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HomeMy WebLinkAboutAgenda - 06-06-1991ORANGE COUNTY BOARD OF COMMISSIONERS WORK SESSION JUNE 4, 1991 The Orange County Board of Commissioners met jointly with the Hillsborough Town Commissioners at 7:30 p.m. in the Agricultural and Planning Building in Hillsborough. COUNTY COMMISSIONERS PRESENT: Chairman Moses Carey, Jr., and Commissioners Alice Gordon, Don Willhoit and Verla Insko (arrived at 8:45). COUNTY ATTORNEY PRESENT: Geoffrey Gledhill COUNTY STAFF PRESENT: County Manager John M. Link, Jr., Clerk to the Board Beverly A. Blythe, Planning Director Marvin Collins, and Planner Gene Bell. TOWN OF HILLSBOROUGH COMMISSIONERS AND STAFF: Town Commissioners Bob Rose, Remus Smith and Allen Lloyd, Mayor Horace Johnson, Town Clerk Agatha Johnson and Planner . A. OPENING COMMENTS FROMMAYOR JOHNSON AND CHAIRMAN CAREY Both officials commended the work group for their deligence and hard work in putting together this proposal. Mayor Johnson feels this cooperative planning zone will determine the future growth for Hillsborough which will depend on the availability of water and sewer. There are a few minor concerns they want to discuss this evening. Chairman Carey stated that the group tried to recognize and pursue the interest of both the County and the Town and at the same time perserve the integrity of the Orange County Comprehensive Plan. There will be details to discuss further. However, those issues which have been discussed are the basic ones the group felt it was important to reach agreement on before moving ahead. If there is consensus on these issues, the County Attorney will be directed to draw up an agreement for consideration by the Town and the County governmental boards. Once it is approved, the planning boards can begin to work on developing the standards to implement the agreement. Some of the concepts can be addressed at this time and some will be addressed at some point in the future. B. OVERVIEW OF THE COOPERATIVE PLANNING ZONE PROPOSAL FOLLOWED BY DISCUSSION Mayor Johnson noted two areas they would like the County to consider including in the twenty year transistion area. The first area is on Dimmocks Mill Road at Orange Grove Road. The Town already has two inch lines extended to the road leading to Moorefields and the Department of Transportation has put two sleves over the bridge so that if there is any growth in that area, the Town would not need to pay the cost of going under the highway. Chairman Carey indicated this would need to be dealt with in the future. The reason the line was moved to the east of Dimmocks Mill Road will become clear when talking about watershed protection in that part of the County. Marvin Collins explained the different areas on the map and why the lines are placed where they are based on a consensus reached by the work group. The map is in the permanent agenda file in the Clerk's Office. He explained that extension of water and sewer could be made in the water /sewer service area but that they would be made in accordance with the Rural Character Study guidelines which have been developed by the County. Bob Rose clarified that issue ,#3 means that the Town will not extend water and sewer into an area they cannot pay for but that the developer would need to pay that expense. Hillsborough needs to have the option whether or not to allow the extension of water and sewer. They won't make any extensions as long as the water is needed in town. Bob Rose explained that Davis Road forms the northern boundary of the watershed. What this means is that this line does not go along the entire length of Davis Road. Chair Carey stated that one thing not expressly written in the proposal is that in the transition area it would be expected that when Hillsborough annexes this area that they will provide all the required services that are in an urban area. Both Boards generally agreed with the boundary lines of the water /sewer service area as shown on the map. Bob Rose identified two areas they would like for the County to include in the twenty year transition area. The first area is at the I -40 and old 86 intersection. One side is in the twenty year transition and the town asked that this be extended to the other side of 1 -40. The other parcel is located at where Highway 70 and 70A split at the Wayside Baptist Church. If these two areas are included, the Town would be ready to accept the map. John Link explained that the County Planning Board and the Economic Development Board are looking at the area on 1 -40 they are talking about. Everyone agreed that further discussion needs to take place on these two areas of concerns. Commissioner Gordon suggested that the water /sewer area be called "Open Space District ". This will be decided at a later time. Commissioner Insko The County Attorney will write an agreement on the points on which a consensus was reached. The agreement can be amended when consensus is reached on the two areas identified as concerns by the Town of Hillsborough. C. DISCUSSION OF ITEMS OF MUTUAL INTEREST Commissioner Willhoit expressed a concern about Durham's long range plan for extension of water and sewer into Orange County. A meeting with Durham County may need to be scheduled to clarify Durham's intent for this area. Bob Rose made reference to the 16" waterline from Chapel Hill to Hillsborough and asked that the County assist them in getting the use of this line. It would help Hillsborough with their water pressure and allow for additional tapons. This would save Hillsborough a lot of money, time and effort if they could use this line. There would need to be a valve installed which could be opened if water was to go through to Chapel Hill or from Chapel Hill to Hillsborough. Chairman Carey suggested that the Town and County meet with OWASA