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HomeMy WebLinkAboutAgenda - 02-16-2021; 7-a - Buckhorn Area Plan (Study) 1 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: February 16, 2021 Action Agenda Item No. 7-a SUBJECT: Buckhorn Area Plan (Study) DEPARTMENT: Planning and Inspections ATTACHMENT(S): INFORMATION CONTACT: 1. Buckhorn Area Plan Focus Map Craig Benedict, Director, (919) 245-2575 2. Suitability Values Table Tom Altieri, Planner 111, (919) 245-2579 Tom Ten Eyck, Planner II, (919) 245-2567 3. Potential Future Growth Map Steve Brantley, Economic Development 4. Future Growth Area and Primary Industrial Director, (919) 245-2326 Area Map in Mebane Amanda Garner, Assistant Economic Development Director, (919) 245-2330 PURPOSE: To receive a presentation on the Buckhorn Area Plan (Study). BACKGROUND: In recent years, the City of Mebane has experienced increased interest in the development of properties in Orange County that were not addressed by its existing 2017 Comprehensive Land Development Plan (LDP), Mebane By Design. Per North Carolina General Statutes, the City of Mebane has an obligation to update its long-range plan so that its actions on development proposals, rezoning and annexations are consistent with its adopted plans. The City of Mebane and Orange County have coordinated to provide utilities in the greater Buckhorn area (Efland and westward to Mebane city limits) and have a Utility Service Agreement (2012 was the most recent update) that identifies a service area that, to a significant degree, coincides with the scope of the Buckhorn Area Plan. This Agreement is in need of an update due to new developments and growth pressures in and around the existing Mebane LDP, Efland Mebane Small Area Plan, and City of Mebane/Orange County Utility Service Agreement. The Buckhorn Area Plan may help inform future agreements or amendments. As suggested by the Board of County Commissioners (BOCC) in late 2018, staff was to research the development potential of existing designated economic development zones, as well as other viable sites. A prior engineering analysis of strengths, weaknesses, opportunities, and threats (SWOT analysis) by Timmons Group of the economic development districts bolstered the need for additional study. Orange County's Planning and Economic Development departments worked together with their Mebane counterparts on this plan. As such, both jurisdictions funded the planning study to help inform future land use and potential utility service that could be mutually beneficial. Orange County utilized funds available in the FY 2019-2020 budget to reimburse the City of Mebane for half of the consulting expenses of the Buckhorn Area Plan. The original goals have been to work together with a consultant to further analyze areas within Orange County — adjacent to and near Mebane — and to develop recommendations for a growth strategy. In 2 January 2020, Piedmont Triad Regional Council (PTRC) was selected as the consultant, and beginning on February 6, 2020, Orange County, Mebane, and PTRC have met monthly to discuss the geographic area of the study, the parcel development suitability criteria and mechanisms for feedback on the analysis. During the course of the study, there have been developments in Orange County brought to Mebane with a focus to rezone and to annex into Mebane. Any development proposals that are in Orange County and that fall within the study area have been noted as such in Orange County Planning's feedback to Mebane during the informal courtesy review process. While Mebane has the ability to annex properties that are willing to be annexed pursuant to state law without County `approval', Orange County Planning Staff's review of proposals has included language that informally recommends Mebane delay any further development of parcels that fall within the Buckhorn Area (but outside the existing utility service agreement) until the Plan is finalized