OF COMMISSIONERS
CHAPEL HILL TOWN COUNCIL
CARRBORO BOARD OF ALDERMEN
A public hearing will be held at the OWASA Operations Center, 400
Jones Ferry Road, Carrboro, N.C. , on October 11, 1995 at 7:30 PM
for the purpose of giving all interested citizens an opportunity to
speak for or against the following item:
JOINT PLANNING AREA LAND USE PLAN AMENDMENT
1. JPA-1-95 Chapel Hill Northwest Small Area Plan
REVISE the Orange County-Chapel Hill-Carrboro Joint Planning
Area Land Use Plan to incorporate the Chapel Hill Northwest
Small Area Plan. The plan area is bounded generally by
Interstate 40 to the north, Weaver Dairy Road and NC 86 to the
east, Homestead Road, the UNC-owned Horace Williams tract and
Chapel Hill High School to the south, and Rogers Road and Duke
Forest to the west.
The area contains approximately 1, 680 acres, about one-third
of which lie in Chapel Hill's corporate limits. Most of the
remaining area is in the Chapel Hill Joint Planning Transition
District which is jointly planned with Orange County and
Carrboro. The County sets the zoning using Chapel Hill
categories and the Town is responsible for administration of
development ordinances in the area. Residential density for
most of the area currently averages slightly over two units
per acre. The area around the Eubanks Road/NC 86/I-40
interchange is classified for mixed-use development allowing
office and institutional uses and some low-density residential
in the northernmost part of the study area.
The recommended plan proposes a Village Pattern of development
focused on the Greene tract (a large parcel of property in the
center of the plan area owned jointly by Chapel Hill,
Carrboro, and Orange County) . The Village Pattern is
characterized by decreasing densities as distance from the
village center increases. It is intended to create a
pedestrian-friendly environment that provides easy access to
a village center that will have neighborhood stores and a
central transit stop. The opportunity also exists to develop
a transportation corridor in coordination with the rail line
that runs through the area. An Employment Campus is
proposed along Eubanks Road near the NC 86/I-40 interchange.
It would be intended to serve as a place of employment rather
than as a shopping area. Also, a new large Community Park is
proposed in the northwest corner of the Greene tract.
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Amendments to the Joint Planning Area Land Use Plan require
approval of the governing boards of Orange County, Chapel Hill, and
Carrboro.
All interested citizens are invited to attend this hearing and be
heard. Public comment will be received during the public hearing.
Following the close of the public hearing, only evidence received
in writing by the date of the Orange County Planning Board meeting
following the public hearing will be considered by the Board of
Commissioners for decision.
Changes may be made in the advertised proposals which reflect
debate, objections and discussion at the hearing.
Questions regarding the proposals may be directed to the Orange
County Planning Department located in the Planning and Agricultural
Center, 306F Revere Road, Hillsborough, North Carolina. Office
hours are from 8:00 a.m. to 5:00 p.m. , Monday through Friday. You
may also call 732-8181 (Hillsborough) , 688-7331 (Durham) or
967-9251 (Chapel Hill-Carrboro) . When prompted for an extension
number, please enter 2589.
Marvin Collins, Planning Director
PUBLISH: News of Orange Chapel Hill Herald
September 27, 1995 September 28, 1995
October 5, 1995 October 6, 1995
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AGENDA # 6
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Northwest Small Area Plan
DATE: September 11, 1995
We have attached a resolution for the Council's consideration that would:
• Invite Orange County and the Town of Carrboro to attend a work session on the Greene
Tract to be held at 5:30 p.m. on October 11, 1995; and
• Forward the Draft Northwest Small Area Plan to Orange County and the Town of
Carrboro for consideration at a Joint Planning Area Public Hearing to be held at 7:30
p.m. on October 11, 1995.
This memorandum summarizes key issues discussed at a work session on the Northwest Small
Area Plan held by the Council on August 30, 1995.
Background
On January 25, 1993, the Council initiated a small area planning process for the Northwest Area
of Chapel Hill. The Northwest Small Area Plan Work Group met monthly from May 18, 1993
until December 20, 1994. During the Work Group's planning process, the Group held three
neighborhood meetings to receive public comment on September 21, 1993, February 22, 1994,
and on October 6, 1994.
The Work Group also coordinated with the Town of Carrboro's Small Area Plan Work Group.
The Carrboro Work Group continues to plan for Canrboro's northern planning jurisdiction, an
area that is adjacent to the western border of Chapel Hill's Northwest Area. The two Small
Area Plan Work Groups held joint meetings in January and October of 1994.
