HomeMy WebLinkAboutAgenda - 03-11-2025; 2 - Consultant Presentation on Draft Orange County Land Use Plan 2050 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: March 11, 2025
Action Agenda
Item No. 2
SUBJECT: Consultant Presentation on Draft Orange County Land Use Plan 2050
DEPARTMENT: Planning and Inspections
ATTACHMENT(S): INFORMATION CONTACT:
A. Memo from Clarion Associates Tom Altieri, 919-245-2579
B. Draft Public Review Draft of the LUP 2050 Cy Stober, 919-245-2592
PURPOSE: To receive a presentation from Clarion Associates, LLC, on the Draft Land Use Plan
2050 for discussion and feedback.
BACKGROUND: At its September 10, 2024 work session, the BOCC received a presentation
with an update on project progress, preliminary outcomes of the second community engagement
window, and initial recommendations for the draft Conservation and Growth Framework.
County Planning staff, Staff Working Group, and Clarion Associates have been coordinating to
prepare the draft Public Review Draft of the Land Use Plan 2050 for BOCC review and feedback.
Feedback received from the Board will be used to edit the Public Review Draft, which will be the
focus of the third community engagement window to be held May — July of this year.
Additional information, including objectives for the March 11 and April 8, 2025 BOCC work
sessions, is provided in Attachment A. A PowerPoint presentation will be provided at the meeting.
Additional information about the project, including e-mail sign-up for project updates, are available
on the project website: .https://www.orangecountVIanduseplan.com.
Completed project deliverables, including Fact Book; outreach summaries; and more, are also
available on the project website: https://www.orangecountylanduseplan.com/resources
FINANCIAL IMPACT: There is no financial impact associated with this item.
ALIGNMENT WITH STRATEGIC PLAN: This item supports:
• GOAL 1: ENVIRONMENTAL PROTECTION AND CLIMATE ACTION
OBJECTIVE 4. Incentivize and promote sustainable agriculture and local food systems
development through supportive policy, funding, farmland protection and educational
outreach.
OBJECTIVE 5. Review land use policies to promote and connect Town, County, and
private trails and open spaces.
OBJECTIVE 6. Protect water supply/watersheds.
OBJECTIVE 7. Conserve and protect high priority open space, including Natural Heritage
sites, nature preserves, watershed riparian buffers, and prime/threatened farmland.
2
OBJECTIVE 8. Include environmental stewardship objectives in the Comprehensive Land
Use Plan.
• GOAL 2: HEALTHY COMMUNITY
OBJECTIVE 7. Invest in services and programs that improve the health and quality of life
of the community (e.g., recreation and public open spaces, arts, etc.)
• GOAL 3: HOUSING FOR ALL
OBJECTIVE 5. Review County ordinances, policies, agreements, and the regulatory
processes to streamline practices, and increase opportunities and reduce barriers to
construct housing.
OBJECTIVE 7. Expand resources and invest in housing designed for our aging and
disabled residents.
OBJECTIVE 9. Increase representation of people with lived experience on housing related
matters.
• GOAL 4: MULTI-MODAL TRANSPORTATION
OBJECTIVE 1. Identify priorities and resources necessary to implement the Orange
County Transit Plan.
• GOAL 5: PUBLIC EDUCATION/LEARNING COMMUNITY
OBJECTIVE 1. Foster collaborative relationships with formal and informal educational
organizations and agencies to provide opportunities for community members to meet,
connect, and learn together.
• GOAL 6: DIVERSE AND VIBRANT ECONOMY
OBJECTIVE 2. Review and revise County policies and regulations to support business
investment in Orange County.
RECOMMENDATION(S): The Manager recommends that the Board:
1. Receive the presentation from Clarion Associates;
2. Discuss; and
3. Provide initial feedback on the draft Public Review Draft of the Land Use Plan 2050
(Attachment B).
Attachment A 3
Li I y
Clarion Associates
919.967.9188
101 Market Street,Suite D
Chapel Hill, NC 27516
www.clarionassociates.com
MEMORANDUM
TO: Cy Stober, Planning& Inspections Director, Planning& Inspections Department
FROM: Leigh Anne King, Director& Emily Gvino, Project Planner, Clarion Associates
DATE: February 10, 2024
RE: Discussion of the Comprehensive Land Use Plan with the Orange County Board of
Commissioners at the March 11 and April 8 Work Sessions
This memorandum outlines key topics regarding the Public Review Draft of the Land Use Plan 2050 that will be
shared at the Board of County Commissioners work sessions on March 11 and April 8, 2025.
1. The first objective of the March 11 meeting is to brief the Board on project progress and provide an
overview of the Public Review Draft of the Land Use Plan 2050.The brief presentation will provide a short
summary of Phase 4 work that is completed and underway; review the key components of the plan's
framework, including the Conservation and Growth Framework Map and associated policy guidance;and
share a general schedule for the upcoming Community Engagement Window#3.The graphic shown here
provides an overview of the Land Use Plan 2050 phases.
OFA
Phase 1: Phase 2: Phase 5:
Launch i� Identify New Evaluate Develop the Adopt the
Project Issues and Planning Plan Plan
OpportunitiesInfluences
pp
2023' �.en 202 xoas p
2fl23 `� 2024 '2a2i 2oa5 znafi
lilloof
Commu ntty Engagement Window NL: Communky Engagement Window#Z:
Confirming Community Aspirations Testing Growth and Conser�atlon Framework
Community Engagement Window 03:
Unveiling of Draft Plan
PUBLIC ENGAGEMENT
2. The second objective is to receive feedback from the Board of County Commissioners about the Public Review
Draft of the Land Use Plan 2050. The March 11 work session presents a key opportunity for the Boards to
provide initial feedback on the draft Land Use Plan 2050.The Board will be able to ask questions and provide
guidance on the elements of the plan, including the Vision Themes, Goals, Policies, Actions, and the
Conservation and Growth Framework Map. Additional substantive feedback for the purposes of informing the
April 8 work session is requested by end of day March 25.
The April 8 work session will provide the opportunity to review all comments received and summarize how
they will be addressed before the launch of Community Engagement Window#3 to unveil the draft plan to
the public in May 2025.
3. The final objective of the work sessions is to provide an overview of the project schedule through the targeted
adoption meetings. This includes all the critical components of the third community engagement window,
September BOCC meeting to present the findings of engagement, scheduled adoption hearings, and potential
domino effect of schedule and/or scope creep.
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PUBLIC REVIEW DRAFT
MARCH 3, 2025
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ORANGE COUNTY
LAND USE PLAN
Guiding Our Future
2050
This p.•- intentionally lei, blank
DRAFTPUBLIC REVIEW
6
Overview/Background ....................................................................................................................5
Aboutthis Plan......................................................................................................................................7
Community Vision Themes ......................................................................................................10
Needfor a New Plan ........................................................................................................................13
CommunityAspirations ...............................................................................................................15
Goals ...........................................................................................................................................................19
Conservation and Growth Framework Map ...................................................................21
LandUse Categories.......................................................................................................................25
Environmental and Wildlife Habitat...................................................................................40
Policies......................................................................................................................................................42
Introduction...........................................................................................................................................83
LegalContext ......................................................................................................................................83
Linkage to the Strategic Plan .................................................................................................84
Actions......................................................................................................................................................85
Updating & Amending the Plan...............................................................................................91
Monitoringand Reporting ..........................................................................................................91
AppendixA: Glossary ....................................................................................................................95
Appendix B: Planning Influences...........................................................................................95
ORANGE COUNTY LAND USE PLAN 2050 3
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OVERVIEW/BACKGROUND
What is a Land Use Plan?
A land use plan is a strategic, long-range implementable in North Carolina or in
document that guides decisions made Orange County.
by a local government regarding where Growth and development in Orange
and how development happens. In North County are guided by the adopted Future
Carolina, local governments must have a Land Use Map (FLUM) included in Chapter
reasonably maintained comprehensive 3,entitled the Conservation and Growth
plan or land use plan in order to retain Framework Map.The Conservation and
the authority to adopt and enforce Growth Framework Map (CGF)outlines
zoning regulations (G.S.160D).This statute the envisioned future land uses and
requires that zoning regulations are "in character of different areas in the County's
accordance with a comprehensive plan" planning and zoning jurisdiction.Although
and also requires that local governments the Conservation and Growth Framework
make statements of consistency map is not legally binding, it guides zoning
when making rezoning decisions on a decisions to ensure that development
development application. aligns with the County's long-term goals.
Approved rezonings change the legally
As such,this land use plan is intended to binding zoning map and are intended
be used as a tool to help Orange County to bring proposed development in
elected officials and staff identify how line with the vision shown on the Map.
they want to prioritize resources and For more information,see Chapter 4:
future planning efforts, and to determine Implementation.
if proposed changes are consistent with
the vision and goals reflected in this
guidance document.The adoption of a
comprehensive land use plan is not the
end of the land use planning process.
Once adopted, Orange County will need 2030 Corn�rehensive Plan
to periodically update this Plan to address
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changing conditions and evaluate new laiiun ordnChan e9em,my
3990-2apo
opportunities.
A comprehensive land use plan works
within the legal system of federal,state,
and local regulations. North Carolina is a `
�
Dillon's Rule state that limits the regulatory ADOPTED
powers of local governments to those that
are expressly authorized by State Statutes � .
adopted by the General Assembly.This a J
means that Orange County's authority
to both create tools and enforce rules
are limited by the State.Tools and rules
used in other states may not be legally 2030 Comprehensive Plan Replaced by Orange
County and Use Plan 2050
ORANGE COUNTY LAND USE PLAN 2050 5
9
1. ESTABLISH POLICY
PRIORITIES:
Comprehensive
Plan/Other plans
2. SET WORK
PRIORITIES:
5. ASSESS Strategic Plan and
PROGRESS: Departmental
Work Plans
Measure &
Evaluate
3. SET FUNDING
4. IMPLEMENT PRIORITIES:
PRIORITIES: Budget/CIP
Initiatives, Projects,
Code Updates
Planning Cycle
The Planning Cycle
Land use planning is a continuous cycle: It begins with identifying a long-range vision
and developing policy guidance as components of an adopted land use plan.The
community then identifies shorter-term priorities such as the Orange County Strategic
Plan and departmental work plans that support long-range policy direction.
Using these plans,the County can identify priorities in order to create the County's
annual budget and capital improvements plan to implement the community's vision
and achieve its goals.The County assesses implementation efforts to measure and
evaluate progress. Land use plans are generally updated on five to ten-year cycles,
depending on the needs of the community and to address changing conditions and
planning influences that affect land use.
6 PUBLIC REVIEW DRAFT
10
ABOUT OPLAN
This Orange County Land Use Plan 2050
establishes a countywide land use vision to
cultivate sustainable development and an
actionable strategy to achieve that vision
over the next 25 years.This plan will guide
the County's conservation and growth
efforts by following and implementing the
established Vision Themes, Goals, Policies,
and Actions. It considers relationships
among land uses, infrastructure (such as
roads and utilities),jobs,the environment,
and community needs,and outlines policy
guidance for addressing these objectives.
County staff and officials can use the plan
to guide land use decisions that effectively
provide a high quality of life and greater
equity for community members.
This Land Use Plan was developed using ,
a robust public engagement process
that provided numerous opportunities
and ways for community residents,
property owners, businesses,and other
stakeholders to contribute to the plan's
policy direction. Chapter 2 provides a
summary of highlights from Community =`
Engagement Windows 1,2,and 3,and
the Plan's Appendix provides more
details, including written feedback from
participants.
Chapter 3 details the Goals and
Policies of this Plan,aligning them with
comprehensive plan elements required in
Section 1.7.2 of the Orange County Unified
Development Ordinance. -
Community Engagement Window#2 Workshop
ORANGE COUNTY LAND USE PLAN 2050 7
11
Conservation and Growth Framework
This Land Use Plan 2050 sets out policy guidance for land use decision-making related
to conservation and growth proposals and other Orange County land use initiatives
and programs.The policy guidance for the Land Use Plan 2050 is organized through
four components:
• Vision Themes: The highest level of plan framework intended to express the ideal
aspirations of the plan.
• Goals: The desired outcomes related to each Vision Theme.
• Policies: The statements of commitment and direction toward achieving the
Goals. Describe positions to inform decision-making by the County or a partner
agency.
• Actions: Specific implementation tasks that the County and its partners will take
in the future to realize the Vision Themes, Goals,and Policies.
1W
f-
VISION THEMES
HIGHEST LEVEL OF PLAN FRAMEWORK-,
IDEAL ASPIRATIONS OF THE PLAN
z
GOALS
DESIRED OUTCOMES RELATED TO THE
VISION THEMES
POLICIES
STATEMENTS OF COMMITMENT
AND DIRECTION FOR ACHIEVING
PLAN GOALS
ACTIONS
SPECIFIC
IMPLEMENTATION
EFFORTS
Conservation and Growth Framework
8 PUBLIC REVIEW DRAFT
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Orange County will use the Conservation and Growth Framework(map and future land
use categories)to support sustainable development across the county that balances
conserving natural areas and working lands, provides more attainable housing choices,
and increases employment opportunities and the local tax base. Critical to the Orange
County's future land use vision is continuing coordination and partnership with the
municipalities in Orange County to support the development of sustainable urban and
suburban-scaled growth within their jurisdictions.
Blackwood Farm
ORANGE COUNTY LAND USE PLAN 2050 9
13
COMMUNITY •
The Vision Themes express the aspirations of the Orange County Land Use Plan
2050 and articulate the County's land use priorities,organized around the vision of
Sustainable Development.The three themes help establish a context for focusing on
the core elements of this Plan: Goals, Policies,and Actions. By 2050, Orange County will
achieve the following:
Vision Theme 1: Cultivate Sustainable Development
Orange County will cultivate responsible and equitable land use and environmental
policies that meet the needs of the present community without compromising
the ability of future generations to meet their own needs. Recognizing the
interconnectedness of social,economic,and environmental sustainability,the County
will accomplish this through the additional Vision Themes below.
Vision Theme 2: Continue to Protect Vision Theme 4: Implement Sustainable
Natural Resources, Watersheds, and Transportation Systems and Economic
Open Spaces; and Preserve Agricultural Development Initiatives
Lands
The County will reduce vehicle miles
The County will ensure the sustainability, traveled by supporting design of walking,
resiliency,and health of our natural biking,and public transit opportunities
resources by protecting wildlife habitats within developments in municipal growth
and corridors, riparian areas, open areas and support walkable environments
spaces,and critical lands vital to water in rural-scale neighborhoods to lower
resources.We will also preserve our natural greenhouse gas (GHG) emissions and
and cultural heritage sites,agricultural help achieve an overarching climate
lands,and working forests as important action goal of 100% GHG reductions by
contributors to our local quality of life, 2050. Economic development efforts
community character,and economy will support development of local
employment opportunities for county
Vision Theme 3: Advance Opportunities residents and provide a more balanced
for Attainable, Equitable Housing and tax base through implementation of
Employment sustainable practices for transportation,
The County will be home to a thriving land use,and accessible housing.
community supported by the
development of diverse,attainable, The Vision Themes and Goals for the Orange
and equitable housing opportunities County Land Use Plan 2050 reflect other
policies developed by Orange County,including
for all community members.A greater the 2024 Countywide Strategic Plan and the
diversity of housing choices will increase Climate Action Plan(CAP). For more information
on these plans,see the Appendix.In particular,
access to needed and desired amenities, the Vision Themes considered the climate
public transportation, employment,and action goals identified in the CAP These goals
commercial centers. will in part be achieved through sustainable
development,and include:
Achieving 100% Renewable Energy by 2050
100%Reduction in Greenhouse Gas
Emissions by 2050
10 PUBLIC REVIEW DRAFT
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1i Wei iN
CULTIVATE
SUSTAINABLE
DEVELOPMENT
Advance
Opportunities for Implement Sustainable
Attainable, Equitable Transportation
Housing and Systems and Economic
Employment Development
Initiatives
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PLANNING
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INFLUENCES
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Since the adoption of the last comprehensive plan ("2030
Comprehensive Plan") in 2008, Orange County has experienced
population increases,a loss of farmland due to low-density
development,decreased housing attainability,and increased
demand and need for climate action. Growth patterns have
shifted as the southern towns near"build-out" and growth
pressures in the western part of the county have increased near
Mebane and along 1-85. Statistics shared here highlight the need
to assess the County's land use plan policies and to create a plan
to address these planning influences over the next 25 years.
• From 2010 to 2020,the greatest • Percentage of the population
increases in population who identify as African
numbers in Orange County American has decreased in
were in the unincorporated Orange County in the past two
areas. decades.
• The portion of Mebane in • According to the 2022 USDA
Orange County experienced Agricultural Census, Orange
the greatest percent change in County has experienced a
population growth from 2010 significant decrease in the acres
to 2020,compared to the other of land devoted to farming in
municipalities. the past two decades.
• North Carolina ranks 8th • The average size of farms
nationally in the portion of the in Orange County has also
population over the age of 65. decreased,while the total
• Orange County's share of number of farms has increased.
population growth due to • Fewer for-sale housing units
ages 65 and older was higher are built in Orange County
than surrounding counties and compared to nearby counties.
North Carolina as a whole.
• The median home sales price
• From 2000 to 2022, Orange in Orange County continues
County has seen an increase in to increase,while the median
the Hispanic/Latino, Asian, and values for household income are
Pacific Islander populations, not keeping pace.
and the percentage of the
population identifying as some • Orange County continues to see
other race(or two or more a higher percentage of cost-
races). burdened households compared
to other areas in the region.
ORANGE COUNTY LAND USE PLAN 2050 13
17
Orange County's 2030 Comprehensive
Plan contained a broad set of
policy guidance and programmatic
recommendations across a wide range of
topics.This 2050 plan focuses on land use,
and how it is influenced, impacted by, or
related to other planning topics.This Plan's
Appendix provides summary information
on relevant land use trends and conditions,
current initiatives and programs, policy
guidance from other adopted county
plans,and community aspirations for
the county's future that influenced the
development of policies included in n d UseChapter 3. "Guiding Conservation andoil Growth. Additional project resources
are also available and are linked in theAppendix, including the Community Policy
Profile,the Fact Book,and the New Issues _
and Opportunities Report.
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Community Engagement Window#1
14 PUBLIC REVIEW DRAFT
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COMMUNITY ■ •
Community support is the foundation The second Community Engagement
for this Plan's policy direction.Through Window-Testing the Conservation and
community engagement efforts,the Growth Framework-was held in the fall
inputs of residents and community of 2024.This phase of engagement asked
members were documented,themed, community members to review modeled
and used to create the Plan Framework land use alternatives and the draft Vision
elements.To this end,the Orange County Themes and Goals. During this window
Land Use Plan process provided three key of engagement,community members
opportunities for public engagement to shared:
participate in the process:
• Strong support for protecting priority
The first Community Engagement agricultural,environmental,and rural
Window- Confirming Community lands,-
Aspirations
ands;Aspirations-was held from the fall of
2023 through winter of 2024.This phase of • Desire to see more housing choices;
engagement asked community members . Mixed support for higher-density
to define aspirations for Orange County residential mixed-use development
in 2050 that can help lead to the vision and providing more employment
and goals for the plan. During this window, opportunities;
community members shared:
• Support for Rural Conservation
• Concern about the rising costs of Neighborhoods;
housing,and that affordability is a key
factor in staying in Orange County • Support for expanding the Economic
over the next 25 years; Development Area near Mebane/1-85,-
•
ebane/1-85;• Desire to maintain the natural and • Support for the draft Goals and Vision
agricultural environment, including Themes,with some adjustments;and
local farms,well-preserved forests, . Mixed support for extension of public
rivers,and other natural spaces of water and sewer and/or development
Orange County; of private water and wastewater
• Desire to see sustainable systems.
development that minimizes impacts For more information on community
on the environment and mitigates input,and links to detailed reports on
effects of climate change;
community engagement from the Land
• Support for small business Use Plan 2050 process,see the Appendix.
development and increasing
safe,affordable,and efficient
transportation options for workers to
get to jobs;and
• Support for protecting the county's
water supplies,agricultural lands,and
healthy soils.
ORANGE COUNTY LAND USE PLAN 2050 15
19
PUBLIC ENGAGEMENT
BY THE NUMBERS
-J
Phases of Engagement
C
Community Meetings or Workshops
'Z11 C L
Total In Person Attendees
� L
Surveys Received
L� Staff Working Group Meetings
7Stakeholder Interviews
16 PUBLIC REVIEW DRAFT
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Goals express the desired outcomes related to each planning topic included in the Land Use
Plan 2050. Guided by the Vision Themes,these articulate a more specific desired result to be
achieved and set the stage for the policies and measurable actions that will achieve the Plan
Goals.
During the next 25 years,Orange County will strive to achieve the following Goals through its
land use planning policies and actions.
iF
Regional and Local Growth: Position Orange County as a leader in the
region for balancing the competing priorities of conservation and growth,
by encouraging sustainable development patterns that protect key
9 .2 environmental and agricultural assets and meet local needs for growth.
Q
Agriculture, Working Lands, and Open Space: Limit the loss of farms,
working lands, open spaces,critical habitats,and other important
N conservation areas by guiding growth to areas near existing towns, into rural
E conservation neighborhoods,fostering public and/or private conservation
seasements,ensuring erosion control and stormwater best practices,and by
continuing to implement and encourage programs that preserve, enhance,
C and invest in these places.
� Environment, Parks, and Recreation: Protect and sustain the county's
> natural resources for the continued good of all, including the encouragement
_ of forest preservation,water quality and stream protection,carbon
.3 sequestration,and preserving high-quality, intact,and connected wildlife
habitats. Provide equitable access to Orange County's abundant natural
= resources and high-quality parks and recreation facilities.
QResiliency: Mitigate the impacts of hazards such as extreme heat,drought,
flooding,and other severe weather events,through climate-resilient and
green infrastructure systems.
ORANGE COUNTY LAND USE PLAN 2050 19
23
Community Equity: Create an environment in which all people, regardless
of age,ethnicity, race, or other distinctions,are welcomed, represented,and
M empowered to contribute to and connect with their community. Dismantle
historic land use inequities by ensuring fair and equitable access to housing,
employment,transportation,services and community facilities, natural areas,
-� parks,and recreation that contribute to health and quality of life.
H
0 Housing Attainability: Increase the number of community members who
both live and work in Orange County by supporting the development
> of and access to a diverse array of housing options, including for worker
s households and seniors. Policy agreements with municipalities should
4J
'3 encourage infill density where utilities already exist,and the County should
V revise its regulations to allow for increased density at strategic locations
that encourage use of crossroad activity nodes and minimize disruption to
the county's environmental,open space and agricultural resources. Housing
Q should be safe,climate-smart, high quality,affordable to different household
incomes,and accessible to key destinations such as healthcare,employment,
and community resources.
Economy and Employment: Enhance Economic Development Areas
(EDAs)to foster development of new businesses that reinforce the County's
commitment to sustainable development through implementing site design
and green building practices, leveraging multimodal transportation options,
advancing the economic upward mobility of community members, reducing
d' vehicle miles traveled by providing new jobs closer to residents' homes,and
0 diversifying the local tax base.
t
Services and Community Facilities: Provide equitable access to goods,
H services,and facilities for all residents. Partner with municipalities and utility
providers in Orange County to provide services and community facilities
•7 that support the County's Conservation and Growth Framework; optimize
available resources that are fiscally responsible; are land,energy,and water
t efficient;and promote resiliency within our community.
•3 Transportation and Mobility: Support collaboration with municipalities
and regional transportation partners to achieve innovative, resilient,and
C sustainable multi-modal travel options that reduce traffic congestion,
increase public safety,decrease vehicle miles traveled,and reduce air
Q pollution. Support the County's Conservation and Growth Framework
(the Future Land Use Map and 2050 Land Use Plan policy guidance)to
realize a land use pattern that will reduce vehicle miles traveled to access
goods,services,and employment. Investments in transportation should be
evaluated based on an equity lens to improve access to job opportunities,
housing,and key amenities and services for community members.