and has been shared with the public and elected officials. The BOCC received an Information Item on the Buckhorn Area Plan in its December 15, 2020 agenda packet. THE BUCKHORN AREA PLAN (STUDY): Staff will provide an overview of the Buckhorn Area Plan, which functions as a technical study, at the BOCC meeting. Some key aspects are provided as attachments herein. A copy of the full document can be downloaded via the following link: https://www.ptrc.org/Home/ShowDocument?id=10489 The study uses GIS mapping to determine parcels most suitable for development within the focus area. The process allows for a technical review of multiple development factors including: developable acres, preservation areas, mean slope, watershed, sewer infrastructure, water infrastructure, interstate access, interstate visibility, roadway access, and access to existing rail. In addition to the parcel-level scoring based on objective suitability criteria, there are a few areas of clustered parcels that have been recommended for long-term growth based on a combination of final score and high economic development use potential. The focus area (Attachment 1) for this study was defined after significant consideration of existing land uses, environmental impacts, and economic development potential. This does not mean that all areas in the study are proposed for potential change but just an area/base element of research. The boundaries for the focus area are the rail line to the North; Ben Wilson and Mattress Factory Roads to the west, Mt. Willing Road and parcels along the 1-85 connector to the East; Bushy Cook Road and Seven Mile Creek to the South. The City of Mebane and Orange County Planning, Administrative, Public Works, and Economic Development staffs worked with the Piedmont Triad Regional Council to ensure parcels with the highest potential were included in the analysis. It is worth noting, however, that parcels with significant public utility (schools, churches, cemeteries) were marked as not available for development, regardless of how well they scored on the parcel suitability criteria. Attachment 2 indicates the suitability criteria and values used in the scoring analysis contained in the study. Through the scoring analysis, five potential areas for growth based on size, access, and needs are identified in Attachment 3. The identification of these five potential growth areas is the key outcome of the Buckhorn Area Plan (Study). If and how all five potential 3 growth areas or a sub-set are further pursued through any changes to County land use plans or agreements is yet to be determined. Growth Studies or Small Area Plans are researched based documents which can recommend or inform future land use plan or ordinance amendments. The adoption of such a study would provide a more formal planning and agreement process (could include multiple implementation options) which would need to be decided upon in accordance with the Unified Development Ordinance. MEBANE PLANNING BOARD MEETING/FIRST PUBLIC MEETING: The Mebane Planning Board reviewed the Buckhorn Area Plan and accepted public comment on November 9, 2020. This meeting was available to join online via Zoom, in-person (limited to 7 members of the public due to coronavirus protocols), and available to stream and re-watch on YouTube (https://www.youtube.com/watch?app=desktop&v=ci2UakUtAD8). A notification of the Planning Board and first virtual public meeting was mailed to all property owners within the Buckhorn Focus Area. A short presentation was given by the Piedmont Triad Regional Council outlining the planning process, parcel analysis, and recommendations. The Mebane Planning Board passed a motion to adopt the Buckhorn Area Plan and to amend the Mebane Comprehensive Land Development Plan. The same night, the Planning Board recommended approval of the Buckhorn Area Plan to the Mebane City Council. MEBANE/ORANGE COUNTY OPEN HOUSE MEETING: On Tuesday, November 