On December 20, 1994, the Work Group unanimously recommended the Northwest Small Area
Plan to the Council as a proposed addition to the Town's Comprehensive Plan.
On January 23, 1995, the Council adopted a resolution that expressed appreciation to the Work
Group, called a public hearing, and referred the recommended plan to advisory boards for
review. On March 1, 1995, the Council held a public hearing on the recommended plan. On
June 26, 1995, the Council reviewed all of the comments that had been received on the
recommended Northwest Small Area Plan, and scheduled a work session on August 30, 1995.
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At the work session on August 30, the Council and representatives from the Orange County
Board of Commissioners and the Carrboro Board of Aldermen discussed several key issues
regarding the Plan. Based on the Council's discussion, we have attached a resolution for the
Council's consideration that would call a Work Session on the Greene Tract and refer the Draft
Northwest Small Area Plan to Orange County and Casboro for consideration at a Joint Planning
Area Public Hearing on October 11, 1995.
Key Issues Discussed at the Council's August 30th Work Session
At the Council's work session on August 30, 1995, the following key issues were discussed:
• Process for Discussing the Greene Tract
• Employment Campus
• Land North of the Employment Campus
• Recommended Road "D" and the Recommended Road Network
• Integration with Carrboro's Small Area Plan
• Eubanks Road Alternative
• Schedule of Future Landfill Site Selection Process
Based on the Council's dialogue at the August 30th work session, we have made revisions as
to how to proceed with the following issues: Process for Discussing the Greene Tract,
Employment Campus, Land North of the Employment Campus, and Recommended Road "D."
Based on the Council's discussion, we have revised "The Plan" section of the Draft Northwest
Small Area Plan to incorporate these changes. (Please see Attachment 1 which contains
replacement pages for pp. 35-39 of the Draft Plan.)
We discuss each of these key issues separately below.
Process for Discussing the Greene Tract
We note that three governmental jurisdictions have ownership interest in the Greene Tract
(Orange County, Carrboro and Chapel Hill). Based on the need for any discussion of this land
to include intergovernmental discussion, the Council invited both Carrboro and Orange County
to send representatives to the August 30th work session. Commissioners Bill Crowther, Alice
Gordon and Don Willhoit attended the work session for Orange County, while Alderman Jay
Bryan attended the session for the Town of Carrboro.
The Council and the representatives for Orange County and Carrboro concluded that a work
session on the Greene Tract would provide the best opportunity for the three jurisdictions to have
additional dialogue on this jointly-owned property. The attached resolution would call such a
work session at 5:30 p.m. on October 11, 1995.
Employment Campus
At the work session on August 30, the Council discussed the concept of an Employment Campus
along Eubanks Road. In particular, the Council's discussion noted the proximity of this area to
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the N.C. 86/Interstate 40 interchange and the existing landfill as criteria that support a non-
residential land use in this area. It was also noted that Chapel Hill has a real need for flex-
space, evidenced by businesses that have had to leave town to find adequate space.
Based on this discussion, we continue to include the Employment Campus concept as a part of
the Draft Northwest Area Land Use Plan.
Load North of the Employment Campus
The Council also discussed changing the land use for the area north of Old Field Creek to show
additional Employment Campus area. The Northwest Small Area Plan Work Group had
previously recommended this area for Residential Use (1 unit per acre).
Based on the Council's discussion, we have revised the Draft Conceptual Land Use Plan Map
for the Northwest Area to show additional Employment Campus area, north of the Old Field
Creek. We have attached "The Plan" section of the Draft Northwest Small Area Plan, with the
revised Conceptual Land Use Plan Map (please see Attachment 1, p. 36).
We recommend that the Council adopt the attached resolution that would make this change to
the Draft Northwest Small Area Plan.
Recommended Road "D"
At the work session on August 30, an engineering study and a planning staff report were
submitted which both indicated that the Road "D" recommended by the Northwest Small Area
Plan Work Group, could not be built in conformance with engineering standards.
Based on the Council's discussion, we have removed the Work Group's recommended alignment
of Road "D" from the Draft Plan. Accordingly, we suggest showing Road "D" as connecting
to Homestead Road in the vicinity of Merin Road. We believe that based on the conceptual
nature of a comprehensive planning document, the exact location of this road does not have to
be determined as part of this document. Rather, the exact location of Road "D" can be
addressed at such time that development applications are submitted for properties in this area.
