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HomeMy WebLinkAboutAgenda - 04-20-2021; 6-a - Buckhorn Area Plan Study 1 ORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: April 20, 2021 Action Agenda Item No. 6-a SUBJECT: Buckhorn Area Plan Study DEPARTMENT: Planning & Inspections, Manager's Office, Economic Development ATTACHMENT(S): INFORMATION CONTACT: 1. Orange County Planning History Travis Myren, Deputy County Manager, Timeline Related to Buckhorn, (919) 245-2308 Efland and Mebane Economic Craig Benedict, Planning Director, (919) Development Area 245-2592 2. Phase 3 Capital Investment Plan Tom Altieri, Comprehensive Planning (CIP) Map Supervisor, (919) 245-2579 3. Buckhorn Interchange Activity Steve Brantley, Economic Development 4. Outreach Plan Director, (919) 245-2326 UNDER SEPARATE COVER 5. PowerPoint (To be provided prior to the meeting) PURPOSE: To receive a report on the Buckhorn Area Plan Study and to discuss next steps on public outreach and continued analysis and coordination with the City of Mebane. BACKGROUND: This report is intended to provide a framework for further review and outreach related to the Buckhorn Area Plan (BAP). Orange County and the City of Mebane have collaborated on land use planning and associated infrastructure projects since 2004 with agreements to support economic development, a school location, and North Buckhorn Community and Efland sewer service and rate stabilization. The mixture of residential, non-residential (industrial and commercial) and community uses such as a school and parks was acknowledged in the planning of supporting water, sewer and road infrastructure. From 2004 to 2012 Orange County and the City of Mebane continued to coordinate joint planning efforts with the development of the Efland-Mebane Small Area Plan Study and subsequent implementing measures of land use and zoning changes and infrastructure investment. That work bolstered intended private and public sector interest in the existing Economic Development areas in proximity to the dual interstate (I-40/I-85) and interchanges. Additional study by an independent planning and engineering firm in 2017 and 2018 examined the strengths, weaknesses, opportunities and threats (SWOT analysis) of the existing Economic Development and CITAN (Commercial-Industrial Transition Activity Node) areas and 2 recommended further technical land development regulation review, as well as subjective economic development viability criteria (such as topography, proximity to interstate, and environmental constraints). As development pressures continued in this area, as evidenced by Medline, Orange County and the City of Mebane embarked on a joint technical study known as the Buckhorn Area Plan with the hiring of the Piedmont Triad Regional Council. The technical study is available at: https://www.ptrc.org/Home/ShowDocument?id=10489. The focus moving forward will be to concentrate short term efforts on the areas identified in the Study with known developer interest. These areas include Growth Area A, as identified in the Buckhorn Area Plan Study, which is presently within the County's Economic Development area, and Growth Area B. Large parcels within Growth Area B have recently been under contract. Buckhorn Area Plan areas C, D and E were ranked in the study, but no known development interest at this time. Further public engagement and analysis of those Growth Areas may occur in the future following direction from the Board of Commissioners. 1. Overview of County Wide Planning Framework In 1994, the County designated three distinct areas in the County outside of the incorporated municipalities where water and sewer service may be extended and where more dense, primarily non-residential would occur. ➢ The Eno Economic Development District (EDD) is approximately 600+ acres located along Highway 70 bordering Durham County. The City of Durham provides utilities in this area, and annexation of the served parcels into the City is possible. Staff is currently working on a proposal to reduce the general size of the Eno EDD to the approximately 200 acres that are suitable for development based on the SWOT analysis conducted in 2018 and property owners/developers are willing. ➢ The Hillsborough EDD is approximately 370 acres located along the southern boundary of the Town of Hillsborough. The Town is the utility provider in this area, and annexation by the Town upon development is possible. ➢ The Buckhorn EDD (includes areas from Efland west to Mebane) is approximately 1500 net acres along the eastern boundary of the City of Mebane. The City is the utility provider in this area, and annexation is possible upon development. ➢ Overall, 13% of the County's total land area is located in the incorporated areas of Hillsborough, Chapel Hill, Carrboro and Mebane ➢ Three percent (3%) of the County's total land area is in the County's planning jurisdiction (OCPJ) and currently authorized for utility extensions and the accompanying more urban intensities and densities. Utility extensions in these areas are limited by the Water and Sewer Management and Planning Boundary Agreement (WASMPBA). Chapel Hill, Carrboro, Hillsborough and Orange County are parties to that agreement. Utilities in these areas are further guided by interlocal agreements with local governments. ➢ The remaining eighty-four percent (84%) in Orange County's Planning Jurisdiction is limited to low density, low impervious rural residential, agricultural uses, preservation, and watershed protection areas. 