10, 2020, the City of Mebane and Orange County held a public meeting on the Buckhorn Area Plan. The meeting was held on Zoom and welcomed guest questions, comments, and concerns after a short presentation on the overview of the plan. These questions and comments were taken into consideration, and changes were made to reflect the needs and concerns of property owners. Primary concerns were about development standards such as traffic, buffering, noise, and lighting. The meeting was two hours long, and 25 people attended. MEBANE CITY COUNCIL MEETING: The draft Buckhorn Area Plan was presented at the December 7, 2020 Mebane City Council meeting, and a public hearing was held and continued to January 4, 2021. At the January 4, 2021 Mebane City Council meeting, the Council continued the public hearing before closing it that evening. A decision was deferred until the January 7, 2021 City Council meeting. During the meeting on January 7, 2021, the City Council agreed to take NO action on the Buckhorn Area Plan until Orange County reviews the Plan and offers comments. In the interim and in response to recent developer initiated requests for annexation and Mebane utility connections, the City of Mebane has amended its Comprehensive Land Development Plan (LDP), Mebane By Design, to include three properties south of West Ten Road and Future Growth Area "A". Maps are provided as Attachment 4 illustrating the LDP before the recent amendment and after. Growth Area "A" is labeled in Attachment 3. While the Mebane City Council believes that the Buckhorn Area Plan offers good guidance in determining the economic development potential of additional properties in the utility service area, the Council is not in favor of increasing the geographic extent of its LDP to include any portions of Areas B, C, D, or E without explicit Orange County support. 4 NEXT ORANGE COUNTY STEP: The Orange County BOCC is scheduled to meet in a joint meeting with the Mebane City Council on March 9, 2021 at 7:00 pm via Zoom. FINANCIAL IMPACT: The portion of the study covered by Orange County has previously been budgeted and paid during FY 19-20. SOCIAL JUSTICE IMPACT: The following Orange County Social Justice Goals are applicable to this item: • 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. • GOAL: ENSURE ECONOMIC SELF SUFFICIENCY 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. ENVIRONMENTAL IMPACT: There are no Orange County Environmental Responsibility Goal impacts associated with this item. RECOMMENDATION(S): The Manager recommends the Board: 1. Receive staff's presentation; and 2. Discuss as appropriate. Map 1:Mebane CLP Growth Strategy Areas and Buckhorn Focus Area 5 Dickey Mill Rd `°'`"°'°°�" CITY OF MEBANE a � codas �9 Comprehensive Land a Green Level 3. ay Development Plan �' m�' =v ,.�P� � d GROWTH STRATEGY F° rLo d;L^ V AREAS OVERVIEW =f } 11 Lee Sr Andes t _ y WhTe',LevelRd va ®Buckhorn Focus Area 3 Boson Rd �� r u it } 1 J ! Il --r-t Growth Strategy Areas l,R-} G-1,Mixed-Use i neiRoeers Rd 1 lI_J� �_.r 1L1-'i Lebo^^O Rd r'O ,,,Estaeecoa hRd --�'p, G-1,Industrial i a • o f1 ��` a z- 4/`uAc rof;,hnell�' Amber Or G-2,Industrial G, harn-.Nehan i 1 S`°r '° ''•' £ Z F �. "a '-�1 G-2,Residential 1,�0�0j G-3,Mixed-Use w cemer Tt—.-.i Off_°y sr "•"sr� '0` I y �r- " G-4,Secondary Growth Area r Conservation Area L� Haw _ Other Features River �L kea _ F` a y ++r g s 3f :� `-� u o � �. 6 I ao'I...� 3 0 0 Highway _ '•Proposed NC-1 19 Bypass a f s '! r- u�} o. ----Other Proposed Road 5r°^esrExr ^\ m mebane -' .-3 E «I -o• Bonf'r An°o . J : 3 Jf sa4 S, j�3 '-`'I - _ a E�Woshington Sr —Local Road oQ Q i d •r,7 Str` I �`.O, Av°lo1° ' 70 Railroad R 8n'fo Of f o I. ;,, J O Oakwod SE�t� Study Area Boundary J n County Line s ''rti I 00 BUCKHORNI Municipal Limits FOCUS,AREA '�_='SET, Bowm^n-0.d Stream Lake School IV � �S Hd\sb°°ou9h R'd?--j..-•:-'...:.-.