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HomeMy WebLinkAboutAgenda - 02-19-2015 - E3107 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: February 19, 2015 Action Agenda Item No. E.3 SUBJECT: "The Edge" Proposed Development Project in the Town of Chapel Hill's Planning Jurisdiction DEPARTMENT: Planning and Inspections PUBLIC HEARING: (Y /N) No ATTACHMENT(S): 1. Area Map 2. Block Plan and Conceptual Site Plans 3. Key Discussion Topics 4. Transportation Notes INFORMATION CONTACT: Craig Benedict, Director 919 - 245 -2592 PURPOSE: To receive a planning based report on a proposed development project known as "The Edge" located in the Town of Chapel Hill's planning jurisdiction on Eubanks Road at Interstate 40. BACKGROUND: The review of this project was based in the Joint Planning Area planning courtesy review process area. Although economic development and finance are familiar with the proposal, their direct involvement was not requested at this stage. The Town of Chapel Hill has received a Special Use Permit (SUP) application for a proposed development project known as "The Edge" located on 53.75 acres on Eubanks Road at the Interstate 40 off ramp. Portions of the project were located in Chapel Hill's JPA Transition Area but is now part ETJ and part Town limits. The land use map is noted as "Mixed Use - Office Emphasis" in this area. County planning staff has determined the proposed project is generally consistent with this land use classification if the project is predominantly non - residential. The prior JPA land use text did not have percentages of the mix but described this as an "Office /Institutional Area ". The application materials state that current market demands in this suburban location limit the ability to bring the project to fruition if office is to be the predominant use. The zoning code and Special Use Permit process employed for this project offers a great deal of project mix (i.e. amount of non - residential versus residential) flexibility. The application proposes the following minimum and maximum use percentages: Minimum Maximum Residential 43% 75% Commercial 15% 44% Office 6% 29% The project could include 23 or more low to mid -rise buildings (multi - family, commercial /retail, office, bank, and hotel) with 600,000 to 837,000 square feet of floor area. IM The SUP application includes four conceptual site layouts. This is different from the Town's typical SUP application which usually includes only a single layout. The idea is to provide the parameters under which the site will be developed, establishing minimum and maximum floor areas, build -to lines, block frontage percentages, building heights, etc. and as the final densities, users, building footprints and tenant requirements are identified, the developer will work closely with Town staff to provide final plans that meet not only the requirements of the development but also the vision of the Town and the applicable ordinances. County Planning Comments County Planning staff is focusing on the aspects of the project that have a more direct effect on the County and its residents and as noted earlier, the jointly developed land use plan of the general area near the intersection of 1 -40 and MILK. An interesting note is that this site is proximate to the `population center' of Orange County. This means the shortest cumulative drive distance to a central point based on population countywide. Schools Adequate Public Facilities Ordinance A Certificate of Adequate Public Schools (CAPS) must be issued by Chapel Hill - Carrboro City Schools prior to issuance of a Zoning Compliance Permit for any phase proposing residential dwelling units. A maximum of 806 multi - family (MF) dwelling units are being proposed. At current expected student generation rates of 0.07 students per unit, approximately 56 students. However, it should be noted that the County contracted with a consultant last year to study student generation rates in newer housing types (defined as constructed within the past 10 years) and the preliminary results of the study is showing higher student generation rates in newer MF housing (0.20 student per multi - family unit). At these preliminary rates, 161 students would be expected from 806 multi - family units. Project specific MF that have been built have shown a wide array of student impacts from extremely low (i.e. 1 or 2 students per 100 units) to as high as single family at approximately 73 students per 100. This variation is related to number of bedrooms, location and how and who the developer markets the project. Transportation Improvements Proposed The application materials included information on proposed transportation improvements: • Widening Eubanks Road in both directions • Installing two new 4 -way traffic signals on Eubanks Road • Adding additional turn lanes to each leg of the existing traffic signal at the Eubanks Road /MLK intersection 109 • Modifications to both the ingress and egress routes from the park- and -ride lot and BRT program. Orange County Transportation Staff Comments The North -South corridor should be shared by multiple transit agencies, including Orange Public Transit (420 Route), Triangle Transit, and Chapel Hill Transit (Interlining). The location of a northern terminus park and ride lot for connection to any future BRT in the MLK corridor should be considered during the review of the EDGE development. Keeping the proximity of the existing park and ride lot (downsized or structural) would facilitate 2 strong retail opportunities: one, allow commuters to shop nearby before return to exurbia and two, allow students from campus and MLK areas to shop and use retail and restaurants creating transit demand nodes at both north and south ends promoting efficiency. Stormwater The project is located in the Jordan Lake Unprotected Watershed and the Town of Chapel Hill enforces its stormwater regulations within its municipal limits. However, County staff may suggest increasing mitigation of stormwater impacts. While the development will be required to preserve stream buffers and install best - management type post - development stormwater management facilities, primarily for peak flow attenuation and nutrient export reduction, the County would be interested inassisting in one or more of the following: 1. Upgrading the proposed stormwater management facilities to a higher level of nutrient reduction, such as including bio- retention or stormwater wetlands, with the goal of reaching or beating export limits recognized by Orange County (2.2 pounds per acre nitrogen & 0.82 pounds per acre phosphorus), without compensatory mitigation. 