20 PUBLIC REVIEW DRAFT
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The American Planning Association defines sustainable development as,"development
that maintains or enhances economic opportunity and community well-being while
protecting and restoring the natural environment upon which people and economies
depend" Sustainable development meets the needs of the present without compromising
the ability of future generations to meet their own needs. Often termed the"triple bottom
line,"sustainable growth can be achieved in Orange County by balancing environmental,
social,and economic factors.
When evaluating the best land use practices to achieve sustainable development, planners
look to a key resource published by the American Planning Association,the Urban Land
Institute,and the Smart Growth Network called "Best Development Practices:A Primer
for Smart Growth" by Reid Ewing and Robert Hodder.The policy guidance provided in
the Orange County Land Use Plan 2050 integrates the following best practices from this
resource:
Mix land uses and concentrate development.
Keep vehicle miles of travel(VMT)below the area average.
Contribute to the area's jobs-housing balance.
Include civic uses in mixed use areas.
Promote smaller areas of clustered development patterns.
Place higher density housing near commercial centers,transit lines,and parks.
Phase convenience shopping and recreational opportunities to keep pace with housing.
Make subdivisions into neighborhoods with well-defined centers and edges.
Concentrate commercial development in compact centers.
Make shopping centers and business parks into all-purpose activity centers.
Tame auto-oriented land uses or at least separate them from pedestrian-oriented uses
(such as sidewalks and greenways).
The reservation of school sites has been omitted from the above list,as an illegal practice in North Carolina.
Sustainable development can include efforts to tame sprawl in a community,which often
takes the form of an unplanned,uncontrolled,and uncoordinated single-use development
that does not provide for an attractive and functional mix of uses and/or is not functionally
related to surrounding land uses. Rural sprawl is primarily characterized as low-density
residential land use patterns that are car-dependent,and energy and land consumptive.
Because of their focus on single-family housing,such land uses can decrease housing
choices and contribute to an unbalanced government tax base. An example of a rural
sprawl development pattern are two-acre lot estates.While these development patterns
do maintain some level of natural features on a site,they ultimately fragment the landscape
by increasing impervious surfaces that affect drainage and stormwater patterns and break
up habitat corridors and hubs that serve various species.Also noteworthy,the conversion
of agricultural land to low-density residential uses(sprawl) is one of the primary drivers of
farmland loss in Orange County(and across the United States).
Achieving this concept of sustainable development that reduces rural sprawl and protects
natural areas and working lands is the central objective of this Land Use Plan.
25
Conservation subdivisions are a
site-specific design strategy that
attempts to preserve undivided, �cf�
buildable tracts of land as
communal open space for residents. L
In a conservation subdivision, ideally
50 to 70 percent of the buildable
land is set aside as open space by
grouping or clustering homes on
the developed portions of the land.
ar
The conservation subdivision design
process, promoted by Randall o.
Arendt, begins by identifying land to -
be conserved and ends with drawing
in lot lines for the planned homes.
These design steps occur in an
order opposite that of conventional '
subdivisions.
The images on the right depict
a hypothetical example of a
traditional subdivision (top) and a
conservation subdivision (bottom),
the latter of which preserves
natural assets,open space,and/
or agricultural uses while providing
a higher density of housing.This
G °
type of development is encouraged o
within the `Rural Conservation
Neighborhood' land use category o
included on the Conservation and
Growth Framework map. = ° -
ii � O
For more information on
conservation subdivisions,see
the Conservation Subdivision G «
Handbook by the North C=D
Carolina Urban and Community
°
Forestry Program and the NC
t' n
State University Forestry and
Environmental Outreach Program.
Example of a Conservation Subdivision development
(bottom image)versus a typical suburban development
(top image).
26
CONSERVATION AND GROWTH • (FUTURE
LAND USE ■
Orange County is undertaking an updated of whether the proposed project is
land use policy direction that can achieve consistent with the applicable policies
the Plan's Vision Themes and Goals. of this Plan and the Conservation and
To achieve this vision,the County has Growth Framework land use designation
created a new Conservation and Growth for the project.
Framework(map and land use categories)
that provides land use planning guidance The Municipal Transition Area denoted on
to achieve sustainable development within the Conservation and Growth Framework
all areas of the County's planning and Map aligns with the previously adopted
County-
zoning jurisdiction. Transition Areas from the Orange County-
Chapel Hill-Carrboro Joint Planning Area
The Conservation and Growth Framework Land Use Plan.The Joint Planning Land
Map and Land Use Categories provide Use Plan and Agreement established
an update to the Future Land Use Map procedures for land development projects
that exists in the 2030 Comprehensive in designated Municipal Transition Areas
Plan.This map serves as the County's and the Rural Buffer, as well as land
new future land use map.The land use uses,densities,and annexation rules in
categories provide descriptions for those areas.The following Land Use Plan
the intended development character 2050 land use categories are focused
and alignment with current zoning on the unincorporated areas where
districts, however,they do not represent Orange County has planning and zoning
actual changes to zoning. Instead,the jurisdiction. For more information on
characteristics for each land use category the implementation Actions related to
can be used to guide decision-making for interjurisdictional coordination in the
development proposals,such as rezoning Municipal Transition Areas,see page
requests,and potential future text 89.
amendments to the Unified Development
Ordinance.
This map and the associated policies
included within this plan achieve
compliance with the state requirement for
local governments to have a reasonably
maintained land use plan to retain the
authority to adopt and enforce zoning
regulations.When evaluating proposed
development projects, County planning
staff should prepare staff reports that
address whether or not the proposed
project is consistent with the guidance
provided by the Conservation and
Growth Framework map and categories,
and the Goals and Policies of the Plan.
Staff reports can include a discussion
ORANGE COUNTY LAND USE PLAN 2050 23
27
Conservation and Growth Framework Map
L A S t4 L L 1 C O U N T Y P E R S O N C O U N T Y
Carr R
o ,
McD d 86 Q , Caldwell
OW A.- WMLIV RDj
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�� m Conservation&Growth
c
°1DN�lo Framework
- Conservation and
r ss Preservation
It°p.-%''�^^ P e�99 ft Rural Buffer
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< / - K �.N JOPE MT SINAI RD
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z "-(FIELD RD ( Low-Density
91r"A", a 1 Neighborhood
°Eubank
cane creek Rural Activity Node
' Resery {— • 10 Economic Development
4 Area
g � ,
Calvand re`K Additional Map Features
sa CHAIPE°L H L'L Q County Boundary
� Municipality
RB
White Cros CJAR4O:RO fP I
ekl Extra Territorial
Jurisdiction
O,,o GREENSBOW0RV OC/CH/CA Joint Planning
Univers-ity Area*
Municipal Transition
oOEs��P� I Areas
3 I --- Railroad
501
Surface Water
c Pt A �a ,d ., - .. Miles
*The Orange County-Chapel Hill-Carrboro(OC/CH/CA)Joint Planning Area Land Use Plan and Agreement establishes
the procedures for land development projects in designated Municipal Transition Areas and the Rural Buffer. o 1 z s
24 PUBLIC REVIEW DRAFT �#
28
LAND USE CATEGORIES
This section of this Land Use Plan describes the multiple designations of land use
categories that are used to create maps and recommend policies to guide growth and
development in Orange County.The seven categories defined here are-
Conservation and Preservation
Rural Buffer
Rural Conservation Neighborhood
Rural Residential
Low-Density Neighborhood
Rural Activity Node
Economic Development Area
This section also includes a map and information on environmental features and wildlife
habitat.
ORANGE COUNTY LAND USE PLAN 2050 25
29
CONSERVATION AND PRESERVATION (CP)
Description
Lands in this category are permanently protected from future development by
conservation easements;effectively preserved through the nature of their ownership,
type of stewardship,and current use; or protected for a certain timeframe. Conservation
easements are voluntarily established by the landowner through donation to or
payment from a holding entity,which may be Orange County,a land trust, or some
other conservation-based organization. Preserved lands include either active or passive
open spaces, parks,and undeveloped lands that are not expected to develop,although
they do not have legal protections in place. Examples of Conservation and Preservation
lands include publicly accessible places such as Eno River State Park, Duke Forest,and
local parks,and others that are not open to the public and are held by organizations
such as OWASA(Orange Water and Sewer Authority),which owns them for the purpose
of permanent water supply protection.
Character, Pattern, and Land Use Vision
• The intent of these areas is to protect, maintain,connect,and increase open space,
valuable and unique habitats and natural landscapes,agricultural opportunities,
and rural character that together serve to support the ecological, recreational,
aesthetic,and historical attributes of Orange County.
• Establishment of future lands will remain a priority across the county,with
emphasis on the most sensitive biological habitats, riparian zones,areas adjacent
to Special Flood Hazard Areas(SFHA),and prime farmland,as identified by
the County and its public and non-profit partners,with consideration for even,
accessible distribution that serves all residents.
• In some cases, limited development on these lands may occur to support their
uses,such as visitor accommodations at parks,as a stipulation of an easement,or
applicable farm-related uses on working agricultural land.
26 PUBLIC REVIEW DRAFT
30
•
Eno River State Park, Few's Ford Access, Orange County,N.C.(Google Earth)
CONSERVATION AND PRESERVATION BUILDING BLOCKS
• Permanent preservation of undeveloped land
Primary Uses • Parks and open spaces
• Farms,agriculture,forestry uses
Secondary Uses' None
Infrastructure to Serve Water and Wastewater:Private wells and septic systems may be utilized
Development to support limited development such as park bathrooms.Some sites may
have access to municipal utilities.
Jurisdictional Carrboro,Chapel Hill,Durham,Hillsborough,and Mebane all currently share
Collaboration borders with these lands.
Applicable Zoning Conservation and Preservation lands are promoted universally and include
Districts2 all County zoning districts.
Residential Density N/A;may be permitted on a limited basis through easement allowance
Schools and faith-based organizations are supported countywide across all land use categories.
z Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 27
31
RURAL BUFFER (RB)
Description
The Rural Buffer was established through the Joint Planning Land Use Plan and
Agreement (JPA," involving Carrboro, Chapel Hill,and Orange County) and this
document should also be consulted to further determine intentions for the area. It
provides opportunities for low-density residential development,agriculture and farm
uses,agricultural support uses,forestry,and open spaces. Homes are generally located
on lots of at least two acres in size,and the landscape is dotted by working farms
varying from small private homesteads to large and well-established local farms. Larger
lot sizes allow for high priority habitats,streams and riparian areas, and prime farmland
soils to be largely avoided when placing new structures and associated infrastructure.
Note that some areas designated Rural Buffer in the JPA are designated in this plan as
Conservation and Preservation lands or Rural Activity Node.The JPA established the
Rural Buffer as a "primary" land use category and other land use categories within it are
secondary.
Character, Pattern, and Land Use Vision
• The intent of the Rural Buffer is to remain rural in character and in use. Urban
services, including public water and sewer systems,are not expected to be
provided in the Rural Buffer.The shape and location of the district is designed
to physically and functionally separate the higher intensity uses of existing
and future municipal development in Carrboro and Chapel Hill from the less-
developed portions of the county.
• Preventing both annexation and urban-style development within these
areas serves to limit urban sprawl into the county and to encourage denser
development within the corporate limits of Chapel Hill and Carrboro.
• For the portions of this category that fall within a critical or protected water
supply watershed overlay, lower density uses are expected and the provision of
more open space specifically encouraged.
28 PUBLIC REVIEW DRAFT
32
it
: .
f.
pn..+. �.' ���� 'At �..,��:p tib•:.
'1..5'x• � � i
ti r
Old Greensboro Road, Orange County,NC(Google Earth)
RURAL BUFFER BUILDING BLOCKS
• Single-family detached housing
• Two-family dwellings(duplex)
Primary Uses
• Farms,agriculture,and forestry
• Parks,open spaces,and protected habitats
• Small,rural-scale commercial retail in specified locations,and
Secondary Uses' home-based businesses
• Accessory dwelling units
Infrastructure to Serve Water and Wastewater: Private wells and septic systems
Development
Jurisdictional Collaboration Requires collaborative planning with Carrboro,Chapel Hill,and
Orange County
Applicable Zoning Districts4 Rural Buffer(RB),Local Commercial(1-C-1),or Neighborhood
Commercial(NC-2)in specified areas
Residential Density 1 unit/2 acres,or 1 unit/5 Acres in areas with Protected Water Supply
Watershed overlays
3 Schools and faith-based organizations are supported countywide across all land use categories.
°Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 29
33
RURAL CONSERVATION NEIGHBORHOOD (RCN)
Description
Rural Conservation Neighborhoods are clustered subdivisions of varying size that
allow homes on smaller lots in exchange for protecting a larger portion of the site as
open space. Open spaces are protected from development, controlled by easement,
HOAs and/or POAs,and can be common spaces with limited passive recreational
opportunities, left in a natural state, or for agricultural production. Open space is sited
to prioritize existing high-quality habitats, unique landscape elements such as rock
outcroppings or steep slopes,as well as prime farmland soils,streams,and riparian
areas. In the case of lands to be preserved for agricultural production,the presence of
prime farmland soil is a determining factor. Single-family residential homes(attached or
detached) are the predominant land use, but these clustered subdivisions may include
accessory uses such as common meeting and general-use buildings,community
gardens and small-scale farms,and/or limited commercial operations that primarily
serve the immediately surrounding community.
Character, Pattern, and Land Use Vision
• The intent of Rural Conservation Neighborhoods is to provide opportunities for
residential and limited neighborhood commercial development within a rural
setting,while also protecting the most valuable environmental and agriculturally
viable portions of the site,supporting the critical ecosystem services they
provide such as clean air,water,and habitat for wildlife.
• Homes and buildings placed closer together promote the social interconnectivity
of the immediate community within the development,also allowing for some
communal and collaborative uses on the remaining lands.
• A primary goal for Rural Conservation Neighborhoods is for priority open
space to be conserved,such as wetlands,floodplains and alluvial soils,steep
slopes, natural areas and wildlife habitats, historic and archeological sites,and
wildlife corridors.As of the writing of this Plan,the currently adopted Unified
Development Ordinance contains a list of Primary Open Space areas in Section
7.12. Chapter 4: Implementation includes an Action to align primary open
spaces features identified in this Plan and the UDO for protection in the Rural
Conservation Neighborhoods.
30 PUBLIC REVIEW DRAFT
34
1
F
r �
Serenbe Farms, Fulton County, GA (Google Maps Image)
RURAL CONSERVATION NEIGHBORHOOD
BUILDING BLOCKS
Single-family detached housing • Farms,agriculture,forestry
Primary Uses • Protected open space
• Two-family housing(duplex) (recommended 60%of site)
• Townhomes,accessory dwelling • Multi-family housing
units,and other smaller scale
Secondary Uses' residential(which could include • Limited neighborhood-scale
duplexes,cottages,bungalows,or commercial and retail,and
tiny homes) home-based businesses
Infrastructure to Water and Wastewater:Community wells and septic systems may be
Serve Development established,or private wells and septic systems with sufficient lot sizes
Jurisdictional Required with Carrboro and Chapel Hill for the potential Blackwood Station
Collaboration location(see Chapter 4)and encouraged for Hillsborough and Mebane if
annexation occurs beyond current defined growth areas
Applicable Zoning Rural Buffer(RB),Agricultural Residential(AR),Rural Residential(R-1),
Districts6 Neighborhood Commercial(NC-2),Local Commercial(LC-1)
RESIDENTIAL 1.6 units/acre gross density
DENSITY
5 Schools and faith-based organizations are supported countywide across all land use categories.
'Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the LIDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 31
35
RURAL RESIDENTIAL (RR)
Description
Rural Residential lands are the predominant land use category in unincorporated
Orange County.These lands share borders with every other type of land use.These
lands include different characteristics that vary from undisturbed forests and natural
areas to the many historic farms and dairies that have shaped the aesthetics and
functions of the landscape. Developed properties consist of low-density and large-
lot residential subdivisions (>2 acres),agricultural and horticultural uses,and forestry.
Smaller-lot subdivisions (0.92-2 acres)are scattered amongst large-lot subdivisions,
large fields for conventional farming,and smaller mixed-intensity homesteads.
Character, Pattern, and Land Use Vision
• The intent of the Rural Residential category is to be the most flexible and
generally applicable location for new residential development in the County by
providing opportunities for very low to low-density developments that can also
support agricultural,forestry,and related rural uses.
• Homes are typically sited far apart with lot sizes largely dictated by well and
septic needs,and with irregular spacing that is largely dictated by the immediate
landscape, natural features,and existing road networks.
32 PUBLIC REVIEW DRAFT
36
L i 'rZa
s
y .f
�;.� •� s� � Ful ,� � y
�1
:9
•
Rorasaline Drive, Orange County,NC(Google Maps Image) ° °
RURAL RESIDENTIAL NEIGHBORHOOD BUILDING BLOCKS
• Single-family detached housing
• Two-family dwelling(duplex)
Primary Uses
• Farms,agriculture,and forestry
• Parks,open spaces,and protected habitats
• Home-based businesses
Secondary Uses'
• Accessory dwelling units
Infrastructure to Serve Water and Wastewater: Private wells and septic systems
Development
Jurisdictional Collaboration N/A
Applicable Zoning Districts' Agricultural Residential(AR),Rural Residential(R-1),Low-Intensity
Residential(R-2)
1.08 units/acre gross density,-or as designated per Critical and
Residential Density Protected Water Supply Watershed requirements listed in the
Unified Development Ordinance
Schools and faith-based organizations are supported countywide across all land use categories.
s Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 33
37
LOW-DENSITY NEIGHBORHOOD (LDN)
Description
The Low-Density Neighborhood category is largely developed and limited in extent
along the Highway 70 corridor between the City of Mebane and Efland, north of
Hillsborough,and near the Durham County Boundary.These areas anticipate a
transition from rural land uses and patterns to denser forms, likely due to more recent
access to utility services outside of incorporated municipal limits. Current uses include
low-intensity residential neighborhoods,small-scale commercial properties,schools,
and faith-based organizations.
Character, Pattern, and Land Use Vision
• The intent of the Low-Density Neighborhood category is to provide more
opportunities for residential and limited commercial development in developed
areas near municipal growth areas.
• Homes may be located closer together than in the Rural Residential category
and oriented to face the street in a more traditionally suburban way. Smaller lot
sizes may yield fewer accessory uses but may still be ideal locations for holistic
communities of semi-rural activities and lifestyles,such as small hobby farms and
homesteads.
• If the combination of two or more parcels in the Low-Density Neighborhood
category results in a combined parcel of 50 or more acres,and the combined
parcels are contiguous with other Rural Conservation Neighborhoods (RCN), it's
appropriate to consider the RCN designation for that site.
34 PUBLIC REVIEW DRAFT
38
7Y irk
.»
..,' •fie a �'�,
r �
Perry Hills,near Frazier Road and New Salou Drive(Google Maps Image)
LOW-DENSITY NEIGHBORHOOD BUILDING BLOCKS
• Single-family detached housing
• Two-family housing(duplex)
Primary Uses • Commercial retail and services,and home-based businesses
• Institutional services
• Farms,agriculture,and forestry
• Accessory dwelling units
Secondary Uses' • Multi-family housing
• Parks,open spaces,and protected habitats
Water and Wastewater: May currently be served by Orange-Alamance Water
Infrastructure to System(OAWS)and/or the City of Mebane.For currently unserved areas,may
Serve Development be served in the future by the City of Mebane Public Utilities,Hillsborough,or
Durham. Private wells and septic systems may serve some areas.
Encouraged immediately with Mebane and Hillsborough or Durham over the
Jurisdictional first ten years of this plan,to establish policies on annexations and provision
Collaboration of public utilities.Any development proposal requiring public water and/or
sewer will need approval from utility providers.
Applicable Zoning Rural Residential(R-1),Low Intensity Residential(R-2),Medium Intensity
Districts10 Residential(R-3 and R-4)
Residential Density 1-2 units/acre in most situations,up to 12 units/1 acre in some limited cases.
9 Schools and faith-based organizations are supported countywide across all land use categories.
1OConditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 35
39
RURAL ACTIVITY NODE (RAN)
Description
Rural Activity Nodes are key intersections of larger rural roads and state highways that
can or do already serve the surrounding community with commercial retail and service
uses. Nodes are located at strategic crossroads to provide daily commercial and service
needs within a short drive of rural neighborhoods and home sites in the county. Existing
development varies greatly by location but generally includes single-family homes,
neighborhood-scale commercial uses such as service stations and convenience stores,
farms,forestry,and undeveloped parcels.
Character, Pattern, and Land Use Vision
• The intent of Rural Activity Nodes is to provide small-scale rural growth and
non-residential activity centers to provide services and goods for low-density
residential communities.These locations are ideal for the establishment
of restaurants,service stations,convenience stores, or maker spaces,and
recreational activities.
• Non-residential uses such as neighborhood-scale commercial retail and service
operations that require additional infrastructure such as workshops and storage
buildings are encouraged.These developments support both the immediate
community and the region at large, by allowing residents and owners to monetize
and utilize their properties in ways that are not possible in urban or suburban
environments.
• Locations were selected to provide access to underserved and/or under-
resourced communities and the county's growing senior population, minimize
or reduce vehicle miles traveled, and strive to provide an equitable distribution of
goods and services throughout the county.
• The existing development at the White Cross location on Highway 54 provides
an ideal example of what these places may become over time and their potential
to cultivate rural communities that, include entertainment, restaurants,small
grocery stores,service stations and small co-located businesses,all surrounded
by developed homes and easily accessible by the existing roads.
• In addition to the non-residential components of the nodes,the development of
flexible subdivisions (conservation subdivisions)with clustered homes and shared
resources is encouraged here to place more residents within convenient distance
of these amenities and create complete neighborhoods.
• Water and wastewater wells and systems may be located off-site, beyond the
areas they serve and are included within nodes,when site conditions prohibit on-
site location.
36 PUBLIC REVIEW DRAFT
40
� i.. �. at*_ iL 'G �... �kv� :�'► �, �. . : -.nr � `'+i .— _ •I� .'`Yi
a�
a
NC Highway 54, White Cross, Orange County,NC(Google Maps Image)
RURAL ACTIVITY NODE BUILDING BLOCKS
• Limited commercial retail and service operations
• Institutional services and offices
Primary Uses
• Single-family detached housing
• Two-family housing(duplex)
• Accessory dwelling units
Secondary Uses" • Multi-family housing
• Home-based businesses
Infrastructure to Serve Water and Wastewater:Private wells and septic systems,and community
Development systems
Jurisdictional N/A
Collaboration
Agricultural Residential(AR),Rural Residential(R-1),Low-Intensity
Applicable Zoning Residential(R-2),Neighborhood Commercial(NC-2),Community
DistriCtS12 Commercial(CC-3),General Commercial(GC-4),Office/Research and
Manufacturing(O/RM)
Residential Density 1-2 units/1 acre
"Schools and faith-based organizations are supported countywide across all land use categories.
12 Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 37
41
ECONOMIC DEVELOPMENT AREA (EDA)
Description
Economic Development Areas(EDA)are strategically located adjacent and along the
interstate corridors that traverse Hillsborough, Mebane,and Durham,to be convenient
and accessible places for commerce and job centers of varying scale where residential
developments are less suitable. Existing developments here include warehouses,
small commercial retail and service operations,warehousing, residential subdivisions,
undeveloped lands,and farms.They are located outside of the critical water supply
watersheds.The Unified Development Ordinance contains regulations for appropriate
impervious surface ratios for Economic Development Areas within protected water
supply watersheds.