to discuss Hillsborough using this line. Chairman Carey adjourned the meeting at 8:55 p.m. The next regular meeting of the Board will be held on June 25, 1991 at 7:30 p.m. in the courtroom of the old Post Office in Chapel Hill. Moses Carey, Jr., Chair Beverly A. Blythe, Clerk Moses Cci.rey, Jr. Alice M. Gordon Stephen H. Halkiotis Verla I. Insko Don Willhoit ORANGE COUNTY COMMISSIONERS P.O. Box 8181 HILLSBOROUGH N.C. 27278 AGENDA ORANGE COUNTY BOARD OF COMMISSIONERS AND THE TOWN OF HILLSBOROUGH JUNE 4, 1991 7:30 P.M. 732 -8181 968 -4501 688 -7331 227 -2031 644 -3004 (Fax) THIS MEETING WILL BE HELD IN THE AGRICULTURAL AND PLANNING BUILDING ON REVERE ROAD IN HILLSBOROUGH IN MEETING ROOM #1. A. OPENING COMMENTS FROM MAYOR HORACE JOHNSON AND COMMISSIONER MOSES CAREY, JR. B. OVERVIEW OF THE COOPERATIVE PLANNING ZONE PROPOSAL FOLLOWED BY DISCUSSION. C. DISCUSSION OF ANY ITEM OF MUTUAL INTEREST D. ADJOURNMENT YOU COUNT IN ORANGE COUNTY! �, 6 M M a ff 7 HILLSBOROUGH CPZ PROPOSAL PROCESS STATEMENT: A joint work group of two persons from each elected board has reviewed and discussed the objectives and issues inherent in a cooperative planning and land use agreement. The process included sharing drafts of maps and proposals for resolving issues raised by other elected board members, each planning board chair, and the Rural Character Study Committee Chairman. Issues have been reasonably resolved so as to achieve the goals of the Town of Hillsborough while preserving the intent of the Orange County Comprehensive Plan. This document does not provide a complete list of Hillsborough goals or a summary of relevant county comprehensive plan components. However, a list of issues resolved through mutual agreement of the work group members is included. CONCEPTUAL FRAMEWORK It is proposed to approach CPZ planning and agreement in two phases. Phase I Rural Character alternative and Phase II Transit Corridor Alternative will be discussed in that order. When agreement is reached, the elected boards will set a time frame for implementing Phase I. The staff and planning boards will develop the appropriate development standards and land use recommendations for elected board approval. Phase II would serve only as a basis for discussion and agreement on issues necessary to pursuing town and /or county economic development, transportation planning, land use or other goals. PHASE I - RURAL CHARACTER ALTERNATIVE The Rural Character Study Committee has recommended strategies which could serve to address Hillsborough's concerns and still preserve the intent of the County Comprehensive Plan. The basic strategy is to allow public water /sewer extension in designated rural areas outside the transition area but only to serve those development which preserve rural character by providing large amounts of open space in exchange for density bonuses. Five development options have been recommended and have been summarized in attachment A. This designated rural area is identified as a Rural Character The rationale for establishing a Rural Character District to the south and east of Hillsborough is found in the comprehensive plan. The plan suggests the establishment of a land use designation for the purpose of creating a "buffer" between developing urban areas. M M a ff 7 0A Creating a "Rural Character District" and a larger minimum lot size requirement sends a clear signal that increased density and non residential development will not be permitted except through approved rural character preservation strategies. For the Rural Character alternative to be effective, Hillsborough must agree not to annex property in the water /sewer service area beyond the transition area boundary. Hillsborough must also agree not to extend public water and sewer beyond the transition area boundary except in accord with the rural character strategies adopted by Orange County. PRASE II - TRANSIT CORRIDOR ALTERNATIVE In a recent report, the Research Triangle Regional Transit Land Use Study, strategies were outlined for the development of a fixed guideway transit system consisting of light rail people mover, dual -mode bus, and /or busway facilities. The strategies included have long -range implications for Orange County. The land use transit strategies (which will not be summarized here) address a number of issues which are currently being discussed by the County's Economic Development Commission and Planning Board. These can be the focus of subsequent County /Town planning agreements. CONSENSUS ISSUES The joint work group reached consensus on the following issues and the supporting map #7 -- exhibit B attached. 1. Hillsborough will not annex beyond the transition area limits within the next 20 years. 2. Growth within the transition area will be non - concentric, eg. dispersed growth based on ability to extend gravity sewer and the demand for service around major transportation corridors. 3. Public water and sewer extensions beyond transition area boundaries will be limited to large developments or a combination of smaller developments with the expense of such extensions borne by the developer(s). 4. Orange County will have full control over zoning in the extended water /sewer service areas (Rural Character District) with Hillsborough providing service only where feasible. 5. The Town will be primarily responsible for processing development applications in the transition area while the County will be primarily responsible for processing development applications outside the transition area. Details for joint or courtesy review must be developed. 6. The Land use and Comprehensive Plan in the CPZ area will be reviewed at least every five years. 