96.6% of Orange County's Planning Jurisdiction has limited development potential. 3 2. Water and Sewer Investments within the EDD The County has invested over $5.5 million to install water and sewer infrastructure in the Economic Development Districts. The debt service on these investments is paid through the Article 46 Economic Development sales tax. The Buckhorn Mebane Phase 3 Capital Improvement Plan map (provided as Attachment 2) shows the proposed phasing of an incremental series of infrastructure phases and timing to prepare for buildout development in an orderly and engineering efficient manner in the Buckhorn EDD. The PowerPoint for this item (Attachment 5) will illustrate the prior phases one by one. The FY2021- 22 Capital Investment Plan recommends a $1.2 million Buckhorn Mebane Phase 3 project to extend utilities to Growth Area A. A water system is on site. Orange County has invested in this area since a joint venture with the City of Mebane to build utilities for the middle school and north Buckhorn community since 2004. Further investments were made in CIP phases to a master planned infrastructure `backbone.' 3. Buckhorn EDD Overview The southeast quadrant of the Buckhorn Road interstate interchange has exhibited the greatest economic potential as evidenced by the location of Medline and recent annexations and interest in the 138 acre flea market site and an area west of Petro. The `backbone' of water and sewer infrastructure is existing with visibility and access to the interstate. Attachment 3 shows the Buckhorn Interchange. 4. Known Development Interest and Existing Zoning Areas A and B have high development potential and economic development interest in the short term. There has been no developer interest in Areas C, D, and E (east of 1-85/US 70 connector), so further public engagement and analysis in those areas will proceed in the future as authorized by the Board of Commissioners. 4a. Area A (NE Quadrant of Buckhorn Interchange East of Buckhorn Road Planning Attributes 1. Orange County Land Use Designation: Economic Development 2. Orange County Current Zoning: Economic Development Buckhorn (EDB-1)-1 Uses allowed are generally light industry, distribution and light manufacturing (area is characterized by rail, high power transmission corridor and interstate frontage). 3. Included in the Mebane Land Development Plan - Yes 4. Utilities 4a. Water - Yes 4b. Sewer — No - Stubbed out on south side of interstate. The sewer extension project is included in the Manager's FY2021-22 Capital Investment Plan as well as an upgrade to the Gravelly Hill lift station. 5. Access - Proposed as industrial Drive Extension and location tentatively approved by the North Carolina Department of Transportation (NCDOT) as part of the adopted Buckhorn Access Management Plan. Conversations with a nearby church are helping facilitate the location of the roadway. 6. Annexation Potential - Yes 4 7. Environmental Review: Located in Upper Eno Protected Watershed and subject to all intensity, impervious and stormwater regulations. 4b. Area B (Near Buckhorn Road and South of West Ten Road) 1. Orange County Land Use Designation: Agricultural Residential 2. Orange County Zoning: R-1 (Rural Residential) Housing density is one unit per acre but generally less due to poor septic use soils. 3. Mebane Land Development Plan - Two areas of Growth Area B have been annexed and rezoned by the City and included in the Mebane Land Development Plan. The majority of Growth Area B is not currently in the City's Plan. 4. Utilities a. Water - Yes - Water is available adjacent to the area with the West Ten Road right of way and has adequate capacity. Developer extensions would be necessary from that access point to serve any additional property. b. Sewer- No - Sewer is not currently installed in Growth Area B but would be available through gravity extensions to the existing backbone sewer. Moderate capacity is available. 5. Access - NCDOT will be upgrading West Ten Road which is also part of Buckhorn Access Management Plan 6. Annexation - Some properties are presently within the city and annexation criteria can be met due to proximity. 7. Environmental Review - Part of the Upper Eno Watershed Protected Area and subject to all State and County impervious and stormwater regulations. Area B and Area A are not part of the County designated watershed critical area. The County's critical area is 6 times the size of the State requirements, and the County has only planned approximately 4% of the entire watershed for higher intensity use near the interstate while protecting 96% of the watershed with lower impervious and lower density. 