Character, Pattern, and Land Use Vision
• These locations offer unique employment center and commercial opportunities.
They are ideal sites for large-footprint uses of varying intensity that may include
light industrial or warehousing activity,service yards,service and retail uses for
employees working in these areas,flex spaces,and other similar industrial and
commercial uses.
• Annexation may occur through the voluntary process,allowing greater intensity
of use in locations served by public utilities.
38 PUBLIC REVIEW DRAFT
42
fill,
,f
i
.i
I 14
Interstate 85, Orange County, NC(Google Maps Image)
ECONOMIC DEVELOPMENT AREA BUILDING BLOCKS
® Commercial retail or service • Light industrial,manufacturing,flex
Primary Uses operations space
• Commercial subdivisions • Institutional services
Secondary • Single-family detached • Accessory dwelling units
Uses13 • Two-family(duplex) • Multi-family
Water and Wastewater:There is policy support for public infrastructure to potentially
Infrastructure serve these areas(through partnership with Mebane,Hillsborough,or Durham).
to Serve
Development The policies and agreements for utility extension have expired and need to be
renegotiated.Otherwise,properties will rely on private wells and septic systems.
Jurisdictional Hillsborough,Mebane,and Durham,as needed
Collaboration
Economic Development Buckhorn Lower Intensity(ED13-1),Economic Development
Buckhorn Higher Intensity(ED13-2),Economic Development Eno Lower Intensity
Applicable (EDE-1),Economic Development Eno Higher Intensity(EDE-2),Economic
Zoning Development Hillsborough Linear Office(EDH-1),Economic Development
Districts14 Hillsborough Limited Office(EDH-2),Economic Development Hillsborough Office
(EDH-3),Economic Development Hillsborough Office/Retail(EDH-4),Economic
Development Hillsborough Research and Manufacturing(EDH-5)
Residential 1.08 units/acre gross density;or as designated per Protected Water Supply
Density Watershed requirements listed in the Unified Development Ordinance
13Schools and faith-based organizations are supported county-wide across all land use categories.
14Conditional districts may be utilized in Orange County in certain circumstances.One such circumstance is when a conventional
district designation would not be appropriate for a certain property,but a specific land use permitted within the district would be
consistent with the UDO and the adopted land use plan.For other circumstances and more information on how these are utilized,
see the Orange County Planning&Inspections Department website.
ORANGE COUNTY LAND USE PLAN 2050 39
43
ENVIRONMENTAL AND WILDLIFE HABITAT
The map on the following page represents individual projects are sited,designed,and
the most highly valued environmental and considered for development.
wildlife habitat features that development
must take into account during site Flexible subdivisions and Rural
planning.These areas were used as a guide Conservation Neighborhoods that provide
for placement of the higher intensity an open space set aside in exchange
Land Use Categories included on the for reduced dimensional requirements
Conservation and Growth Framework of lot size and building setbacks should,
map,such as Rural Activity Nodes and whenever feasible, locate the open spaces
Economic Development Areas. to coincide with any of the features shown
here. High priority habitats are intended to
The environmental and wildlife habitat be the first areas protected as applicable
areas are comprised of: on a given site.
• Highest and Higher priority wildlife
habitat corridors and patches,as
identified in the Eno-New Hope
Wildlife Habitat Connectivity report;
• 1%Annual Chance Flood Hazard and
Floodway(100-Year Floodplain);
• Steep slope areas (15% or greater);
• Wetlands;and
• Significant historic and
archaeological sites and
environmental resources previously
identified as Resource Protection
Areas in the 2030 Orange County
Comprehensive Plan (2008).
The intent of this map is to serve as
a guide for future development. Land
disruption and construction in these
areas should be avoided as much as
possible when new development is
established - including structures, roads,
and other supporting infrastructure.The
areas identified should be,whenever
possible, permanently protected through
the entitlement process and/or County
investment.The environmental and
habitat areas are extensive and precluding
development across all these areas is not
practicable. However,the features on this
map will serve as a point of reference as
40 PUBLIC REVIEW DRAFT
44
C A S W E L L C O U N 1 Y PE RSON COUNTY
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Orange County Environment and Habitat Map
ORANGE COUNTY LAND USE PLAN 2050 41
45
AGRICULTURE, WORKING LANDS,
AND OPEN SPACES POLICIES
AGA Preserve Orange County's working lands
for farming and forestry.
Orange County will ensure that the county's highest quality farmland and
forestland will be preserved for the benefit of future generations.
This will be achieved by ensuring that agricultural lands are protected from
development using the appropriate conservation tools. Working and active farm and
forest lands should be prioritized for conservation using the best available data.
The intent of this policy is to support the County's vision of protecting open spaces
and preserving agricultural lands.Working lands play a vital role in Orange County's
environment,food security, economy,community heritage,and overall livelihood of its
residents. Objectives of this policy include:
• Ensure Orange County has land available that can provide agriculture and forestry
products to support the local economy through sustainably-produced goods and
agriculture and forestry-based jobs.
• Amend the UDO to provide for preservation-focused Agriculture Subdivisions and
encourage the use of this flexible development tool in the subdivision and zoning
processes.
• Preserve land and facilities for agriculture-based learning and education.
• Preserve the county's prime agricultural soils,which account for nearly 3/4 of the
county area.
• Strengthen partnerships with conservation organizations and other public entities
such as federal agencies, municipalities,and other counties to achieve mutual
conservation goals.
• Provide locally sourced, healthy,affordable,and accessible food options for all
residents.
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Preserve Orange County"s natural
heritage.
Orange County will ensure that the county's highest quality connected
natural environments will be conserved for the benefit of future
generations and will support clean water, provide habitat for wildlife, and
offer nature-based recreation.
This will be achieved by ensuring that priority natural lands are protected from
development using the appropriate conservation tools. Environmentally sensitive tracts
should be prioritized for conservation using the best available data.
The intent of this policy is to support the County's vision of protecting critical water
supply watershed areas and open spaces. Orange County's natural heritage resources
create a larger connected network of habitat corridors that preserve biodiversity,are an
economic asset,and are critical to preserving healthy communities. Objectives of this
policy include:
• Protect connections and access between natural landscapes and avoid
fragmentation of large forest hubs in order to benefit wildlife migration.
• Preserve land for nature-based recreation and education.
• Conserve and protect high priority open space, including State-identified Natural
Heritage sites, nature preserves,watershed riparian buffers,and areas adjacent to
Special Flood Hazard Areas (SFHA).
• Create networks of protected natural, cultural,and agricultural lands through the
entitlement process and/or County investment.
• Strengthen partnerships and collaboration with conservation organizations and
other public entities such as federal agencies, municipalities,and other counties to
achieve mutual conservation goals.
ORANGE COUNTY LAND USE PLAN 2050 43
47
Support local . • . business
through land use policies and programs.
Orange County will implement measures to support agriculture/farming
as a viable career in our local economy.
The purpose of this policy is to promote and support local agricultural businesses by
implementing land use policies and programs that encourage sustainable farming,
protect agricultural lands,and enhance economic opportunities for local farmers and
food producers. Objectives of this policy include:
• Continue coordination among Planning, DEAPR,and the Cooperative Extension
to ensure farming remains a valued contributor to the local economy, including
programs such as Lands Legacy.
• Promote local agribusiness and agritourism in appropriate locations (such as Rural
Activity Nodes)to support the overall vision and intent of the Conservation and
Growth Framework.Address the broad allowances afforded to these uses per
NC General State Statute 160D-903 and the potential negative impacts on rural
communities from an overabundance of these uses by regulating them through
the subdivision process.
• Support mentorship of farmers and curriculum in local schools to ensure
continuity of agriculture uses.
• Discourage non-residential and higher-density residential land uses away from
farms when reviewing rezoning requests in areas adjacent to farms.
44 PUBLIC REVIEW DRAFT
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ORANGE COUNTY LAND USE PLAN 2050 45
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COMMUNITY EQUITY POLICIES
CEA Incorporate equity lens • land use
planning decision-making • •
Orange County is committed to creating a more equitable, inclusive, and
sustainable community for all residents. To achieve this, it will integrate
an equity lens into all land use planning and decision-making processes
by evaluating equity impacts of projects proposed within unincorporated
areas and supporting municipalities within the County to identify and
reduce disparities in access to housing, transportation, healthcare,
employment, and essential services.
The intent of this policy is to reaffirm Orange County's commitment to land use
planning that fosters a more just,vibrant,and resilient county where all residents (urban,
suburban,and rural) can thrive. By embedding equity into our planning decisions,we
will ensure that growth and development are beneficial, inclusive,and accessible to
everyone, regardless of their background or circumstances. Objectives of this policy
include:
• Conduct inclusive engagement that is thoughtful, meaningful and transparent.
• Support the incorporation of policies in municipal land use plans to encourage
opportunities for developing housing choices,such as missing middle housing,and
for the preservation or production of housing that is deed restricted to maintain
affordability.
• Support the incorporation of policies in municipal land use plans to create mixed-
use and walkable developments that can be served by public transportation,
promote active forms of transportation such as biking and walking, reduce
greenhouse gas emissions,and reduce transportation costs for residents.
• To incorporate equity as a consideration in development reviews, County staff
can use data from the Centers for Disease Control and Prevention (CDC)Social
Vulnerability Index to evaluate impacts of proposed projects seeking special use,
rezonings,or conditional zoning approval. Staff reports can summarize potential
project impacts on naturally occurring affordable housing,transportation and
employment access,food and retail accessibility, potential displacement of
residential or business property renters,and environmental justice considerations
for low-income and minority communities.
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Provide • - ncy, communication, •
education about the development process.
Orange County aims to provide clear access to information about the
development process for all stakeholders, including residents, developers,
and local organizations.
The intent of this policy is to make the development process clear for all stakeholders,
ensuring that it is open,accessible,and understandable. By providing timely, relevant,
and clear information,the policy aims to empower residents to actively participate in
development decisions that affect their neighborhoods and quality of life. Objectives of
this policy include:
• Consider creating a new Unified Development Ordinance that is more user-
friendly and simple to understand while maintaining desired development
outcomes.
• Conduct public outreach and education for the identified Rural Activity Nodes
on the Conservation and Growth Framework Map to educate the surrounding
communities regarding development processes within the nodes.
• Increase public awareness by continuing to improve the online availability of
development permit information.
• Continue to provide educational resources and materials about the development
process to address perceptions of its fairness.
• Establish feedback mechanisms to understand the customer service experience of
those going through the development process.
• Apply the County's Language Access Plan to the Planning Department's services
and materials to ensure that individuals and populations who do not primarily
speak English can engage with land use processes and applications.
ORANGE COUNTY LAND USE PLAN 2050 47
51
CE-3. Educate the community on the differences
between by-right development and the
requirements for legislative and quasi-judicial
decisions.
Orange County will work to ensure that residents understand how
development projects are reviewed and approved, and the roles they can
play in the process.
The intent of this policy is to make clear the processes surrounding by-right
development and legislative and quasi-judicial decisions,which involve different
levels of community participation and government decision-making. It seeks to
provide residents with the knowledge and resources they need to actively engage
in development discussions, understand their rights,and make informed decisions
about how proposed developments may affect their communities.This educational
initiative will foster a more engaged community,empowering individuals to navigate
and participate in the development process with confidence. Objectives of this policy
include:
• Raise awareness of the differences and legal constraints between by-right
development and legislative and quasi-judicial decisions.
• Clarify and educate the community on public participation within legislative and
quasi-judicial processes and the reasons for not having active public participation
as part of the by-right development process. Host workshops and public education
sessions to educate residents about these topics.
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Integrate healthconsiderations •
all
aspects of planning, zoning, and development to
create a healthier, more . . • •
Orange County will promote the health and well-being of all residents
by ensuring that the built environment supports access to clean air, safe
water, healthy food, physical activity, and social connections.
The intent of this policy is to embed public health principles into the planning,zoning,
and development processes, recognizing the direct relationship between the built
environment and the physical, mental,and social well-being of community members.
By prioritizing health equity in all stages of land use planning,this policy aims to
reduce health disparities, increase access to essential services,and encourage the
development of neighborhoods that promote healthy lifestyles,environmental
sustainability,and resilience to climate change. Objectives of this policy include:
• Promote active transportation and mobility within Rural Conservation
Neighborhoods,Activity Nodes,and support the same in municipalities and their
growth areas.
• Increase access to healthy foods by supporting continued viability of farming and
access to locally produced products.
• Reduce vehicle miles traveled through the realization of strategically located
growth areas for commercial and employment purposes.
• Enhance green spaces and recreation through the design of Rural Conservation
Neighborhoods.
• Incorporate the U.S. Census Bureau's Social Vulnerability Index data to address the
lack of or limited access to County services and facilities that address individual
health concerns,such as parks and recreation facilities,aging services,and
transportation services.
• Promote clean air,water,and environmental quality practices.
ORANGE COUNTY LAND USE PLAN 2050 49
53
environmentCE-5. Create an older
adults • • • • age in
place, ensuringthey have access to necessary
resources, services, anda supportive •
Orange County will aim to ensure that older residents, the county's
fastest growing demographic population, have access to essential
resources, services, and a supportive community that empowers them to
remain engaged, healthy, and self-sufficient.
The intent of this policy is to create a comprehensive approach to supporting
older adults within the community by providing accessible housing, healthcare,
transportation,and social services.This approach focuses on removing barriers to
independence and ensuring that older adults can live in a safe,welcoming environment
that promotes health,well-being,and social engagement. By aligning land use planning,
public services,and community programs,this policy seeks to enhance the physical,
emotional,and social aspects of aging,ensuring older adults can fully participate in the
community. Objectives of this policy include:
• Encourage age-friendly housing in municipalities in locations that are proximate to
needed services and shopping.
• Support the incorporation of policies in municipal land use plans to encourage
opportunities for developing housing choices,such as missing middle housing,and
for the preservation or production of housing that is deed restricted to maintain
affordability.
• Support the incorporation of policies in municipal land use plans to create mixed-
use and walkable developments that can be served by public transportation,
promote active forms of transportation such as biking and walking, reduce
greenhouse gas emissions,and reduce transportation costs for residents.
• Provide accessible transportation and mobility throughout Orange County to
provide seniors with ways to travel to healthcare and social services appointments
and shopping centers.
• Provide for Rural Conservation Neighborhoods,which can provide for more
housing options of varying densities,sizes,and types,while also preserving more
open space and agricultural lands.
• Collaborate with community programs and social services to encourage and
create spaces for senior programs and community building, including denser
housing arrangements,through incentivized inclusionary zoning regulations.
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ECONOMY AND EMPLOYMENT
POLICIES
EE-1. Support the growth of commercial and
industrial usesthe • Economic
Development
Orange County will support the development of Economic Development
Areas (EDAs) defined on the Conservation and Growth Framework Map
to increase employment opportunities for residents and provide a more
balanced tax base.
The intent of this policy is to strategically support commercial and industrial
development within the Economic Development Areas These locations provide the
most opportunity for economic development within the County's planning and zoning
jurisdiction largely due to zoning for these uses and access to 1-40 and 1-85.All but one
of these Economic Development Areas also have immediate access to US-70 and the
NC Railroad rail line. By focusing on these areas,the County aims to stimulate economic
growth and job creation,ensuring that new and expanding businesses can thrive while
generating meaningful employment opportunities for county residents.This approach
seeks to support the local economy and contribute to long-term economic and fiscal
sustainability. Objectives of this policy include:
• Conduct an analysis to identify the infrastructure needs that exist within
undeveloped Economic Development Areas.
• Plan and invest in necessary infrastructure improvements to accommodate
economic growth in Economic Development Areas, including convening
discussions with the City of Durham regarding infrastructure investment in the
Eno Economic Development Area.
• Initiate discussions with the City of Mebane regarding expansion of the Buckhorn
Economic Development Area using municipal infrastructure,and plan for capital
and recruitment investments accordingly.
• Update zoning and land use regulations to facilitate economic growth, including
consideration of some allowances for commercial retail that can provide needed
services to employees during work hours,such as convenience retail and
restaurants, in a mixed use development pattern that supports integration of
commercial services in employment centers.
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EE-2. Support the growth of commercial uses in
the • Rural Activity Nodes.
Orange County will support the development of Rural Activity Nodes
defined on the Conservation and Growth Framework Map to increase
access to retail commercial needs for rural residents, provide more
employment opportunities in rural areas, and support a more balanced
tax base.
The intent of this policy is to strategically support the development of rural-scale retail
and agricultural-supportive commercial development within Rural Activity Nodes.
Objectives of this policy include:
• To support economic growth in these areas,studies may be needed to identify
appropriate infrastructure needs that exist within undeveloped Rural Activity
Nodes.
• Evaluate the potential use of community septic systems or private wastewater
package plants to serve these nodes and increase the potential for development.
This includes an evaluation of the potential for the failure of systems and
contingency plans if that were to occur in the future.
• Evaluate the potential use of regional stormwater control measures to serve these
nodes and increase the potential for development.
• Work with landowners in Rural Activity Nodes to determine whether existing land
use regulations permit the right type of land uses for these nodes.
Thermo-Fisher-Stormwater Control Measure
ORANGE COUNTY LAND USE PLAN 2050 53
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EE-3. Promote sustainable development
principles in Economic Development Areas
Orange County will support the utilization of sustainable development
principles in building and site design, multimodal access, decreasing
greenhouse gas emissions, and green infrastructure in Economic
Development Areas (EDAs).
The intent of this policy is to ensure that EDAs within Orange County utilize sustainable
development principles,thereby enhancing quality of life, reducing commute times,and
fostering a more integrated and resilient community. Objectives of this policy include:
• Promote or incentivize sustainable building designs that reduce energy,water
usage,and waste production of new businesses.
• Support reduction of commute times through better multimodal access between
Economic Development Areas and proximate affordable/workforce housing
developments.
• Decrease greenhouse gas emissions of commuting workers by providing daily
commercial service needs in close proximity.
• Building site designs that encourage on-site capture of stormwater through green
infrastructure and reduce exposure to flooding, erosion,and drainage issues,while
also providing open space amenities and passive recreation for workers.
• Promote the adaptive reuse of existing buildings and structures.
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ENVIRONMENT, PARKS, RECREATION,
AND RESILIENCY POLICIES
ENA Focus on improving recreational
opportunities in underserved areas.
Orange County will ensure that there are adequate parks and
recreational facilities for all residents within the county, regardless of
location, age, gender, race, or disability.
This policy is intended to identify and focus on filling geographic gaps in recreational
opportunities for underserved areas. Objectives of this policy include:
• Evaluate the geographic gaps where recreational opportunities are not accessible
within underserved areas.
• Maximize recreation investments by focusing on the highest need areas and
places where targeted investments will yield significant benefits in alignment with
the Parks and Recreation Master Plan.
• Partner with local municipalities and neighboring counties on investments in
regional parks and facilities, particularly for historically underserved communities.
• Develop more recreational sites for youth from historically disadvantaged
populations.
• Promote accessibility and universal access in County-maintained recreational
facilities.
• Address health disparities that may result from limited access to recreation
facilities,services, or programming for residents that live furthest away from
population centers with existing facilities.
• Promote public-private partnerships to expand recreational opportunities,such as
leveraging business locations to include areas of play.
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7
EN-2. Merge recreational project goals with
transportation and connectivity goals.
Orange County will ensure that expansion of the transportation system
includes, where feasible and practical, multimodal infrastructure.
This policy is intended to encourage improved systems that support walking, biking,and
other forms of non-motorized transportation and align goals between recreation and
transportation planning efforts. Objectives of this policy include:
• Improve opportunities for community connectivity in rural areas via public and/or
private greenways and trails.
• Create connections between homes, recreation destinations, businesses,and
communities.
• Maximize recreation investments by focusing on the highest need areas and
places where targeted investments will yield significant benefits, including
congestion management and reduction of relevant VMTs.
• Assist in meeting the County's sustainability goals by reducing the number of trips
taken in single-occupancy vehicles.
Riverwalk, Hillsborough
ORANGE COUNTY LAND USE PLAN 2050 57
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Protect, conserve, • restore
resources, • • water resources.
Orange County will conserve and connect the highest priority waterways,
forests, and habitat for terrestrial and aquatic native plants and animals
within our jurisdiction while accommodating development and other
land uses.
This policy is intended to maintain the quality of natural resources and protect the
health,safety,welfare,and general well-being of its residents by creating an aesthetically
pleasing and functional living environment through protecting,conserving,and,
wherever possible, restoring healthy terrestrial and aquatic habitats and water
resources. Some objectives of this policy are to:
• Continue to protect water supply watersheds with County regulations,which are
more protective for density, impervious surfaces,and riparian buffers than those of
the State of North Carolina.
• Continue to restrict development in floodplains delineated by the Federal
Emergency Management Agency(FEMA)to minimize flood risk and protect water
quality.
• Partner with the United States Geological Survey and the North Carolina
Department of Environmental Quality to conduct a new Orange County
groundwater survey.
• Promote intersectional community benefits through the conservation of natural
resources, including nutrient pollution reduction,water supply protection,flood
protection,steep slope protection, priority plant and animal habitat protection,air
quality,soil conservation, minimizing noise and light pollution,and others.
• Protect the quantity and quality of drinking water supplies for current and future
generations.
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EN-4.
development n - - •
environmental protections and conservation.
Orange County will conserve environmentally sensitive lands and
preserve rural or agricultural lands from suburban-style development,
directing more intensive development toward growth areas.
The intent of this policy is to balance Orange County's development and growth
pressures, its unique character and conditions,and the need to lessen climate impacts
and increase resilience to hazards. Objectives of this policy include-
• Promote sustainable development principles to meet our climate action plan goals
and objectives.
• Align and coordinate development decisions with the Working Lands and Open
Space Policies and Actions.
• Conserve and maintain environmental lands,as identified in the Environmental and
Wildlife Habitat map for ecosystem health and resilience, community benefits,and
the recreation opportunities they provide.
• Preserve rural and agricultural lands for economic and community benefits, historic
and cultural heritage,and the unique landscape they provide.
• Focus growth to strategic areas, in municipalities and/or identified growth
categories,such as Rural Conservation Neighborhoods,which offer holistic and
balanced access to services for the community,and thereby mitigate consumption
of land elsewhere in the county for housing development.
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ORANGE COUNTY LAND USE PLAN 2050 59
63
Promote sustainable • resilient
development.
Orange County will encourage sustainable and resilient designs in all
future development and retrofits for existing development, focusing on
areas at high risk for natural hazards.
The intent of this policy is for new and existing developments to provide an opportunity
for generating more sustainable development patterns and designs and more resilient
siting and construction of buildings.The County will support private developments in
achieving these objectives. Natural hazard risks,documented by the Eno-Haw Regional
Hazard Mitigation Plan, include drought,extreme heat,severe weather(thunderstorm
winds, lightning,and hail),severe winter storms events,floods,and tornadoes. (See the
Fact Book in the Plan Appendix for information on hazards.) Some objectives of this
policy are to:
• Strongly encourage all developments to be designed to use existing site conditions
(such as topographical constraints, riparian and wetland areas,and high hazard
areas)as a basis for creating more resilient and sustainable designs.
• Promote the development of renewable energy generation and use within
private developments through regulatory incentives or other tools. Promote
the construction of net zero/fossil fuel-free commercial, residential,and
industrial buildings through regulations and incentives. Coordinate efforts with
implementation of the Climate Action Plan.
• Align development decisions with natural hazard mitigation and resiliency,
including heat hazard mitigation, green infrastructure, and nature-based solutions
to stormwater runoff and flooding.
• Align development decisions with the Orange County Climate Action Plan,
including reducing greenhouse gas emissions.
• Incentivize and promote energy efficient building standards with the aim of
making housing more cost-efficient for residents.
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EN-6. Identify, fund, and prepare new and
existing public facilities • serveas resilience
hubs.