7. All land use and zoning changes in the transition area must be approved by both the County and the Town. DaGlffq 3 8. The proposed water and sewer service area will not extend into the Rural Buffer of the Orange County - Chapel Hill - Carrboro Joint Planning Area. 9. The proposed water and sewer service area will not encompass the entire Davis Road Area. 10. The proposed water and sewer service area will be limited so as not to extend into a portion of the Upper Eno Protected Watershed (PW -II) district along Orange Grove and Dimmocks Mill Road. CONSENSUS ISSUES WHICH MUST BE ADDRESSED BY DEVELOPMENT PERFORMANCE STANDARDS AND POLICY CHANGES 1. Protection of the Eno Division of Duke Forest. This can be accomplished by limiting extensions of water and sewer through the tract and developing performance standards applicable to proposed projects on adjoining property. This would insulate Duke Forest from adverse impacts and insure the preservation of wildlife /forest habitat. 2. Orange County's Comprehensive Plan and Water and Sewer Policy will have to be changed to reflect the distinction between "urban growth area" and a "water /sewer service area ", a major policy change for the County. 3. Maintenance of Rural Character District between Hillsborough and Durham City to mitigate against potential impact of proposed water line and water sales agreement between Hillsborough and Durham City. This is compatible with the Phase I - Rural Character Alternative. W 2. 3. 4. EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS OPTION A Option A allows for two -acre lot single -- family _ residential subdivisions, as permitted currently in the Rural Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE * *: 0% OPTION B Option B allows for five -acre lot single- family residential subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: 0% SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". OPTION C Option C allows for a clustered 1 -acre lot single- family development where 40% of the tract is left in open space (either agricultural or natural). AVERAGE LOT* SIZE: REQUIRED OPEN SPACE * *: OPTION D 0.92 ACRES 40% OF TRACT Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two - thirds, or 67 %, of the tract is left in open space (either agricultural or natural). NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 67% OF TRACT SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost - effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. 5. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small -scale village -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four - fifths, or 80 %, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and - collector roadways and feasible public utility-extension to create a logical, cost- effective and easily- defined corridor where such developments would be encouraged. Rural Village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways. �` Aw4a The Commercial /znstitut�_onGl core of the Rural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single- family residential lots only. ** - Roadways and easements, except pre - existing utility easements, cannot be placed in or subtracted from open space set- asides. IILLSBOROUGH GPZ - TRANSITION AREAS peaty an 7: Rase Proposal (Revised) Exhibit B Illl,in °,.. a'i�i .�.. ,arri�! . w� I. 2. 3. 4. EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS OPTION A Option A allows for two -acre lot single - family _ residential subdivisions, as permitted currently in the Rural Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE": 0% Option B allows for five -acre lot single - family residential subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: 0% SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". OPTION C Option C allows for a clustered 1 -acre lot singly:- family development where 40% of the tract is left in open space (either agricultural or natural). AVERAGE LOT* SIZE: 0.92 ACRES REQUIRED OPEN SPACE * *: 40% OF TRACT OPTION D Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two - thirds, or 67 %, of the tract is left in open space (either agricultural or natural). W �� .: NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 57% OF TRACT SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost - effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. 5. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small -scale .. village -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four- fifths, or 80 %, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and - collector roadways and feasible public utility extension to create a logical, cost - effective and easily- defined corridor where such developments would be encouraged. Rural Village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways. r r The Commercial /Institutional core of the Fural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single- family residential lots only. ** - Roadways and easements, except pre - existing utility easements, cannot be placed in or subtracted from open space set - asides. �» �r . !. p,, HILLSBOROUGH CPZ - TRANSITION AREAS , Option t 7: Rose Proposal (Revised) Exhibit B Skf L H GH' I LATlytR 5� A. At, 1 lctw6 rr. bly. CT. yl V I I Now 57 0 1332 q, z U c BURKE 1556 A, «: a 1397 `,.t?�r,�;����� e . 'I Lena that /4. 19 To IT" RENCAEP 51 -\1 & 4 VOOCLA�k rf 'LAM, AdL, • I j. orohon HOLIDAY SCN. &US IARACE RD. Eno A Skf L H GH' I LATlytR 5� A. At, 1 lctw6 rr. bly. CT. yl V I I . I / I q, 0 «: a 8� `,.t?�r,�;����� e . p Y , . I / I 1. 00 0 EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS OPTION A Option A allows for two -acre lot single - family _ residential subdivisions, as permitted currently in the Rural. Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE * *: 0% OPTION B Option B allows for five -acre lot single - family residential subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally -- sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: 0% SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". A!W001ZM Option C allows for a development.where 40% (either agricultural AVERAGE LOT* SIZE: REQUIRED OPEN SPACE ** 4. OPTION D clustered 1 -acre lot single- family of the tract is left in open space or natural). 