HomeMy WebLinkAboutAgenda - 09-05-2017 - 8-n - Amendment Outline Form and Schedule – Expansion of Hillsborough Area Economic Development District 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: September 5, 2017
Action Agenda
Item No. 8-n
SUBJECT: Amendment Outline Form and Schedule — Expansion of Hillsborough Area
Economic Development District
DEPARTMENT: Planning and Inspections
ATTACHMENT(S): INFORMATION CONTACT: (919)
1. Amendment Outline Form — Expansion of Craig Benedict, Planning Director, 245-2575
Hillsborough Area Economic Development Perdita Holtz, Planner III, 245-2578
District Tom Altieri, Planner III, 245-2579
Steve Brantley, Economic Development
Director, 245-2326
PURPOSE: To initiate amendments to the Town of Hillsborough/Orange County Central Orange
Coordinated Area Land Use Plan, the Orange County Comprehensive Plan Future Land Use
Map, and the Orange County Zoning Atlas. These amendments would define the allowable land
uses in the recently expanded portion of the Hillsborough Economic Development District, south
of Interstate 40 in the vicinity of Old Highway 86. These items are planned for Board
consideration at the November 2017 BOCC Quarterly Public Hearing.
BACKGROUND: At its June 6, 2017 meeting, the BOCC approved amendments to the Water
and Sewer Management, Planning, and Boundary Agreement (WASMPBA) as an initial step
towards expanding economic development opportunities in the Hillsborough Economic
Development District. Three related amendments are being proposed to prescribe the land uses
that will be allowed in this area.
1. The Town of Hillsborough/Orange County Central Orange Coordinated Area (COCA)
Land Use Plan is a joint land use document that defines the locations of future land use
categories to help achieve a desired and coordinated pattern of development over time.
The COCA Land Use Plan includes several urban-style land use categories that are more
specific than those provided in the County's Comprehensive Plan, which covers a much
larger geographic area. Implementation of the COCA Land Use Plan is achieved through
consistency with the County's Comprehensive Plan Future Land Use Map, application of
County zoning, and a coordinated approach to rezoning. The proposed amendment
would reflect the expansion of the Town's Urban Service Boundary to provide water and
sewer service to the area expanded by the WASMPBA amendment. The amendment
would also propose an "Employment" land use in the expansion area consistent with
economic development goals. As part of a joint land use plan, these amendments
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require approval by the Town of Hillsborough and are being coordinated so that the Town
and County processes run concurrently.
The Town has not yet approved the WASMPBA amendment. Prior to approving the
amendment, the Town wanted to have more information on how the County intends to
rezone the area. The proposed land use and zoning amendments addressed in this
abstract seem consistent with the Town's interest in expanding employment and non-
residential tax base. The Town Board is expected to consider the WASMPBA
amendments at one of its meetings in September.
2. The Orange County Comprehensive Plan Future Land Use Map (FLUM) defines the
location of future land use categories, consistent with any joint land use plans, and is
designed to accommodate a particular combination of general land uses. The FLUM
helps achieve a desired pattern of development over time and is implemented primarily
through zoning. The proposed amendment to this plan would change the expansion area
from a Rural Residential land use to an Economic Development Activity Node which
would designate the area for light industrial and retail development.
3. The Orange County Zoning Atlas is a map of the County's planning and zoning
jurisdiction that assigns all parcels a zoning district. Each zoning districts includes
specific standards, as outlined in Article 3 of the Unified Development Ordinance (UDO),
and specific allowable uses, as are found in the Tables of Permitted Uses in Section 5.2
of the UDO. The proposed amendment would rezone the expansion area from Rural
Residential (R-1) to Economic Development Hillsborough (EDH-2) which generally allows
low intensity office uses and supporting services.
Parcels with existing single-family residences are not proposed to be rezoned. The
zoning on the four parcels containing existing residences will remain Rural Residential so
that non-conforming uses will not be created.
The Amendment Outline Form in Attachment 1 provides additional information and maps
depicting the proposed amendments.
Public Information Meeting Planned
Planning staff is suggesting a public information meeting, to be held September 25 or 26, which
would cover all three related items. Notice about the public information meeting would be
mailed to affected property owners and to property owners within 1,000 feet of the affected area.
Town of Hillsborough Staff has indicated that it will also attend the meeting and will also assist
with advertisement.
FINANCIAL IMPACT: Consideration and approval will not create the need for additional funding
for the provision of County services. Costs for mailed notifications and the required legal
advertisement will be paid from FY2017-18 Departmental funds budgeted for this purpose.
Existing Planning staff included in the Departmental staffing budget will accomplish the work
required to process this amendment.
SOCIAL JUSTICE IMPACT: The following Orange County Social Justice Goals are applicable
to this agenda item:
• GOAL: ENSURE ECONOMIC SELF-SUFFICIENCY
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The creation and preservation of infrastructure, policies, programs and funding necessary
for residents to provide shelter, food, clothing and medical care for themselves and their
dependents.