Resilience hubs will provide essential services during emergencies, such
as natural disasters and climate-related events, and will ensure that
vulnerable populations have access to support, resources, and shelter.
In coordination with the Orange County Climate Action Plan and the Eno-Haw
Regional Hazard Mitigation Plan,the intent of this policy is to ensure that public
facilities are strategically identified and equipped to function as resilience hubs during
emergencies.These hubs will serve as safe spaces that provide critical resources,
such as food,water, medical care,communication services,and shelter,to support the
community before,during,and after disasters.The policy aims to foster a network of
well-prepared and accessible facilities that increase the county's resilience to climate
change impacts,enhance emergency preparedness,and ensure that all residents,
particularly those from vulnerable communities, have the necessary resources during
times of crisis. Objectives of this policy include:
• Identify key public facilities for resilience hubs.
• Ensure infrastructure and service readiness.
• Ensure accessibility for vulnerable populations.
• Create a network of resilience hubs.
• Monitor and adapt to changing needs.
• Align land use planning goals with the climate and resilience goals of the Orange
County Climate Action Plan and the Eno-Haw Regional Hazard Mitigation Plan.
ORANGE COUNTY LAND USE PLAN 2050 61
65
HOUSING ATTAINABILITY
POLICIES
H-1. Encourage the development of housing
options that are attaina • • the local
workforce throughout Orange County as guided
by the Conservation and Growth Framework and
municipal •
Through its Conservation and Growth Framework and the plans of
partner municipalities, Orange County will encourage the development
of new housing options that are attainable to the local workforce.
Providing varied housing options proximate to employment helps to
reduce greenhouse gas emissions, increase general affordability for
worker households, and fosters development of community.
Working with municipal partners,the intent of this policy is that Orange County will
support the development of a range of housing types that are attainable to a variety
of households throughout the county.This policy strives to support the development
of affordable housing,while also recognizing that state regulations limit a local
government's ability to require development of housing at certain price points. Instead,
this policy focuses on providing options for various types of housing across the county:
urban and suburban housing options within the municipalities and several rural options
in unincorporated Orange County.The County aims to support sustainable growth,
improve housing availability,and align housing policy with other planning goals. Some
objectives of this policy include:
• Use the guidance of the Conservation and Growth Framework to identify
appropriate types of rural-scale housing that should be located in the
unincorporated areas of Orange County.Allow for higher density conservation
subdivisions closer to areas of service and activity nodes.
• Promote development of higher density and affordable housing choices (generally
between 60-120%AMI)within the municipalities in locations that have proximate
access to jobs,services,and shopping,and where public transportation is more
accessible.
• Evaluate strategies to support County employees and other public service and
essential workers (such as healthcare)to attain housing in Orange County.
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• Continue to encourage the use of accessory dwelling units (ADUs)and evaluate
regulations that may discourage housing types other than single-family in some
areas of the county, relying instead on density and impervious cover regulations.
• Evaluate the lot size and other requirements for duplexes and other"missing
middle" housing types contained in the Unified Development Ordinance and
modify if warranted.
• Work with housing partners to support development and maintenance of
affordable housing in Orange County.
• Encourage HUD code-compliant manufactured housing as a form of affordable
housing in the county,and address any impediments in the UDO to making this
type of housing attainable.
• Work with municipal partners to accommodate the development of group homes,
foster care facilities,transitional housing facilities, and other low-barrier housing
types in appropriate locations to provide increased opportunities for social
interaction,a de-institutionalized lifestyle,and gainful employment.
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ORANGE COUNTY LAND USE PLAN 2050 63
67
H-2. Reduce barriers to the development and
construction of housing.
Orange County aims to reduce administrative and regulatory processes
to streamline housing development and construction.
This policy's intent is to enhance the efficiency and feasibility of housing development
and construction in Orange County by reducing administrative and regulatory barriers
that will streamline the development process. By fostering an efficient regulatory
environment,the County aims to support the expansion of housing options in Orange
County. Objectives of this policy are to:
• Assess development and building permit review processes for residential
development and identify ways to optimize and reduce delays and development
costs.
• Identify ways to streamline the development process.This could include
establishing a baseline and decreasing the median amount of time it takes from
first development permit application to certificate of occupancy issuance for
housing developments.
• Review the County's fees to realize a fee schedule that promotes equity and
housing attainability for those of lower income to construct or renovate a building.
• Consider modifying review and approval processes to have more staff-level
(administrative) approvals for development to eliminate the cost,time,and
uncertainty factors of a lengthier review process by advisory and elected boards.
Staff-level approvals would implement the development regulations contained in
the Unified Development Ordinance.
• Evaluate ways to provide clear guidance to applicants about the requirement
process in a format understandable to the layperson.
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Advocate for the rehabilitation
preservation • affordable •
Orange County will advocate for the rehabilitation and preservation of
affordable housing by maintaining existing housing stock to support
naturally occurring affordable housing (NOAH).
The intent of this policy is to advance the rehabilitation and preservation of affordable
housing by safeguarding existing housing units to maintain their affordability.This
approach aims to ensure that affordable housing options are both attainable and
sustainable. Objectives of this policy include:
• Identify in staff reports on proposed development projects if naturally occurring
affordable housing (NOAH) currently exists on the project site(s)and will be
removed through the project. NOAH can be defined as being affordable to a
median household income or lower.
• Continue to coordinate with the Housing Department on the Urgent Repair and
Single-Family Home Rehabilitation programs to stabilize housing and mitigate
declining household conditions.
• Work with nonprofit affordable housing partners such as Community Home Trust,
Habitat for Humanity, CASA,and EMPOWERment, Incorporated,to support the
protection and rehabilitation of local affordable housing in Orange County.
• Support local municipal partners to identify NOAH within their own jurisdictions
and develop strategies for maintaining the affordability of these properties and
improving the conditions of older homes in need of maintenance and investment.
ORANGE COUNTY LAND USE PLAN 2050 65
69
Support development ofaffordable
housing.
Orange County will support and promote affordable housing initiatives in
the County.
The intent of this policy is to drive the development of affordable housing within
the county by advancing partnerships and initiatives that support and incentivize
affordable housing developments that support sustainability and energy efficient
objectives. Working with municipal partners and non-profit housing developers,the
County will support the following policy objectives:
• Continue to support the sustainable development of energy efficient and
affordable housing on properties owned by local governments,such as the Greene
Tract.
• Continue to encourage the use of ADUs and evaluate regulations that may
discourage housing types other than single-family in some areas of the county,
relying instead on density and impervious cover regulations.
• Revise the County's Home Park standards to better allow for the redevelopment of
manufactured home parks to serve as an additional housing option.
• Enhance the Unified Development Ordinance's density bonus for provision of
affordable housing units, including an allowance to reduce lot sizes.
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REGIONAL AND LOCAL GROWTH
POLICIES
RGA Support sustainable development across
Orange County as guided by the Conservation
• Growth Framework • joint planning with
municipalities.
Orange County will use the Conservation and Growth Framework (map
and future land use categories) to support sustainable development
across the county that balances conserving natural areas and working
lands, providing more attainable housing choices, and increasing
employment opportunities and the local tax base. Continue working
with municipalities to support the development of sustainable urban and
suburban-scale growth in their jurisdictions.
The intent of this policy is to balance the need to provide more housing options that
are attainable to the local workforce,conservation of important environmental and
agricultural lands,and the need for a broader and more diversified tax base to alleviate
the tax burden on residential households in Orange County.The Conservation and
Growth Framework(the future land use map for Orange County) provides a balanced
approach for achieving these planning objectives and will be used by the Planning
and Inspections Department, Planning Board,and Board of County Commissioners,
along with the policies in this plan,to guide land use planning decisions within the
unincorporated areas in the County's planning and zoning jurisdiction. In addition,
the County will support sustainable development efforts within the municipalities of
Orange County through partnership opportunities. Objectives of this policy include:
• Continue to protect important natural lands,water supply watershed areas,wildlife
habitats,environmentally sensitive areas,and prime working lands (forests,farms,
and other agricultural operations) as guided by the Conservation and Preservation
future land use category.
• Provide balanced opportunities for development of rural-scale residential units at
very-low densities that limit impacts on the natural environment as guided by the
Rural Residential and Rural Buffer future land use categories.
• Support an increase in housing choices in unincorporated Orange County through
the Rural Conservation Neighborhood future land use category that requires the
protection of 60%of a property's highest value environmental and agricultural
lands in trade for allowing for small lots on the remaining portions of the site.Allow
for higher density conservation subdivisions within proximity to activity nodes and
growth areas.
68 PUBLIC REVIEW DRAFT
72
0&&
LV
• Continue to use the guidance of the Joint Planning Land Use Plan and Northern
Transition Area Small Area Plan to provide new sustainable development within the
Transition Areas near Chapel Hill and Carrboro and rural-scale development within
the Rural Buffer that surrounds the two towns as a mechanism to direct urban
and suburban scale growth and utility services to these existing communities.The
Rural Buffer is a future land use category designated on the Conservation and
Growth Framework map.
• Continue to use the Central Orange Coordinated Area Land Use Plan and the
growth area guidance included in the Comprehensive Sustainability Plan for the
Town of Hillsborough (2030)to support sustainable development of residential
and nonresidential development on the edges of Hillsborough in unincorporated
Orange County as designated by several future land use categories: Low-Density
Neighborhood, Rural Buffer, Rural Residential, Economic Development Area,and
Rural Activity Node.
• Work with the City of Mebane to create a similar intergovernmental agreement
to define jointly supported land use policies for areas of common interest at
jurisdictional boundaries.
• Focus opportunities for new employment and commercial growth within the
Economic Development Areas and Rural Activity Nodes as designated on the
Conservation and Growth Framework map. Coordinate the placement of these
with the location of Rural Conservation Neighborhoods.
ORANGE COUNTY LAND USE PLAN 2050 69
73
RG-2. Consider all sustainable development
objectives when reviewing development
proposals.
Orange County will consider 1) on-site environmental conditions, 2) uses
on adjacent properties, 3) opportunities to expand housing choice, 4)
opportunities to provide new employment options, and 5) impacts to
surrounding populations as part of the land development review process
with the aim of providing an appropriate balance of these competing
objectives.
The intent of this policy is to generate a balance when considering all the sustainable
development objectives the County is seeking to achieve through land use planning.
This policy does not seek to reverse or limit existing environmental protections or
state-required water supply watershed protection regulations but instead supports the
consideration of all three plan Vision Themes that comprise sustainable development.
Objectives of this policy include:
• Acknowledgment that all three aspects of the County's Vision Themes that
cultivate sustainable development are equally important and supported through
the policies and actions of this plan.
• Consideration of this plan's Vision Themes,goals,and policies that are applicable to
development proposals,as well as the relevant future land use category identified
on the Conservation and Growth Framework map,within staff reports to assist the
Planning Board and Board of Commissioners in making land use decisions.
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70 PUBLIC REVIEW DRAFT
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Continue • develop . •
use
intergovernmental land use planning tools to
coordinate conservation and growth across the
entirety ofOrange •
Orange County will work with municipal partners to guide land use
planning decisions using intergovernmental planning tools and develop
new plans to support sustainable development objectives in Orange
County.
The intent of this policy is to continue to support and use guidance from past
intergovernmental planning efforts (Central Orange Coordinated Area Land Use Plan,
Joint Planning Land Use Plan,Water and Sewer Management, Planning,and Boundary
Agreement),while also ensuring that this policy guidance adequately addresses
the planning issues of the present. It also provides the opportunity to generate new
intergovernmental planning tools for the growth area around Mebane in western
Orange County and potentially with Durham for the Eno Economic Development Area
on the eastern boundary. Objectives of this policy include:
• Orange County will continue to partner with local municipalities to jointly share
information about current development in areas of common interest on the
edges of jurisdictional boundaries, or that may have an impact on the municipality.
Develop formal courtesy review agreements where none currently exist.
• Review established intergovernmental policy tools (Central Orange Coordinated
Area Land Use Plan,Joint Planning Land Use Plan,Water and Sewer Management,
Planning,and Boundary Agreement and Schools Adequate Public Facilities
Ordinance) every 10 years to confirm that the plans are achieving the results
intended and are continuing to provide relevant policy guidance.
• Initiate an intergovernmental planning process with the City of Mebane to develop
a coordinated plan for guiding growth and change in the long-range planning areas
of the city.
• Support private investments in water and sewer infrastructure located in the Eno
Economic Development Area and coordinate with the City of Durham as needed.
ORANGE COUNTY LAND USE PLAN 2050 71
75
SERVICES AND
COMMUNITY FACILITIES POLICIES
SA Guide infrastructure service decision
making and investment to support the land use
vision set out in the Conservation and Growth
Framework.
Orange County will use the Conservation and Growth Framework and
supporting intergovernmental agreements to guide decisions for the
provision of future public water and wastewater services.
The County will coordinate infrastructure planning with municipal partners and
OWASA as guided by the Conservation and Growth Framework and intergovernmental
agreements(Central Orange Coordinated Area Land Use Plan,Joint Planning Land Use
Plan,Water and Sewer Management, Planning,and Boundary Agreement[WASM PBA]).
Objectives of this policy include:
• Review and update coordinated utility plans and agreements to align with the
guidance of the Conservation and Growth Framework.
• Support water and wastewater utility investment within Economic Development
Areas.
• Explore the potential for supporting growth of Rural Activity Nodes and Rural
Conservation Neighborhoods through the use of private community water and
wastewater and septic systems.
• Reevaluate the WASMPBA's restrictions on access to existing infrastructure that
lies upon or immediately adjacent to a property.
• Explore appropriate policies to incorporate into water and wastewater agreements
with utility partners to address situations of failing private septic systems and
impediments for connecting to water service in close proximity to property.
• Coordinate with public utility providers that provide service within /4 mile of
proposed new developments in unincorporated Orange County to ensure
coordination and relevant information sharing.
72 PUBLIC REVIEW DRAFT
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Strategically supportinvestment
sewer infrastructure in keyeconomic
development areas to foster growth, attract new
businesses or expand existing, and provide for a
healthy fiscal balance.
Orange County will ensure that essential services are available to foster
growth, attract investment, and create a sustainable environment for
businesses to thrive, while also enhancing the quality of life for residents
and promoting long-term economic and fiscal stability.
The intent of this policy is to align infrastructure investment with economic
development goals by proactively providing public water and sewer services to
Economic Development Areas and evaluating opportunities to provide private water
and wastewater service to Rural Activity Nodes, Rural Conservation Neighborhoods,
and Economic Development Areas unable to be served by public systems. By
focusing on infrastructure improvements in targeted locations,this policy seeks to
catalyze economic activity and provide new forms of living-wage employment in the
county,as well as seeking a diversified tax base that can reduce the tax burden on
residential homeowners.The policy aims to result in sustainable growth, ensuring that
infrastructure investments are made efficiently and strategically to support long-term
development in areas that can serve employment needs and reduce commuter VMTs.
Objectives of this policy include:
• Continue to target infrastructure investments to Economic Development Areas
for projects that meet the objectives of this plan.
• Evaluate opportunities to encourage private water and wastewater service to Rural
Activity Nodes to increase potential for development activity of these sites.
• Evaluate opportunities to encourage private water and wastewater service to Rural
Conservation Neighborhoods to provide opportunities for co-locating housing
with neighborhood-scale services within unincorporated Orange County.
ORANGE COUNTY LAND USE PLAN 2050 73
77
S-3. Evaluate and develop specific policies for
the use of private water and wastewater
in unincorporated Orange County.
Orange County prioritizes sustainable water management and waste
disposal practices to protect public health and preserve natural
resources. Orange County will evaluate the benefits, costs, and potential
risks of supporting private water and wastewater systems to encourage
growth in targeted locations in unincorporated areas and will develop
specific guidance for how these systems should be designed and
managed to ensure long-term viability.
The intent of this policy is to promote the responsible and sustainable management of
groundwater systems,wastewater service,and private wastewater systems to ensure
their reliability,safety,and minimal environmental impact. By balancing the need
for water and wastewater services with the protection of water and land resources,
this policy aims to safeguard public health, preserve water quality,and prevent over-
extraction of groundwater and land contamination.This policy is intended for the
County to evaluate the various systems for providing private water and wastewater
service to support the land use vision set out in the Conservation and Growth
Framework.The County will use this information to develop specific policies and
regulations to guide development of these systems in the future, particularly to support
Rural Activity Nodes and Rural Conservation Neighborhoods. Objectives of this policy
include:
• Clarify the distinction between state codes that regulate private water and
wastewater systems and local environmental health requirements.
• Evaluate the different types of private systems that are available,and the benefits,
costs,and risks associated with each system.
• Consider whether these evaluated systems should be allowed within Protected
Water Supply Watershed Areas. Critical Water Supply Watershed Areas should be
avoided for use of these systems.
• Convene local developers to understand the costs and benefits of different private
systems and their feasibility of use in unincorporated Orange County.
• Evaluate the potential for regional private systems to support Rural Activity Nodes,
Rural Conservation Neighborhoods,and,to some degree, Economic Development
Areas identified for development on the Conservation and Growth Framework
Map.
• Evaluate the need and legal framework to require long-term performance
guarantees to address potential failure of private systems to protect public safety
and environmental conditions.
74 PUBLIC REVIEW DRAFT
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• Ensure sustainable groundwater withdrawal.
• Promote sustainable wastewater disposal practices.
• Reduce the environmental impact of public and private wastewater systems.
Septic Tank
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United States Environmental Protection Agency, https.//www.epa.gov/septic/types-septic-systems
ORANGE COUNTY LAND USE PLAN 2050 75
79
S-4. Integrate carbon neutrality goals with a
focus on requiring business and commercial
developments to prioritize clean energy, energy
• sustainable practices to reduce
carbon emissions and support a carbon-neutral
Orange County will guide development and redevelopment in a way that
prioritizes energy efficiency, reduces carbon emissions, and promotes
the transition to renewable energy sources.
The intent of this policy is to establish clear and actionable carbon neutrality targets for
business and commercial developments within the Unified Development Ordinance,
ensuring that new development and redevelopment opportunities reduce their carbon
footprints.This policy aims to align with the recommendations of the Climate Action
Plan. By encouraging clean energy adoption and implementing energy-efficient
building practices,the policy seeks to reduce greenhouse gas emissions, lower energy
consumption,and position Orange County as a leader in sustainability.This policy
also aims to incentivize businesses to invest in green technologies, renewable energy
sources,and environmentally friendly practices, ultimately contributing to the County's
long-term sustainability and carbon neutrality goals. In coordination with the Climate
Action Plan,objectives of this policy include:
• Explore ways to encourage carbon neutral development standards.
• Ensure energy efficiency in business and commercial operation.
• Integration of sustainable transportation and mobility.
• Incentivize clean energy investments.
• Create carbon offset programs.
• Monitor and report carbon emissions.
76 PUBLIC REVIEW DRAFT
80
S-5. Invest in green infrastructure toreduce
the environmental impactof development •
redevelopment.
Orange County will prioritize the use of nature-based solutions and
green infrastructure to improve water quality, preserve biodiversity and
ecosystem services, and mitigate the effects of climate change while
fostering long-term resilience in the county.
The intent of this policy is to reduce the environmental footprint of development by
incorporating green infrastructure when planning for development and redevelopment
projects. By prioritizing the use of natural systems to manage stormwater, improve
air and water quality,and promote habitat restoration,the policy aims to enhance
sustainability, mitigate urban heat island effects,and strengthen the community's ability
to adapt to the challenges posed by climate change. In coordination with the Orange
County Climate Action Plan,State of the Environment report, Lands Legacy Program
Action Plan, Eno-Haw Regional Hazard Mitigation Plan,and other relevant planning
efforts,this approach seeks to provide long-term environmental,social,and economic
benefits by promoting sustainable land-use practices and improving the quality of life
for residents. Objectives of this policy include:
• Continue to promote green infrastructure stormwater management on County-
owned properties such as constructed wetlands, bioswales, bioretention, green
roofs, permeable surfaces,and other nature-based stormwater control measures
(SCMs).
• Continue to promote conservation subdivisions that conserve priority areas and
connect open spaces.
• Improve air and water quality, based on the data and recommendations provided
by the most recent Orange County State of the Environment report.
• Preserve biodiversity following recommendations provided by the Lands Legacy
Program Action Plan and Landscape Plan for Wildlife Habitat Connectivity in the
Eno River and New Hope Creek Watersheds.
• Increase resilience to climate change by pursuing the goals and following the
recommendations provided by the Orange County Climate Action Plan and the
Eno-Haw Regional Hazard Mitigation Plan.
• Incentivize green infrastructure adoption and establish guidelines and support
systems for the long-term maintenance of green infrastructure.This could
potentially be accomplished through waiving or reducing development standards,
providing density bonuses, or encouraging stormwater volume credit trading
programs.
ORANGE COUNTY LAND USE PLAN 2050 77
81
TRANSPORTATION AND MOBILITY
POLICIES
TA Ensure that • use decisions su • • •
bicycle and pedestrian planning efforts.
Orange County will coordinate with local municipalities and other
agencies to ensure that county land use decisions complement
pedestrian and bicycle planning efforts.
The intent of this policy is to promote county land uses that support bicycle and
pedestrian planning efforts, including those of other local jurisdictions. Compact
development in strategic locations can generate better access by walking, biking, or
taking public transit. Compact,sustainable development is also expected to reduce
VMTs for commuting trips for services and good and, perhaps,employment. Objectives
of this policy include:
• Coordinate with municipalities to support state funding decisions for bicycle and
pedestrian projects within Orange County.
• Consider opportunities to support planning or funding of bicycle and pedestrian
projects that connect communities in unincorporated Orange County to adjacent
municipalities and specifically to commercial,employment, recreational, or other
destinations..
78 PUBLIC REVIEW DRAFT
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N
Align municipal • county land use
planning with current • future transit
Orange County will work with local jurisdictions and transit agencies
to ensure land use decisions support equitable and affordable access
to amenities and employment opportunities to reduce vehicle miles
traveled and promote public health and safety.
The intent of this policy is to support transit-friendly development in strategic locations
through County land use policy.Transit-friendly development can improve quality of
life by providing access to important services and minimizing vehicle traffic,which is
beneficial for public safety and for the environment. Improving equitable and affordable
access to amenities and employment opportunities can include access to shopping,
medical centers,and educational institutions. Objectives of this policy include:
• Continue to support enhancements and improved connections between transit
services operating in Orange County(Orange County Public Transportation,
Chapel Hill Transit, GoTriangle, PART: Route 4 1 Alamance Burlington Express 4).
• Identify transit stop opportunities for fixed route service in the review process of
new development proposals.
• Ensure that all Economic Development Areas will have fixed route service access,
including potential investments in Park n Ride lots.
ORANGE COUNTY LAND USE PLAN 2050 79
83
T-3. Support rural transportation needs while
maintaining rural character.
Orange County will work to provide adequate rural transportation
without sacrificing rural character and rural land uses.
The intent of this policy is to ensure that the transportation needs of rural community
members,especially those in the northern portion of the county,are addressed.
Supporting options like expanded on-demand transit and transit from rural areas to
amenities and resources,such as parks and employment, could help address these
needs. Objectives of this policy include:
• Through the development review process,seek out opportunities to encourage
spaces for new transit stops within Rural Conservation Neighborhood, Economic
Development Area,and Rural Activity Node developments.