2. Evaluating a portion of the adjacent property for an off -site regional stormwater management facility that would have a net neutral or positive impact on water quality, when contrasted with existing conditions. The benefits which the applicant may realize include reduction in compensatory mitigation or, in the case of option 2, some potential for increased on -site development. In the case of the latter, Orange County would encourage Chapel Hill to ensure that this "additional capacity" would not be utilized to press the nutrient limits but rather to actually improve the outcome. Affordable Housing The applicant is voluntarily proposing to allocate land for 50 affordable on -site multi - family rental units and agrees to pursue funding to bring the units to fruition. This would be equivalent to 7% - 13% (depending on the final mix) of the new housing created within the project. Financing approval for up to 50 affordable units would be pursued for a period of no less than 5 -years after SUP approval, and land allocated for the new affordable units would be held for this use during the period. If financing were awarded, the proposed development would target renters earning less 80% of less of the area median income and would remain affordable for 15 — 30 years, depending on the requirements of the funding agency. If Low Income Housing Tax Credits or bond financing is awarded, the project could serve households earning less than 60% of the area median income. 1 -40 Road Buffer Chapel Hill had inquired about Orange County's Major Transportation Corridor buffer. The applicant had requested clearing near 1 -40 for additional visibility. While Orange County allows 50% clearing in certain circumstances in the various types of buffers we enforce, we do not allow clearing in the stream buffers. 110 Other Services Orange County has been in the process of developing estimates of county service impacts. Adding residents to the county is expected to result in some impact to governmental services provided by Orange County. Examples of such services include social services, health services, library services, and emergency management services. Although this specific human service cost may be minimal, school impacts are appreciable. Due to the potential variability of housing and student generation, no impacts were financially totaled as part of this abstract but staff has the information if necessary. The revenues and employment gained are definitely positive. Because the proposed development will be annexed and be within the Town of Chapel Hill's municipal units, the Town will provide police and fire protection to the development. FINANCIAL IMPACT: There is no financial impact to receive a report. If approved and developed, the proposed project would add to the tax base and retail would produce sales tax. The project would also require governmental services, some of which are provided by Orange County. The exact dollar amounts related to the tax base increase and the governmental services have not been calculated due to the variability in the mix of uses in the project. The applicant has not asked for county financial participation to date. RECOMMENDATION(S): The Manager recommends the Board receive the staff presentation. 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I EILOA MERCl4.L i E f€ M4Y I ISIAPPRO %fi5'I H r [ e.p.kz dRev e• 092e e0ta W' MINI FRONTAGE: W BLOCK FFEF yF `h — N ` ru nv. N ezrrEA 3p °L eurr \�. - STRENrcs rea -- +ou uT�fuACE EUBANKS ROAD � BGIdMM - -- .uTnTUT.,rn..cL ri.iEVT �.o[ RO CBIocY.a NORTHWOOD DRIVE GHT Block Plan 01 _ C -4 120 I �iIIIIVU�Vppp ip ppppi poouu iil ii it i i i I I I i uu�I i looi iiii ppplllll iop � Illlllllllll�������iiilllllllllllu� I�lumo ° °piIV ppppppp�pp, pppppm Vi i I uu ,ipp hOp,,,,,i�pmuVl i i i u i ' i i ,ipppu „uV�lppl �pp�Ilpl,ll o� 11111, 1111111111111111SA, I 111111111111111111114 Is,, u,,,,,. pIIII pppl Il000W� �u �pppliilliiVllpppppp� o� I uo 0 I� i uo I li �I uum � o I uo i I I II � I I I i i i i u ii i m m 121 KEY DISCUSSION TOPICS During review, staff identified several topics for discussion: 1. Economic Development Opportunity This project and property has been of interest by the Town for a number of years. The Council Committee on Economic Development instructed staff to develop the original concept plan to help in facilitating growth and good use of the property. The current proposal has the potential to add over 400 -700 residential units, 140,000- 416,000 sq. ft. of retail /hotel space, and 60,000- 270,000 sq. ft. of office. The project could add as much as 935,000 sq. ft. of floor area. 2. Affordable Housing The applicant is proposing to allocated land for 50 new affordable rental units. This would be equivalent to 7 % -13% (depending on the final mix) of the new housing created within the project. Financing approval for the 50 new affordable units will be pursued for a period of no less than 5 -years after SUP approval, and land allocated for the new affordable units will be held for this use during the period. Examples of financing options that could be pursued include Low Income Housing Tax Credits (LIHTC) and tax - exempt bonds. 