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Adopted, Orange County Board 9 6
a1rd o2f0C0omml
Commissioners 4/10/06
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Fairview Public Campus Master Plan Committee
George Campbell
Dorothy Johnson
Steve Halkiotis
Barry Jacobs
Deborah Judd
Michelle Kempinski
Willie Lambert
Kathleen Long
Brian Lowen
Heather MacDonald
Joe Phelps
Tom Stevens
Barrie Wallace
1
Background
Orange County and the Town of Hillsborough own two adjacent tracts (67 acres
total), which have long been identified as lands for a Fairview community park in
northern Hillsborough. In addition, Orange County owns an adjacent 26 acres
that includes the County's Public Works facility. The park site is identified in both
the County and Town comprehensive plans.
In 2004, the County and Town agreed to work together to create a master plan
for the entire 93-acre site by adopting a Memorandum of Agreement (MOA)
along these lines, reflecting both the existing and planned uses on the Public
Works site and potential future uses for a park. The MOA may be found as
Appendix 1 to this report.
Additional information regarding the site characteristics and history of activity at
the Fairview lands may be found in the Challenges and Opportunities report
created as part of the Master Plan effort (Appendix 2).
In October 2005, an appointed Fairview Public Campus Master Plan Committee
began work to develop a proposed Master Plan. Over the next four months the
Committee met on four occasions to create this report and plan.
Site Analysis / Opportunities & Constraints Report
At the initial meeting of the Committee, a report on the aspects of the site in
question was presented by staff. This Opportunities and Constraints report
evaluated the natural and cultural features present, the history of landholdings
and land use pattern, as well as an overview of zoning and other planning issues
(please see Appendix 2).
The park site (which includes a few existing facilities, such as a playground) lis
located in the Fairview community on the north side of Hillsborough. Adjacent
land uses include single-family residential lots to the south, west and north. The
Orange County Public Works facility is located on the eastern part of the total
site, and it is adjacent on the east to lots (some of which are undeveloped)
fronting on NC 86.
The property is located just outside of the Hillsborough town limits, but within the
Town's extraterritorial jurisdiction (ETJ) for planning and permit approval. The
Town's Vision 2010 land use plan identifies the area as "Mixed Use Residential,"
with a smaller area Institutional Activity Area. The zoning for the property is
Office/Institutional (01), which permits parks, government facilities and a variety
of other uses.
The Public Works tract does have water and sewer service, although it is
primarily sized to serve the existing uses. The site is not in a water supply
1
watershed but is within the Neuse River Basin, so special Neuse River Basin
rules apply which require vegetated stream buffers. Stream segments were
identified prior to the design that would require protection.
A cultural and archaeological survey was conducted in March 2005. The survey
identified one previously unrecorded site that was not deemed significant. One
area on the site was recommended to have further survey work if active land-
disturbing activities occur. A topographic survey was also conducted which
identified trees of 18-inch caliper and greater, and this was used in the design.
Soils through the site are largely Georgeville, Herndon and Enon type, although
much of the westernmost County parcel was covered with topsoil in the former
landfill areas.
The westernmost tract, owned by the County, features large former landfilled
areas to the north and northwest part of the property. These areas have been
covered with dirt and now are grassy with low shrubby vegetation. Groundwater
monitoring wells are located north and south of the stream, which bisects the
site. Some of the landfill materials are exposed but hidden from view under
dense trees and shrubs. A baseball field in this area was built in 1999, although it
is no longer in active use. The northern edge of the property has a number of
piles of domestic trash. The southern part of the site includes young hardwood
forest (40-50 years old) in an area that appears to retain water during wet
seasons.
The middle tract, owned by the Town, has a gravel road to the north that is
accessed from the County Public Works property. A north-south road divides the
Town parcel from the County tract described above. The northern one-third of
this Town tract is a large open area where the Town stockpiles storm debris and
yard waste. The middle one-third of the site has mature hardwoods and slopes
dropping 25 feet down to an unnamed stream. Pine woods are located close to
the Public Works facility. The southern one-third of the property has the highest
elevation with a mature oak-hickory hardwood forest, with some trees 60-80
years old. This area provides wildlife habitat and features red and white oaks,
hickories, tulip poplar and beech trees.
The easternmost property, the Public Works site, is partially developed and
houses the County Public Works administrative building, Motor Pool garage and
areas of storage and parking. An entry road at the signalized intersection of NC
86 and NC 57 runs east to west, before turning north into the developed part of
the site. Future plans are to locate other County facilities on the undeveloped
portion of this site, and the location of the Town of Hillsborough Public Works
been proposed for land owned by the County south of the entry road.