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80 PUBLIC REVIEW DRAFT
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ORANGE COUNTY LAND USE PLAN 2050 81
� '' IMPLEMENTATION
86
INTRODUCTION
The true value of planning lies ultimately approves a rezoning request that is not
in the implementation of community- consistent with the comprehensive
supported ideas.This chapter establishes plan,the zoning amendment shall have
the relationship between the Land Use the effect of also amending any future
Plan 2050 and other Orange County land use map (e.g.,the Conservation and
planning efforts,such as the Strategic Growth Map) in the approved plan,and
Plan,which are instrumental in achieving no additional request or application for
Plan implementation.This chapter also a plan amendment shall be required
details the legal context,the updating per the statute.The Board of County
and amending process,the monitoring Commissioners is also required to
and reporting steps,and implementation adopt a statement on plan consistency
actions that the County will take to before adopting or rejecting any zoning
implement the Plan's Policies and achieve amendment.
the Plan's Vision Themes and Goals.
The Orange County Planning Board is
responsible for the recommendation
of the plan to the Board of County
CONTEXTLEGAL Commissioners,who ultimately vote on
the adoption of the plan.The Unified
Orange County's ability to adopt and Development Ordinance(UDO),the land
implement a comprehensive plan is use regulations of Orange County, is a
drawn from its state authorized general critical implementation tool that can be
police power to "define, regulate, prohibit, updated following adoption of the Land
or abate acts,omissions,or conditions Use Plan. In addition,the UDO provides
detrimental to the health,safety,or the authorization and legal framework
welfare of its citizens" per North Carolina for development and adoption of a
General Statute §153A121.The municipal comprehensive plan.The ordinance states
and county planning and zoning enabling that the plan "shall constitute an internally
statute (G.S.160D) requires that local consistent and compatible statement
governments adopt a comprehensive plan of policies for the long-term physical
or land use plan if they have an adopted development" of the County.The UDO
zoning ordinance. Per the statute,these also outlines certain elements that the
plans "set goals, policies,and programs land use plan should include in Section
intended to guide the present and 1.7.2,which have been incorporated into
future physical,social,and economic the Conservation and Growth Framework
development of the jurisdiction"and these of this Land Use Plan.
plans are to be "reasonably maintained"
with occasional updates.
This statute also requires that zoning be
"in accordance with a comprehensive
plan" and that local governments adopt
statements of consistency when making
rezoning decisions on development
applications. If a local government
ORANGE COUNTY LAND USE PLAN 2050 83
87
LINKAGE TO THE STRATEGIC
PLAN
The Orange County Strategic Plan engagement,to influence questions asked
guides County operations and sets a of the public and validation of similar
course for implementing countywide results;and during the development of
priorities through operations and budget policy guidance,to enforce priorities
decisions.The Strategic Plan was adopted shared by the community.As the Strategic
in February 2024 and provides this Plan and the Land Use Plan continue
statement:"Orange County is a visionary to be updated in the coming years,
leader in providing governmental services policy guidance, resource allocation,and
valued by our community, beyond those implementation priorities can be refined
required by law, in an equitable,sustainable, and readjusted as needed.
innovative, and efficient way."The
Strategic Priorities include Environmental
Protection and Climate Action, Healthy
Community, Housing for All, Multi-modal _
Transportation, Public Education/Learning
Community,and Diverse and Vibrant ►
Economy.
Important documents,such as the annual
operating budget, Capital Investment
Plan,and agenda abstracts, align with and
provide connections to the Countywide
Strategic Plan. Progress will also be
tracked regularly through monthly staff
evaluations toward achieving the Board's
Strategic Goals and quarterly reports to ORANGE COUNTY
the County Manager's Office. In addition, NORTH CAROLINA
the County Manager's office will report STRATEGIC PLANFY2025-2029
twice a year to the Board on milestones
and challenges for each of the Strategic Guiding Pdnciplas
• C°mmunirali°n and Awareness
Goals. w, d
Xne`ridp%. daalerdug,end evcie.
The Strategic Plan provided a fundamental lndusivity and Fga.e t
we mae.�en,n nim e,.n:aen ertia�m,
foundation for the development of the
Land Use Plan. Community engagement Gedica°°nand Resp
Wammmtwmrmbe'inpunk R..end mpenemimel
mbytlazb olentc,end ienoxeeon
efforts during the Strategic Plan process
resulted in "statistically significant" data 5,eward°hip�ndAd°�a°y
wa m�xe p�m.n.ra�naa dod�»a.a maKam
on community perspectives on a wide �drmmam �ma.
variety of topics related to life in Orange Padne�h'pandf°labnrav°°
we ctddme.:wld
x� e..uso�na�mm:n�vemd weme
County. Information gleaned from this
S°cial Huatice
survey provided key insights at important
milestones in the Land Use Plan- at the CpimareActl°°and5°aainabdisy
we a9 Murmranwmmwl's amcdm o.dn9„.
project kickoff,to guide conversations d�de0 eefnPnln9.P�mvn9 and a nln®
with stakeholders; during community Orange County Strategic Plan
84 PUBLIC REVIEW DRAFT
88
0
The Actions identified below,organized by Plan Goals,will be further evaluated for
prioritization by Orange County.
Agriculture, Working Lands, and 8. Align the"open space"definitions in the
Open Spaces Actions UDO and this Comprehensive Land Use
Plan to ensure that they are consistent
1. Continue to regularly update the and agree with each other.
Orange County Lands Legacy Program
Action Plan and Farmland Protection 9• Conduct regular updates to the
Plan. County's inventory of natural areas on a
parcel scale.
2. Continue to utilize the County's Lands
Legacy Program to: 10. Pursue a study to define and identify
scenic resources in Orange County.
a. Conserve rural land use and Establish development standards and
historic farm properties. entitlement practices to protect scenic
resources, including landscapes,ridgelines,
b. Conserve watershed riparian meadows,and geologic features that have
buffer lands and prioritize areas in special scenic character or historic or
water supply watersheds. aesthetic interest or value.
c. Conserve lands of historic,cultural, 11. Expand the Eno-New Hope
or archaeological significance. Conservation Plan evaluation countywide
3. Amend the UDO to incorporate for identification of priority areas of the
Agriculture Subdivisions as a Flexible county to be protected either through
Development option. the entitlement process or acquisition of
some form.
4. Continue to utilize the Voluntary
Agricultural District(VAD)and Enhanced 12. Ensure that agritourism is properly
Voluntary Agricultural District(EVAD) regulated for environmental health,
programs to encourage the protection of land disturbance,and stormwater
farmland from conversion to other uses. management,as it is exempt from zoning
regulation by NC G.S.160D-903.
5. Support the development of a regional
sustainable food network by supporting
the protection of working farmlands and
agricultural uses and supportive uses.
6. Direct incompatible development
away from land that contains valuable
productive resources,such as prime
farmland and prime forestland
Jr
7. Permanently conserve areas identified
as NC Natural Heritage Program Natural 1
Areas.
Pumpkin Carving with Goats
ORANGE COUNTY LAND USE PLAN 2050 85
89
Community Equity Actions Economy and Employment Actions
13. Identify key areas on the Conservation 21. Encourage high levels of accessibility
and Growth Framework to develop Small and connectivity for pedestrians and
Area Plans. bicyclists in Economic Development
Areas(EDA),including infrastructure
14. Continue to utilize the Centers for outside the local road rights of way.
Disease Control and Prevention (CDC)
Social Vulnerability Index to identify 22. Consider reducing minimum off-
Activity Nodes for any future map street parking requirements in Economic
changes to the Conservation and Growth Development Areas(EDAs).
Framework.
23. Support extension of public water
15. Develop a process to incorporate and sewer into all three Economic
equity analyses in staff reports that Development Areas through agreement
evaluate development projects,potentially with utility providers.
utilizing the Centers for Disease Control
and Prevention (CDC)Social Vulnerability 24.Encourage property owners interested
in commercial uses outside of areas
Index.
designated for such uses to pursue
16. Collaborate with the County's Office available conditional district options.
of Equity and Inclusion on developing a
Language Access Plan for the Planning 25. Consolidate the existing economic
& Inspections department,and identify development,office research and
a funding source to translate and publish manufacturing,and industrial zoning
bilingual materials. districts into no more than four(4)
conventional zoning districts.
17. Support the implementation of the
Master Aging Plan.
18. Create more opportunities and better '
access to employment centers through
the fulfillment of identified Economic $ w
Development Areas. r ,
19. Research other effective ways w' _
to increase public awareness of the =-
development process,such as continuing
to refine existing online dashboards and
s
interactive maps. s
20.Consider creating a new Unified
Development Ordinance that is more
user-friendly and simple to understand `J
while maintaining necessary language
and attributes for desired development
outcomes.
Moorehelds Bluegrass Festival
86 PUBLIC REVIEW DRAFT
90
Environment, Parks, Recreation, Hazard Mitigation Plan,Orange County
and Resiliency Actions Climate Action Plan,and Eno-New Hope
Landscape Conservation Plan.
26.Continue to utilize the County's Lands
Legacy Program to conserve future 34.Continue to enforce appropriate tree
parklands, in coordination with agricultural canopy regulations that offset impacts of
development by establishing native shade
preservation actions.
trees.
27. Continue to promote partnerships
with municipalities, INC State Parks, 35. Establish resiliency centers at County-
schools and universities,and nonprofit owned facilities in each County township
organizations to provide diverse for relief from extreme weather events,
including extreme heat and cold,
recreation options. hurricanes,and violent thunderstorms
28. Utilize the Centers for Disease Control with tornadoes.
and Prevention (CDC)Social Vulnerability
Index to address lack of recreational
offerings in some of the most socially
vulnerable unincorporated communities.
29. Explore ways to expand accessible
recreation options and access to
recreational facilities.
30.Promote the completion of the
statewide Mountains-to-Sea Trail
segments within Orange County.
31. Support an updated United States
Geological Survey study to establish
appropriate groundwater withdrawal
regulations that preserve the capacity
for groundwater recharge on properties
developed for residential,commercial,and
other uses.
32. Revise the Unified Development
Ordinance's"flexible development"
subdivision standards to better protect
and connect environmental resources,
open space,and agricultural lands while
also allowing for new housing options on -a
flexible lot sizes and increase in density if 0-%- F,
more than 60%of the site is set aside for
preservation. .�
33. Utilize the extensive existing
community resiliency planning
documents in action prioritization and
decision making related to land use.These
documents include the Eno-Haw River Cane Creek Resevoir
ORANGE COUNTY LAND USE PLAN 2050 87
91
Housing Attainability Actions 43.Consolidate the UDO's residential
zoning districts into no more than three(3)
36. Evaluate affordable housing zoning districts.
incentives that could be applied to Rural
Conservation Neighborhoods and seek 44.Research reliable and/or public data
opportunities to increase production sources to identify naturally occurring
of affordable units through density affordable housing (NOAH)for use in
bonuses,lot size relief allowances,or other staff reports on proposed development
methods. projects.
37. Continue coordination with the
Towns of Chapel Hill and Carrboro on
development of the jointly owned Greene �•,�. 1
Tract and specifically the incorporation of
affordable housing units.
38.Evaluate current policies and the \\:
UDO for ways to incentivize the use of
accessory dwelling units(ADUs)to provide
more housing. ry ,
39. Evaluate adding triplexes lexes and
quadplexes as by-right uses in all of
the Unified Development Ordinance
residential zoning districts.
40.Evaluate an amendment to the Joint — I04
Planning Agreement to allow all structures
covered by the residential building code
in all zoning districts of the County per
Planning Board direction(including
quadplexes on one-acre lots where septic
can be accommodated).
d
41. Coordinate with all municipal partners / �� FA I
to encourage housing choices,such !` Ii!►� Vi \ r
as missing middle housing,and for the
preservation or production of housing
that is deed restricted to maintain
affordability.
42. Review and revise the Water and
Sewer Management, Planning,and
Boundary Agreement(WASMPBA)to
allow connection by households with , :
immediate or adjacent access to existing !':
treated water and/or sanitary wastewater -
lines. _
Parade of Humanity Mural
88 PUBLIC REVIEW DRAFT
92
Regional and Local Growth Actions 46.Evaluate County zoning designations
to support the guidance provided in the
45.Undertake efforts for a coordinated Conservation and Growth Framework.
review of intergovernmental planning
agreements with partner municipalities 47. Adjust the Flexible Subdivision
on a ten-year cycle.This includes the standards to reflect the new Rural
Central Orange Coordinated Area Land Conservation Neighborhood policy
Use Plan;Joint Planning Land Use Plan; guidance including a way to manage or
Water and Sewer Management, Planning, limit agritourism uses within required
and Boundary Agreement(WASMPBA); open space set-aside areas and provide
and any future intergovernmental support for neighborhood-scale
planning agreements. During this nonresidential to be included within
coordinated review,six topics may be these developments.
considered,as displayed in the map below. 48.Evaluate the nonresidential
development acreage limitation for Rural
Activity Nodes,which was established
when the extent of zoning a
parcel for nonresidential use
was significantly different
' from today.Consider
Vol changing the provision to
i encourage development
#'
Blackwood ; of these sites and reflect
' changed conditions.
Orange County 49.Initiate a process to
� ub
r Coservatin
Eanks, and review and update the
ETI 2050 Orange County Land
y Rural Buffer 0
�a
Calvander Rural Conservation Use Plan every 10 years
!
GH RE HINeighborhood to reflect new tannin
L LL
a ! Rural Residential planning
c�RRBORO Low Density conditions and issues and
55 , Neighborhood
Rural Activity Node ensure relevant policy
Economic Development
Areaguidance for the long-term.
a 501
JPA
A0 50.50.Review previously
.00/CH/CA Joint Planning completed planning studies
-•Area(Est.1986)0 and Small Area Plans for
--- �_�
-------- implementation status and
Orange County-Chapel Hill-Carrboro Joint Planning Area Land Use sunsetting, if appropriate.
Plan Topics of Future Coordination
0 Re-evaluation of Rural Buffer
Q Concept of Municipal Transition Area expansion
Q Utility Service Area boundaries and policies
0 Concept of a Mixed Uses Center around Blackwood Station
0 Concept of Rural Conservation Neighborhoods in Rural Buffer
0 Concept of Rural Activity Nodes in Rural Buffer
Orange County-Chapel Hill-Carrboro Joint Planning Area Land Use Plan Topics of Future Coordination
ORANGE COUNTY LAND USE PLAN 2050 89
93
Services and Community Facilities Transportation and Mobility
Actions Actions
51. Work with the partners of the Water 55.Work with NCDOT to add separated
and Sewer Management, Planning, bike lanes in appropriate corridors as
and Boundary Agreement to prepare designated by the Comprehensive
necessary updates to implement the Transportation Plan.
policies of this plan such as restrictions on
connections to existing infrastructure. 56.Add more bicycle-supportive facilities
such as bicycle parking zones and explore
52. Explore the potential to support regulatory updates to encourage the
private water and wastewater systems, same in new developments.
including any differentiation between
community septic and decentralized 57. Increase transit-supportive facilities,
wastewater systems, in unincorporated such as service stops and park and ride
Orange County to provide needed lots in new developments.
infrastructure for Rural Activity Nodes, 58.Develop design standards for bicycle
Rural Conservation Neighborhoods,and and pedestrian infrastructure that can be
Economic Development Areas that are required with new development,pending
unserved by public systems. creation of a maintenance program.
53. Convene discussions with the City of
Mebane on its future utility service area
and the relationship to the Conservation
and Growth Framework for OrangeA
f
County. .4
54.Support private investments into ;
water and sewer infrastructure in the .
Eno Economic Development Area in
coordination with the City of Durham as
needed.
= r rr ii
Orange County Historical Museum
90 PUBLIC REVIEW DRAFT
94
UPDATING & AMENDING THE PLAN
The Orange County Land Use Plan 2050 presents a vision for the future,intended to guide
policy decisions over the next 25 years.A land use plan should remain a relevant, living
document that continues to represent the priorities of the community and responds to
changing conditions over time.To accomplish this,the Plan should be regularly analyzed and
amended. Following adoption, it is good planning practice to update the Plan approximately
every ten years.
The Conservation and Growth Map should also be monitored to identify trends that may justify
changes to the Plan's policy direction and map guidance. It is recommended that Orange
County establish specified pre-determined intervals(such as on an annual basis)for staff-
initiated plan amendments to be presented to the Commissioners,resulting in the formal
amendment of any inconsistencies that have been created through the rezoning process.
Regular reviews can include monitoring changes to the Conservation and Growth Map and
prioritization of the recommended Actions from the Land Use Plan 2050 with other processes,
such as the Strategic Plan updates and capital improvement plans.
MONITORING AND REPORTING
Monitoring and reporting on the Land Use Plan should be an ongoing process that
includes status reports on plan implementation to the public at regular intervals. It is good
planning practice to report on implementation every two years and it is the intent that
an implementation report will be delivered on a regular schedule to the Orange County
Commissioners as determined by planning staff.This report should track performance metrics
overtime and measure overall progress toward achieving the Land Use Plan Goals.
Evaluation of the following performance metrics will provide a measurable way to understand
how effectively the Plan is achieving the community's desired outcomes.The metrics were
developed by Orange County staff with an emphasis on alignment with other current County
initiatives and efforts to implement the Strategic Plan.
Goal Performance Metric
Agriculture, Working Permanently protect 300 additional acres of farmland,
Lands, and Open priority natural areas, riparian buffer lands,floodplains, and
Space wildlife habitat over the next 5 years.(Data from DEAPR
conservation lands tracking)
Community Equity Maintain general levels of socioeconomic diversity in the
County(ACS data can be tracked annually)
Expand the non-residential tax base by increasing the
Economy and assessed value of real and personal property in the County's
Employment Economic Development Districts and Commercial/Industrial
Transition Activity Nodes by 20%over the five-year period
ending June 2029
ORANGE COUNTY LAND USE PLAN 2050 91
95
Goal Performance Metric
Reduce the energy intensity(energy used in KBTU,or one-
thousand British thermal units, per building square foot) of
County facilities by 10%to 78.5 KBTUs per square foot by
June 30,2029
OR
Environment, Parks, Establish baseline and increase the number of sustainable
and Recreation farming practices farmers implement after participating in
sustainable farming programs,outreach, or education each
year
OR
Increase the percentage of the Orange County population
that lives within two miles of recreation,greenways,trails, or
parks
Decrease the proportion of the average housing price to
household income
Housing Attainability OR
Increase the number of affordable (80%AMI or below)
housing units funded by Orange County by an average of 10
annually, prioritizing 60%AMI or below
Identify populations most vulnerable to the effects of
extreme heat; prioritize tree plantings in these areas
Resiliency OR
Identify potential County facilities that can serve as
resilience hubs by 2025 and amend the Unified Development
Ordinance to allow for these in certain zoning districts
Services and Extend water and wastewater services to properties within
Community Facilities Economic Development Areas
Transportation and Increase ridership on the Hillsborough Circulator, Orange
Mobility Alamance Connector,and Orange-Chapel Hill Connector by
5/o by June 2029.
92 PUBLIC REVIEW DRAFT
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ORANGE COUNTY LAND USE PLAN 2050 93
97
APPENDIX
• Appendix A: Glossary
• Appendix B: Planning Influences
98
APPENDIX A: GLOSSARY
Key Terms
[Note: The glossary will be finalized in a Green infrastructure: Used to refer to
future version after all key terms that the value and role of open space and
should be included have been identified.] ecosystem services broadly but is now
often used in a narrower sense focusing on
Accessory Dwelling Unit:A residential nature-based approaches to stormwater
dwelling unit, but not a mobile home, management.
located on the same lot as a single-family
dwelling unit,either within the same Sustainable development: development
that maintains or enhances economic
building as the single-family dwelling unit
or in a detached building. opportunity and community well-being
while protecting and restoring the
Open space: Any land or area,the natural environment upon which people
reservation of which in its present use and economies depend. Sustainable
could: (1) conserve and enhance natural development meets the needs of the
or scenic resources; or(2) protect present without compromising the ability
streams or water supply;or(3) promote of future generations to meet their own
conservation of soils,wetlands, beaches, needs.
or tidal marshes; or(4) enhance the value Water Supply Watershed Critical Area,
to the public of abutting or neighboring
parks,forests,wildlife preserves, nature County Designated:The land area within
reservations, or sanctuaries;or(5) enhance one-half mile of the normal pool elevation
recreation opportunities. (or designated elevation) of an existing
Class I I water supply reservoir,or the
Sprawl: Low-density land-use patterns ridgeline of the watershed,whichever is
that are automobile-dependent,energy less;and the land area within one-half
and land consumptive,and require a very mile of the normal pool elevation (or
high ratio of road surface to development designated elevation) of a proposed water
served. supply reservoir designated for protection,
or the ridgeline of the watershed,
Conservation Subdivision: Also called a whichever is less.and the area within one-
flexible subdivision;A subdivision in which half mile of streams flowing into Class
greater flexibility and design creativity reservoirs,as designated for protection
is encouraged and allowed to preserve within this Ordinance.
agricultural and forestry lands, natural and
cultural features,and rural community Water Supply Watershed Critical Area,
character that might otherwise be lost State Required:The land area within one-
through conventional development half mile of the normal pool elevation of
approaches. water supply reservoirs in which an intake
is located (i.e., Class I reservoirs), or the
ridgeline of the watershed,whichever is
less.
ORANGE COUNTY LAND USE PLAN 2050 95
99
APPENDIX B: PLANNING training and organizational capacity,
INFLUENCES community engagement, racial equity
index, racial equity assessment lens,
and evaluation and accountability.
This appendix summarizes relevant
land use trends and conditions,current Strategic Plan and Strategic Plan
initiatives and programs, policy guidance Survey (2020): Orange County's
five-year 2024 Strategic Plan is an
from other adopted Orange County,and
community aspirations for the County's aspirational endeavor for the future
future that influenced the development of of the County,which identifies
the Goals and Policies included in Chapter Orange County's mission statement,
vision statement, guiding principles,
31"Guiding Conservation and Growth." and priorities for implementation.
These Planning Influences are organized The planning process included
by the following categories. a statistically significant survey
• Agriculture,Working Lands,and Open that informed development of the
Space Strategic Plan and this Land Use Plan.
It provided key data points on the
• Community Equity community's opinions and aspirations.
• Economy and Employment • Community Policy Profile:This
report,developed in Phase 1 of this
• Environment, Parks,and Recreation Land Use Plan process,summarizes
• Housing Attainability land use policy guidance from
Orange County plans and other
• Regional and Local Growth policy documents.These documents
• Resiliency and Hazard Mitigation provide the foundation of adopted
policies that the Land Use Plan 2050
• Services and Community Facilities builds upon.The report contains brief
descriptions and summaries of each
• Transportation and Mobility of these documents and highlights
the key policy topics addressed in the
Understanding the influences on Orange reports,which include key documents
County's planning elements required such as the Climate Action Plan.
a thorough review of the following • Fact Book: Developed in Phase 1
sources that were incorporated into the of this Land Use Plan process,the
development of this plan: Fact Book provides a data snapshot
• One Orange Countywide Racial of existing conditions and projects
Equity Framework (2022):The One future trends that provide a technical
Orange Racial Equity Framework baseline for developing the plan.
is "designed with the commitment • New Issues and Opportunities
of uncovering and addressing Report:This report identifies new
implicit biases in our jurisdictions to issues and opportunities based on
ensure that race no longer can be vision and policy themes generated
used to predict life outcomes in the from stakeholder interviews,Staff
Orange County community."The Working Group discussions,and
Framework focuses on five pillars to inputs received through public
use as a foundation for local action: engagement,as well as community
96 PUBLIC REVIEW DRAFT
100
trends and conditions that have Agriculture, Working Lands,
evolved since the last plan was
adopted.This document served as and Open Spaces
the foundation for policy discussions
with County Staff,the Staff Working Trends and Conditions
Group,the Planning Board,and the
Board of County Commissioners. Agriculture,working lands,and open
• Phase 1 Stakeholder Interviews spaces are vital assets to the residents of
Summary Report:This document Orange County.The county's landscape
summarizes input collected from mainly consists of deciduous forests
stakeholders interviewed during and agricultural lands, including both
Phase 1.The purpose of this summary pastureland and cropland. From 2008
is to share the key takeaways from to 2017,tree cover across the county
these inputs.These inputs were used increased by approximately 3%, largely
as a starting point for discussions within the Rural Buffer area. However,from
with the public as part of Community 1997 to 2017,the county saw a 4%decrease
Engagement Window#1 (CEW#1)and in agricultural land.
aided in development of activities Over 10,000 acres of land in Orange
and polling questions.
