HomeMy WebLinkAboutAgenda - 03-15-1994-IX-B 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
Action Agenda
ACTION AGENDA ITEM ABSTRACT Item No. =X_5
Meeting Date: MARCH 15, 1994
SUBJECT: PROPOSED AMENDMENTS TO THE TWO ECONOMIC DEVELOPMENT DISTRICTS
--------------------------------- ----------------------------------
DEPARTMENT: COUNTY COMMISSIONERS PUBLIC HEARING YES: NO: X
--------------------------------- ----------------------------------
ATTACHMENT(S) : (1) MEMO FROM INFORMATION CONTACT: ALICE GORDON
ALICE GORDON CONCERNING ECONOMIC
DEVELOPMENT DISTRICTS DATED 2/28/94
AND A RELATED MEMO DATED 2/11/94;
(2) PROPOSED LAND USE PLAN AND ZONING
ORDINANCE TEXT AMENDMENTS FOR THE TWO
EDDs (Annotated Pages from March 1
Agenda Packet) ; (3) MEMO FROM VERLA
INSKO CONCERNING ECONOMIC DEVELOPMENT
NODES.
TELEPHONE NUMBER -
Hillsborough - 732-8181
Chapel Hill - 968-5401
Durham - 688-7331
Mebane - 227-2031
-----------------------------------------------------------------------
PURPOSE: To consider various amendments to the Land Use Plan and Zoning
Ordinance associated with the establishment and approval of two Economic
Development Districts (EDDs) .
BACKGROUND: The Orange County Board of Commissioners approved on March 1,
1994 two Economic Development Districts at I-85/Buckhorn Road and I-
85/US70. The attachments to this abstract outline several amendments for
the Board's consideration.
The amendments address two major policy questions:
1. Location of Commercial, industrial, economic development, and similar
non-residential activity nodes
Before March 1, Orange County required that major commercial activity
nodes be located in areas in or near population centers (towns or
transition areas) . These were essentially urban nodes with urban,
centralized services. For the "Locational Criteria" in the Land Use
Plan that are relevant, see "Public Services/Utilities" and
"Population Density" and also "Soil Conditions" and "Existing Land
Use". After March 1, we are allowing these more intensive land uses
in many other essentially rural parts of the county. (See Gordon's
Economic Development Districts memos dated February 28 and February
11. )
2. Board Review of Economic Development Proposals
Before March 1, the Commissioners reviewed virtually all major
projects in Orange County. After March 1, a significant number of
major developments could be reviewed by staff only. (See Gordon's
Economic Development Districts memos of February 28 and February 11.
f
2
RECOMMENDATION(S) : (1) To discuss the amendments as listed in the two
Gordon memos and in the document listing proposed Land use Plan and Zoning
Ordinance text amendments associated with the establishment of Economic
Development Districts.
(2) To refer the amendments to the Planning Board for
review with the understanding that the Planning Board's recommendation to
the Commissioners will be made in time for the amendments to be heard at
the May public hearing.
MEMORANDUM ?
J
1•
To: Board of Commissioners
From: Alice Gordon ftKG-
Subject: Recommendations - Economic Development Districts Proposal
Date: February 28, 1994
Included below is a list of recommendations for action on the proposal for
the Economic Development Districts (EDDs). Please refer to my "Points to
Ponder" memorandum of February 11 for further information.
Establishment of Nodes
Motion: That we approve the establishment of two of the three Economic
Development Districts, namely,
A. I-85/Buckhorn Road EDD B. I85/US Hwy 70 EDD,
with the specific changes to Orange County land use regulations being given
in subsequent motions.
Action on the I-8 5/Buckhorn Load EDD
and the 185/US Hwy 70 EDD
A. Problems with the EDD Proposal for Land Use Plan and Zoning
Ordinance Changes
1. Proposed standards fail to require that commercial development
a. have public utilities (such as water and sewer service)
b. be located in areas-udth that are planned for higher population
densities (transition areas and towns)
although our current regulations in both the Land Use Plan and Zoning
Ordinance do contain these provisions.
2. Proposed standards are 'fuzzy" so that a lot of judgment is involved.
B. Recommended Actions to Address These Two Problems
Motion:. That changes to the Land Use Plan and Zoning Ordinance that are
made to implement the Economic Development Districts Proposal will
include the following elements:
1. Land Use Plan
Use the type of iocationai criteria found in our current Land Use Plan.
The current criteria are clear an requ"r nodes to have both public
utilities and medium to high pop ion density.
Details of the changes will be given elsewhere.
Economic Development Districts Proposal - Gordon Page 4
s
2_ Zoning Ordinance
a. Change the proposed text so that public utilities including water and
sewer are required, as in our current regulations.
b. For major developments, prezone the two districts and use type Design
Manual for standards, but have the responsibility for approval lie with
the commissioners.
Comment: There is a major judgmental component in the fuzzy
standards. For projects with a large impact, that judgment should be
exercised by the commissioners. Minor developments could still be
approved by staff.
c. To implement this approval process for major developments that are
proposed to be permitted as uses by right:
i. Define a development as minor if
- floor area is less than 20,000 square feet .. and
- area of disturbed land is less than 40,000 square feet
Otherwise it would be a major development.
ii. Approve projects using a special use permit that would
indicate that the approval would be given if design standards
are met.
(Note: Another possibility would be to require site
plan approval by the Planning Board for major developments.)
Detain of the changes will be given elsewhere.
