HomeMy WebLinkAboutAgenda 10-14-2025; 2 - Orange County Land Use Plan 2050 – Board Request for Additional Information 1
ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: October 14, 2025
Action Agenda
Item No. 2
SUBJECT: Orange County Land Use Plan 2050 — Board Request for Additional Information
DEPARTMENT: Planning and Inspections
ATTACHMENT(S): INFORMATION CONTACT:
A. BOCC Request for Additional Information, Tom Altieri, 919-245-2579
Part A Cy Stober, 919-245-2592
B. BOCC Request for Additional Information, Perdita Holtz, 919-245-2578
Part B
C. Scopes of Services for Facilitation Services
D. Draft PowerPoint Presentation
PURPOSE: To receive the second presentation in a series as response to the Board's request
for additional background information for the Land Use Plan 2050 process and to provide
feedback to staff on two scopes of services for meeting facilitation services, as requested by the
BOCC at the September 9, 2025 work session.
BACKGROUND: At its April 8, 2025 work session, the Board reviewed a tentative schedule for
receiving presentations from County staff and in some cases, guest presenters, to provide
additional background information for better informing its direction on the Land Use Plan 2050
process. The Board's calendar preference was for staff to schedule agenda items through mid-
November to receive the information.
Attachment A is Part A of the BOCC request for additional information grouped into six (6) topic
areas by subject. To cover all topic areas, presentations to the Board are scheduled for work
sessions on September 9, October 14, and November 11, 2025; and at half-day retreats,
scheduled for November 14 and November 21, 2025. The half-day retreats are needed to cover
Part B (Attachment B) of the Board's request for information and will include several guest
presenters.
Due to time constraints at the September 9 work session, Staff was unable to complete the entire
planned presentation; therefore, the October 14 work session will include completion of the
presentation on the Central Orange Coordinated Area (COCA) and the Water and Sewer
Management, Planning, and Boundary Agreement (WASMPBA). Additionally, staff from the Town
of Hillsborough will present information on the Towns' utility constraints. Specifically, the BOCC
requested the following information from the Town:
1. WHY does Hillsborough want to constrict their water/sewer boundary?
a) Cost? Of what? Maintenance? Expansion? Other?
b) Lack of water supply?
c) Or combination of factors? E.g., Choosing to be denser in smaller footprint not related to
water supply?
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d) Seems like density should be near the train station.
Additionally, at the September 9, 2025 work session, the Board requested to review scopes of
services for potential meeting facilitation services for the November 21, 2025 Board retreat.
Attachment C includes two scopes of services from potential consultants. The Board is requested
to provide feedback to staff regarding any preferences BOCC members may have.
The draft PowerPoint presentation is included in Attachment D.
Community Engagement Window#3, to unveil a draft Land Use Plan 2050, is anticipated to occur
early next year. Additional information, including robust public notification, will be forthcoming
closer to the opening of engagement.
Additional information about the project, including e-mail sign-up for project updates, are available
on the project website: .https://www.orangecountylanduseplan.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: At its August 26, 2025 Business meeting, the BOCC received cost
estimates for information/presentations requested from independent experts (Attachment B) and
directed staff on which to pursue. A Budget Amendment will soon be processed for those
requests. Existing Planning staff is responding to many of the BOCC requests for additional
information, including those on tonight's agenda.
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.
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
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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 and provide any comments and questions; and
2. Provide feedback to staff on the scopes of services (Attachment C) for meeting facilitation
services.
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Attachment A
Land Use Plan 2050 - BOCC Request for Additional Information, Part A
(Items within Planning staff purview and can be completed in the near-term and with no financial impact)
1. Fact Book, Planning Process, and Implementation
a) The statistics supporting the "Need for a New Plan" can be misleading if taken out of
context. A brief analysis with appropriate statistics would be more informative and
provide a rationale for the updated Plan. E.g. Yes growing 8th or whatever in aging, but
need to know how fast all of NC is growing.
b) Please explain how a land use plan is drafted to reflect changes that may be far in the
future and how it can be amended to be a living document. Please include examples
from the 2030 Comprehensive Plan and the proposed 2050 Land Use Plan.
c) Should we change the policy document (Land Use Plan 2050)(Comprehensive Plan) to
include proposed changes that could take years to work out? Or do not do that; make
sure the Plan is current policy?
d) Do not tie our hands in the Plan.
e) Could amend the Plan? After working through a change with the towns?