County are designated as"state-identified
• Community Engagement Window natural areas,"which are recognized for
#1 Summary: This document their special biodiversity significance.
provides a summary report of the Some of these areas are ranked among
activities, objectives,and outcomes of the highest conservation priorities in
Community Engagement Window#1, the state.The majority of these lands
held during fall 2023 through winter are located within the Rural Buffer.A key
2024. mechanism in safeguarding these areas is
• Community Engagement Window Orange County's Lands Legacy Program,
#2 Summary: This document a conservation easement initiative that
provides a summary report of the allows landowners to voluntarily protect
activities, objectives,and outcomes of their properties from development.
Community Engagement Window#2, In terms of working land used for farming
held during the fall of 2024. or forestry,approximately three-fourths
The following are narratives that discuss of the County consists of prime farmland
the information and analyses drawn soil (140,630 acres). Overall,27.4%of
from the existing Orange County studies, land is actively used for agricultural
purposes, including crop production,
reports,and recommendations. timber harvesting,and pasture (69,908
acres).Although the number of farms
has increased from 1997 to 2017,the total
area designated as a farm operation has
decreased by 4%. Notably,the number
of farms owned by Black and African
American farmers has grown. In addition,
there has been a significant rise in
pastureland,alongside a marked decline in
cropland.
ORANGE COUNTY LAND USE PLAN 2050 97
101
„ the Soil and Water Board of Supervisors
< f oversees the Soil and Water Conservation
<.rr° :a. District.
McDade Caldwell
Cedar , , In addition,the Lands Legacy Program
is a key driver of the County's land
i preservation efforts.This conservation
Q'z ♦ _ easement initiative enables landowners
alen.aNe
to voluntarily designate their property for
a" �I _
�1?,R— 2(_Efla,,d - permanent protection,ensuring it remains
HILLSBOROUGH free from development and preserved for
ooc h-41 siyE - future generations.The program focuses
X r,Hll,,l on five priority areas for land protection-
= — NC Natural Heritage future parklands; lands with historic,
la a o
Program's Natural Areas
+Protected Lands cultural,or archaeological significance-,
reek Q Orange County
�Extra TerritDrolluri=dic'on natural areas and wildlife habitats
Municipalities
Calvande aaH.ad (including NC Natural Heritage sites); prime
CHAPEL HLLL Park Land and Open Space
1ecro,. Natural Areas and threatened farmlands;and watershed
CRRNBO FO CI Exceptional
Very Man riparian buffer lands.
High
o, Moderate
Un:ve::'y'sa General
®°°.°ked Policy Guidance from Other
- - County Documents
NC Natural Heritage Programs Natural Areas and
Protected Lands Orange County's policy guidance
from other County plans applicable
Current Initiatives and Programs to agriculture,working lands,and
The conversion of farmland to non- open spaces collectively guide land
agricultural uses remains the greatest conservation,the protection of natural
threat to the county's working lands. resources,and the alignment of future
The 2030 Comprehensive Plan outlined growth with the community's long-term
an objective to ensure the "long-term
vision and habitat protection.
productivity of farms and timberlands • The New Hope Corridor and Open
through best land-use management Space Master Plan (1991)was created
practices"To support this goal,the to propose an open space corridor
County offers a variety of agricultural linking Eno River State Park, New
programs designed to assist farmers in Hope Creek, Durham,and Chapel Hill.
their operations and protect agricultural The plan recommends protection
land from development pressures.The of these creeks and adjacent areas
Agricultural Development and Farmland and proposes phases of corridor
Protection Plan provides the strategic acquisitions,trails,and access areas
framework for local agriculture and construction.
forestry,while County boards play a key . The Landscape Plan for Wildlife
role in preservation efforts. Specifically, Habitat Connectivity in the
the Agricultural Preservation Board (APB) Eno River and New Hope Creek
administers the Voluntary Agricultural Watersheds, North Carolina (2019)
District (VAD) and Enhanced Voluntary identifies and maps priority wildlife
Agricultural District (EVAD) programs,and corridors across the Eno River
98 PUBLIC REVIEW DRAFT
102
and New Hope Creek-Jordan Lake Areas and Open Spaces" and "Preserving
watersheds,which span portions of Agricultural Lands"
Chatham, Durham, Orange,and Wake
Counties.The plan offers actionable During Community Engagement Window
strategies to ensure wildlife habitat #2, respondents expressed highest
connectivity throughout these support for the Vision Theme,"Protect
regions. Critical Watershed Areas and Open
Spaces and Preserve Agricultural Lands"
• At the time of this writing,an updated (85%).The Working Lands and Open Space
Farmland Preservation Plan is Goal also received high support (84% of
underway. Once completed, it may respondents).
inform working land-related policies
in the future. When asked if they agreed with
the County's current approach to
Community Aspirations managing conservation and growth in
unincorporated areas,the majority agreed:
The survey from the 2024 Strategic Plan 60% in the short survey and 58% in the
and community engagement from the long survey.The majority of respondents
Land Use Plan 2050 provide insights also supported a shift in the County's land
into the community's perspectives on use approach to place more emphasis
agriculture,working lands,and open space. on protecting environmental,agricultural,
In the Strategic Plan Survey, respondents watershed,and rural) lands (75% in the
shared that their decision to live in Orange short survey and 54/o in the long survey).
County was influenced by the availability In contrast, in the long survey,35/o did not
of parks and open spaces,with 44%citing support this shift.
this as a key reason.When asked about When asked about their level of support
preferred types of development and for changing the County's land use
growth in the county,69% of respondents approach to encourage new Rural
favored parks and nature reserves,while Conservation Neighborhoods—where
47%supported the preservation of family smaller lot sizes would be allowed in
farms. exchange for permanently protecting 60%
During Community Engagement Window of the site-52% of respondents supported
#1,94% of respondents expressed the this concept. However,32% disagreed due
belief that well-preserved forests, rivers, to concerns about the affordability and
and other natural spaces should be central availability of housing and questions about
to Orange County's identity in the region. the management of private water and
When asked about the most important wastewater systems.
environmental needs in the future,the
second highest response was to protect
agricultural/working lands and healthy
soils.Additionally,when asked about their
biggest concerns for the county's future,
the most commonly identified topic was
sustainable land use, growth, and sprawl.
Accordingly,two key themes identified in
the New Issues and Opportunities Report
include "Protecting Critical Watershed
ORANGE COUNTY LAND USE PLAN 2050 99
103
Community Equity In terms of social vulnerability overall,
census tracts in the northwestern portion
of the county and along 1-85 rank among
Trends and Conditions the most vulnerable in terms of social
Community equity can be assessed vulnerability. Other areas of heightened
through the lens of social vulnerability, vulnerability include regions outside
which reflects a community's ability to Carrboro municipal limits and south of
prepare for and respond to the stress 1-40.
of hazardous events,which can include The CDC Social Vulnerability Index includes
natural disasters and/or human-made census tract rankings on Socioeconomic
threats.The Centers for Disease Control Status,which aggregates data for those
and Prevention (CDC) has developed living below 150%of the poverty line,housing
a Social Vulnerability Index(SVI)that is cost burden,no high school diploma,no
based on 16 indicators grouped into four health insurance,and unemployment.When
key themes:1)socioeconomic status, considering socioeconomic status,a larger
number of census tracts in the county are
2) racial and ethnic minority status, 3) classified as vulnerable.The highest levels
housing type and transportation,and of vulnerability in this category are found
4) household characteristics. Using this along 1-85 and in some tracts within Carrboro
framework,census tracts are ranked and Chapel Hill.The northwestern part of
by percentile to indicate their level of the county and the surrounding Efland area
social vulnerability,with 0% representing fall within the 51-75%vulnerability range.
the least vulnerable and 100%the most Additional vulnerable areas include the
vulnerable. southeastern portion of the county,the
region around Mebane,and areas outside
- Vc-
___--__-- Hillsborough.Approximately l3%of Orange
County's population lives in poverty,a rate that
is higher than in surrounding counties.This
higher poverty rate may, in part,be attributed
1531 to the large number of college students
smmy
residing in the county, particularly in Chapel
® Hill and Carrboro.
MEBANE o The CDC Social Vulnerability Index
includes census tract rankings on
HILLSBOROUGH
a Household Characteristics,which
aggregates data for those in the
B°rkM1°rn
population aged 65 and older,aged 17
= and younger,single-parent households,
tial Vulnerability Ines,
and English language proficiency.These
- cl°ec°n°mic Status
°z=�IM1°°°mgtM1,
oE°ba ks' -s;_;° household characteristics also reveal
` "6100Wo"°"
0 social vulnerability across the county. In
niapal Planning
Cal°and}`e ]u�ristllce°n
..
CARRBORO CHA'PELA°LL the 76-100%vulnerability range,the areas
W �j north and south of Hillsborough,along
, with some parts of Chapel Hill,are most
affected.The surrounding Hillsborough
area,the entire northwestern portion of
the county,and areas outside Carrboro
CDC Social Vulnerability Index,Socioeconomic
Status(2020) and Chapel Hill are classified as 51-75%
100 PUBLIC REVIEW DRAFT
104
Ell
Caldwell MCUade Caldwell
41" C .e.a `g edar,oye
' S<hley �_ 5<bley
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b b
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I
CDC Social Vulnerability Index,Housing Type/ CDC Social Vulnerability Index, Household
Transportation(2020) Characteristics(2020)
vulnerable. Less vulnerable regions Finally,the CDC Social Vulnerability
include the Mebane-Efland area and the Index includes census tract rankings on
southern part of the county. Racial and Ethnic Minority Status,which
aggregates data for the population who
The CDC Social Vulnerability Index identifies as Hispanic or Latino of any
includes census tract rankings on race, Black or African American, Native
Housing Type and Transportation, Hawaiian or Pacific Islander,two or
which aggregates data for multi-unit more races,or other races.The Social
structures, mobile homes, crowding Vulnerability Index identifies census
(more people than rooms in a home), tracts where racial and ethnic minority
no vehicle,and group quarters (such status covers a broad swath of the
as college dormitories, nursing homes, county. Census tracts in the 76-100%
and correctional institutions). Social range are primarily located in parts of
vulnerability related to housing type Carrboro and Chapel Hill.The 51-75%
and transportation mirrors the patterns range is found along 1-40, 1-85,and in the
observed in other categories,with the northwestern part of the county.Areas
highest concentrations of vulnerability with less vulnerability(29-50%)are found
found in the northwestern part of the throughout the rest of the county,with
county,within and around Hillsborough, the exception of the southwestern portion
along 1-85,and within Carrboro and and regions north of Mebane.
Chapel Hill. Less vulnerable areas are
located in the southern,eastern,and Current Initiatives and Programs
western portions of the county.
ORANGE COUNTY LAND USE PLAN 2050 101
105
- tD ----------
( ( "
Ell
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6
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Q e HILLStlO ROUGH
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ZI6aI VUlnerablllty lndeR.
Racial and Ml.Wity Status
Percent Population Living ( 0".:0%
Below Poverty Level ,... 051- %
r... I'•,y, 0 76-10M(tap 4th)
orange County Munlclpal Plennlnq
calvaria. B•hapa Hill Munldpal Planning]urisdicrlon Olw..on
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Wfa oro:: calrh�l %Of Population Living Belaw Poverty RRtlORU PHAPEI.H14L
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01.5-5
ual
Q 5.1-10
10.1-15
q
CDC Social Vulnerability Index, Percent CDC Social Vulnerability Index, Racial and
Population Living Below Poverty Level(2020) Minority Status(2020)
There are many current initiatives and networking opportunities,and access to
programs the County administers to capital so these businesses can thrive in
create community equity throughout the the local economy.
County. A few initiatives and programs
are the Racial Equity Index,a variety of The Community Giving Fund provides
Minority Business Resources, Community financial support to nonprofits and
Giving Fund, Senior Center Programs, community-based organizations that
Aging Helpline,and the Project EngAGE serve the needs of low-income and
Program. underserved populations in Orange
County.This fund is used to address key
The Racial Equity Index is a tool in the social and economic issues,such as health
form of a dashboard that can be used disparities, housing instability,and access
to provide awareness,track disparity,or to education.
inform strategies, grants,and services.The
dashboard includes statistics on public The County also has many programs and
health, education,economic opportunity, initiatives catered to its senior population.
living conditions, infrastructure,and voting. A variety of senior center programs
offered by the County promote healthy
The various Minority Business Resources aging and lifestyles among seniors,such
offered by Orange County are designed as recreational activities,social events,and
to support the growth and success of health and wellness classes.The Aging
minority-owned business within the Helpline is a resource for seniors and their
County. It offers resources such as training, families where they can find information
102 PUBLIC REVIEW DRAFT
106
and assistance on various services and • The Master Aging Plan (MAP)(2022)
programs available to them.The Project is a five-year plan that provides
EngAGE Program is a community-based comprehensive and coordinated
initiative that works to engage seniors delivery of community services
in meaningful volunteer opportunities, and supports that foster lifelong
leadership roles,and community service community engagement and well-
projects. being to older adults in Orange
County.The Department on Aging
Policy Guidance from Other created its first MAP in 2000 and
County Documents each new MAP continues to evolve
to meet the needs,expectations,
Orange County's policy framework for and contributions of a growing aging
promoting community equity includes a population.The Master Aging Plan
variety of documents designed to guide identifies goals and objectives across
efforts toward making the County a more 8 topics, including outdoor spaces
inclusive and equitable place for all. and buildings,transportation, housing,
social participation, respect and social
• The One Orange Countywide inclusion, civic participation and
Racial Equity Framework(2022) employment,community support and
uncovers and addresses implicit health services,and communication
biases in Orange County to ensure and information.
that race no longer can be used to
predict life outcomes in the Orange Community Aspirations
County Community.The plan has
five pillars,which jurisdictions use as The survey from the 2024 Strategic Plan,
a foundation for local action.The five public engagement from the One Orange
pillars are:training and organizational Countywide Racial Equity Framework,and
capacity,community engagement, public engagement from the Land Use
racial equity index, racial equity Plan 2050 provide insights into Orange
assessment lens,and evaluation and County perspectives on community
accountability. equity.
• The Orange County Climate Action The One Orange Countywide Racial
Plan's(2023) purpose is to guide Equity Framework, published in 2022,
greenhouse gas reductions in County included public engagement efforts to
operations and community wide gather community feedback and assess
efforts.This plan aims to unify existing whether the plan met the interests and
climate work under one strategic needs of the community in advancing
framework to equitably transition racial equity.A total of 660 responses were
Orange County to a low-carbon, collected from participants. When asked,
climate-resilient community.The "What is one hope and one fear about this
plan's focus on community equity is in Countywide Racial Equity Framework?",
alignment with the Board of County respondents expressed hopes for
Commissioners 2010 Social Justice community, change,fair treatment, unity,
Goals and the understanding that the and peace.Their fears included a lack of
impacts of climate change cannot be action,the potential failure of the initiative,
separated from the systemic social, and the possibility of increased racial
economic,and political systems of tension and violence.When asked,"What
oppression and unfairness.
ORANGE COUNTY LAND USE PLAN 2050 103
107
three outcomes regarding racial equity agreed that it does(52%). Furthermore,
would you most like to see?", participants 53% of respondents expressed strong
identified the following top four priorities: support for Community Equity as a goal
(1) Improved educational outcomes for for the County
children of color,(2) Increased affordable
housing options,(3) More employment
opportunities for people of color, and (4)
Improved health outcomes for people of Economy and Employment
color.
In the Strategic Plan Survey,when asked Trends and Conditions
which local government services should Orange County is home to several
be prioritized,41%of respondents selected large employers, each with over 1,000
behavioral and mental health services, employees.The top employers include
25% chose social services,and 17% opted the University of North Carolina (UNC) at
for youth programming. Regarding future Chapel Hill,the UNC Healthcare System,
priorities for the county,the following NC Health, Chapel Hill-Carrboro City
were rated as"very important": ensuring Schools, Orange County Schools,and
equitable access to quality mental the Orange County government. Private
healthcare (55%), providing equitable sector employers with 500-999 employees
access to quality healthcare(49%), include Eurosport,the Town of Chapel Hill,
ensuring equitable access to housing (41%), and Wal-Mart. Commercial and industrial
addressing racism (41%),and increasing employment areas in unincorporated
opportunities foraging in place(35%). Orange County are located near
During Community Engagement Hillsborough,and along 1-85 near Mebane
Window#1 of the Land Use Plan 2050 and the Durham County line.
process,42%of respondents shared that Orange County has primary employment
the people of Orange County are what centers located in Chapel Hill.These areas
they like most about the area,while 31% are key hubs for employment and attract
highlighted the county's historical and workers from across the region.The
cultural roots as their top preference. county's 67,513 total jobs are concentrated
When asked,"What will keep you and/ near major transportation corridors,with
or your family in Orange County over the a significant cluster in Chapel Hill due
next 25 years?", respondents highlighted to UNC employment. Employment is
the need for equitable access to amenities also distributed across the county,with
and services: 38% of respondents cited residents working for municipalities such
better access to recreation and outdoor as the City of Durham,Town of Chapel Hill,
spaces,and 29% emphasized the need for City of Raleigh,Town of Hillsborough,and
improved access to high-quality internet Town of Cary.
service.Additionally,12% expressed a
desire for more job opportunities. This trend can increase travel times,
carbon emissions,and vehicle miles
In Community Engagement Window traveled in Orange County. Orange County
#2,the survey asked whether the vision connects the Piedmont's regional growth
theme "Advance Equitable Housing" to the Triangle's regional growth.
effectively addresses Orange County's
needs over the next 25 years.A majority Most people who work in Orange County
104 PUBLIC REVIEW DRAFT
108
commute from outside of the County. +
Among those who live in Orange County
but work elsewhere,the majority are ° o
employed in nearby municipalities, eldwell
particularly in the greater Triangle region.
In comparison to in-commuting workers
and out-commuting residents, a smaller
portion of residents both live and work
in Orange County. Notably, over 10% `,
of workers living in Orange County are v ry ►�Ra x, *s o o�Gx
commuting long distances from cities 13—kh— o
like Raleigh, Cary, and Apex. Residents'
work locations align with high job density
areas in the county and across the region. = '"
Orange County residents'workplaces are r.I- ,, , Economic Development
relatively dispersed,though most work in Areas
c°l a°d° Economic Development
Areas
the largest municipalities int e greater [[�� MWater Bodies
.Fife cross n —Eno River
Triangle. ti .ao —Streams
—Railroad
Orange County
-Municipalities
Current Initiatives and Programs M Extra Territorial lurisdioion
Orange County spearheads a variety
of initiatives and programs aimed at Economic Development Areas
fostering economic growth throughout
the region.The County's Economic
Development team
oversees all aspects of
business development, Orange �}
v
from site selection and , * County ,� _ * J
financing to tailored market rya '4
research.The County is
divided into three key � L 4V
economic development ' . 'Aw
areas (formerly called _
Economic Development
Districts EDD —Buckhorn
,and
Hillsborough,
0 13,711 Jobs �
Eno—each strategically 012,019Jobs ` } V
designated to promote ■5,830Jobs
long-term economic
0 2,044 Jabs
0 1,914 Jobs Where Orange Count Residents Work(US. Census
expansion. ■1,7,23 JDbs g y
❑1,624 Jabs Bureau OntheMap,2021)
The Buckhorn Economic ❑1,560 jobs
Development Area is ❑1,141 Jobs
located in the western part F-1 879 Jobs
of the County,just off Exit
157 on Interstate 85/40.
This area encompasses
ORANGE COUNTY LAND USE PLAN 2050 105
109
approximately 900 acres of developable small businesses. Similarly,the Agriculture
land and is targeted for a mix of Grant Program,also funded by Article 46
manufacturing,wholesale,distribution, with grant funding annually,supports the
retail,and service industries. growth of local farms and strengthens the
County's agricultural resources, helping
The Hillsborough Economic Development to ensure the continued viability of the
Area,covering all four corners of the 1-40 region's small farming community.These
Exit 261 interchange south of Hillsborough, targeted initiatives and programs reflect
spans 703 acres.This district includes the Orange County's commitment to building
Waterstone Business Park,which hosts a diverse and sustainable economy while
UNC Hospitals' Hillsborough Campus and supporting local businesses and industries.
Durham Technical Community College's
Orange County Campus.The area is Policy Guidance from Other
positioned to attract a diverse range of
healthcare and service industries. County Documents
The Eno Economic Development District, Orange County's policy framework for
located in the eastern part of the County promoting economic development
near the Durham County line along the includes a variety of documents designed
1-85/Highway 70 corridor,comprises about to guide efforts toward making the County
776 acres. However,due to inadequate a more smart and innovative choice for
infrastructure, it has less likelihood of both businesses and employees.
development until municipal services are • The Eno Economic Development
extended to the area. District Water and Sewer System
In addition to these districts, Orange
Project Master Plan Report (2013)
County supports local businesses through was published to construct the
two key grant programs.The Small backbone of a water and sewer
Business Investment Grant Program system within the Eno Economic
provides critical financial assistance,with Development District that will
promote an effective growth pattern
funding allocated each year from Article in the County with respect to location
46 to help sustain and grow the County's and phasing.
17,848
+ people boA 19
th
live and work in
people commute Orange County people commute
into Orange outside of Orange
County for work County for work
and live outside of and lime in Orange
Orange County County
Figure 9:Orange County Commuting Trends
(US Census Bureau OntheMap,2021)
106 PUBLIC REVIEW DRAFT
110
• The Eno Economic Development buildings (11%), heavy industry(4%),and
District Area Small Area Plan's (2008) large corporate farms (2%) ranking the
purpose was to evaluate the existing lowest. In contrast, respondents expressed
Land Use Element of the County's stronger support for family farms
Comprehensive Plan,as it pertains (47%), restaurants(44%), entertainment
to the Eno Economic Development businesses (33%), retail stores (30%), and
District area,and offer local downtown growth (25%).
perspective on whether the existing
Land Use Element Map and roadways During Community Engagement#1
are adequate to address changes that of the Land Use Plan 2050 process,
are occurring in the area.This small participants emphasized the need for
area plan included recommendations policies that support both workers and
on water and sewer, land use and the development of new jobs.When
zoning,transportation, housing, asked to select their top choices for how
parks and recreation,open space, Orange County can support workers
communications, intergovernmental and the development of new jobs,the
issues, potential Strategic Growth and most frequently selected answers
Rural Conservation (SGRC) Program, were supporting entrepreneurship
plan updates,and implementation. and small business development (62%),-
•
62%);• The Sustainable Business Toolkit is increased,safe,affordable,and efficient
a resource to help local businesses transportation options to help workers o
be more sustainable and save money access job training and employment (60%);
through energy,transportation, and providing workforce housing (43%).
building efficiency,water,and waste When asked about types of employment
initiatives. development in unincorporated
Orange County, respondents'top
Community Aspirations three preferences were renewable
energy production (69%), research and
The survey from the 2024 Strategic Plan development (58%),and manufacturing
and public engagement from the Land and production (29%). Participants also
Use Plan 2050 provide insights into emphasized the importance of supporting
Orange County perspectives on topics like local businesses,enhancing transit and
economy and jobs. multimodal transportation options,and
fostering commercial development to
Survey results from the Strategic Plan increase non-residential tax revenue.