5. Moving Forward Attachment 4 details the outreach plan for Areas A and B where the focus of the overall Buckhorn Development Plan will be pursued. An initial public engagement opportunity is recommended in mid-May. This engagement will guide next steps in terms of further community planning activity and technical analysis. Orange County and the City of Mebane will continue to collaborate on regulations and environmental and cultural review to mitigate growth impacts. FINANCIAL IMPACT: Existing staff resources can fulfill further research and implementation of portions of the BAP. Monies could be budgeted for a `deeper dive' into all related implementation aspects of Areas A and B. 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. 5 • GOAL: ENABLE FULL CIVIC PARTICIPATION Ensure that Orange County residents are able to engage government through voting and volunteering by eliminating disparities in participation and barriers to participation. ENVIRONMENTAL IMPACT: There is no Orange County Environmental Responsibility Goal impact associated with this report. Review will occur as the study continues. RECOMMENDATION(S): The Manager recommends that the Board receive the report and offer any guidance on the outreach program and/or future actions. . 6 Attachment 1 Orange County Comprehensive Planning History and Context (as it relates to) Planning Collaboration Orange County/City of Mebane re: Economic Development Zones 1981 - Orange County adopts a Future Land Use Plan designating corridors and nodes near 1-85 interchanges for Commercial-Industrial (CITAN) uses. 1987 - Joint Planning Agreement between Orange County and Chapel Hill and Carrboro to establish alternative to extra-territorial jurisdiction (ETJ) and set annexation limits (a good faith agreement) (similar but less restrictive agreements with other jurisdictions would occur later). 1994 - North Carolina watershed rules go into effect and County implements protections through zoning overlays with density and impervious standards. Orange County is stricter than the state rules. 1994 - Orange County BOCC changes future land use and zoning in some CITAN areas to economic development including unique uses and standards for development. 1996-2001 - Shaping Orange County's Future (a countywide community and advisory board effort) reconfirms the Future Land Use Plan, uses and location for non-residential. January 24, 2000 - Flagship planning coordination meeting between Orange County, City of Mebane and North Buckhorn Community, known as the "Blizzard of 2000" meeting. Set forth collaboration goals and future agreements in the joint interest area 2002 - Orange County/City of Mebane Original Utility Service Agreement providing for sewer service to north buckhorn community including two churches and water and sewer to Gravely Hill Middle School and soccer center. 2003-2006 - Small Area Planning (SAP) Process (known as Efland-Mebane SAP includes Buckhorn EDD area also) includes elected officials from both local governments and community. Approved plan suggests implementation actions through a community task force and formal actions items of Planning Board and BOCC in subsequent years (2006- 2010). 2002-2008 - Creation of a fully developed County comprehensive plan which includes multiple elements, eight advisory boards, public input and a task force of well-rounded sustainable interest area advocates (adopted 2008-reconfirms Economic Development and CITAN locations) Page 1 of 3 7 2009-2010 - Use of federal grants and County money to install Phase 2 sewer in Efland following late 1980's Phase 1. Sewer Rate studies show system is expensive to maintain and Town of Hillsborough sewer treatment costs becoming too much burden on Efland residents. 2012 - Updated Utility Service Agreement between Orange County/City of Mebane developed earlier, in part, by a utility `backbone' master plan. This multi-phase engineering plan (AKA Buckhorn-Mebane Capital Investment Plan (CIP) Phases)was the basis of Nov 2011 article 46 referendum for ED infrastructure and was included in Orange Capital Investment Plan (CIP) (10 year program to time improvements in engineering infrastructure sequences). This plan also planned to change Efland sewer flow from Town of Hillsborough to City of Mebane thereby stabilizing sewer rates. City of Mebane has now taken maintenance responsibility for all Efland and Buckhorn-Mebane water and sewer assets. 2013-2019 - Construction of multiple phases of infrastructure consistent with earlier engineering master plan and CIP. This work led to North Carolina Department of Transportation (NCDOT) road building grants, CDBG-ED grants for utility extension to Morinaga, location of Medline, support of Orange County soccer center expansion and fire flow augmentation for entire Buckhorn ED and community zones. 