2. Joint Planning Agreements (Including WASMPBA) and Rural Buffer
a) Remind us about the rural buffer/Joint planning and distinguish that from the WASMPBA
(Water and Sewer Management, Planning, and Boundary Agreement).
b) What is the rationale for each?
c) Where does the WASMPBA interact?
d) Who are the Agreement partners?
e) Which includes policies and practices that would be implemented if there were failing
wells and septic systems and/or a water/sewer emergency?
f) If appropriate, please reference other joint agreements with the towns and utility
providers.
g) What can be built and/or operated in the rural buffer?
h) What are the processes to make changes to the agreements?
i) If the Board does wish to have an action item say to explore expanding water/sewer at
some location on the map where it is not currently allowed, then is that in the Land Use
Plan 2050? Or is that a separate work as petitioned by the Board? What is the order of
doing things? Seems like it matters? What would that process look like?
j) On that map of Carrboro Transition and/or ETJ area, is that blue dot in the rural buffer?
3. Watersheds and Their Impact on Development
a) Show us map view of watersheds and boundaries.
b) Include any known/potential changes due to regulations.
c) Review the differences between watersheds and how that impacts what can be built or
operate within them.
4. Water and Sewer Service Areas and Providers
a) Where is water and sewer now and who is the provider? (within existing EDDs)
b) Show us map views of the county and the OWASA, Hillsborough water/sewer, Durham
water/sewer, Orange Alamance water/sewer, Mebane water/sewer and any other public
providers with their current boundaries and any proposed boundaries.
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c) Within these providers' service areas, where is water now? Where is sewer now? Plans
under development for extension? (Planning Staff Note: Release of specific locations of
water and sewer utility lines and connections is prohibited by the utility providers)
d) Give us a map view of the existing EDDs.
e) What is proposed to change? (within existing EDDs)
f) How many residential units are in existing EDDs?
g) Was Blackwood Station dropped from water/sewer expansion? Please explain the
project and the outcome.
5. Rural Activity Nodes
a) Remind us why there are two, what uses are allowed in each of them, and for which sizes
of population.
b) What uses are currently in the existing rural activity nodes?
c) Why combine them?
d) If commercial is allowed, what specific commercial uses?
e) Additional residential? What types?
6. Conservation Subdivisions
a) Are they allowed in the rural buffer now? What parameters?
b) Are they allowed in any area of the county now? What parameters?
c) Are there large parcels remaining in the rural buffer?
d) Distinguish the policy aspect and the zoning aspect where density or# units could be
limited?
e) Can we put the clustered housing on land in the area least favorable for"farmable" land?
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Attachment B
Land Use Plan 2050 - BOCC Request for Additional Information, Part B
Blue: Within Planning staff purview and can be completed in the near-term and with no financial impact.
Red: Beyond Planning Staff purview and may have financial impacts.
1) WHY does Hillsborough want to constrict their water/sewer boundary?
a) Cost? Of what? Maintenance? Expansion? Other?
b) Lack of water supply?
c) Or combination of factors? E.g., Choosing to be denser in smaller footprint not related to
water supply?
d) Seem like density should be near the train station.
2) Input from Developers
a) What do developers suggest to build more housing?
b) Types of housing?
c) CH Chamber big bold ideas summary for housing w their builders and developers
info; Include Hillsborough Chamber
d) What do nonprofit developers say? What's different for them?
3) Preserving Farmland and Open Space
a) We want to receive the preserving farmland report before we make comments on the
Land Use Plan 2050
b) Concept of"farmable" land
c) Refresh or update from Jan on "smaller" farms in OC
4) Now pull it together and go with map view of county to go over area by area to consider all
the competing trade-offs (Planning Staff Note: Requires some scoping)
a. What are current rules for that area?
b. What is there now?
c. Pros and Cons of plan suggested changes? Segment or small area by segment and tie
these changes to our strategic plan.
d. Housing; Focus on Housing plus Transit/Transportation; Climate Change
5)
a. How do the types of rocks matter for water supply to wells
b. Can any portion of our county be predictable or not for water supply/aquifer?
c. Can well be tested ahead of approval for zoning change or building? Guildford Co
ordinance was referenced with Fiddlehead??
d. What is the science re community wells? Impacting other wells? Costs to drill? Costs to
Maintain? Reliability? Failure rates? What is known and what is not known? In face of
climate change??
e. What else do we not know about wells that we should for health and for ample water
supply?