0.92 ACRES 40% OF TRACT Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two- thirds, or 67 %, of the tract is left in open space (either agricultural or natural). NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 67% OF TRACT SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost -- effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. 5. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small -scale village -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four - fifths, or 80 %, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and- collector roadways and feasible public utility extension to create a logical, cost- effective and easily- defined corridor where such developments would be encouraged. Rural Village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways. The Commercial /Institutional core of the Rural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single- family residential lots only. ** - Roadways and easements, except pre - existing utility easements, cannot be placed in or subtracted from open space set - asides. MI LLSBOROUGH CPZ - TRANSITION AREAS Option Z 7: Rose Proposal (Revised) Exhibit B OfqAOPGL cR05$h%u C" RD ■ ENE 0 86 57 10 1 .p 1332 CN 6m CD 01 BURKE 'w 1556 I TREEIm TREE c a 4 WOOD.AWN WKNER ST ENS q ^ OR KH. bu$ '0 64R.AGE RD, 1,,>Orohon Z ME, 7 GH C] j. H R WING ST. 19T'Vdw UI -1 TD Ctv R 114 '?fXo SEX END br. RD. U.S'70 114$ BUS 1'r 10 AqQ CATE i . ILEWkEUF it CL 4 Luts 0 T -A up No cy b IM Cr a ID Lk /yy CR. � 0 7 z 2: � En q RD. I. �p. J EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS 1. OPTION A Option A allows for two -acre lot single - family residential subdivisions, as permitted currently in the Rural Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE * *: 0% 2. OPTION B Option B allows for five -acre lot single- family residential subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: OAS SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". 3. OPTION C Option C allows for a clustered 1 --acre lot single- family development where 40% of the tract is left in open space (either agricultural or natural). AVERAGE LOT* SIZE: 0.92 ACRES REQUIRED OPEN .SPACE * *: 40% OF TRACT 4. OPTION D Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two - thirds, or 67 %, of the tract is left in open space (either agricultural or natural). NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 67% OF TRACT - SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost- effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. 5. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small - -scale . - village- -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four - fifths, or 80%, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and - collector roadways and feasible public utility-extension to create a logical, cost - effective and easily- defined corridor where such developments would be encouraged. Rural Village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways. The Commercial /Institutional core of the Rural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single - family residential lots only. ** - Roadways and easements, except pre - existing utility easements, cannot be placed in or subtracted from open space set - asides. HILLSBOROUGH CPZ - TRANSITION AREAS Option t 7: Rase Proposal (Revised) Exhibit B ORANGE COUNTY COMMISSIONERS P.O. Box 8181 HILLSBOROUGH, N.C. 27278 Moses Carey, Jr. Alice M. Gordon Stephen H. Halkiotis Verla I. Insko Don Willhoit MEMORANDUM TO: Commissioner Verla Insko FROM: Chairman Moses Carey, Jr. DATE: April 11,.:1991 RE: CPZ PROPOSAL 732 -8181 968 -4501 688 -7331 227 -2031 644 -3004 (Fax) The attachment; is ;a summary; =of the discussion and agreements of the Joint CPZ Work <.droup. -It is:also the document which will serve as the focus'. forrr further discussion with,, the Hillsborough Town Board and;the Orange County .Board-- ,�oE'Commissioners. I will proceed to set up a joint: meeting, as soon as possible. If you have any comments or changes, pleasw,-let me' =know. cc: John M. Link,,Jr:' Geoff Gledhill County Commissioners. YOU COUNT IN ORANGE COUNTY ! QI 1 HILLSBOROUGH CPZ PROPOSAL PROCESS STATEMENT: A joint work group of two persons from each elected board has reviewed and discussed the objectives and issues inherent in a cooperative planning and land use agreement for several months. The process has included periodically sharing drafts of maps and means for resolving issues with other elected board members and each planning board chair and the Rural Character Study Committee Chairman for feedback. Issues have been resolved so as to reasonably achieve the goals of the Town of Hillsborough while preserving the intent of the Orange County Comprehensive Plan. Neither a complete list of Hillsborough goals or a summary of relevant comprehensive plan components will be provided herein. However, a list of issues resolved through mutual agreement of the work group members is included below. CONCEPTUAL FRAMEWORK It is proposed to approach CPZ planning and agreement in two phases. Phase I Rural Character alternative and Phase II Transit Corridor Alternative will be discussed in that order. When agreement is reached, the elected boards will set a time frame for implementing Phase I. The staff and planning boards will develop the appropriate development standards and land use recommendations for elected board approval. Phase II would serve only as issues for discussion and agreement reached only as necessary to pursue town and /or county economic development, transportation planning, land use or other goals. PHASE I - RURAL CHARACTER ALTERNATIVE Strategies have been recommended by the Rural Character Study Committee which could serve to address Hillsborough's concerns and still preserve the intent of the County Comprehensive Plan. The basic strategy is to allow public water /sewer extension outside of transition areas into rural areas but only to serve those development which preserve rural character by providing large amounts of open space in exchange for density bonuses. Five development options have been recommended and have been summarized in attachment A. The rationale for extending a Rural Character District to the south and east of Hillsborough is found in the comprehensive plan. The plan suggests the establishment of a land use designation for the purpose of creating a "buffer" between developing urban areas. 