Other Issues
A. Monitoring of the Economic Development Districts
I am pleased that the most recent Planning Board recommendation (p.5 of
March 1 packet) includes monitoring of the EDDs and that the monitoring
will include a fiscal impact (cost-benefit) analysis as well as a check to see
whether the EDDs meet certain goals of the Strategic Plan. If the BOCC
approves major developments, this would give us an even better feeling
for how well the EDD process is working and whether changes are
necessary. I also hope that any unaddressed issues raised in Section V of
my February 11 memorandum will receive further consideration
B_ Overall Criteria for Projects in All Economic Development
Districts. In Section IV of my February 1 1 memorandum, I suggested
that certain overall criteria be used for developments in the EDDs. We
should do a more complete evaluation of this approach.
FEB-15-1994 1°::26 FROM ALICE GORDON TO 6443004 P.02
MEMORANDUM 5
To: Board of Commissioners and Manager
From: Alice Gordon PAG
Subject: Points to Ponder - Economic Development Districts (EODs)
Date: February 11, 1994
included below is a list of points to ponder while you are considering the
proposal for the Economic Development Districts.
1. Land Use Plan
According to the December 6 BOCC agenda packet, "the Board of
Commissioners asked that specific parcels be identified for pre-zoning for
economic development purposes in a manner consistent with the
Orange County Land Use Plan.-
A. Existing Modes. In the current Orange County Land Use Plan,
commercial - industrial nodes exist in the 185/Buckhorn Road area and in
the 1851US70 area. There is no existing node in the 144/0106 area (and
only a small percentage of transition area), so the ED node in this area is
not consistent with our current Land Use Plan.
B_ Criteria for Location of Activity Nodes. The "locational criteria"
for -commercial- industrial transition activity nodes" and for "commercial
transition activity nodes" differ from the locational criteria for "economic
development activity nodes (transition areas)" in systematic ways. For
example, here is a comparison using three of the criteria, namely, land
slope, public serviceslutilities, and population density.
Land Slope
Com Ind -- "Located on land with slopes of less than 15X grade
Ec Dev - "Located on land with slopes of less than 15X grade. .kihere
slopes of 151[ or greater are oresent, protection can be orovtldjed thraunh
aroQerit desi a construction �i "
Public Services/Uttlities
Cam Ind - "Located in areas ch are or could be reasonably and
effectively served by centra) zed public services and utilities."
Ec Day - "Located generilu in areas which are or could be reasonably and
effectively served by public services and facilities. When lggated in aCgas
where such services =facilities ere not orel2nt or olannyg'_gepersi,Son
canditions must be Unable for on-site sew§ge dis1208a,l jy, ems-"
FEB-15-1994 15:27 FROM ALICE GORDON TO 6433004 P.03 ,
Points to Ponder - Gordon ti
population Density
Cam Ind - "Located in areas with moderate to high population densities_"
Ec Day - "Located in areas with, or lanald for, moderate to high
population densities.
C. Comments/Questions/Recommendations
1. Why were these changes made in the existing land use plan?
It would have been helpful if such changes had been highlighted.
2. Note that the 144/01d 86 proposed node is in the Hillsborough
Cooperative Planning Zone. it is also close to the Rural Buffer, apart of
the Joint Planning Area with Chapel Hill and Carrboro.
3. it appears that no useful purpose is served by adding a new land
use plan category. We should continue to use the existing land use plan
category, "commercial-industrial transition activity node."
d. The 144/01d 06 node has more unaddressed issues than the other
two nodes.
11. Design Manuel
It appears that the Design Manual has sections where fuzzy standards are
utilized. For example, consider sections 3.1 "Architectual Design" and 3.2
"Landscape Design" (found in the version of the manual i have, which may
or may not be the latest version:
A. "Fuzzg" Standards
It is hard to know what is expected of a developer, given the way the
manual is written. For example, in section 3.1 concerning "compatibility
with neighbors" we encounter this sentence:
"Unless there are overriding concerns or poorly defined aspects,
a new building must reflect the architectural character of
surrounding buildings in the following ways:" (a list follows)
An example in section 3.2 concerning "preservation of existing features" is
found in the following sentence:
"Wherever possible, access to views are to be preserved for
adjacent property owners and passing motorists."
Also in section 3.2 is this guideline for landscaping parking areas:
"Where practical, lowering the grade of the parking lot from
existing street elevations may aid in obscuring views of
automobiles while promoting views of architectural elements
of the structures beyond."
rtb-17-1774 l:> ( r tull -vLILt r uMiA H U-+
Pointe to Ponder - Gordon 7
Throughout the manual, terms such as 'wherever possible" and "where
practo cal" make the standards fuzzy and as a result there is a lot of staff
judgment Involved in deciding whether or not the standards have been met.
B. Nixing of Objective Standards and 'Fuzzy' Standards
Objective standards (e.g. setback requirements) and fuzzy standards are
mined together in a textbook-like format_
C. Comments/questions/Recommendations
i. Who will make the judgments required to implement the design
guidelines? Will additional staff be required? Will they be trained as
architects?
2. How will the Design Manual get changed? Will the SOCC need to
approve changes? In other words, how does the Design Manual work in
relation to the Zoning Ordinance and any other land use regulations?
3. It would appear that the Design Manual should be made more
concise and more objective. The fuzzy standards should be separated from
the objective standards, so that everyone can more easily ascertain what
is required.
i 11. Costs
One important question is whether the Economic Development Districts
will be of benefit to the county financially. There are several aspects to
this question.