• GOAL: ESTABLISH SUSTAINABLE AND EQUITABLE LAND-USE AND
ENVIRONMENTAL POLICIES
The fair treatment and meaningful involvement of people of all races, cultures, incomes
and educational levels with respect to the development and enforcement of
environmental laws, regulations, policies, and decisions. Fair treatment means that no
group of people should bear a disproportionate share of the negative environmental
consequences resulting from industrial, governmental and commercial operations or
policies.
RECOMMENDATION(S): The Manager recommends the Board approve the attached
Amendment Outline form and direct staff to proceed accordingly.
Attachment 1 4
COMPREHENSIVE PLAN / FUTURE LAND USE MAP
AND
UNIFIED DEVELOPMENT ORDINANCE (UDO)
AMENDMENT OUTLINE
Other-2017-01
Hillsborough Economic Development District Expansion Amendments,
South of Interstate 40 in the Vicinity of Old Highway 86
A. AMENDMENT TYPE
Map Amendments
N Future Land Use Map
From: Rural Residential
To: Economic Development (Transition) Activity Node
n Zoning Map
From: R-1 (Rural Residential)
To: EDH-2 (Economic Development Hillsborough Limited Office)
M Other: Town of Hillsborough/Orange County Central Orange Coordinated Area
Land Use Plan (a.k.a. Joint Land Use Plan) Amendments - This
amendment would: 1) Reflect the expanded Town's Urban Service
Boundary for consistency with the pending Water/Sewer Boundary
Agreement Map amendment; and 2) Apply the "Employment" land use
classification to the entire expanded area.
Text Amendments
n Comprehensive Plan Text:
Section(s):
n UDO Text:
fUDO General Text Changes
fUDO Development Standards
fUDO Development Approval Processes
Section(s):
n Other:
B. RATIONALE
1. Purpose/Mission
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In order to better promote economic development opportunities and help preserve
planned sewer capacities for non-residential uses, the Planning Director is
suggesting consideration of amendments to the Town of Hillsborough/Orange
County Central Orange Coordinated Area Land Use Plan (a.k.a Joint Land Use
Plan), the Orange County Comprehensive Plan Future Land Use Map, and the
Orange County Zoning Atlas south of Interstate 40 in the vicinity of Old Highway 86.
2. Analysis
Proposed Changes
A total of fourteen (14) parcels, in whole or in part, as shown on the attached maps,
are included in the proposed amendments.
Town of Hillsborough/Orange County Central Orange Coordinated Area Land Use
Plan (Attachment 1-1)
From: N/A - Not previously within the Town's Urban Service Boundary and
therefore, not covered by the original Joint Land Use Plan.
To: Employment - These areas include a wide range of business, light industrial,
office, research and development, along with related/support services uses
including restaurants, small scale retail and convenience shopping/services.
Buildings and uses will be sited to limit the visual impact of service and
warehousing operations, while still providing convenience for business
functionality. These areas are in prime locations with good access to major road
networks (where capacity exists or is planned) and rail if needed and should be
reserved for high return employment generating uses.
Orange County Comprehensive Plan Future Land Use Map (Attachment 1-2)
From: Rural Residential- Land in the rural areas of the County which is
appropriate for low intensity and low-density residential development and which
would not be dependent on urban services during the plan period.
To: Economic Development (Transition) Activity Node - Land in 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 such as a warehouse,
showroom, manufacturing assembly, or similar operations.) Such areas are
located adjacent to interstate and major arterial highways, and subject to special
design criteria and performance standards.
Orange County Zoning Atlas (Attachment 1-3)
From: Rural Residential, R-1 - Provides locations for rural non-farm residential
development, at very low intensities, in areas where the short and long-term
solutions to domestic water supply and sewage disposal shall be individual wells
and ground absorption system.
To: Economic Development Hillsborough (EDH-2) - The purpose of the Economic
Development Hillsborough Limited Office (EDH-2) District is to provide locations
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for low intensity office uses and supporting services in the designated
Hillsborough Economic Development District. The district may contain limited
commercial uses within employment centers or where vehicular access is
provided internally to the development.
Parcels with existing single-family residences are not proposed to be rezoned. The
zoning on the four parcels containing existing residences will remain R-1 so that non-
conforming uses will not be created.
Background
The Water and Sewer Management, Planning, and Boundary Agreement is an
agreement signed in 2001 between Orange County, the Orange Water and Sewer
Authority (OWASA), and the Towns of Chapel Hill, Carrboro, and Hillsborough. The
agreement provides a comprehensive county-wide system of utility service areas
upon which signatory entities could rely when making decisions related to issues
such as planning, land use, annexation, zoning, and growth management.