Therefore, we have changed the alignment of Road "D" on the Draft Conceptual Land Use and
Road Network Plan to connect to Homestead Road in the vicinity of Merin Road (please see
Attachment 1, p. 38). As noted at the bottom of this map:
These lines represent potential future local and collector roads. There is no funding allocated for
these roads. As development occurs,roads would be constructed through the development review
process. Road lines represent approximate road locations. Minor adjustments will need to be
made as development and redevelopment occur.
We recommend that the Council adopt the attached resolution that would make this change to
the Draft Northwest Small Area Plan.
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Integration with Carrboro's Small Area Plan
The Council's work session included discussion with Carrboro Alderman Jay Bryan regarding
Carrboro's ongoing Small Area Planning Process. Mr. Bryan noted that Carrboro considers
Eubanks Road to be a significant future transportation corridor, and that Carrboro prefers to see
improvements made to Eubanks Road rather than to Homestead Road. It was noted that the
Chapel Hill and Carrboro Transportation Boards are planning to meet to discuss joint road issues
after JJR Consulting presents information on the University's planning process on September 21.
We believe that a Joint Planning Area Public Hearing on October 11 would provide the
opportunity for additional dialogue on this issue.
Eubanks Road Alternative
The Northwest Small Area Plan includes an alternative alignment of Eubanks Road that the
Work Group voted to not include in the recommended Plan. The Council discussed this
alignment, known as the "Eubanks Road Alternative," indicating a desire for further discussion
of this option.
We recommend that the Council discuss this concept further with Orange County and Carrboro
at a Joint Planning Area Public Hearing on October 11.
Schedule of Future landfill Site Selection Process
The Council inquired about the status of the future Landfill site selection process.
The Landfill Search Committee selected four potential landfill sites for consideration, and has
recommended one of them to the Landfill Owners Group for consideration. The recommended
location is known as Site 17, and includes property owned by Duke University. The Landfill
Owners Group has scheduled a public hearing for 7:30 p.m. on September 28, to receive
comments on the four alternative landfill sites. The Landfill Owners Group will begin
discussions on what landfill recommendation to make to Chapel Hill, Orange County and
Carrboro in October.
Conclusion
Because the majority of the Northwest Small Area is in the Joint Planning Area, and therefore
would require joint action in order to adopt a new land use plan, a key next step in the
consideration of this draft Northwest Small Area Plan is for the Council to request that the draft
Plan be scheduled for consideration at the Joint Planning Public Hearing on October 11, 1995.
Based on the joint ownership of the Greene Tract by Orange County, Carrboro and Chapel Hill,
we also believe that a key next step in the consideration of this draft Northwest Small Area Plan
is. for the Council to request a work session with Orange County and Carrboro to discuss the
Greene Tract.
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Manager's Recommendation: That the Council invite Orange County and the Town of Carrboro
to attend a Work Session on the Greene Tract to be held at 5:30 p.m. on October 11, 1995; and
that the Council forward the Draft Northwest Small Area Plan to Orange County and the Town
of Carrboro for consideration at a Joint Planning Area Public Hearing to be held at 7:30 p.m.
on October 11, 1995.
Attachment:
1) Draft Northwest Small Area Plan, "The Plan" (pp. 35-39)
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A RESOLUTION INVITING ORANGE COUNTY AND THE TOWN OF CARRBORO TO
ATTEND A WORK SESSION ON THE JOINTLY-OWNED GREENE TRACT AND ALSO
FORWARDING THE DRAFT NORTHWEST SMALL AREA PLAN TO ORANGE COUNTY
AND THE TOWN OF CARRBORO FOR CONSIDERATION AT A JOINT PLANNING AREA
PUBLIC HEARING (95-9-11/R-7)
WHEREAS, it is the Town Council's role to comprehensively plan for the Town and its future
growth areas; and
WHEREAS, in 1989, the Council adopted a Comprehensive Plan for the Town of Chapel Hill and
selected three smaller areas for further study; and
WHEREAS, on January 25, 1993, the Council established the Northwest Small Area Plan Work
Group and charged it with the role of developing a Small Area Plan for the Council's consideration;
and
WHEREAS, on December 20, 1994, the Northwest Small Area Plan Work Group recommended
a Northwest Small Area Plan for the Council's consideration; and
WHEREAS, on March 1, 1995, the Council held a public hearing on the Recommended Plan; and
WHEREAS, on June 26, 1995, the Council received comments from the public hearing as well as
written comments from advisory boards, citizens and other jurisdictions; and
WHEREAS, on August 30, 1995, the Council held a work session on the recommended North-west
Small Area Plan with representatives from Orange County and the Town of Carrboro; and
WHEREAS, the Greene Tract is jointly owned by the Town of Chapel Hill, Orange County and
the Town of Carrboro;
NOW, THEREFORE BE IT RESOLVED by the Council of the Town of Chapel Hill that the
Council amends the draft Northwest Small Area Plan's Conceptual Land Use Plan and Road
Network Plan Maps to (1) include a larger Employment Campus area north of Eubanks Road, and
(2) to realign the recommended Road "D" to intersect with Homestead Road in the general vicinity
of the existing Merin Road; and
BE IT FURTHER RESOLVED that the Council invites Orange County and the Town of Carrboro
to attend a Work Session on the Greene Tract to be held at 5:30 p.m. on October 11, 1995; and
BE IT FURTHER RESOLVED that the Council forwards the Draft Northwest Small Area Plan to
Orange County and the Town of Carrboro for consideration at a Joint Planning Area Public Hearing
to be held at 7:30 p.m. on October 11, 1995.