A. water and Sewer Service.
One important concern is who will provide the water and sewer infra-
structure for the economic development districts. What will the
provision of water and sewer cost? Who will pay for It? Of particular
note is the statement that future sower line extensions for the
UN/Suckhorn node are possible from the Efland sewer system. (See the
Analysis and Evaluation section for this node in the December b BOCC
packet) What about connecting to the system in Alamance County?
0. Transportation
As with water and sewer service, we need to know how transportation
facilities will be provided and who will pay for them. Will there be public
transportation facilities so that workers can get to their jobs without
relying exclusively on the automobile?
C. Cost/Benefit Analgsis
Even if the BOCC will not require a Cost/benefit analysis before approving
Economic Development Districts, we need to decide now what kind of
analysis will be required later.
FEB-15-1994 15:28 FROM ALICE GORDON TO 6443004 P.05
Points to Ponder -- Gordon
D. Comment s/Questions/RecommendetIons
1. Who will provide water and sewer service and at what cost?
2. Who will provide transportation facilities and at whet cost?
3. What elements does the 006C wish to have included in the
cost/benefit analysis?
111. Criteria for Projects in A�1 Economic Development Districts
The goals of the Strategic Plan include the "creation of diversified and
environmentally safe businesses ...to provide jabs for county residents and
to increase the non-residential taxi base..." Of course the creation of
economic development districts cannot accomplish all the goals of the
Strategic Plan, but the districts can be more directly targeted to achieve
the goals if overall cri teria for developments were added to specific uses
allowed in the economic development districts.
The following are the overall critetia suggested for developments in
Economic Development Districts:
I_ low water usage
2. little or no production of hazardous waste or pollutants
3. little or no heavy truck triffic, low noise levels
Staff has already done some work do the low water usage criterion, but
the BOCC needs to consider the following questions:
1. Should developments which violate the criteria be allowed, even
with a special use permit?
2. How would each criterion be defined?
3. Should there be other critiria, such as an assurance that the jobs
would be for county residents or a certain level of wages would be paid?
V. Pilot Projects
Since the approval of Economic Development Districts has an unknown
outcome, should some kind of pilot project approach be utilized?
Here are some questions to consider:
1. Should the uses in each district be further differentiated and
some comparisons in outcome made later?
2. Should there be a period during which the BOCC has some role in
the approval of major development projects?
3. Would it be prudent to allow additional uses to be permitted
through a planned development process?
4. There is other information described on these pages which could
be gathered. The general question is what aspects of the EDDs does the
SOCC wish to monitor. Would a two or three year period be appropriate?
TOTAL P.05
ANNOTATED PAGES FROM THE MARCH 1, 1"4 BOARD OF CO1 nssIONERS AGENDA PACKET.
PAGES T THROUGH 16 FOLwwED BY PAGE 5
9
(CA"I eS 1 n A'2P PROPOSED LAND USE PLAN TEXT AMENDMENTS ASSOCIATED WITH
ESTABLISHMENT
h0 7"eS) OF ECONOMIC DEVELOPMENT DISTRICTS
I. Amend Section 3.3 -Land Use Plan Categories by changing the table of basic and detailed land
use categories to read as follows:
BASIC CATEGORY ORANGE COUNTY LAND USE PLAN CATEGORIES
DEVELOPED Urban
Existing Urban Activity Node
Proposed Urban Activity Node
TRANSITION 10-Year Transition
20-Year Transition
Commercial Transition Activity Node
Commercial-Industrial Transition
Activity Node
F"nomic Development('IIrtmsidon)
Activity Node
COMMUNITY Rural Community Activity Node
RURAL Rural Buffer
Rural Residential
Agricultural-Residential
Rural Neighborhood Activity Node
Rural Industrial Activity Node
Agricultural Areas
CONSERVATION Public Interest Area
Water Supply Watershed
Water Quality Critical Area
Resource Protection Area
New Hope Creek Corridor Open Space
In addition, amend the table of Land Use Plan Category Descriptions to include a new category
entitled"Economic Development Activity Node"to read as follows:
ECON0I[ICDRV&L0PMENTACI7W YNODE:Land in Transition areas of the County which has
been specifically targeted for economic development activity consisting of light industrial,distribution,
office, service/retail uses, and flex space (Typically one-story buildings designed, constructed, and
marketed as suitable for use as offices but able to accommodate other uses;e.g.,warehouse,showroom,
manufacturing assembly or similar operations.). Such areas are located adjacent to interstate and
mgjor arterial highways, and subject to special design criteria and performance standards.
Amend Section 3.4 - Locational Criteria by adding criteria by which to evaluate the location of
CNG Economic Development Activity Nodes [Transition].
PLAN CATEGORY ECONOMIC DEVRELOPMENT ACTIVPIYNODES
[TRANSITION AREAS]
�se. Land Sloes- ate �' a�s o s th �'o r 15 rare
Cam. _ present,prate ' n h site n on ti s.
10
O K W)7-,# 'Located outside of areas where 100-year flood prone areas and wetlands are present here
CAAAla s.
F • Locat in areas here detri tal devel ent im on I State
blSe feder kno d uniq ndan ere pecies, tldli hats orrid an be
//�� rte rou p r si a ' nand struction 'ces.
C�O/1tA(�CvC i•`
43ba ry ' ' ated ' wh n al sot itio uit r dMelop'Itent bee
of ainage acteristic d load-bear Scapa or devreent.
/ tilt ' ated a ly in hick could asonab d effectiu y
yG seru publi ices an tlities. orated t as w �e h s sand il' ' s are
n present or an d, g er it co :ti must s 'table -site w e dis stems.