2 By creating a "Rural Character" district and a larger minimum lot size requirement, it sends a clear signal that increased density and non residential development will not be permitted except through approved rural character preservation strategies. For the Rural Character alternative to be effective, Hillsborough must agree not to annex property in the water /sewer service area beyond the transition area boundary. Hillsborough must also agree not to extend public water and sewer beyond the transition area boundary except in accord with the rural character strategies adopted by Orange County. PHASE II - TRANSIT CORRIDOR ALTERNATIVE In a recent report, the Research Triangle Regional Transit Land Use Study, strategies were outlined for the development of a fixed guideway transit system consisting of light rail people mover, dual --mode bus, and /or busway facilities. The strategies included therein have long -range implications for Orange County. Utilization of the land use transit strategies (which will not be summarized here) will address a number of issues which are currently being discussed by the County's. Economic Development Commission and Planning Board. These can be the focus of subsequent County /Town planning agreements. CONSENSUS ISSUES The joint work group reached consensus on the following issues and the supporting map #7 - exhibit B attached. I. Hillsborough would not annex beyond the transition area limits within the next 20 years. 2. Growth within the transition area would be non - concentric, eg. dispersed growth based on ability to extend gravity sewer and the demand for service around major transportation corridors. 3. Public water and sewer extensions beyond transition area boundaries would be limited to large developments or a combination of smaller developments with the expense of such extensions borne by the developer(s). 4. Orange County would have full control over zoning in the extended water /sewer service areas (Rural Character Alternative) with Hillsborough providing service only where feasible. 5. The Town would be primarily responsible for processing development applications in the transition area while the County would be primarily responsible for such outside the transition area. Details for joint or courtesy review must be developed. 6. The Land use and Comprehensive Plan in the CPZ area would be reviewed at least every five years. 7. All land use and zoning changes in the transition area must be approved by both the County and the Town. 3 S. The proposed water and sewer service area would not extend into the Rural Buffer of the Orange County - Chapel Hill - Carrboro Joint Planning Area. 9. The proposed water and sewer service area would not extend so as to encompass the entire Davis Road Area. 10. The proposed water and sewer service area would be limited so as not to extend into a portion of the Upper Eno Protected Watershed (PW -II) district along orange Grove and Dimmocks Mill Road. CONSENSUS ISSUES WHICH MUST BE ADDRESSED BY DEVELOPMENT PERFORMANCE STANDARDS AND POLICY CHANGES 1. Protection of the Eno Division of Duke Forest. This can be accomplished by limiting extensions.of water and sewer through the tract and developing performance standards applicable to proposed projects on adjoining property. This would insulate Duke Forest from adverse impacts and insure the preservation of wildlife /forest habitat. 2. Orange County's Comprehensive Plan and Water and Sewer Policy will have to be changed to reflect the distinction between "urban growth area" and a "water /sewer service area ", a major policy change for the County. 3. Maintenance of Rural Character District between Hillsborough and Durham City to mitigate against potential impact of proposed water line and water sales agreement between Hillsborough and Durham City. This is compatible with the Phase I - Rural Character Alternative. i i 1. 2. 3. EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS OPTION A Option A allows for two -acre lot single - family _ residential subdivisions, as permitted currently in the Rural Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE * *: 0% Option B allows for five -acre lot single- family residential subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: 0% SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". OPTION C Option C allows for a development where 40% (either agricultural AVERAGE LOT* SIZE: REQUIRED OPEN SPACE ** !, �*S frm clustered 1 -acre of the tract is or natural). 0.92 ACRES 40% OF TRACT lot single - family left in open space Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two- thirds, or 67 %, of the tract is left in open space (either agricultural or natural). NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 67% OF TRACT SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost - effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. 5. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small -scale village -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four - fifths, or 80 %, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and collector roadways and feasible public utility extension to create a logical, cost- effective and easily - defined corridor where such developments would be encouraged. Rural village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways.. The Commercial /Institutional core of the Rural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single - family residential lots only. ** - Roadways and easements, except pre - existing utility easements, cannot be placed in or subtracted from open space set - asides. HILLSBOROUGH CPZ -- TRANSITION AREAS Option Z 7: Rase Proposal (Revised) Exhibit B 3 .. J. SECOND DRAFT (4- 29 -91) HILLSBOROUGH CPZ PROPOSAL I PROCESS STATEMENT: A joint work group of two persons from each elected board has reviewed and discussed the objectives and issues inherent in a cooperative planning and land use agreement. The process included sharing drafts of maps and proposals for resolving issues raised by other elected board members, each planning board chair, and the Rural Character Study Committee Chairman. Issues have been reasonably resolved so as to achieve the goals of the Town of Hillsborough while preserving the intent of the Orange County Comprehensive Plan. This document does not provide a complete list of Hillsborough goals or a summary of relevant county comprehensive plan components. However, a list of issues resolved through mutual agreement of the work group members is included. CONCEPTUAL FRAMEWORK It is proposed to approach CPZ planning and agreement in two phases. Phase I Rural Character alternative and Phase II Transit Corridor Alternative will be discussed in that order. When agreement is reached, the elected boards will set a time frame for implementing Phase I. The staff and planning boards will develop the appropriate development standards and land use recommendations for elected board approval. Phase II would serve only as a basis for discussion and agreement on issues necessary to pursuing town and /or county economic development, transportation planning, land use or other goals. PHASE I - RURAL CHARACTER ALTERNATIVE The Rural Character Study Committee has recommended strategies which could serve to address Hillsborough's concerns and still preserve the intent of the County Comprehensive Plan. The basic strategy is to allow public water /sewer extension in designated rural areas outside the transition area but only to serve those development which preserve rural character by providing large amounts of open space in exchange for density bonuses. Five development options have been recommended and have been summarized in attachment A. This designated rural area is identified as a Rural Character The rationale for establishing a Rural Character District to the south and east of Hillsborough is found in the comprehensive plan. The plan suggests the establishment of a land use designation for the purpose of creating a "buffer" between 2 developing urban areas. Creating a "Rural Character District" and a larger minimum lot size requirement sends a clear signal that increased density and non residential development will not be permitted except through approved rural character preservation strategies. For the Rural Character alternative to be effective, Hillsborough must agree not to annex property in the water /sewer service area beyond the transition area boundary. Hillsborough must also agree not to extend public water and sewer beyond the transition area boundary except in accord with the rural character strategies adopted by Orange County. PHASE II - TRANSIT CORRIDOR ALTERNATIVE In a recent report, the Research Triangle Regional Transit Land Use Study, strategies were outlined for the development of a fixed guideway transit system consisting of light rail people mover, dual -mode bus, and /or busway facilities. The strategies included have long -range implications for Orange County. The land use transit strategies (which will not be summarized here) address a number of issues which are currently being discussed by the County's Economic Development Commission and Planning Board. These can be the focus of subsequent County /Town planning agreements. CONSENSUS ISSUES The joint work group reached consensus on the following issues and the supporting map #7 - exhibit B attached. 1. Hillsborough will not annex beyond the transition area limits within the next 20 years. 2. Growth within the transition area will be non - concentric, eg. dispersed growth based on ability to extend gravity sewer and the demand for service around major transportation corridors. 3. Public water and sewer extensions beyond transition area boundaries will be limited to large developments or a combination of smaller developments with the expense of such extensions borne by the developer(s). 4. orange County will have full control over zoning in the extended water /sewer service areas (Rural Character District) with Hillsborough providing service only where feasible. 5. The Town will be primarily responsible for processing development applications in the transition area while the County will be primarily responsible for processing development applications outside the transition area. Details for joint or courtesy review must be developed. 6. The Land use and Comprehensive Plan in the CPZ area will be reviewed at least every five years. 