2
Committee Meetings and the Design Process
in its four meetings, the Master Plan Committee has strived to be efficient and
yet diligent in approaching the development of recommendations in a stepwise
fashion.
Prior to the committee's formation, a preliminary concept plan outlining the
general locations of different uses was created to help guide the process. This, in
conjunction with the Memorandum of Agreement, was used to create the design
parameters.
The following table summarizes the activities of the committee meetings.
mhiclate of Nieeting Activities
October 4 Overview of projects and charge, review of
Challenges and Opportunities report, preparation for
design charrette
November 1 Listing of facility preferences and identification of
priority facilities. Conduct design charrette with base
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maps (split into two design groups). Site walk for
committee members scheduled and held Dec 2-3
(Friday/Saturday)
December 8 Review of draft master plans based on charrette,
identification of the preferred design, updates on
other Fairview matters
January 19 Adoption of master plan and report, final thoughts
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M.Carr 2/23/2006 Environment&Resource
Conservation Department
Recommendations of the Committee
Note: In reviewing the master plan and the following recommendations, it may be useful
to think of the master plan for the site as having three sections, or "pods." The "southern
pod"includes the majority of proposed park facilities and would be accessed from Torain
Street or the connector trail (see below) - or for persons outside of the neighborhood,
from the NC 57/NC 86 intersection. The "western pod"is located adjacent to the existing
community policing station and is adjacent to Rainey Avenue. The "eastern pod"
contains the County Public Works site and future Town Public Works site, along with
other planned future County facilities. The reason for the "pod" design approach is
explained in the rationale section on page 6.
After considering all of the above information and discussing the
possibilities, the Committee recommends the following actions as
facility improvements for Phase 2 of the park:
1. That the following facilities be constructed as Phase 2 of the •
Fairview Park as the top priorities (as shown on the attached
Master Plan map on page 4). These facilities are listed in
priority order, with the understanding that some facilities may
need to be deferred based on available funds:
• Two hard-surface lighted basketball courts, located the
"southern pod. "
• A full-size youth baseball/softball field,located in the
southern part of the site.
• Two new playgrounds, one near the new ballfield in the
"southern pod, " and a replacement playground in the
"western pod " near the existing structure and police
station.
• A picnic shelter with concessions bay (and possible
restrooms), located near the new ballfield in the
"southern pod"
• Walking trails of approximately V2 milein total, with a
main trail connection between the ballfield ("southern
pod") and the police station / playground ("we stern
pod"). There would also be a trail around the new
ballfield, with spur to the southern parking lot and Torain
5
Street, and a connection to Rainey Avenue at Homemont
Avenue.
• Three tennis courts, located adjacent to the new ballfield.
• A volleyball court, adjacent to the existing ballfield
While not a park facility per se, a main parking lot and access
road is also proposed from the east and the NC 86 / NC 57
intersection. A smaller parking lot would be located on Torain
Street, and the existing parking at the "western pod" police
station/playground would also be retained.
2. It is proposed that the former landfill areas on the northern part
of the site be maintained in grass and allowed to be used
informally for non-structured activities (dog-walking, open
meadow,bird-watching).
3. Opportunities for integrating environmental education and
habitats in conjunction with the former landfill should be
considered, including signage.
4. Interest exists in both a community room and use of the former
landfilled areas for subsequent phases of the park as
opportunities arise and Town/County funds permit.
5. The Town and County may wish to pursue additional funding
through grants (Parks and Recreation Trust Fund, US tennis
Association, for example) and future bonds, to enable the
construction of more facilities at the park.
6. Once the master plan is finalized and a construction schedule is
identified, a copy of both should be placed at the Fairview
Community Policing Substation for community information. A
sign noting "Future Site of Fairview Park" would also be
helpful.
7. The facilities planned for the "ea stern pod" (the Public Works
and County Facility portions of the site) have been sketched in
6
on the master plan, as per the Committee's charge. It is our
understanding the exact location of these future activities will
be addressed at a subsequent time.
Master Plan Rationale
As the master plan design unfolded, the Committee became aware that the
majority of the proposed activity would need to be located in two "pods" of the
park. This was made apparent by the uncertainty surrounding use of the former
Iandfilled areas and the existing plans for the County and municipal future uses
on the eastern part (eastern pod) of the site. Therefore, the facilities were
designed to avoid these areas, work around the existing stream buffer, and try to
protect as much of the mature hardwood forest in the southern part of the site as
possible.