Transoortaiion System: Located in areas adjacent to interstate and major arterial highways,
OI K,particularly those with the potential for providing access to public transit facilities.
Enerry Use:Located within 10 minutes commuting time from an Urban area and designed so that
business uses provided within developments limit the number of short distance commutes for goods
and services.
�� in esign e n -
(i�s� a �ZatedaW� m areas re develop ould have etrimen
impact productive ral use s d anage re and, or ere the sting
land c ter can tamed th r site a ' nand cons on pr tires.
/' •1, to areas 'ties.
JU«
�OpG ! H •Locate as where ental deuel ment impac n local, St
fede4<a nowle h' ric, c al or arch olo site or my-d g ublic
s does n or can be m' d through site des' d cons practices.
Amend Section 3.5 - Land Use Goals and Draft Policies, Goal Six, to include the following:
CAA86�6 611 The following Economic Development (Transition) Activity Nodes have been designated:
,Qel -3);I-85IBuckhorn (CK-5); and I-85/US 70 (ENO-2).
And revise the following (wording to be deleted shown in stye-tkreu; new wording shown in
011AA1cr£. /F boldface):
/M4,5 SSA Ry 67 The following areas in the County are identified as appropriate for industrial uses and have
TD been designated as Commercial-Industrial Nodes.Efland Center(CK-1);Miles North (CK-2);
.Z j e-04)00" Miles South (CK-3); Bee W" and Harmon Young (BB-4).
80l'E,
6.9 The following Rural Neighborhood Activity Nodes have been designated.Toler's Store(CG-3);
Villine's Store (LR-3); Walnut Grove (CG-5); Underwood's Store (LR-3); Fairfield (CK-4);
Coleman Loop(HB-1);Law's Store (ENO-1);Adam and Eve(BH-1); Oak Grove(BH-3); and
Calvander W-WT 6) and Blackwood Station W as part of the Orange County-Chapel
Carr6w�u
Joint Planning Area Land Use Plan.
I
10A
Par[' of C 0 r1 T%e(tc t&L Tf- ! ,.n ti,J frn v tTy 900c;
liar ,._�• Located away troy ices -that would, if
developed, create a threat to un or endangered
identittisd by the state or federal mot. dies a®
Soil �suedi Located in areas .
are suitable for. urban uses because �of good-general soil conditions
characteristics and load bearing ca;�ac_jt or sits. develop%ent.
Pubjjg_AMiQ"/m-'1i i". Lacatsd inn areas which are or could be
reasably and effectively served byi .centralised
and utilities. public services
t
W
Mudiktion Focused on .thy intersection of .arterial
and/or collector highways and extond nq .S.miles beyand such
intersections or within one ails- at '" interstate interchange.
$98Q— UM. Located within less than to minute comutinq tine
td fkm an Urban Area.
NXIOUBB Laud a'sa. Located within i tified Ton or Tventy Year
o Transition areas. - -
Located away from areas where
devslopseant would have a detrimental impact an productive
agricultural uses and managed- forest land.
IV, . Located in areas with aodsrate to high
u
population densities.
ffia+wic and Located away asi areas- whore development
would have a dotrimsntal impact on stato or federally
acknowl.sdged historic-cultural sites or county identified Public
-Interest. Are".
Acf�mi 9640e.0 any
M4* ACTZVM
fLand sip. Located on- land with slqmW of less than 155 grads.
Located outside of 10 flood prove areas "I
U E dtntit: by the goers of-Saginsess.
Al amd Located away from sites that would, if
develape�d, create a threat to unique or -ndangsred species as
identified by the state or federal gwez d .
V/22,2.//Soi?. Gowt4a . Located in areas where general soil editions
are suitable for urban uses because of good drainage
characteristics and load boating capacity for site development.
Abiblic IfiLCYARAWUtiliUSa. Located in areas which are or Could bd
reasonably and effectively served by centralised public services
and utilities.
( t Itatian • Focused on the ion of arterial
D
and/Or Collector highways and ercGaeediZtg .5 silos bay o�ed such
ions or within oes ails'of are intesstate intst�change and
thin 1000 feat of rail lines.
108
t $nerqy Uga. Located within 1084 than a 10 ainuts c==Qti t
D from an Urban area.
OI&i&t4= Located within identified Ten -or T linty-yam
Transition Iftman.
�+ki:1 !_ ,.IQ -al. Located away fros areas where
devsl- would have a datrinental iagnct on productive
es
agricultural us and aariag0d forest land.
ViAmlation en v,. Located in areas with moderate to high
gopalation densities.
i41&t aric and cait»M�• Located away from areas. where development
would have a detrimental impact on state or federally
acknowledged historic-cultural sites or County identified public
Interest Areas.
RGML v
Land .- Located on land with slopes of 1080 than 15% grade.
ffAralgim. Located outside of 100-year flood prone areas as
Corps of 8a9inaars.
tiara and Fauna. Located away front►► sites that would, if
dovslop0d, are-to a tit to unique or endangered species as
ide>tified by the *tats or federal government.
mil cOnditiame located in areas where general sail conditions
are suitable for on-site swrMp disposat'.systess.
Located in areas that will not require
urban-type services.
Focused on the intersection of arterial
and/or eolleetow higbm"s and. exteaftug .5 miles beyond such an -.
intersectLon.
Sao= Visa. xo evatnatioet.
.and On. Location cdtavact80ised by across-road that
serves as a fooa2 area for the su mmbding rural and fare
PoPulatJ-M sac contains three or nova caomarcial or institutional
land:-anus.
. Located at sites within rural areas
that would not uoraasonably intrude upon the existing landscape
character.