This the 11th day of September, 1995.
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ATTACHMENT 1
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 fad 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 Comprehensive Plan Goals, the plan reflects the
considering that the area has easy access to an Town's existing mixed use land use on the land
interstate interchange, an Employment Campus is east of N.C. 86 and north of Weaver Dairy Road.
shown along Eubanks Road and Millhouse Road. Mixed Use zoning calls for a mix of commercial,
The Employment Campus is intended to support office, and residential in this area.
the Town's Comprehensive Plan Goal of Based on the large amount of commercial square
encouraging a local economy characterized by footage (259,200 s.f.) that has been approved as
varied scale and types of educational, research,
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
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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
V� the northwest side of the village pattern). Various
open spaces in the village area would also be
OTRANSPORTATION 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
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Revised 9/11/95 14
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The Recommended Road Network Road A: This road is part of the Town's
Thoroughfare Plan, extending west from the
This report has utilized several building blocks intersection of Weaver Dairy Road and N.C. 86,
enroute to developing a recommended conceptual and then curving south to intersect with
land use plan for the Northwest Area. Building Homestead Road. A small portion of this road is
on these criteria,this section presents a long-range being built as part of the Northwood V
road network for the Northwest Area. subdivision. Depending upon the future plan for
the Horace William tract, the road could
In formulating the road network, the Work Group continue to extend southward to an intersection
reviewed modeling data for both the road network with Estes Drive and/or Airport Road.
and for transit ridership. The modeling
assumptions used for this process are listed in the Road B: This road would provide an internal road
Appendix, and the modeling data for the from the present railroad crossing of Mill House
recommended conceptual land use plan is Road, southward to intersect Eubanks Road and
included in the Projected Impacts section of this Road A. In particular, this road would move
report. traffic away from the existing Mill House/Eubanks
Road intersection that is next to the railroad
The Conceptual Road Network Plan Map crossing.
illustrates all of the local road network options
that are being recommended for the Northwest Road C: This road would provide access for the
Area and are described as follows: internal land parcels to Eubanks Road, Road A,
and N.C. 86. The option would also exists to
provide access from residents on Purefoy Road to
LEGEND Road C.
ROAD NETWORK Road D: This road would provide access for
internal land parcels to Road C ai} Homestead
111111111 TRANSPORTATION CORRIDOR Road. .
Road E: This road would provide access from
V VILLAGE CENTER internal land parcels to Weaver Dairy Road.
OTRANSPORTATION CORRIDOR Road F: This road would provide access from
ACCESS POINTS intemal land parcels to Weaver Dairy Road and
N.C. 86, and would also permit transit access to
10 DWELLING UNITS PER ACRE the Northern Community Park.
6 DWELLING UNITS PER ACRE
.- 4 DWELLING UNITS PER ACRE X&!- This letter designation indicates that
2 DWELLING UNITS PER ACRE intersection improvements are needed to maintain
1 DWELLING UNIT PER ACRE traffic efficiency is this area.The N.C. 86/Eubanks
Road/ Interstate 40 intersection will require
EMPLOYMENT CAMPUS extensive study and innovative solutions to
alleviate existing and future intersection problems.
MIXED USE Currently, this intersection is under study by the
OFFICE / INSTITUTIONAL North Carolina Department of Transportation
® AREAS TO BE PRESERVED (NCDOT).
GREENE PARK
Northwest Small Area Plan Page 39