However, the remaining best usable land was largely located in the "southern
pod" near the hardwoods area. The master plan sites most of the facilities of the
park in this area, while preserving a block of the hardwoods. The design attempts
to keep as much of this area intact as possible, and sites only a picnic shelter
and playground (which can be nestled among the trees). The larger facilities are
located to the north and west of the best part of the hardwoods. Specimen trees
of large caliper or age were also protected. The retention of this forested area will
also serve as a buffer for residents along Torain Street. The Town of
Hillsborough plans to construct a 10,000 to 12,000 square foot Public
Works/Motor Pool facility on its designated site (generally the southwest corner
of the County Public Works property, which would be transferred to the Town).
Also to be included on the site is 7,000 to 8,000 square feet of covered storage
facilities. The Town plans to locate its facilities on the western portion of the site
with the intent to leave enough acreage for potential future expansion.
The second pod of activity is smaller and would be located near the existing
Hillsborough Community Policing Station. The group recognized that there is an
arbor and history of using this area, termed the "western pod", as a gathering
spot, and while the available or usable land is limited, some facilities would be
retained here. These facilities are also easily accessed from Rainey Avenue.
To facilitate greater accessibility between the two pods of park activity, a
connector trail is proposed that offers a direct way of moving from the "western
pod" (police station/picnic/playground area) to the "southern pod" (ballfield and
other facilities). This 1000-foot trail also allows persons entering the park from
either Torain Street or Rainey Avenue to access the other portion of the park. In
addition to this trail, trails around the ballfiield and a connector trail to the
intersection of Rainey and Homemont Avenue are also reflected. Thus,
pedestrians could enter the park from Rainey Avenue, Torain Street or
Homemont Avenue, as well as from other intersections with Rainey Avenue.
7
•
Access for DOO-D8d8S�i@n8 would come via three possibilities. The primary
for persons coming to the park from outside of Fairview would be via an
extension of the existing Public Works Drive. This road would be continued west
and then curve northwest into the main parking area of the park (adjacent to the
b@!lfield and large "southern pod"). This will discourage park traffic from outside
of the neighborhood from putting more
vehicles on community streets to reach
the park. For persons driving from within Fairview, there are two parking
opportunities — the existing lot off Rainey Avenue at the "western pod," and a
new small lot along Torain Street near the bailfield and "southern pod."
The committee remains interested in the future possibilities for the northern
/fO[[Oe[ l8Ddfill8d\ portion Df the site, but understands that addressing the actions
needed to make this hiS 8[e8 usable might siphon away some or all of the funds to
build the park. The focus of the master plan is thus to create a design that
provides for good pedestrian and vehicular access to the park, using the best
areas for facilities and leaving the uncertain open areas for future consideration.
It is proposed that the former landfill areas (shown as open lands on the master
plan) be planted in grass for now, to provide an open meadow area, with
birdboxes and areas for unstructured activities (such as dog-walking, bird-
viewing and other non-facility use).
In designing the park, the group developed a list of possible facilities and then
selected preferred facilities based on community needs and interests, as well as
cost estimates for the facilities. The cost estimates used in this effort, and the
priority listing, are shown as Appendix 3. The budget for the park is $850,000,
and the Committee attempted to design a park in this range.
CONCLUSION
Citizens in Fairview have looked forward to the creation of the community park at
this site for many years. The Committee has attempted to design a park within
the parameters of the group's charge.
There were a number of limitations that affected the flexibility for park design,
largely due to the former landfilled areas and the challenges of retaining the
needed lands for future COUOtV/TDVVD use and protecting the mature hardwood
and a buffer along the southern boundary. Given these constraints, and
the stream buffer, the areas that remained for potential park use were limited and
led to the "pod" design approach - to attempt to make the most out of the areas
of the site that were usable. The pod design also helps promote pedestrian
access to different portions of the site, and directs traffic to the park away from
the residential streets in Fairview.
The Committee thanks the Orange County and Town of Hillsborough Boards of
Commissioners for the opportunity to develop this master plan design, and
eagerly looks forward to seeing Fairview Park come to fruition. In this spirit, the
Fairview Master Plan Committee commends this report to the Town and County
Boards of Commissioners.
APPENDICES
Appendix 1 — Memorandum of Agreement
Appendix 2 - Opportunities and Constraints Report
Appendix 3 — Cost Estimates and Priority Facility Listings
9
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