. Located in areas which would serve the
smcroeuediag law-density neural and agricultural population,
generally 1000-3000 persons.
gistcria and CMl W& . Located away fry arenas where development
would have a ditilm0ntal impact on state or federally
acknawl0 t 4- histMic-cultural sites or County identified Public
Interest areas.
U 11
4. Amend Section 3.8- Cheeks Township Plan by increasing the number of activity nodes from four to
five and adding a description of the new activity node, CK-5, to read as follows:
REFERENCE: CK-5(I-85/Buckhorn)
LOCATION:I-85 and 1-40, Buckhorn Road(SR 1114), and U.S. 70
PLAN CATEGORY Economic Development(Transition)Actiuity Node
ANALYSISAND EVALUATION.•This node is located at the intersection of an interstate highway and
collector road.Access is also available from a major arterial road.Mcljor non-residential land uses
in the area include Hancor Products and the Orange Alamance Water System office and water tank.
Scattered residential development is also present,particularly along Buckhorn Road and just south
of the Southern Railroad. The tract includes the Southern Railroad and is crossed by a gas pipeline
as well as a Duke Power Transmission line.
The area is on the western edge of the Upper Eno River watershed and contains gently rolling
topography. Intermittent streams which cross the property flow south to join Sevenmile Creek. Soils
not suitable for development are found along the streams.
The area is presently served by a central water system (Orange Alamance), and future sewer line
extensions are possible from the Efland sewer system. Since the area is located in a water supply
watershed, new development will have the option of limiting the amount of impervious surface
(buildings,parking, etc.)or installing wyt detention basins for stormwater control.New development
must also comply with performance standards established specifically for Economic Development
Activity Nodes.
Access to the site is best provided by-way-of a service road extending from Buckhorn Road to Redman
Road (SR 1311). The western portion of the area nearest to Buckhorn Road is best suited for
service/retail land uses, while the remainder is appropriate for a mix of light industrial, distribution,
flex space, and office uses.
5. end Section 3.9-Hillsborough To lan by increasing the number of activi nodes from four
to ive and adding a description of the ew vity node, HM-5, to read as follo
RE C *HB-5 a-40 101d N.C. 6)
ON:1-40 101d N.C. 86(So h Chum in treet Extension)
PLAN RY:Economic velopment(Tr sition)Activity Node
ANAL AND EVALUATI N:This node is loc d at the intersection an interstate ighev and
a minor rial road whi serves as a mc41or ntranceway to Hill rough. The ode rids
southwest fro the South Railroad and includ the Interstate-401 Id 86 interchan e.
In the area alo Old 6 and 1-40, there are some oderate to s p slopes and soils w ch may
restrict but not p hi it development. Most of the includes sl s over 7.5 percent. 1 pes over
15 percent are ge rally found along drainageways. Soils uns table for developmen fairly
common through he southwestern portion of the a. Some oil categories are res ted due to
slope, while oth s p sent limitations due to wetness o low s ngth.
Cates Creek d its tri taxies flow through the site so h est to northeast. The fl p n along
Cates Cree could serve separate uses but should not be considerable restriction o dev lopment.
A ,;igni ant area of botto land forest has also been id fled in proximity to C s C kin the
Inven ry of the Natural Are and Wildlife Habitats of an a County(Site E07). ther si nifieant
cult al resource to be recogni d and protected during evelo ent is the remains the"Ne Chapel
H' Road", as shown on a su by.George Tate in 891. Th a areas should be preserve as open
s ace or buffer areas through proper site design and construction practices.
12
th the exception of a to -density subdiuision, ecoach Run, ac ed from N.C.86, there w d
be significant disrup n of areas with a re de tial character. d oval development h been
pl ed,however,to id verse impacts on eigh ring residen al co unities.Moderate ensity
resi tial and low ntensi office develop ent h been loc and/or atural vegetati a buffers
retain to "scree existing eighborhoo from mo intensiu uses. Beca a the 1-401 d N.C. 86
interch ge se s as a majo access poi to Hillsbo ugh, t retention of u etatiue uffers along
Old N.C. 6 c d also prese a the ch acter of that a tran way.
Without i vement, the abili of Id N.C. 86 to h le additional traffic ay hinder some
develop nt. urthermore, the 'al for vehicular ac s to Old N.C. 86 is m d from within
the si Neuert Bless, the existence nearby public Ovate sewer services, dire access to the
in ate syste makes the no esirable for ne deu opment, inclu ng light 'ndustrial,
di 'bution,flex ace, office, an se 'ce/retail uses. he exis nce of the in rstate syste and rail
ruice also adds to the potenti of the de as part f a region transit system.
6. Amend Section 3.10 -Eno Township Plan by revising the description of activity node ENO-2 to read
C A(A-NW as follows:
/F REFERENCE.ENO-2 (Eno) (I-861U.S. 70)
/l/FCs--SS X y LOCATION.-1-85 and U.S. 70
PLAN CATEGORY
7'L Economic Development(Transition)Activity Node
IN
UF_ ANALYSISAND EVALUATION.This node is located at the intersection of an interstate highway and
��p
a major arterial road, and includes a two-mile stretch along U.S. Highway 70. The area is also
serviced by a spur of the Southern Railroad.
The entire area is located in the Lower Eno River watershed, with Rhodes Creek and other tributaries
flowing north through the area toward the Eno River. Floodplains on Rhodes Creek could be a
somewhat restrictive for development. Soils unsuitable for development are located primarily along
the streams.