Survey reveal that 21% of respondents
chose to live in Orange County because of In the New Opportunities and Issues
the employment opportunities available Report,a key theme was identified
here. However,only 9% of respondents in supporting climate responsive
indicated that these opportunities transportation systems and economic
would influence their decision to stay development initiatives.To make
in the county over the next five years. progress toward this idea in economic
Additionally,24% of respondents identified development, it's important to identify
economic development as a top priority opportunities to support infrastructure
for local government action. On the expansion to Economic Development
other hand,the survey found that certain Areas (EDAs), including allowance of
types of development were less favored, private wastewater package plants to
with light industry(21%),office/business enable light industrial/heavy commercial
ORANGE COUNTY LAND USE PLAN 2050 107
111
development in these areas. Environment, Parks, and
In Community Engagement Window Recreation
#2,the short survey revealed that a
majority of respondents (67%) support the The Orange County community highly
development of an expanded Economic values the environmental assets and has
Development Area near 1-85 and Mebane. high standards for environmental quality
In the long survey,the response to the particularly in areas such as watersheds
same potential Economic Development and water resources,sustainability,and
Area was more mixed,as it received climate change.The county is situated
support from 49% of respondents and was within three major river basins:the Upper
not supported by 34%,with 16% remaining Neuse, Cape Fear,and Roanoke.
neutral.The Vision Theme of"Implement
Sustainable Transportation Systems and The County's Department of Environment,
Economic Development Initiatives"were Agriculture, Parks,and Recreation
well-supported by respondents in both (DEAPR) oversees the maintenance of its
the short and long survey. Additionally, parks and recreational facilities.Within
the Economy and Employment Goal was its park and preserve inventory, more
supported by respondents (62%). than 1,500 acres of publicly protected
open space are preserved. In addition
to County-maintained parks,there are
several prominent recreational sites in the
unincorporated areas, including Eno River
.1
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Railroad
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Proposed Primary Mountains- ( lurisdicton
t --! to-Sea T2il(2016)
Parks, Recreation, Open Space, Greenways,and Parks and Recreation Amenities
Trails in Orange County
108 PUBLIC REVIEW DRAFT
112
State Park, including the Occoneechee Creek(above Cane Creek), Collins Creek,
Speedway Trail;the Brumley Forest Nature Terrells Creek, Morgan Creek, Bolin
Preserve;the Triangle Land Conservancy- Creek,and Booker Creek. Orange County
operated nature preserves,and the maintains strong groundwater protection
University-owned and operated Duke regulations,which help minimize concerns
Forest Lands. about drinking water quality.
Trends and Conditions The County's stormwater management
practices focus on reducing runoff,
Public indoor recreational facilities in promoting groundwater recharge,and
Orange County are primarily concentrated managing storm flows to mitigate "urban
around municipal centers,while larger stream syndrome"through measures such
recreational open spaces are more widely as reducing impervious surfaces, installing
distributed across the rural areas. Mapping green stormwater infrastructure,and
of parks and recreation amenities with the maintaining healthy riparian buffers. For
CDC's Social Vulnerability Index highlights definitions of the water supply watershed
a disparity in recreational offerings critical areas, County designated,and state
in some areas,showing that some of required,see the Glossary.
the county's most socially vulnerable In most of the northern and southwestern
unincorporated communities have limited areas of Orange County,as well as
access to these resources.
some portions between Chapel Hill and
Regarding greenways and trails, most Hillsborough,the vast majority of residents
of the existing paved and unpaved trails depend on groundwater for their water
are designed for recreational purposes supply.While many residents receive
rather than for transportation.The DCHC water from one of the county's five public
MPO is supporting the development of drinking water utilities, nearly 40% of the
the Orange County Bicycle & Pedestrian entire population relies on private wells,
Plan,which focuses on rural areas through especially in rural and unincorporated
the 2025 Unified Planning Work Program. areas. Monitoring groundwater levels and
The Mountain-to-Sea Trail, part of North quality is therefore essential to ensuring
Carolina's State Trails Program,also runs the long-term sustainability of water
through the county.Though largely resources in these communities.
unconstructed,approved county routes
will extend east along the Haw River from Current Initiatives and Programs
Alamance County and continue along the
Eno River into Eno River State Park and Orange County is home to a range of
Durham County(Figure 12). initiatives and programs focused on
environmental protection and parks and
The county lies within the Upper Neuse, recreation.The County also administers
Cape Fear,and Roanoke River Basins,and a variety of regulations and guidelines
serves as a headwaters area for these related to erosion control,stormwater
rivers. However,seven of the county's management,stream buffer protections,
water bodies are designated as impaired tree conservation, landscaping,and energy
by the North Carolina Division of Water efficiency.
Resources and the U.S. Environmental
Protection Agency.These include East The State of North Carolina has
Fork Eno River(Lake Orange), Cane designated Orange County as the
ORANGE COUNTY LAND USE PLAN 2050 109
113
delegated authority to administer the environmental indicators, discovers
Stream Buffer Rules within Orange knowledge gaps,and contains
County's Planning Jurisdiction. innovative policies and actions for the
future. Recommendations include
In terms of parks and recreation,the developing a tree policy across all
Orange County DEAPR offers a wide County-owned property,expediting
array of programs designed to engage efforts to reduce the county's carbon
residents in outdoor activities.These footprint,setting new goals for
include recreation programs,an annual land protection,and considering a
recreation program guide,and nature- conservation land acquisition bond to
based initiatives that encourage people of expand the Lands Legacy program.
all ages to connect with the environment
and stay active. • The Orange County Mountains-to-
Sea Trail (MST) Route (2018) Plan
The Lands Legacy program oversees shows existing and proposed portions
a conservation easement initiative of the MST route in Orange County
that enables landowners to voluntarily
designate their property for protection, • The 2030 Parks and Recreation
ensuring it remains free from Master Plan (2018) guides the future
development and preserved for future of Parks and Recreation in Orange
generations.The program focuses on five County.The overarching goal of this
priority areas for land protection:future plan is to regionally coordinate park
and recreation facilities that provide
parklands; lands with historic,cultural,or
healthy opportunities for recreation
archaeological significance; natural areas and exercise for all residents of
and wildlife habitats (including NC Natural Orange County and to preserve
Heritage sites); prime and threatened important cultural and natural
farmlands,and watershed riparian buffer resources.
lands.
• The Little River Regional Park and
Policy Guidance from Other Natural Area Master Plan (2021)
County Documents establishes a 20-year vision for the
park and provides guidelines for its
There are various policy guidance reports land management and any future
that guide the County in terms of hazard developments for continued public
mitigation,environmental protection,and use. Goals fall into the categories of
resilience. protecting and conserving nature,
connecting with nature, providing
• Orange County's State of the recreational experiences,and
Environment Report (2019) collaborative and cost-effective
researches key issues affecting land, management.
water,and air/energy resources and
recommends related actions for • "A Landscape Plan for Wildlife
the Orange County government Habitat Connectivity in the
and decision makers, including the Eno River and New Hope Creek
Board of County Commissioners Watersheds, North Carolina," also
(BOCC),as well as Orange County referred to as the Eno New Hope
residents.This report reflects Conservation Plan (2019), provides an
on and recognizes the County's actionable plan for ensuring wildlife
environmental achievements, reviews habitat connectivity across the
110 PUBLIC REVIEW DRAFT
114
Roanoke River Basin FI at River
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r EMra Ter,taral lurisdidion HawRiver4 4 F Protected
`+.% 7`S��' 100 year Floodplain n(1% (A.,tied)1 U sity
` = Annual Chance of Flood L Lake Water Su Watersheds
l ng' y 0 ( a) Jordan Lake -Critic al ppy
[. Regulatory Floodway) (critical) (protected) ,Ar
Impair.—r—,-:NcoEn(zozz)o I z a tN
Impaired Waters 303(d)(2022)and 100-Year Orange County Water Resources
Floodplain
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•
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North Carolina Watersheds
ORANGE COUNTY LAND USE PLAN 2050 111
115
landscape of the Eno River and New opportunities identified in the report
Hope Creek-Jordan Lake watersheds included developing the Mountains-to-
in North Carolina.The priority wildlife Sea Trail and other greenways connections
habitat areas and corridors were throughout the county, revisiting Interlocal
utilized in the mapping process of the Agreements to identify challenges and
Land Use Plan 2050. partner with municipalities to absorb the
majority of county population growth,
Community Aspirations allowing unincorporated areas to be better
protected from sprawl,and improving
The survey from the 2024 Strategic access to recreational amenities for
Plan and public engagement from the community members living in rural areas.
Land Use Plan 2050 provide insights
into community perspectives on parks, In Community Engagement Window#2,
recreation,and the environment. the majority of respondents expressed
The Strategic Plan Survey highlights that support for prioritizing environmental
considerations in Orange County's
the community values and enjoys the approach to development in the next
parks and recreation opportunities that 25 years.The Environment, Parks,and
Orange County offers.According to survey Recreation Goal received the highest
results,44% of respondents chose to live support from respondents in the long
in Orange County because of its parks survey(91%).The majority of respondents
and open spaces, and 25% said they plan (54%)supported a focus on the protection
to remain in the county over the next five of environmental,agricultural,watershed,
years for the same reason.When asked and rural lands. In the short survey,
about preferred types of development and 75%of respondents agreed with the
growth in the county,the top response statement,"To protect priority agricultural,
(69%)was parks and nature preserves. environmental,and rural lands, I support
In Community Engagement Window further restricting development in
#1 of the Land Use Plan 2050 process, unincorporated Orange County." In
respondents identified clean water addition, 65% of respondents agreed with
sources (87%)as the most important the statement,"To provide more housing
environmental priority for the future. choices, I support residential development
Other top selections combating climate in unincorporated Orange County as
change such as by reducing emissions long as it permanently protects priority
(58%), providing new recreational options agricultural,wildlife habitat,or watershed
such as greenways,trails,and parks(38%), lands on the development site." Finally,
and ensuring clean air for residents (38%). 54% of respondents supported changing
When asked what they valued most the County's current approach to land use
about the county,89% of respondents to be more focused on the protection of
highlighted the natural environment as a environmental,agricultural,watershed,and
key factor. rural lands.
The New Issues and Opportunities Report Overall,the feedback from residents
identified a theme of protecting critical underscores strong support for Orange
watershed areas and open spaces and County's ongoing efforts in environmental
preserving agricultural lands. In terms of protection,as well as its parks and
the environment and parks and recreation, recreation services and facilities.
112 PUBLIC REVIEW DRAFT
116
Housing Attainability New housing development in Orange
County has been lower than that of nearby
counties, particularly when it comes to for-
Trends and Conditions sale housing units. Since housing supply
is a noteworthy factor in terms of housing
As of 2023,there were a total of 60,314 affordability,this shortage contributes
housing units within Orange County with to rising housing costs in the county
the majority of these units being located Between 2014 and 2022,the median home
in unincorporated Orange County followed sales price in Orange County increased
by the municipal limits of Chapel Hill. from $267,000 to $439,280 (a change of
Within unincorporated Orange County, 65%).The steepest increase in home sales
only two census tracts—both situated prices occurred between 2020 and 2021,
in the Chapel Hill-Carrboro area—have a coinciding with the COVID-19 pandemic.
housing density greater than one unit per
acre. While home prices have continued to
climb,the median household income has
According to the Connect 2050 not kept pace. From 2014 to 2022,the
Metropolitan Transportation Plan, Orange median household income grew from
County is projected for a much smaller $57,261 to $85,785(a change of 50%)—
population increase (about 30%) in outpaced by the surge in housing costs.
comparison to other counties. Chatham This growing disparity between home
and Johnston County's populations are prices and income is contributing to
expected to double. Durham County's increasing housing unaffordability in the
population is expected to increase by 40%. region.
Wake County's population is expected to
increase by almost 60%.
Population Projections (2020 versus 2050) by County
2,000,000
1,800,000
1,600,000
1,400,000
1,200,000
1,000,000
800,000
600,000
400,000
200,000
Chatham County Johnston County Orange County Durham County Wake County
0 2020 Population 52,213 186,096 148,880 324,784 1,129,865
0 2050 Population 104,395 370,215 193,637 463,414 1,780,155
Percentage Change 99.9% 98.9% 30.1% 42.7% 57.6%
■2020 Population ■2050 Population Percentage Change
ORANGE COUNTY LAND USE PLAN 2050 113
117
Housing cost burden refers to spending within the community
more than 30% of a household's income
on housing expenses. Data from the The Home Repair Program assists low-
North Carolina Housing Coalition shows income homeowners with urgent repairs
that 31% of Orange County residents are and comprehensive housing rehabilitation.
housing cost-burdened, including 55% of To qualify,applicants must:1) meet income
renters. According to U.S. Census data,the eligibility requirements,2)own and occupy
highest concentrations of cost-burdened a property in Orange County as their
renters are found in Chapel Hill,south of primary residence;and 3) be current on
Mebane and north of NC 54,as well as in property taxes or on an approved payment
the areas surrounding Mebane, Carrboro, plan in good standing.
Hillsborough,and the northwest portion of The Urgent Repair Program provides
the county funding for critical home repairs to
address health and safety hazards or to
Current Initiatives and Programs make accessibility modifications.This
Orange County offers several initiatives program is limited to emergency, urgent,
and programs designed to provide or life-threatening repairs only
housing assistance and support to its The Emergency Housing Assistance
residents.The Civil Rights Program aims to Program supports households earning
ensure equal treatment for all individuals 30% or less of the Area Median Income
by prohibiting discrimination,safeguarding (AMI)that have experienced a "Life-
residents' legal rights and dignity,and Changing Event" in the past three months,
preventing social unrest. It provides which affects their ability to pay rent. Life-
a platform for filing discrimination Changing Events may include the death,
complaints, promoting fairness and equity illness,or job loss of a household member
Orange County Median Home Sales Price
Compared to Household Income (2014-2023)
$500,000
$450,000 $439,280 $450,000
$405,000
$400,000
$327,750
$350,000 $315,000 $315,000 $315,000
$290,000 $300,000
$300,000 $267,000
$250,000
$200,000
$150,000
$100,000 $85,785
$57,261 $59,290 $61,130 $65,522 $68,211 $71,723 $74,803 $79,205
$50,000
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023**
—Orange County Median Home Sale Price —Median Household Income
114 PUBLIC REVIEW DRAFT
118
who contributes to rent payments. Policy Guidance from Other
Residents facing eviction due to an active County Documents
court summons may also be eligible for
assistance. Relevant housing policy guides the future
development of housing and provides
The Orange County Partnership to End goals for housing affordability and
Homelessness is a coalition of service attainability
providers, local governments,and
community members working together • Orange County's Master Aging
to coordinate resources and implement Plan (2022)was developed to guide
best practices to end homelessness in the an age friendly community where
county structures and services are adapted
to be accessible to and inclusive
Finally,the Eviction Diversion Program of older adults with varying needs
aims to help tenants avoid eviction and, and capacities. Orange County
when possible, remain in their homes.The aims to become an age-friendly
program also provides mediation services community by developing and
to resolve disputes between tenants maintaining services that foster
and landlords.These initiatives reflect lifelong engagement in community
Orange County's ongoing commitment to affairs,opportunities for creativity and
supporting housing stability and equity for productivity, meaningful connections
its residents. with others,and a sense of physical
and emotional wellbeing.As a result,
Orange County will be an ideal place
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01 j Housing Cost Burden for
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Income
_ O nqe County
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Mlun cpal Plann ng `" ]ur,diction
Ee ]risdiction aRailroadfpel Hill Railroad - lha Pel Ilia Percent of households where
_ Percent ofrenters where rent is selected costs are>3Q%ofwx cr:: farrhnru >30%of household income fb �"rhousehold income
sO-15ao.o>.-so Iooi-is
so.or-ea Is.oi-zs> s .ai--zs 7s >ao
Housing Cost Burden for Renters(ACS 2022) Housing Cost Burden for Homeowners(ACS 2022)
ORANGE COUNTY LAND USE PLAN 2050 115
119
to grow older and age well. In relation neutral. In addition,52% of respondents
to housing,the plans top three believe that affordable housing should
priorities are to 1)support to age in be a top priority for local government.
your community instead of moving Regarding the types of housing
into a facility,2) affordable housing developments residents would like to see,
options,and 3) housing repair and single-family residential developments
maintenance programs and services ranked the highest (37%),while multi-
as well as adequate benches and
outdoor seating. family residential developments were less
popular(27/0).
• The Strategic Plan (2024) goal
statement for housing is to promote In Community Engagement Window#1
equitable and accessible housing for the Land Use Plan 2050 process,when
and address housing disparities asked about concerns related to rising
through policies, partnerships,and housing costs, respondents identified the
collaboration to create a thriving following top issues: property taxes (65%),
community.The top three objectives the inability to afford purchasing a home
are to allocate funding sources to (49%),and increasing rental payments (31%).
contribute or support adding to the Other concerns tied to local and regional
affordable housing stock,address growth included the need for affordable
policy barriers to increase access to housing near job opportunities (55%), high
emergency shelter beds,and invest in property taxes (32%),and the demand
permanent supportive housing. for more housing choices (25%). Notably,
44% of respondents indicated that more
• Future policy guidance is in affordable housing options would help
development regarding the Greene them stay in Orange County for the next
Tract Master Plan,which will include 25 years.
additional housing units in the county.
In the New Issues and Opportunities
Community Aspirations for the Report,"advancing attainability of
Future equitable housing and upward mobility"
is a goal derived from Community
The survey from the 2024 Strategic Plan Engagement Window#1.The
and public engagement from the Land opportunities identified included:
Use Plan 2050 provide insights into
community perspectives on housing • Partnerships with municipalities
attainability to support the development of
affordable housing
According to the Strategic Plan Survey,
23% of respondents cited housing options • Protecting naturally occurring
as a key reason for choosing to live in affordable housing,such as
Orange County. Looking ahead,17% manufactured housing
identified housing as the primary factor • Consideration of targeted areas for
influencing their decision to remain in expanding housing opportunities in
the county over the next five years.When unincorporated Orange County
asked about their satisfaction with the
availability of affordable housing,almost • Revisit Interlocal Agreements to
half of respondents were dissatisfied (49%) identify challenges and partner with
only 19%were satisfied,while 32%were municipalities to absorb the majority
of county population growth,allowing
116 PUBLIC REVIEW DRAFT
120
unincorporated areas to be better Regional and Local Growth
protected from sprawl
• Revisit Unified Development There are a few key intergovernmental
Ordinance standards for acreage agreements and plans that guide
requirements for duplexes or even the County's approach to growth.
quadplexes as a single use Key documents such as the 2030
In Community Engagement Window#2, Comprehensive Plan and the Joint
respondents expressed views on four Planning Land Use Plan and Agreement
land use alternatives modeling different play a crucial role in guiding and regulating
types of future growth for Orange County land uses within the county.The 1987 Joint
When asked in the short survey about Planning Land Use Plan and Agreement
supporting residential development in between Carrboro, Chapel Hill,and Orange
unincorporated Orange County,with County designates growth areas for the
protections for priority agricultural,wildlife Towns and restricts development in the
habitat,or watershed lands,65% agreed Rural Buffer to one dwelling per two
and 26%disagreed. Regarding support for or five acres.The Town of Hillsborough
higher-density, mixed-use developments— and Orange County Central Orange
such as townhomes and apartments over Coordinated Area (COCA) is utilized to
shops—in select areas served by public determine the consistency of future land
water and sewer,59% agreed and 27% use visions for proposed rezoning requests
disagreed. within designated areas on the fringes of
the Town.The anticipated City of Mebane
When asked in the long survey about Land Development Plan Update will be
encouraging new Rural Conservation a critical component of future policy
Neighborhoods with smaller lot sizes in guidance,shaping the County's growth
exchange for permanently protecting 60% and development strategies.
of the site,the majority supported the
concept (52%). However,support was more Trends and Conditions
evenly divided between respondents who
support(44%)and do not support (39%) The last few decades have seen significant
allowing the development of private water growth within the Greater Triangle Region
and wastewater systems to support Rural of North Carolina. Some estimates
Conservation Neighborhoods. put that growth as third fastest in the
nation in 2023. However, growth is not
Strong support was also expressed occurring at the same pace and amount
for long-term housing goals:52% of across jurisdictions in the region' Orange
respondents strongly supported the goal County's population experienced an 11%
to "advance equitable housing" as a land increase in population from 2010 to 2020,
use aspiration for the next 25 years,and which is less than surrounding Alamance,
53%strongly supported the Housing Chatham, Durham, and Wake Counties,
Attainability Goal as presented. but slightly higher than North Carolina as
a whole.This is largely due to policies and
1 Source:Kenan Institute of Private Enter-
prise,"Midyear Regional Economic Growth Estimates:
EMAs Performing Better than Expected,but Large
Disparities Remain"https://kenaninstitute.unc.edu/
commentary/mid-year-regional-economic-growth-es-
timates-emas-performing-better-than-expect-
ed-but-large-disparities-remain/
ORANGE COUNTY LAND USE PLAN 2050 117
121
regulations utilized by Orange County and and the percentage of Orange County's
its local municipalities that are focused on total population.
managing growth.
New non-residential development in
The majority of land within Orange Orange County has occurred along
County is unincorporated (91.7%),which is interchanges and within and around
outside of municipal planning and zoning municipal limits,such as the 1-85
jurisdictions. Since 2004,the City of corridor near Mebane, Hillsborough,and
Mebane has annexed the most land from Durham.There has also been new non-
Orange County at 1,490 acres,compared residential development in the north end
to Hillsborough (927 acres), Chapel Hill (421 of Chapel Hill near 1-40 and significant
acres), Carrboro (209 acres),and Durham redevelopment within both the towns of
(24 acres). Carrboro and Chapel Hill. Since 2017,the
Approximately 40% of Orange County's County has issued 2,072 certificates of
population lives in Chapel Hill,followed by occupancy.
approximately 37% living in unincorporated policy Guidance from Other
Orange County.The greatest increase
in population numbers occurred in County Documents
unincorporated Orange County between Orange County's relevant policy guidance
2010 and 2020. Mebane experienced the applicable to regional and local growth
greatest percent change in population includes a range of documents that
growth from 2010 to 2020 in comparison collectively guide growth and new
to the other municipalities.The table development within the county, protect
below shows the population by jurisdiction natural resources,and align new projects
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118 PUBLIC REVIEW DRAFT
122
with the community's long-term vision • Small Area Plans,such as those
and infrastructure capacities. for Efland-Mebane,and the Eno
Economic Development District
• The Strategic Plan (2024) Area (2006),and Stoney Creek Basin
incorporates community input to (1996),were adopted in the 1990s and
establish priorities and guide the 2000s to prepare for future growth by
County in delivering equitable, ensuring that essential infrastructure,
sustainable, innovative,and efficient like water and roads, meets future
governmental services.The Strategic demands.
Plan also identified the importance of
agricultural preservation as a tool for Community Aspirations for the
economic development.
Future
• The Greene Tract Interlocal
Agreement (2021) represents a The Strategic Plan survey asked
collaborative effort between the respondents about their top three
County,Town of Carrboro,and Town choices for the "most critical roles for
of Chapel Hill to develop jointly owned the County government in the next 10
land with a focus on preservation to 20 years." Related to regional and
of environmentally sensitive areas, local growth, respondents selected
providing affordable housing,and creating affordable housing options
enhancing community identity. (36%), preserving open space and
parks (35%), developing transportation
• The Master Aging Plan (MAP)(2022) alternatives to single passenger cars (21%),
is a five-year plan that provides improving environmental sustainability
comprehensive and coordinated (17%), and responding and adapting to
delivery of community services climate change (16%). When asked why
and supports that foster lifelong they choose to live in Orange County
community engagement and well- compared to other places,top answers
being for older adults in Orange included parks and open space options
County. (44%),access to healthcare services (44%),
• The Climate Action Plan (CAP)(2023) low traffic congestion (25%),access to farm
provides science-based strategies to fresh meats and produce(28%), housing
reduce greenhouse gas emissions in options(23%),employment opportunities
Orange County.