At its June 6, 2017 meeting, the BOCC approved amendments to the Water and
Sewer Management, Planning, and Boundary Agreement (WASMPBA) to expand the
Hillsborough Primary Service Area. All parties have approved the WASMPBA
amendment, except the Town of Hillsborough. Its approval is pending a greater
understanding of the intended future land uses and zoning for the area, which the
amendments discussed herein provide.
Subsequent to expansion of the Hillsborough Primary Service Area, the Town of
Hillsborough/Orange County Central Orange Coordinated Area Land Use Plan (a.k.a
Joint Land Use Plan) must be amended to assign appropriate future land uses,
followed by the amendments to the County Comprehensive Plan Future Land Use
Map and Zoning Atlas.
The Joint Land Use Plan was adopted by the Town and County Boards in 2013. The
County is currently working on plans to invest in extending sewer infrastructure to the
south side of Interstate 40.
3. Comprehensive Plan Linkage (i.e. Principles, Goals and Objectives)
Objective ED-1.5:
Identify barriers to development of desirable businesses and local businesses, and
mitigate these barriers.
Objective ED-2.1:
Encourage compact and higher density development in areas served by water and
sewer. (See also Land Use Objective LU-1.1 and Water and Wastewater Objective
WW-5.)
Objective ED-2.5:
Identify lands suitable to accommodate the expansion and growth of commercial and
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industrial uses in the County.
Objective ED-2.7:
Select industrial sites in Economic Development Areas based on present and
planned supporting systems, such as public water and sewer, access to adequate
highway, rail, or public transportation infrastructures, and minimize detrimental
environmental or negative social outcomes. (See also Water and Wastewater
Objective WW-15.)
Land Use Goal 1: Fiscally and environmentally responsible, sustainable growth,
consistent with the provision of adequate services and facilities and a high quality of
life.
Objective LU-1.1:
Coordinate the location of higher intensity / high density residential and non-
residential development with existing or planned locations of public transportation,
commercial and community services, and adequate supporting infrastructure (i.e.,
water and sewer, high-speed internet access, streets, and sidewalks), while avoiding
areas with protected natural and cultural resources. This could be achieved by
increasing allowable densities and creating new mixed-use zoning districts where
adequate public services are available. (See also Economic Development
Objectives ED-2.1, ED-2.3, ED-2.10, and Water and Wastewater Objective WW-2.)
Land Use Goal 4: Land development regulations, guidelines, techniques and/or
incentives that promote the integrated achievement of all Comprehensive Plan goals.
4. New Statutes and Rules
N/A
C. PROCESS
1. TIMEFRAME/MILESTONES/DEADLINES
a. BOCC Authorization to Proceed
September 5, 2017
b. Quarterly Public Hearing
November 2017 (exact date pending possible meeting calendar revisions)
c. BOCC Updates/Checkpoints
October 4, 2017 — Planning Board Meeting for Recommendation (BOCC receives
agenda)
d. Other
2. PUBLIC INVOLVEMENT PROGRAM
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Mission/Scope: Public Hearing process consistent with NC State Statutes and
Orange County ordinance requirements. Additionally, Planning staff is suggesting a
public information meeting, to be held late-September, which would cover all three
related potential items (modifications to the Joint Land Use Plan, County
Comprehensive Plan Future Land Use Map, and County Zoning Atlas amendments).
a. Planning Board Review:
October 4, 2017 - Recommendation
b. Advisory Boards:
Economic Development Advisory Board
c. Local Government Review:
Staff will be working jointly with the Town of Hillsborough's staff on the three
related items and the Town will formally adopt the amendment to the Joint Land
Use Plan
October 19, 2017 — Town of Hillsborough Public Hearing and Town Planning
Board Recommendation
October 23 or November 13, 2017 —Town Board of Commissioners Action
d. Notice Requirements
Consistent with NC State Statutes and Orange County requirements.
e. Outreach:
1 General Public: Staff is suggesting a public information meeting that would
cover all three related potential items (Joint Land Use Plan,
County Comprehensive Plan Future Land Use Map, and
County Zoning Atlas amendments). Notices regarding the
meeting will be mailed to affected and adjacent (1,000-foot
boundary) property owners.
n Small Area Plan Workgroup:
❑ Other:
3. FISCAL IMPACT
Consideration and approval will not create the need for additional funding for the
provision of county services. Costs for the mailings and required legal advertisement
will be paid from FY2017-18 Departmental funds budgeted for this purpose. Existing
Planning staff included in the Departmental staffing budget will accomplish the work
required to process this amendment.
D. AMENDMENT IMPLICATIONS
Staff is proposing the amendments to allow for a broader range of uses and higher
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intensities so that the County can better promote this area to economic development
prospects and help preserve planned sewer capacities for non-residential uses.
E. SPECIFIC AMENDMENT LANGUAGE
N/A
Primary Staff Contacts:
Tom Altieri, Perdita Holtz, and Craig Benedict
Planning & Inspections Department
919-245-2575
taltieri @orangecountync.gov
pholtz @orangecountync.gov
cbenedict @orangecountync.gov
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