Slopes between 7.5 and 15 percent are scattered throughout the area,however, the majority of the area
slopes are less than 7.5 percent. Slopes over 15 percent are concentrated along the drainageways.
Existing land uses range from adjacent mobile home parks to a variety of service and commercial
uses. Therefore, appropriate infill development is projected for this area. New commercial and
industrial uses should be generally confined to the areas south of U.S. 70 and 1-85 in order to reduce
negative impacts on the Eno River State Park. Access along U.S. 70 may be difficult in areas of
moderate or steep slopes,however,the widening of 1-85 and the associated redesign of the interchange
will provide greater access to adjoining properties. Moderate-density residential and low intensity
office development has been located and/or natural vegetative buffers retained to "screen" existing
neighborhoods from more intensive uses.
7. Amend Section 3.12 - Chapel Hill Township Plan by revising the last paragraph in the subsection,
Distribution of Land Use Plan Categories, to read as follows:
There are no activity nodes in Chapel Hill Township north of the JPA An 4Ue
Economic Development(Transition)Activity Nodes, epte in See Tewflehip 6&49 ig,
and ene in Hillsborough Township (HB-5), however, extends as fW seat-es slightly beyond the
Chapel Hill Township line.
of the-ate. The node in Hillsborough Township crosses the Duke Power transmission line north of
Davis Road and is adjacent to 1-40 east of Old N.C. 86 in the northwestern corner of Chapel Hill
Township.
�3
8. Amend Section 4.1 - Overview of Implementation Strategies by adding an "Economic Development
Activity Node" row to the "Land Use Element Categories-Zoning District Matrix". The subsection,
"Zoning Ordinance", would also be amended (as follows) to add a description of the "Economic
Development Activity Node" category.
ECONOMICDEVELOPMENTACTIVPIYNODE:Identifies areas in Transition areas of the County
which have been specifically targeted for economic development activity consisting of light industrial,
dis,l ibution,flex space,office,and service/retail uses.Such areas are located adjacent to interstate and
mq,'or arterial highways, and subject to special design criteria and performance standards. The
applied zoning district is ED (Economic Development).
The subsection,"Economic Development Plan",is also proposed for revision and would read as follows
(wording to be deleted shown in strike-feu; new wording shown in boldface):
Economic Development Plvn
The physical land use planning activity cannot be separated from economic considerations. In
determining the appropriate pattern of land use for the County an assumption is implicitly made
regarding the type of growth favored and the response of the economy to such growth. Conscious
efforts to broaden and diversify the economic base of the area and promote certain forms of economic
development should complement physical planning considerations affecting land use patterns,
particularly as they impact on the maximization of opportunities for County residents for housing and
work, and the protection of the environment. -4-pa e2epe-pae.mie development plan and related pekeies
The Orange County Industrial Facilities and Pollution Control
Authority was created by the Board of County Commissioners on October 23, 1978, and formally
organized on March 5, 1979, is the bedyprimarily Feepeneibk fop these sesivisies to work toward the
establishment and expansion of manufacturing companies within Orange County. Creation of this
Authority made it possible for manufacturing companies to be eligible for Industrial Revenue Bonds.
In December 1982,the Orange County Economic Development Commission(EDC)was established and
charged with carrying out an economic development program for all portions of the County and its
constituent municipalities. The EDC's purpose is to increase economic development through clear,
effective strategies and policies which stimulate balanced development at appropriate rates in suitable
locations.
One of the mcljor accomplishments of the EDC has been the preparation of a Strategic Plan for
Orange County's Economic Development. The Plan was adopted on March 8, 1989,including a goal
to:
"...insure the desired quality of life...by encouraging economic development through investment in
human resources, the expansion of existing businesses, and the creation of diversified and
environmentally safe businesses...to provide jobs for county residents and to increase the
non-residential tax base...%
As one means of implementing the Plan, a resolution was adopted in October, 1990 by the Planning
Board and the Economic Development Commission establishing procedures to address comprehensive
planning and economic development matters of mutual interest.
I I I I I • 1 1 1 1 1 1 ''�'
� � � � � I I • I I � I i l l
� •�� = 1 i i �� I I
.� � � � I I N � 1 • I I I •
v
�+ G
�r Rti C OC ••
CLD
• Y OL ` •
vI N I
L
ct,
J
... cc c
oo
tJ
C <
�
15
PROPOSED ZONING ORDINANCE TEXT AMENDMENTS ASSOCIATED WITH
ESTABLISHMENT OF ECONOMIC DEVELOPMENT DISTRICTS
1. Amend Article 4.2.19 - District Statements of Intent and Application Criteria [Economic Development (ED)
District] by revising it to read as follows (wording to be deleted shown in ; new wording shown
�a4 in boldface):
G
Economic Development(ED)District
a. Intent
p,K
The purpose of the Economic Development (ED)District is to provide locations for a wide range of
leap-intmoisy light industrial, iiessisusieae , distribution,flex space, office, and research servicelretail
uses . Flex space typically includes
one-story buildings designed, constructed, and marketed as suitable for use as ojf•ices but able to
a�ecommodate other uses,e.g.,warehouse,showroom,manufacturing,assembly or similar operations.
Such areas have been targeted for economic development and are located
adjacent to interstate and mgjar arterial highways. They are subject to special design criteria and
performance standards used to minimize impacts beyond the space occupied by the use.
b. Application Criteria
(SAN This district will usually be applied where the following conditions exist•
1. ,Site The district is located adjacent to a Federal Interstate Highway, with direes seeese to
or a mgjor arterial road and upithapa- _1_5 Mike of an
2. The site district is located outside of the Chapel Hill - Carrboro Rural Buffer area as
designated in the adopted Comprehensive Plan.