� Graham _ rJ '� i.'J�n i Kwhy Dr IV o N - i or 3 a °9r�a o os 1 40 °a Tr Miles 3 � 1� J �• W — co o' Fy ?a a Mopping provided by the '2 Pi:{o nedmont Triad Reaionol C.—if Planning Department a` 3` L O` D°M:Navember 02,2020 Calloway Dr Al ° r , V 6 Parcel Analysis 1 PARCEL ANALYSIS METHODOLOGY The PTRC obtained GIS files from Orange County and the City of Mebane, including tax parcels, zoning, city limits, and water/sewer infrastructure for analysing tax parcels for their suitability to be developed as employment centers. Other GIS files were used from the State, including roads, railroads, hydrology, watersheds, LiDAR elevation, orthophotography, and conservation areas. After the stakeholder group determined the study area boundary, 569 parcels were selected for further analysis. PARCEL ANALYSIS LAYERS Orange County and City of Mebane Planning,Administration,and Economic Development staffs worked together to establish a list of factors that influence the suitability of a parcel for potential development. The layers include developable acres, preservation areas, mean slope, watershed, sewer infrastructure, water infrastructure, interstate access, interstate visibility, roadway access, and access to existing rail. This section explains the parcel analysis layers in more detail providing a map showing the weighted layers of parcels in the Buckhorn Study Area. The final sum value of each individual layer was then calculated for each parcel to determine a final suitability value. Parcels in the study area ranged from values of 2 to 16,with 16 being the most suitable for development. Parcels could have ranged from-7 to 18, but no parcels reached these minimum/maximum values. Layer cjhain Pak& LKgder 2 Ades -1 D-eve lop uble dcre� (WeHands cmd 2 to 1? 1 floadotains removedr nbErWd ndicneni 20 to 4$ 2 owners) 50 to 3 100 Of More 4 Vcim u Di wkr -1 Fresmrmcion Auaus Qrmmcft n EEmarews ur Akunaged A -2 Nufurd Flue Ek a i Omrrrerr or -1 Skpwffccffd h durd 11-kinfogn Arm c6 1 Mean Shoe 6143 10 0 > 10 -1 Wahvshad NSYIW 1Er -1 A*ail0bl2 .� Sewer Irfra5ructure Pot-enhcd ra serve 2 unlike!y to semi c Awda61e 2 WOW lIffiftembWEIUM Fumrad io ssra i mWFW 0 Irrtersrare access Within 1-5 Miles Driving aisrance to 2 Intei-chan e IMWAUDE ViqbW7 YES 7 Road-ay A:cesi Access to 2+ pwblfc roadways Access to 1 public roadway 1 lAmmx is Ex1dkU 16a1 Yes 7 DRAFT Buckhorn Area Plan 27 7 study area are potentially accessible. Growth areas with rail access are identified in the next section. POTENTIAL GROWTH AREAS Five areas have been identified by City of Mebane and Orange County staff as potential areas for growth based on size, access, and needs. The five areas have been labelled from west to east,ki their prof" dQve1Qpmeftorder orphiad 1Q thQ4 nQt in a particula order of grmLh pQterdK Each of the five areas will be described in detail what elements are needed to encourage development. Maps 18 and 21 show the identified growth areas A through E. Map 21:Growth Area Overview AMBER p ■ c LEBANON RD � ' 1 1:111CCEIRU9 11:11AWkV Orange(ounty&(ity of Mebane Eli y / p� yam/ - .r1 �.. 020 alono n5mannmeo i Yee o .o e oa aosa 0 NN Loke M• h zl � kjM o I 4Louc i A, ! i //AWNS DID \A°m aCdj� 1 O'rIRL PAYl00.ST �C ply OS I 9 y m—l. \� � pAL70N pR s. w 1�- 70 fffNi ea je n � /JJJ 1 fR 57�o AS RED GATE RD t•T�z MCGOWAN CRffR Rp '^x ^ / . o \ a I � GREGG ST '^ f WASNINGi0N 5i-fRT y v h of eil o / 70 EFlondCFee $� 4D� A G ° 70 z Elementary eFULIFR RD�f' -^ • a 1 �° z z o' P 0 1 � Q1 A I GYM RD i INDDSTRIAL DR c —FO0.RE5?AYE SOUTHER D0. Ohp COUNTRY LN T WIi50N1R -�tDNb Gravelly Nill REN JOHNS'. /yL OR Middle 5rhoml roM RD / c WEST TEN RD OJ 9pwMAN Rp � ID 6 ° © o c 3 ° D k t c z m o 0 Z 4 x i le�ee n m„mi 0 nN not it■ mo ERW S i = � Opp iR z L C3 u.dhem F.