7. All land use and zoning changes in the transition area must be approved by both the County and the Town. t3 8. The proposed water and sewer service area will not extend into the Rural Buffer of the Orange County - Chapel Hill - Carrboro Joint Planning Area. 9. The proposed water and sewer service area will not encompass the entire Davis Road Area. 10. The proposed water and sewer service area will be limited so as not to extend into a portion of the Upper Eno Protected Watershed (PW -II) district along Orange Grove and Dimmocks Mill Road. CONSENSUS ISSUES WHICH MUST BE ADDRESSED BY DEVELOPMENT PERFORMANCE STANDARDS AND POLICY CHANGES 1. Protection of the Eno Division of Duke Forest. This can be accomplished by limiting extensions of water and sewer through the tract and developing performance standards applicable to proposed projects on adjoining property. This would insulate Duke Forest from adverse impacts and insure the preservation of wildlife /forest habitat. 2. Orange County's Comprehensive Plan and Water and sewer Policy will have to be changed to reflect the distinction between "urban growth area" and a "water /sewer service area ", a major policy change for the County. 3. Maintenance of Rural Character District between Hillsborough and Durham City to mitigate against potential impact of proposed water line and water sales agreement between Hillsborough and Durham City. This is compatible with the Phase I - Rural Character Alternative. Moses Carey, Jr. Alice M. Gordon Stephen H. Halkiotis Verla I. Insko Don Willhoit ORANGE COUNTY COMMISSIONERS P.O. Box 8181 HILLSBOROUGH, N.C. 27278 AGENDA ORANGE COUNTY BOARD OF COMMISSIONERS AND THE TOWN OF HILLSBOROUGH JUNE 4, 1991 7:30 P.M. 732 -8181 968.4501 688 -7331 227.2031 644 -3004 (Fax) THIS MEETING WILL BE HELD IN THE AGRICULTURAL AND PLANNING BUILDING ON REVERE ROAD IN HILLSBOROUGH IN MEETING ROOM #1. A. OPENING COMMENTS FROM MAYOR HORACE JOHNSON AND COMMISSIONER MOSES CAREY, JR. B. OVERVIEW OF THE COOPERATIVE PLANNING ZONE PROPOSAL FOLLOWED BY DISCUSSION. C. DISCUSSION OF ANY ITEM OF MUTUAL INTEREST D. ADJOURNMENT YOU COUNT IN ORANGE COUNTY! MML%T 7 HILLSBOROUGH CPZ PROPOSAL FI PROCESS STATEMENT: A joint work group of two persons from each elected board has reviewed and discussed the objectives and issues inherent in a cooperative planning and land use agreement. The process included sharing drafts of maps and proposals for resolving issues raised by other elected board members, each planning board chair, and the Rural Character Study Committee Chairman. Issues have been reasonably resolved so as to achieve the goals of the Town of Hillsborough while preserving the intent of the Orange County Comprehensive Plan. This document does not provide a complete.list of Hillsborough goals or a summary of relevant county comprehensive plan components. However, a list of issues resolved through mutual agreement of the work group members is included. CONCEPTUAL FRAMEWORK It is proposed to approach CPZ planning and agreement in two phases. Phase I Rural Character alternative and Phase II Transit Corridor Alternative will be discussed in that order. When agreement is reached, the elected boards will set a time frame for implementing Phase I. The staff and planning boards will develop the appropriate development standards and land use recommendations for elected board approval. Phase II would serve only as a basis for discussion and agreement on issues necessary to pursuing town and /or county economic development, transportation planning, land use or other goals. PHASE I - RURAL CHARACTER ALTERNATIVE The Rural Character Study Committee has recommended strategies which could serve to address Hillsborough's concerns and still preserve the intent of the County Comprehensive Plan. The basic strategy is to allow public water /sewer extension in designated rural areas outside the transition area but only to serve those development which preserve rural character by providing large amounts of open space in exchange for density bonuses. Five development options have been recommended and have been summarized in attachment A. This designated rural area is identified as a Rural Character The rationale for establishing a Rural Character District to the south and east of Hillsborough is found in the comprehensive plan. The plan suggests the establishment of a land use designation for the purpose of creating a "buffer" between developing urban areas. �• J M M a ff 7 2 Creating a "Rural Character District" and a larger minimum lot size requirement sends a clear signal that increased density and non residential development will not be permitted except through approved rural character preservation strategies. For the Rural Character alternative to be effective, Hillsborough must agree not to annex property in the water /sewer service area beyond the transition area boundary. Hillsborough must also agree not to extend public water and sewer beyond the transition area boundary except in accord with the rural character strategies adopted by Orange County. PHASE II - TRANSIT CORRIDOR ALTERNATIVE In a recent report, the Research Triangle Regional Transit Land Use Study, strategies were outlined for the development of a fixed guideway transit system consisting of light rail people mover, dual -mode bus, and /or busway facilities. The-strategies included have long -range implications for Orange County. The land use transit strategies (which will not be summarized here) address a number of issues which are currently being discussed by the County's Economic Development Commission and Planning Board. These can be the focus of subsequent County /Town planning agreements. CONSENSUS ISSUES The joint work group reached consensus on the following issues and the supporting map #7 - exhibit B attached. 1. Hillsborough will not annex beyond the transition area limits within the next 20 years. 2. Growth within the transition area will be non - concentric, eg. dispersed growth based on ability to extend gravity sewer and the demand for service around major transportation corridors. 3. Public water and sewer extensions beyond transition area boundaries will be limited to large developments or a combination of smaller developments with the expense of such extensions borne by the developer(s). 