3. AM uses The Bite district shall not be located within a the critical area of a designated water
supply watershed.
'LA�j( i Urban services, such as water and sewer mains, are desirable, but not required if acceptable
Galternatives are available.
buiJANO(e).
2. Amend Article 4.3-Table of Permitted Uses by deleting the list of permitted uses and providing the following
D.K, notation in the ED row:
Refer to Article 629-Development Standards for Economic Development(ED)Districts.
3. Amend Article 5.1.2 - Establishment of Dimensional Requirements (Schedule for Non-Residential
0. Development) by deleting the existing standards and providing the following notation in the ED row:
Refer to Article 629-Deelopment Standards for Economic Development(ED)Districts.
CAmend Article 6 by adding a new Article 6.29 - Development Standards for Economic Development (ED)
Districts to read as follows:
6.29 Development Standards for Economic Development(ED)Districts
6.291 Purim
(goal Six of the Land Use Element of the Comprehensive Plan is the promotion of economic
development which emphasizes local employment needs while preserving the character of
communities and protecting the natural environment. To that end, these provisions are
established to create review procedures and appropriate design standards for application
within portions of the county tageted for economic development activities; e.g., Economic
Dmelgmwd Districts.
6292
Design Review Process
before any new sit+e'development may be undertaken in an Economic Development District,
a site plan must be approved and a zoning conphance permit issued in accordance with the
G ) provisions of Article 14 Site Plan Approval Procedures) of this Ordinance. Prior to
P� submission of an application for site plan appal, applicants will be required to meet with
/ representatives of the Planning and Inspections, and Economic Development Dtoa tments to
identify policies,procedures, regulations, and fees applicable to development proposals.
Plans for development proposals in an Economic Development District will be reviewed by the
l� Planning and Inspections Department staff for compliance with the standards ds contained in
Y the following section.Such review will also be carried out in accordance with the provisions
Gp,NnK�SS/OsrGl�s of Article 14.3(Site Plan Review)of this ordinance.
In addition to the submittal requirements contained in Article 1422, a complete application
Apr shall also include.
lylQ,Jor
/ 1. Building elevation drawings for each proposed structu v;and
�QUP!0�7w�,
R A minimum of two(2)drawings of sections through the site illustrating casting and
proposed grades, as well as the relationship of difibrnt site featuses.
Failure to meet the criteria for site plan approval listed in Article 14.3, to address agency
comments solicited during the plan review process,and/or to adhere to the design standards
applicable within Fkanarnic Dlevelo msent Dishicts will result in denial of a development
application. In such cases, the development plans will be returned to the applicant with a
written explanation of the reasons for denial and the changes required for the application to
be approved
An applicant shall have the option of revising the development plans to comply with the site
plan and design criteria As an alternative, the applicant may also submit the plans for the
review and approval of the Planning Board and Board of County Commissioners in
accordance with the p��'ors of Article 7 lavnned,��lopment Districts.
0.*Oe tri�eve a/�►,.►e s,�,s �Gsve NSf��c�
629.3 Standards �Qev se. qigoe. ct��ro /'eslexSib�
AA
ec�t�/'ta•� The dedgn standards applicable within Economic Development Districts are shown an the
fallowing pages and are divided into two categories,
GA---f e5) Desi" 9--idshmes Performance Standards and Design Criteria. Losd Um The
Performance Standards establish'land use intensity ratios'ep the duw dimensiwW op ag
uN�Q'h or radios ouii)rnade construction to natural
featum as well as standards to eliminate or mitigate nrusavnces and undesirable impacts on
4,c i� 17
the endrmunent; both natural The Design Criteri a -to the
establish standards for landscape aMrarchitectural features,parking and circulation,service
and storarse, and signs and lighting i.e., how the use'fits'the site and how it relates to the
surrounding area.
(The wording highlighted in "strike t1wetq#" format has been revised to reflect the revised
organization and content of the Design Manual.)
6).�-5. Amend Article 7 by revising Article 7.2.1 to include the PD-ED Planned Development-Economic Development
District as a permitted Planned Development District as follows:
7.2.1 Establishment of the Planned Development Districts
Planned Development districts that correspond to the following districts authorized in Article
4 are hereby created.
R-13 - PD-H-R-13
R-8 - PD-H-R-8
R-5 - PD-H-R-5
R-4 - PD-H-R-4
R-2 - PD-H-R-2
R-1 - PD-H-R-1
RB - PD-H-RB
LC-1 - PD-C -LC-1
NC-2 - PD-C-NC-2
CC-3 - PD-C- CC-3
GC-4 - PD-C - GC-4
0I-1 - PD - 0I-1
I-1 - PD -I-1
I-2 - PD -I-2
I-3 - PD -I-3
ED - PD-ED
Pt-I- PD -PW-I
PD -MU
PD -R
PD -MHP
OAmend Article 7 by adding a new Article 7.21-PD-ED Planned Development-Economic Development District
to read as follows: �f
7x.21 PD-ED PLANNED DEVELOP�NT-ECONOMIC DEVELOPMENT DISTRICT
CA o«r�G / t The f+ Umdng regulations and mquiranents apply to PD-ED Planned Development-Economic
Necessa- Development Dom.
f� p�721.1 PD-ED District Definition and Intent
ove PD-ED districts may be established in accordance with the general procedures and
1"e!l�S�oxS requirements set forth in Articles 71 through 7.9 and with the intensities and in locations in
accordance with the Cann rehensive Plan and the Zoning Ordinance and Atlas.