-A- e 1 O G—h Areas RADHINAS RUN - \` a° -' Mehnne City Limits iM p I■' ` o ..moo i �a ap UMer iox Penal z LANNFORD DCoumy line �66 n. ixr Am r \ y a eRY I111�111� La �_� R d I o Ass os . Y - —Rood ilz• � �Railroad DRAFT Buckhorn Area Plan 55 8 = Dickey Mill Rd Attachment4 CITY OF MEBANE P 2 I �. c,aa E,rr,;.5 ! Hash Rnck )°Fnye r + Rd Comprehensive Land Cross 5 Development Plan Sandy Rd All 'eao. I Z 3 o GROWTH STRATEGY AREAS OVERVIEW tl I eS F oq Rd T} ,, Lee St W sip,p:, 9d - -- „ o °qy Green White LevelRtd Level Growth Strategy Areas Haw I.\ 3 �, �f 1 f� -} f O G-1,Mixed-Use G-,,Industrial River, so Isiey Rd o £ Bon Rd rc ``u ` ; t -' c - r G-2,Industrial non 00 ' i itd G-2,Residential a` r° S E Stagecoa h Rd � p=' s Amber Dr y _ Grr.lran�-,Neb,,,� .a ,� „ V`{rtC,- Lnkr'1•' G-3,Mixed-Use w °°%1 3 �-""L-�itf:rho�-1 L�-1 G-4,Secondary Growth Area R'v ie Luke o� m 2 z x LL I'- er Hopedale Rd _ , x ! i l i zjr.ri� y (/ Conservation Area ,J,_ } 4N. Roads&Other Features W cents.sr. ^_W cloy Z j I--!' �- � \ ° Holt °Interstate m 70 �� 1��\y Holl Sf fir' '3F I +Trlo `..a EMain st i 4 nte`r St k "n v,v_ i SUS Highway INC Highway N 4 SaOno S\ - III "'•Proposed NC-119 Bypass a ; ---- Other Proposed Road i•ot Local Road 'o oP r�1 h 7 _-_ _1'Y + ; E'Washington St 3 eonrio . 'r �i� as\ rrn IF's�L._..._� -1 y h_. Or Y,I SS\s _y Avalon Dr _ Railroad wd�o oakw o_as _IndV5+f1°I Dr � •� ®Study Area Boundary Ig -County Line e Dr La°r o 1 r 5-Third St E'xt T > lac �0.d� j -`_� L- Municipal Limits LFo\\en9 t 1 �r-'t s Mebane .,.._• ..P ;v+� �" we, --- Joy Ln Graham r,�5o1� a ',�-1 ��� V erp Rd _ .j Eta _-_� {{ �j�'- �' 1 � _J Stream + Ln - .LF II 0.6 oko sins °a I. anon Lake e 1�:� No 6 _-.•� F 1. L'rr � j tl '� C] School I P � '��'r h R8 F o'O V _ •I r00� Kathy Dr _ I VI � Ne'njOca , N Jim Min d 0 41 y n ra err :N °J9rRd o os I V `/�I �S ✓ e V°a Sam Lee Rd V O y o Sa °c Miles o C '�9 v v Mapping provided by the n0.d Piedmont Triad Regional Council Planning Department Roes° o i. �h e Date:January 11,2017 3°e 3 Co\ Swepsonville = , ( 847GiYi� PlfnMavT TRtnn a rule- ��u.0 9 Dickey Mill Rd CITY OF MEBANE � a C.'%4 Hi r pMe Joo' ° gnRockRd Comprehensive Land 5°ndy Cross Rd Development Plan Z 3�o sq � mO Z 3° Q°aa a�J o ph°lrDr a `" e7. GROWTH STRATEGY F°� P L o-di Ln AREAS OVERVIEW Leas, on Rd ..i J -- ''- .,� Post Adoption Amendment °Ry Green white',Level Rd :4 - ; ePcE Level ', ,°<'_. a to Growth Area V s n 1-ol Church Rd 'VII Growth Strategy Areas Boson Rd i� • ` G-1,Mixed-Use yet+ = Is IeY Rdo c - o • `� ' . 'In';s .T ffff IYY••3 Leba L_ �' T- -G-1,Industrial IN Esmgecoach.Rd y a� T � • £ n�Or��a° _ �ke Mirh�l,r-�I• Amber Dr G-2,Residential oa.�? ,(]'!tea 'O �--'y �•� a G-3,Mixed-Use R1°Pr Hopedale Rd Z m $ v� r� d G-4,Secondary Growth Area II I'H'C/tly sr 2 wERr sst 0 1' 1 r~T ° 0 4 , w doter sr o;_ - e`e 4 G-2,Industrial Burlington % � WHolr sr' '__;;_ I T]y-� !!! +T o Conservation Area ! c o.'�E Main St �° - ���a all+� a EGenre'srl( 5 yrl A n_ r Other Features on Gave y, a zlLake l° - ol+`a `^ - a S z ° 3 r' _O__ y z'I',- Highway a n o Lam- o — o c° Sa So e 51 ' lr+„_ Z. ro y l c'�el.�r i L—_1 3 Proposed NC-1 19 Bypass wMa\n ` r I El4oshin4b .'� - Other Proposed Road Stone se Exr j 7 Mebane �, 70 —Local Road q o 1� V � Bonfr° 4nn \rl r - _ i� abSa Emerso y I';I i.._� moo., I-_._-,. '. Railroad Haw River i °o,�`L g °t•II stra 1O Avalon o---t l ®Study Boundary a` y�' 1V ,w Oakwood S� a- 'Industrial Dr� - n I y � dy\Vd I —County Line V =Municipal Limits °n o• 1 S —a^ 11 �� R ynr7 r - • F1ryh -:.L .'..Pa, s�dsi _ _ f t° Graham Trollingwood w. )� a _ �1 n.. ° wes,en LiETJ on ; .{ '} Strea m Joy L^ d ya'R j9 o. .mil .r III '�G°1rT/Lrda4e[ £rY Rd ! RI t✓ aoµatsias Ln 9t`Oa Bo ILw Lake 7 1 I- _ O Yi °0 8 No h !.�_ -L- 7 :.E..' l l'T�_a iF, i School Rd a� a IV i r e— wl_•_L. F I Ry' F �praugh Rd E e P°aQ"S�� - Cherty L^ F r Se 1 r yq T j J L Kathy Dr L a39n\C,^'reY ` a l l o6Y> r ebjOhch ° 11 V I NJi - " N o IV .,l �?c O '°Minor Rd .` IF a. 0 0.5 1 o 61 sam Lee Rd v 52 %3 r y, :°� sa sa yo Miles o n qa Mapping provided by the ^Rd Piedmont Triad Reg,on°I Council Planning Department �°so v ` ��°j Date:December 18,2020 aA yf A� 0 3°Q 1 � GO\\oWaY Dr LlftLkKe