2012-2015 - BOCC adopted updated interlocal utility services agreement with City of Mebane, Town of Hillsborough, and City of Durham to support CIP adopted program and Article 46 Economic Development infrastructure referendum. Property owners and community meetings were held to inform public as engineering plans were developed. 2016 - Morinaga Project uses infrastructure 2018 - Orange County BOCC budgeted and completed a strengths, weaknesses, opportunities and threats (SWOT) Economic Development viability analysis through Economic Development and Planning to determine best areas in both (genesis of future Buckhorn Area Plan study). 2019 - City of Mebane was transferred responsibility of Efland Area and Economic Development Sewer Infrastructure for their ownership, maintenance, and customer support. Orange County was able to delete operating costs from their budget. Page 2 of 3 8 2019-2021 - Post recession market forces show high interest in Orange County Economic Development zones. Orange County and City of Mebane study growth potential in the area with the Piedmont Triangle Regional Council Buckhorn Area Plan Study. - Medline uses Economic Development Infrastructure. - Other nearby properties request annexation into Mebane. - Economic Development interests focus on NE quadrant (BAP Growth Area A), SE quadrant (Flea Market and Nyer), SW quadrant (behind Petro) and NW quadrant (ABB expansion uses prior infrastructure investment). 2020-2021 - Buckhorn Area Plan findings and outreach. No implementation actions at this time. Page 3 of 3 9 Buckhorn-Mebane EDD Phase 3 (CIP Pending) — Exhibit 2 6 PROPOSED GRAVITY SEWER LINES AND GRAVITY SEWER CROSSING UNDER 1-40 TO SERVE GROWTH AREA A _ (1-40 crossing via bore &jack, new _ lines will tie into existing gravity line currently serving Medline) i ■ I J17 ' T 11 70 Gro rea A -- �, �� r ��„ Medline � �■■ W EN RD , i 1 , Neyer Growth Area B Property PROPOSED UPGRADE 1 J TO EXISTING GRAVELLY HILL PUMP STATION TO GooK SERVE GENERAL AREA °J (larger pumps, parallel FM, etc.) Q BAP Growth Areas Q Central Efland Phase 1 U �p _ Primarily CITAN Q Central Efland Phase 2 Q Primarily EDD Q E1 Ay 1 a - WOME111MN _■ ♦ 1� 1 ■r �1� _ ■■■� Q7 0lllll/�j IIIIIIII_� •� .IN M!ONE all � .:: ■■ v►�� ��..�/Its ��r = _ ;I :�. mill 85 Soccer Complex ��11111►//_I'/�Liill� (orange • Owned) Evil ►� �-+� rim I N 1 in=2,000 feet �- �1 _ 11 Attachment 4 Buckhorn Area Plan Study Next Steps Outreach Program Focused on Potential Growth Areas "A" and "B" Purpose: Engage with the community; Communicate that Areas "A" and "B" are to be the focus for public engagement and coordination between Orange County and the City of Mebane; Provide additional context for Areas "A" and "B"; Collect public comments and common questions to guide the development of a Frequently Asked Questions (FAQ) document. Schedule: May 17, 2021, 6:00-8:00 PM — Outreach Session Format: Staff is proposing a virtual outreach meeting conducted via Zoom. Following a staff presentation, questions and comments will be collected from participants to be used to prepare the FAQ document. Outreach Content: For the public meeting, the follow items should be included: 1. Context of the Buckhorn Area Plan 2. Annexation 3. How will public comments affect the outcome? 4. Tools for public knowledge of plans 5. Timeline 6. Notification to attend the June 1, 2021 BOCC meeting Public Notification: Planning Staff will coordinate with the County's Community Relations Director to provide public notification of the outreach session via the County's website and social media. Property owners within Areas A and B and those within 1000' of these areas will receive direct mail notification. Reporting to Board of County Commissioners: June 1 — Regular Board meeting to report on Outreach Session 1 and receive any additional direction the Board may have. Continued Public Engagement: Orange County Planning staff collects data on municipal development. Upon BOCC request, staff can prepare and maintain a new webpage that could be used as a central source of information for the public on development trends. This page could be cross-referenced with municipal webpages and could link to existing tools that are maintained by municipalities with regard to development. Any changes to the County's Comprehensive Plan Future Land Use Map or Zoning require Orange County public hearing, advertised consistent with County ordinance, and County Commissioner adoption. Development proposals submitted to Orange 12 County are processed consistent with the County's ordinance and development standards, different from those submitted to the City of Mebane, which are processed consistent with its ordinances and standards. Staff will elaborate on these aspects during outreach. Ongoing Coordination with Mebane: Orange County Planning staff will continue to actively participate in Technical Review Committee (TRC) Meetings in Mebane when action is proposed in Orange County and provide memos in accordance with Orange County Plans. Additionally, the Orange County BOCC may resume its annual meetings with Mebane City Council.