Total Population (2010) Total Population Percent Growth
(2020) (2010 to 2020)
North Carolina 9,535,483 10,439,388 9%
Orange County 133,801 148,696 11%
Alamance County 151,131 171,415 13%
Chatham County 63,505 76,285 20%
Durham County 267,587 324,833 21%
Wake County 900,993 1,129,410 25%
'Unincorporated Orange County means the areas in Orange County but outside of municipalities,including Carrboro,Chapel Hill,
Durham,Hillsborough,and Mebane.This includes the extraterritorial jurisdictions(ETJ)of the towns.
"Portion within Orange County geographic limits
ORANGE COUNTY LAND USE PLAN 2050 119
123
(21%),and public transportation systems transportation systems for those
(13%).These answer choices were reflected working in the County and living
again when respondents were asked elsewhere.
about their biggest influences on their
decision to stay in the county over the During Community Engagement
Window#1 for the Land Use Plan 2050
next 5 years.The Strategic Plan Survey
also allowed respondents to rate the future Process, participants were asked,"What
priorities of the County;two top answer are the key issues related to local and
choices selected as "very important" regional growth that should be addressed
included increasing conservation of in this plan?"The most common
response (80/0 of participants)was
farms and environmentally sensitive land
(46%) and providing equitable access to the need for sustainable development
housing (41%). Finally,69% of respondents to mitigate climate change impacts.
selected parks and nature preserves and Additionally,when asked,"In 2050,what
47%selected family farms as the "types of should be Orange County's identity in
the region?",94/0 of respondents chose
development and growth they wish to see
well-preserved forests, rivers, and natural
in Orange County." In comparison, rural
residential and light industry were further spaces."These responses underscore
the community's strong desire for
down the list (selected by 23% and 21% of
respondents, respectively). a sustainable and well-preserved
environment.
Initial stakeholder and community
feedback during the Land Use Plan 2050 In a short survey provided during
Community Engagement Window#2,
process,summarized in the New Issues
and Opportunities Report, highlighted the respondents were asked to rate from
strongly agree to strongly disagree if
following key priorities related to regional
and local growth: they"support Orange County's current
approach to guiding conservation
• Continuing to protect critical and growth in unincorporated Orange
watershed areas given the County's County"The majority of respondents
regional importance as a headwaters agreed (60%)while 17% disagreed.
area of the Neuse, Roanoke,and
Cape Fear Rivers.The health of larger As part of the long survey offered during
streams and rivers depends on an Community Engagement Window#2,
intact primary headwater stream 54% of respondents support changing
network. the County's current approach of
managing land use to be more focused
• Continuing to preserve agricultural on protection of environmental,
lands,as conversion of farmland to agricultural,watershed,and rural lands.
non-agricultural uses,such as low- The majority also supported changing
density residential uses, has been the County's current approach of
identified as one of the drivers of managing land use to encourage new
losing working lands and an economic Rural Conservation Neighborhoods
development concern. that allow for smaller lot sizes while
• Enhancing the attainability 60% of the site would be permanently
of equitable housing within protected (52% of respondents). When
Orange County and supporting asked about their support for a new
commuting and climate-responsive Economic Development area near
120 PUBLIC REVIEW DRAFT
124
Efland south of West Ten Road to provide also expected, but with more significant
new employment opportunities,49% consequences. Flooding risks exist in
supported and 35% did not support. Finally, areas such as the Eno River, North and
support was also more evenly divided South Forks of Little River, New Hope
between those who support (41%) and do Creek, Morgan Creek, Bolin Creek,and
not support (46%) allowing two types of other streams,though future flooding
higher intensity mixed-use developments. is anticipated to have limited impact.
Tornadoes have also been a past concern,
with a notable event on April 19,2019,when
Resiliency and Hazard a severe storm system spawned seven
tornadoes across central North Carolina,
Mitigation including an EF-2 tornado that hit several
areas of Orange County.
Orange County's sustainability and climate
change initiatives focus on addressing Current Initiatives and Programs
natural hazards like floods,droughts,and
extreme heat,while also working to reduce There are several initiatives and programs
overall carbon emissions equitably. provided by Orange County to increase
resilience and lower the county's carbon
Trends and Conditions footprint. New development within
floodplains is not permitted but,through
The 2023 Climate Action Plan provides floodplain protections,the County
a roadmap for Orange County to permits developed properties located in
strengthen its environmental protections or near identified floodplains or Special
and sustainability practices.The plan Flood Hazard Areas to be redeveloped.
outlines 70 strategies across five key However, redevelopment must comply
areas:Transportation, Built Environment with regulations designed to mitigate
and Energy, Resource Conservation, Green flood risks and maintain compliance with
Community,and Resilient Community. As floodplain management standards.
the county faces increasing challenges Resources for managing natural disasters,
from severe droughts, intense storms, heat such as the Natural Disaster Recovery
waves,and deteriorating air quality,this Service,offer initiatives like Resiliency
plan aims to mitigate these issues with a Hubs to support community recovery and
focus on equity, ensuring that all residents resilience. Programs aimed at reducing
benefit from climate resilience efforts. the county's carbon footprint are also
Although Orange County is relatively integral to its environmental efforts,with
shielded from extreme climate risks, it strategies outlined in the Climate Action
still faces risks of natural hazards. From Plan and the Greenhouse Gas Inventory.
2000 to 2018,the county experienced
drought conditions 46.9%of the time. Policy Guidance from Other
Additionally,the number of days County Documents
exceeding 95T is expected to increase
by 20 to 30 days between 2041 and 2070. There are two main sources of policy
Severe thunderstorms,though typically guidance reports that plan for hazard
causing minor impacts,are highly likely mitigation, resiliency,and carbon emission
to occur,while severe winter storms are reductions.
ORANGE COUNTY LAND USE PLAN 2050 121
125
• The Eno-Haw Regional Hazard shared that combating climate change
Mitigation Plan (2020) ensures (such as reducing emissions)was the third
all jurisdictions in the Eno-Haw highest choice for the most important
region remain eligible for federal environmental needs in the future.When
disaster assistance from the Federal asked about climate-related hazards
Emergency Management Agency, that they are concerned about,the top
including the Hazard Mitigation Grant 5 responses shared by 39 comments
Program, Pre-Disaster Mitigation included drought,flooding, heat,
Grant Program,and the Flood protecting water resources (including
Mitigation Assistance Grant Program. quality and supply,watersheds,etc.), and
The report features a risk assessment storms.
and capability assessment to evaluate
the potential impacts of hazards The New Issues and Opportunities Report
within the region and assess the identified "supporting climate responsive
participating communities' existing transportation systems and economic
capability to reduce disaster losses. development initiatives" as a key theme
from initial stakeholder and community
• The Orange County Climate Action input in terms of resilience and climate
Plan (2023) unifies existing climate change,the following opportunities are
work under one strategic framework related to the theme:
to equitably transition Orange
County to a low-carbon,climate • Reduce greenhouse gas emissions
resilient future.This plan emerged per 2023 Climate Action Plan
as a result of an extensive review of
environmental state mandates,the • Implementation of County's
commitments of local and regional Complete Streets and Vision Zero
jurisdictions,and existing public policies
private partnership structures. In Community Engagement Window#2,
Community Aspirations in comments shared on the long survey,
respondents emphasized the importance
Respondents to the Strategic Plan Survey of their climate crisis and environmental
indicated that improving environmental stewardship.Addressing climate
sustainability(17%) is one of the critical change was frequently mentioned,with
roles for the County government in the comments calling for policies that protect
next 10 to 20 years.When asked which natural resources, limit car dependency,
top local government services should be and manage stormwater and watershed
prioritized,26% chose environmentally health.The Vision Themes related to
sustainable education and practices and sustainability and climate resilience
26% chose climate action. were highly supported by respondents,
including cultivating sustainable
When asked,"What are the key issues development (53%),and implementing
related to local and regional growth that sustainable transportation systems and
should be addressed in this plan?" During economic development initiatives (52%). A
Community Engagement Window#1 majority of respondents (58%)supported
of the Land Use Plan 2050 process,the the Resilience and Hazard Mitigation Goal
majority of respondents (80%) chose as presented.
sustainable development to mitigate the
impacts of climate change. Respondents
122 PUBLIC REVIEW DRAFT
126
Services and Community Many households in unincorporated areas
rely on individual propane tanks or are all-
electric.
Orange County is served by a variety of Trends and Conditions
utility providers.Water and sewer services
are provided by the Town of Hillsborough, The majority of residential properties
Orange Water and Sewer Authority in unincorporated Orange County use
(OWASA)for Chapel Hill and Carrboro,the onsite wastewater systems(septic).The
Orange-Alamance Water System in Efland Water and Sewer Management, Planning
and western Orange County,the Graham- and Boundary Agreement (WASMPBA),
Mebane Water System in Mebane,and the designates service areas for water and
City of Mebane for sewer, including the sewer throughout the county.The City
former Efland Sewer System. of Mebane and Orange-Alamance Water
System (OAWS) are not parties (and do not
The Department of Environmental Quality have to follow)the agreement. Parties to
oversees public water supply community WASMPBA are generally prohibited from
wells,while the Health Department issues providing service outside their primary
well and septic permits.Wastewater service area,which means that properties
discharge is regulated by the National within the Rural Buffer are not connected
Pollutant Discharge Elimination System to public water or sewer.
(N PD ES).
Orange County provides drop-off
Electricity is supplied by Duke Power recycling and waste services (convenience
and Piedmont Electric Membership centers),as well as mulch collection and
Corporation,and natural gas is provided compost sale. Household trash can be
by the Public Service Company of North collected by private companies through
Carolina, primarily within municipalities.
0L -�
i
Passmore Senior Center
ORANGE COUNTY LAND USE PLAN 2050 123
127
private contracts. Orange County has one Carrboro, Chapel Hill,and Orange County
active landfill for construction debris.The offer public funding programs to help
landfill at Eubanks Road,which closed in eligible property owners transition from
2013, had long-term environmental equity private septic systems to a safer and more
implications. Strides in addressing these reliable public sewer system.
environmental equities have been made,
including extending public water and The Water and Sewer Management,
sewer systems to the area. Planning,and Boundary Agreement
(WASMPBA) is another key initiative,
At the time of this writing, Orange County involving a partnership between Orange
has made significant progress in having County, OWASA,and the towns of
a broadband service available almost Carrboro, Chapel Hill,and Hillsborough.
countywide.Additional work on extending This agreement creates a comprehensive
broadband service is on-going through countywide system of service areas
2025.The Federal Communications for future utility extensions,as well as
Commission defines broadband as an designated interest areas for addressing
internet speed of greater than 25 Mbps private water and wastewater system
download/3Mbps upload.The county issues in regions without public water and
entered into a public-private partnership sewer services.The agreement also aligns
with Lumos in 2022 to provide broadband with growth management objectives,
service to much of the previously land use plans,and annexation strategies,
unserved and underserved areas of complementing existing frameworks
Orange County. such as the Orange County-Chapel Hill-
Carrboro Joint Planning Area Land Use
Orange County is served by two school plan and Agreement.
districts:the Orange County School
District and Chapel Hill Carrboro City The Schools Adequate Public Facilities
Schools.The County has a long history Ordinance (SAPFO) helps to ensure
of collaboration with the school districts. adequate capacity is available in the public
Examples include the Schools Adequate schools to serve existing and proposed
Public Facilities Ordinance (SAPFO), development.An annual report is
Woolpert Study,and most recently,a prepared that details and projects student
school bond referendum. enrollment trends and school capacity,
which informs future capital investment
Current Initiatives and Programs planning needs.
Orange County has several initiatives Additionally, Orange County's
and programs aimed at improving its Groundwater Observation Wells Network
infrastructure and public facilities. One is an initiative that collects data from
is the Rogers Road Sewer Connection thirteen wells throughout the county.
Program, in partnership with the Towns of Groundwater levels are automatically
Carrboro and Chapel Hill,which introduced recorded once an hour from these wells.
new public sewer lines to the historically The data is then downloaded and made
underserved Rogers Road neighborhood. available to the public through the North
This project is part of a broader planning Carolina Department of Environmental
effort to implement community-driven Quality's Division of Water Resources
development and public infrastructure website.
improvements in the area.Additionally,
124 PUBLIC REVIEW DRAFT
128
Community Aspirations was identified as the most supported
form of employment development in
The survey from the 2024 Strategic unincorporated Orange County.
Plan and public engagement from the
Land Use Plan 2050 provide insights In the New Issues and Opportunities
into community perspectives on public Report,"cultivating sustainable
facilities and services. development" is a key theme derived from
Community Engagement Window#1. In
According to the Strategic Plan Survey, this goal,some opportunities related to
increasing funding for K-12 schools (31%) public facilities and services identified
and maintaining high-quality emergency include-
services (24%) rank as the 4th and 5th
most critical priorities for the County • Partnerships to support growth within
government over the next 10 to 20 years. municipalities where public utility and
When asked about future priorities for transit services are available
the County, respondents highlighted the . Undertaking a joint planning
following as very important: increasing agreement with Mebane to define
access to high-speed internet (40%), growth areas
improving school facilities(29%), and
enhancing public safety(32%). In Community Engagement Window
#2,when asked about the potential
During Community Engagement Window development of private water and
#1 for the Land Use Plan 2050 process, wastewater systems in Alternative #3,29%
when participants were asked,"What will of respondents strongly supported the
keep you and/or your family in Orange
County over the next 25 years?", high- idea,while 22% opposed it. Furthermore,
43% of respondents supported the
quality public education (42%) and better Services and Community Facilities Goal as
access to high-quality Internet service presented.
(29%) emerged as key factors. Additionally,
renewable energy production (69%)
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Durham Technical Community College, Orange County Campus
ORANGE COUNTY LAND USE PLAN 2050 125
129
Transportation and Mobility frequent and severe,with a rise in fatalities
and serious injuries. Crashes tend to occur
at key intersections and along arterial
Transportation is a critical element in roads but are also widespread across
land use planning and is fundamental to the county. Implementing the County's
community growth and development to Complete Streets and Vision Zero policies
coordinate systems that support safety could help reduce the number of deadly
for pedestrians and bicyclists, mobility, and injury-causing crashes.
connectivity, public transportation,and
road network connectivity. In terms of public transportation, Orange
Orange County is covered by the County is served by several transit
providers, including Orange County
Burlington Graham Metropolitan Planning public Transportation, Chapel Hill Transit,
Organization,the Durham Chapel GoTriangle,and Piedmont Authority for
Hill Carrboro Metropolitan Planning Regional Transportation (PART, Route
Organization,and the Triangle Area Rural 4/Alamance Burlington Express 4).The
Planning Organization. Demand-Response service (MOD),
operated by Orange County Public
Trends and Conditions Transportation, offers rides on request,
Orange County has over 3,000 centerline similar to Lyft or Uber,and primarily serves
miles of roads, including minor arterials, rural areas that do not have fixed-route
major and minor collectors,and local roads. bus service.
Nearly all of the county's roads fall under The Next Generation Transit Vision Map
state jurisdiction, making collaboration outlines planned transit projects in the
with the North Carolina Department of county through 2050, including express
Transportation (NCDOT) essential for any bus improvements, Bus Rapid Transit
desired improvements. (BRT) projects,and more. Many of these
As of 2022, most roads in Orange County Projects are not yet funded.The ongoing
carried fewer than 6,000 vehicles per U.S.70 Multimodal Corridor study could
day,with many in the rural areas seeing bring additional transit options to Orange
21500 or fewer vehicles daily.The highest County. Notably,the North-South BRT
traffic volumes were observed along major Project will enhance transit service in
highways such as U.S. 54, U.S. 86,and U.S. Chapel Hill and beyond.
70. Annual Average Daily Traffic (AADT) is For freight, 1-40 and 1-85 are the county's
a key factor in determining transportation primary freight routes,along with U.S.
planning,funding, level of service, 15/501. Several Strategic Freight Corridors
congestion,and is also critical for Traffic also run through the county, including NC
Impact Analysis during local development 86, U.S.70, NC 54, NC 57, NC 49,and U.S.
reviews. 15/501. Planned road investments will help
While the majority of crashes occur strengthen the county's freight system,
within municipalities,there are significant and the North Carolina Railroad also
hotspots along the interstates and heavily transports freight through the county on a
traveled highways. According to recent daily basis.
analysis in the County's Transportation
Multimodal Plan, rural hotspots for motor
vehicle accidents are becoming more
126 PUBLIC REVIEW DRAFT
130
Current Initiatives and Programs the overall transit system,gaining the
confidence to use public transportation
Orange County is actively working independently
on several initiatives and programs to
improve transportation and mobility for Policy Guidance from Other
its residents.The Orange County Crash County Documents
Safety Analysis and the Bike/Pedestrian
Safety Analysis are two key efforts aimed Orange County's transportation and
at reducing crashes and enhancing mobility is guided by the following policy
safety for cyclists and pedestrians.The documents:
Crash Safety Analysis identifies areas
with the highest incidence of crashes, • The County's Transit Plan Update
while the Bike/Pedestrian Safety Report (2022) allocates Orange County's
offers recommendations and strategies Transit Tax District revenues
to advance bike and pedestrian safety over the next 20 years based on
throughout the county. the community's needs,values,
and priorities. It includes already
As previously mentioned,the Mobility programmed projects and
on Demand (MOD)service provides rides investments described in previous
upon request,similar to services like Lyft or plans and new projects to be funded
Uber,and primarily serves rural areas that with the revenue remaining after
lack fixed-route bus options.This program accounting for existing projects.
increases transportation accessibility for The Orange County Transit Plan
those with limited or no reliance on private Update also ensures the benefits of
vehicles or traditional public transit. public transportation investments
support community members who
In addition,the County offers a volunteer are the most reliant on transit service
driving program that allows adults and that public transportation
to volunteer as drivers, helping other investments support land use and
adults access essential services and development in Orange County that
organizations. Orange County also runs a is resilient,sustainable,and attainable
travel training program,where residents for all.
can learn how to navigate the bus system. . The Transportation Multimodal
Through this program, participants Plan is a strategic framework
become familiar with bus routes and that integrates various modes
of transportation to create a
balanced and interconnected
r ` �.s'-<• �. fir,
system. It consolidates projects
and programs from existing
plans, providing a Countywide
perspective on transportation
7s • ' initiatives. By identifying gaps in the
unincorporated areas of the county
dand providing recommendations to
_ address underserved communities,
_ h the TMP aims to ensure equitable
n v access to transportation resources
Mobility on Demand across Orange County.
ORANGE COUNTY LAND USE PLAN 2050 127
131
• The Orange Grove Road Access Chapel Hill Carrboro Metropolitan
Management Awareness Project Planning Organization (DCHC-
and Report (2003) provides MPO),focused on U.S.70 West
recommendations to alleviate unsafe from NC 119 in Mebane to U.S.
conditions and to manage potential 751 in Orange County.The study
congestion from future development provides recommendations for
in the Orange Grove Road corridor. multimodal improvements along the
This report looks to pursue funding transportation corridor.
to implement recommendations in
this study. It recommends providing The NC 54 West Corridor Study
pedestrian facilities along Orange (2019) provides an in-depth review
Grove Road and implementing of the 20.4 mile stretch of NC 54
recommendations into local plans between Old Fayetteville Road
and regulations. in Carrboro and the -085/1-40
interchange in Graham, prepared by
• The 2022 Orange County Transit Plan the City of Graham, NCDOT Division
Update outlines a 20-year strategy 7, and the DCHCM PO.The study
for investing Orange County's transit provides a comprehensive, long-term
tax revenues. In addition to providing vision for the corridor through 2045,
background information on Orange addressing preservation of the area's
County's transit system,the plan character,economic opportunity and
identifies transit funding, projects, vitality, environmental sensitivity,and
vision,and steps for implementation. transportation improvements for all
users.
• The U.S. 70 Multimodal Corridor
Study,conducted by the Durham
i5� tAeUpd� \ Caldwell -``J
d , V
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p Ffland ,P.
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Annual Average Daily
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as m
AADTCpunts
y. it,. nt xN i'sl i l 85,000-124,999
�a
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ouk.ro,e.< Existing Road System 35,000-54,999
- 'Oran9 Cn N ( \d } 20,000-34,999
.E bank P Extra Ter,t,,i,l Jurisdiction Il+ 10,000-19,999
r¢^
Mun-p d" 5,000-9,999
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—Railroad dal 500-1,999
Road W rctional Classes 20-499
CHAPEL HIQL _Interstate "�CHAPEL HELL
z CA RR R61R0 y, CARER-B �Water Bodies
t,ti 'a —Other Freeway ORO Eno Fall,.L �d Ecit',a si —Other Prncpal Arteral Streams
Orange County
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—Local _Jurisdiction
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0-231 a
Figure 22:Existing Road System Figure 21:Annual Average Daily Traffic(AADT)
Counts(NCDOT 2023)
128 PUBLIC REVIEW DRAFT
132
• Currently,the county is developing initial stakeholder and community input
two important planning documents: during the Land Use Plan 2050 process.
a Transportation Multimodal Plan In terms of transportation,the following
and a Countywide Bicycle and opportunities are related to the theme:
Pedestrian Plan.These plans are
being created through a collaborative • Development of the Orange County
effort involving Orange County,the Bicycle and Pedestrian Plan
Burlington-Graham Metropolitan . Completed and future corridor
Planning Organization,the Durham- plans (such as the completed U.S.-
Chapel Hill-Carrboro Metropolitan 70 Multimodal Corridor Study,
Planning Organization,the Central completed NC 54 West Corridor
Pines Rural Planning Organization, Study, implementation of the 2022
and the North Carolina Department Orange County Transit Plan,and the
of Transportation's Integrated Mobility upcoming Short-Range Transit Plan)
Division.
• The North-South Bus Rapid Transit
Community Aspirations service planned for Chapel Hill is
Orange County's first bus rapid
The Strategic Plan Survey revealed that transit in the area,and represents
21%of respondents believe the County future opportunities for expanded
government should prioritize developing connections,supporting higher
transportation alternatives to single- density development in town centers,
occupancy cars over the next 10 to 20 and reducing development pressure
years.When asked why they chose to live from edge areas
in Orange County, low traffic congestion
(25%) and the availability of public In the Community Engagement Window
transportation (13%)were among the #1 for the Land Use Plan 2050 process,a
reasons,although not as popular as other majority(64%) of respondents expressed
choices.When asked about factors that that they envision Orange County's
would keep residents in the county over identity in 2050 as a walk-and bike-
the next five years, low traffic congestion friendly community that prioritizes public
(15%) and public transportation systems transit. When asked what would keep
(7%)were less frequently cited compared them and their families in Orange County
to other choices. Public transportation over the next 25 years,the most popular
alternatives, however,were a higher response (57%)was the availability of
priority, ranking as the fourth most safer and more affordable transportation
important local government service to options,such as biking,walking,or using
focus on (32%).When asked about the public transit.
importance of increasing alternative During Community Engagement Window
modes of transportation—such as buses, #2,74%of respondents supported
ride-sharing services, biking,walking,and the Vision Theme of implementing
trains-85%of respondents considered it sustainable transportation systems and
important. economic development initiatives.The
The New Issues and Opportunities Report Transportation and Mobility Goal also
identified a theme of"supporting climate received support from the majority of
responsive transportation systems and respondents (70%).When responding to
economic development initiatives"from the final open-ended question,there was a
ORANGE COUNTY LAND USE PLAN 2050 129
133
clear interest in multimodal transportation
options,such as bike lanes and sidewalks,
with a noticeable shift away from car-
centric planning,especially in densely
populated areas.
130 PUBLIC REVIEW DRAFT
ORANGE COUNTY
LAND USE PLAN
Guiding Our Future
2050