3. Eubanks Road Park and Ride Lot The Edge project is adjacent to the Town's Eubanks Road park/ride lot. The August 2013 Traffic Impact Study identified several roadway improvements that are required to address existing traffic problems as well as increase in the traffic volumes from the proposed development. The improvements include a redesign to the ingress and egress along Eubanks Road. 4. Modifications to Regulations The applicant is seeking Council approval of modifications to the Land Use Management Regulations for these standards: a. Tree Canopy Percentage: Reduce the minimum tree canopy coverage from 40% to 20 %. b. Building Height: Increase the primary building height along Public Street `A'& B' from 50 -feet to 59 -feet. c. Building Setbacks: Reduce the perimeter parking lot street setbacks and interior /street setbacks. d. Landscape Buffer Widths: Reduce proposed landscape buffer widths around the perimeter of the site. Mix of Land Use Percentages: Change the mix of land use percentages (residential, commercial, office) required in the Office Institutional -1 and Residential -1 Mixed Use Districts. 122 f Signage: Allow multiple ground signs along Eubanks Road, increase the size of wall signs and add for a large iconic gateway - private art sign feature near the Eubanks/Road Martin Luther King Jr. Blvd. intersection. g. Tree Survey: Increase the diameter at breast height standard from 6- inches to 12- inches. h. Burial of utilities underground: Underground installation of new or relocated utilities is not required for activities located outside the boundary of the development, or associated with the reconstruction of Eubanks Road. For additional discussions on these topics, please refer to the applicants' attached materials. 123 Attachment 4 Transportation Notes: A TIA for The EDGE development (The EDGE Development Traffic Impact Study — 2013 Update Final Executive Summary) was completed in August 2013. The development's improvements to Eubanks Road, which have been reviewed and approved through both the Chapel Hill Transportation Division and NCDOT Region 5, will not only support existing daily traffic volumes, but will incorporate through lanes, turn lanes and storage volumes to improve existing traffic. Fourteen (14) intersections were analyzed (including intersections created as part of the development); the Build scenarios are forecast to improve congestion levels at two (2) intersections (Martin Luther King, Jr. Boulevard and the I -40 eastbound ramp; Martin Luther King, Jr. Boulevard and Eubanks Road), and are forecast to degrade one (1) intersection to a "failing" LOS E (Eubanks Road and Old N.C. 86). High- capacity transit investment will be necessary to provide alternatives to single -car travel through the corridor; mode shift from cars to transit will mitigate congestion within the corridor and support efficient mobility for all transportation network users. Therefore, Orange County endorses the following improvements reviewed in the North -South Corridor Study (NSCS) 2 (scheduled for completion in September 2015): • The 2040 Capital Area MPO and DCHC MPO Metropolitan Transportation Plan recommend Bus Rapid Transit (BRT) on the Chapel Hill Martin Luther King, Jr. Boulevard Corridor. The types of improvements discussed in the plan include more frequent service /improved headways, additional service hours during evenings and weekdays, realigned bus routes to connect with rail routes, new technology, such as satellite tracking of buses, and circulator service to provide connections for the "last mile" for transit riders. • The NC 86 / Martin Luther King Jr. Boulevard Corridor and Town -Wide Pedestrian Safety Evaluation Study makes several recommendations that seek to improve conditions for pedestrian, bicyclists and transit users in the corridor. Some of the specific recommendations include filling in gaps in sidewalk coverage, stripe crosswalks, constructing bus pullouts, and creating raised medians and narrow vehicular lanes. Footnotes: Summary of Transportation Improvements Proposed for The Edge The application materials included information on proposed transportation improvements: • Widening Eubanks Road in both directions • Installing two new 4 -way traffic signals on Eubanks Road • Adding additional turn lanes to each leg of the existing traffic signal at the Eubanks Road /MLK intersection • Modifications to both the ingress and egress routes from the park- and -ride lot. 2The North -South Corridor Study (NSCS) is an 18 -month project that is being led by Chapel Hill Transit (CHT) in coordination with the Chapel Hill Transit Partners, which includes the Town of Chapel Hill (ToCH), the Town of Carrboro (ToC) and the University of North Carolina - Chapel Hill (UNC). The project will identify and evaluate a series of transit investment alternatives for implementation within the study corridor, which runs along the Martin Luther King, Jr. Boulevard (Historic Airport Road /NC Hwy 86), South Columbia Street, and US 15 -501 South. This corridor, which is approximately 7.3 miles long, has its northern terminus at Eubanks Road and Martin Luther King, Jr. Boulevard and its southern terminus at US 15 -501 near the Southern Village mixed -use development. The study will expand on previous planning work to identify a locally - preferred transit investment alternative that facilitates safe, efficient and expanded levels of mobility within the increasingly busy study corridor, and to improve connectivity between the corridor and the Research Triangle region. Additional reasons for this study include improving connections with other local and regional transit routes (including the planned Durham - Orange Light Rail line), supporting future development within the corridor, increasing transit mode share and ridership to the UNC campus /hospital, the downtown area, and improving multi -modal connectivity options between the new Carolina North campus on the northern end of the study corridor, Southern Village at the southern end of the corridor, and the rest of the study corridor.