4. Orange County will have full control over zoning in the extended water /sewer service areas (Rural Character District) with Hillsborough providing service only where feasible. 5. The Town will be primarily responsible for processing development applications in the transition area while the County will be primarily responsible for processing development applications outside the transition area. Details for joint or courtesy review must be developed. 6. The Land use and Comprehensive Plan in the CPZ area will be reviewed at least every five years. 7. All land use and zoning changes in the transition area must be approved by both the County and the Town. L. .� "Dapff4 K3 8. The proposed water and sewer service area will not extend into the Rural Buffer of the Orange County -- Chapel Hill - Carrboro Joint Planning Area. 9. The proposed water and sewer service area will not encompass the entire Davis Road Area. 10. The proposed water and sewer service area will be limited so as not to extend into a portion of the Upper Eno Protected Watershed (PW -II) district along Orange Grove and Dimmocks Mill Road. CONSENSUS ISSUES WHICH MUST BE ADDRESSED BY DEVELOPMENT PERFORMANCE STANDARDS AND POLICY CHANGES 1. Protection of the Eno Division of Duke Forest. This can be accomplished by limiting extensions of water and sewer through the tract and developing performance standards applicable to proposed projects on adjoining property. This would insulate Duke Forest from adverse impacts and insure the preservation of wildlife /forest habitat. 2. Orange County's Comprehensive Plan and Water and Sewer Policy will have to be changed to reflect the distinction between "urban growth area" and a "water /sewer service area ", a major policy change for the County. 3. Maintenance of Rural Character District between Hillsborough and Durham City to mitigate against potential impact of proposed water line and water sales agreement between Hillsborough and Durham City. This is compatible with the Phase I - Rural Character Alternative. 1. 2. 3. up EXHIBIT A RURAL CHARACTER DEVELOPMENT OPTIONS Option A allows for two -acre lot single- family _ residential subdivisions, as permitted currently in the Rural Buffer. Natural resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 1.84 ACRES REQUIRED OPEN SPACE * *: 0% OPTION B Option B allows for five -acre lot single- family residential, subdivisions, to be treated as Minor Subdivisions with an expedited review process, the option of private roads, and lower fees as incentives. Resources would be protected through voluntary conservation and environmentally - sensitive design. AVERAGE LOT* SIZE: 4.59 ACRES REQUIRED OPEN SPACE * *: 0% SPECIAL CONDITIONS: The maximum tract size for development with the Option B incentive package is 200 acres. Option B developments of greater than 200 acres in size would be permitted in accordance with the provisions of "major subdivisions ". OPTION C Option C allows for a clustered 1 -acre lot single- family development where 40% of the tract is left in open space (either agricultural or natural). AVERAGE LOT* SIZE: REQUIRED OPEN SPACE * *: OPTION D 0.92 ACRES 40% OF TRACT Option D allows for a planned residential development with a density of 0.72 (72 units per 100 acres) where two -- thirds, or 67 %, of the tract is left in open space (either agricultural or natural). I 4 5. NUMBER OF UNITS: 72 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 67% OF TRACT SPECIAL CONDITIONS: Option D developments should utilize public water and sewer where possible. Where public water and sewer extension is not cost - effective, the use of community alternative wastewater systems would be permitted. The use of such systems would be contingent on participation in a Monitoring and Maintenance program adopted by the County, and such systems should also be built to public specifications. OPTION E (RURAL VILLAGE) Allows for the development of a "Rural Village ", a planned residential community with a small -scale village -level commercial /service core. The overall residential density of this Rural Village would be 0.84 (84 units per 100 acres). In order to develop under this option, four- fifths, or 80 %, of the tract must be left in open space (either agricultural or natural). NUMBER OF UNITS: 84 UNITS PER 100 ACRES (DENSITY) REQUIRED OPEN SPACE * *: 80% OF TRACT SPECIAL CONDITIONS: Option E is significantly different from other residential options, and should therefore, be permitted with the following conditions: A minimum tract size of 200 acres shall be required for development of a Rural Village. Public water and sewer extension is required. Rural Village developments shall be permitted only within a defined "Development Sector ", to be analyzed and defined in the future through cooperation with local governments and utility entities. Such a sector would factor in the location of arterial and - collector roadways and feasible public utility-extension to create a logical, cost - effective and easily- defined corridor where such developments would be encouraged. Rural Village developments should be located within one -mile of arterial or collector road- ways for traffic management reasons. Such developments should not be located on inter- sections, and should be buffered from roadways. r "� The Commercial /Institutional core of the Rural Village should be designed at the village level. This should include a road network designed to protect the visual resources of the rural character and discourage passer -by activity. * - Single- family residential lots only. ** - Roadways and easements, except pre-existing utility easements, cannot be placed in or subtracted from open space set - asides. r, Option :: 7: Rase Proposal (Revised) Exhibit B