The purpose of this district is to provide for properly located and planned non-residential
development consistent with Orange County's Strategic Plan for Economic Development.
Specifically, this district is intended to provide an oppa lunity for development plans,
submitted under the pnouisions of Article 6.29[Development Standards for Ecanomic
/ Development(ED)Districts]of this ordinance,to be considered for approval when such plans
do not
/ 1. Meet the criteria for site plan approval listed in Article 14.3;
/1�cessa-�y
/ 2. Address agency comments solicited during the site plan review process; and/or
//IGO/ro/'•v><e 3. Adhere to the design standards applicable within Economic Development Districts as
/�eU/5%OfLS set forth in Article 829 of this ordinance;
and which propose a design solution which is equal to or better than could be obtained
through the application of the criteria and standards contained in the Design Manual.
(The last sentence beginning"and which..." was added following discussions with the County
Attorney to clarify that failure to adhere to criteria and standards, and/or address agency
comments is not sufficient grounds alone for application acceptance and consideration.)
In such cases, application for and approval of a Planned Development District shall be
governed by the general and specific standards and procedures for the issuance of a Planned
Development Permit as set forth in this Article.
6. Amend Article 22 - Definitions by adding a definition of"Economic Development Activity Node" to read as
follows:
Economic Development Acdvitr Nook - Land in Trwznhm areas of the County which has been
specifically targeted for economic development activity consisting of light industrial,
distribution, fleas space, off ice, and service/retail uses. Such areas are located adjacent to
interstate and major arterial highways,and subject to special design criteria and performance
standards. Flex space typically includes ane-story buildings designed, constructed, and
mar*eted as suitable for use as offices but able to accommodate other uses;e.g., wamhouw,
shO9Ur own6 manufacturing assembly or similar operations.
Qu � .
Sye C �er,�ri7 c1 ,� .• �.
7iiL ��,�5 �T �+e�-s� .17 C erg A-41
s es
9 �9
3. That residential uses be eliminated from the list of permitted uses
allowed in Secondary Development Areas in the I-40 101d N.C. 86
Economic Development District.
That Section 2.4, subsection entitled"Water Supply&Sewage Disposal",
/ be revised to include a statement encouraFine the installation of"dry"
C, T6 sewer lines, at the time of site development, where septic systems are
usedCYork with utility providers to establish incentives for installation
of such lines, including a waiver of tap-on fees
That Section 2.1, subsection entitled "Schematic Plans", be revised to
include a statement that property owners and/or developers,particularly
L those with large tracts of land, are encouraged to prepare plans which
reflect market forces while providing a coordinated"theme"or"blend"of
hec6155 compatible uses. In addition, encourage the Economic Development
?Commission to continue its efforts to involvelcommunicate with all
landowners in accomplishing the same goal.
6. That the Economic Development Districts be monitored for at least 2-3
years as suggested by the Commissioners to identify the following
impacts.
�0
e S ' D a. What will be the fiscal impact; i.e., impact on the County's
operating budget and tax base,of non-residential developmee t in
the Economjc Development Distri ? U5 U eew5'1 re;"
b. What additional residential growth will eggenerated as a result
of the Economic Development Districts?
(1) How many of the employees working at businesses in the
Economic Development Districts live in Orange County?
(2) How many of the jobs will be filled by new vs. existing
residents?
(3) What will be the fiscal impact of new residential growth
attributable to the Economic Development Districts?
C. What wages will be paid/are being paid by businesses which
locate in the Economic Development Districts?
The Planning Board recognized that confidentiality and/or legal
limitations may limit the availability of some data.
7 That all references to"special use"approval be clarified to mean approval
/' ,/��/? of a special use permit through the planned development process.
W!7 j The vote of the Planning Board was unanimous (11-0). Copies of the draft
Planning Board minutes are attached which detail the discussion of the
Planning Board on all issues referred to them by the Board of
Commissioners.
MEMORANDUM
TO: BOCC
FROM: Verla Insko N
SUBJECT: Economic Development Districts
DATE: March 7, 1994
Here is my thinking on the questions Alice raised at the 3/1/94 meeting.
1. Re: Locational Criteria
The BOCC made a major policy change on Tuesday night. The old policy
stated that the Commissioners would locate industrial and commercial
development near existing population centers. The new policy states that
the Commissioners are willing to locate industrial and commercial
development just about anywhere in the county -- in EUDs.
The question Alice asked us to discuss is: Do we want to make this kind of
sweeping change? If so, why? I don't fully understand the implications of
this change nor can I justify it to my own satisfaction
I got stuck on Tuesday because the I-40/01d 86 node doesn't conform to the
old locational criteria, and I kept confusing the two questions. But, I missed
the point. We should not create a broad policy to fit one exception(or one
Intersection). We should deal with the big policy question first -- where
should industrial development be located? If we like the old locational
criteria for the general policy and we still want a node at I-40, then we decide
how to make both tbfts work. Maybe we create a rural EDD that is
distinctly different from an urban EDD.
Anyway, this question deserves a full discussion.
2. Re: A BOCC review process for large projects?
I support having the Commissioners, planning board or someone other
than staff review and give the final approval for the larger projects -- at
least for the time being. I like the idea of an abbreviated review based on
some nuw er of acres of disturbed land, but I don't have a strong opinion
on how big the protect should be before the review process kicks in. The .
question for me on this issue is, who is accountable for possible mistakes?
cc: John Lick, Ted Abernathy, Marvin Collins