6)
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a) Costs to build? Costs to maintain? Failure rates? What can be done if fail?
b) What else do we not know about community septic that we should know to make
decisions for our current residents and our grandchildren/future generations?
7)
a. So does more housing lead to affordable housing in our county?
b. How to think about this issue of supply/demand, elasticity and limits on resources.
8)
a. Provide the report, and go over a summary
b. The number of units needed and does the report say the town can meet that growth
within town boundaries? HOW?
c. Do Carrboro, Hillsborough and/or Mebane have any similar studies? How are they then
planning?
CENTRAL :;:: PINES
REGIONAL COUNCIL
Orange County Comprehensive Plan
Development Retreat
Central Pines Regional Council Proposed Services
About Central Pines Regional Council
Central Pines Regional Council, formerly Triangle J Council of Governments, is a resource and
support hub for local government members, community members, and partners across
Chatham, Durham,Johnston, Lee, Moore, Orange, and Wake counties. Our organization brings
more than six decades of experience working with local governments in the region to respond
to individual and collective challenges. Our work is rooted in the belief that our region thrives
when we come together with a common vision & plan.We advance this goal through the support
of regional policy, collaboration, and technical assistance.
Our Approach to Facilitation
Effective collaboration is the cornerstone of success for leaders and teams. CPRC's facilitation
services are designed to empower boards and staff to overcome challenges, enhance problem-
solving, and set clear goals. With a focus on transparency, curiosity, and compassion, we work
alongside your team to design and tailor purposeful and engaged meetings that produce
results. Our approach prioritizes team and trust-building, developing a shared understanding of
the current state of the community, defining collective short-and long-term success, and
prioritizing action items.
Our team has assisted large, small, urban, and rural communities with the facilitation of critical
conversations, annual retreats, and long-term visioning. Recent, relevant projects include:
- City of Raleigh Board Retreat (2025, 2024)
- Town of Holly Springs Board Retreat(2025)
- Co-Gen Rail Transformation Project (Chapel Hill, Carrboro, UNC- Chapel Hill, and the
Southern Environmental Law Center)
- Johnston County Mayors Association Water Regionalization Process
- Town of Pittsboro Strategic Plan
- City of Sanford Strategic Plan
- Town of Carthage Strategic Plan
- City of Durham Budget Retreat — Board Projects
Proposed Services for Orange County
This retreat will serve as a strategic opportunity for the Board of Commissioners to deepen their
understanding of the county's land use challenges, priorities, and planning processes, and
agree upon a path forward for the County's development of the next update of the County's
Comprehensive Plan.
Specific outcomes for commissioners:
CENTRAL :;:: PINES
REGIONAL COUNCIL
• Gain a clear understanding of the key factors influencing land use decisions, including
infrastructure capacity, environmental considerations, and community needs such as
housing or service delivery.
• Explore the roles and responsibilities of the Board in shaping and confirming a long-
term land use vision.
• Engage in meaningful dialogue to build consensus and confidence around the plan.
• Provide actionable and discrete guidance to County Staff on how to proceed with
ongoing planning efforts and policy development.
Step 1. Preparation
CPRC Review of Key Documents
CPRC will review key documents documenting local land use priorities including the Orange
County 2030 Comprehensive Plan, Joint Planning Area Land Use Plan, Climate Action Plan,
Consolidated Plan, and other items recommended by staff.
Individual Meetings with Commissioners(7 meetings)
CPRC will conduct 30-minute meetings with each commissioner to discuss their individual
priorities, questions and perspectives on the land use plan and share any context that they feel
will improve the workshop flow. We have found these pre-workshop conversations to enable
more candid conversation and allow us to develop a foundation of trust with elected officials
prior to working with them in public meetings.
November 14t" Board Retreat (1 meeting)
CPRC staff will attend the session in a listening and observational capacity. Objectives will be
to absorb key information shared by experts to understand the technical, policy, and planning
dimensions impacting land use in the county; identify themes and questions that emerge during
the discussion to inform future planning conversations; and use this information to structure
facilitation of the November 21st retreat.
Step 2. Retreat Facilitation
CPRC will facilitate a four-hour long retreat on November 21st for the Board of Commissioners.
CPRC staff will work collaboratively with Commissioners to ensure robust discussion and
effective time management.This retreat will focus on finding consensus on the county approach
to land use and development, and synthesizing, prioritizing, and identifying actionable next
steps that the board wants to take for the 2050 Comprehensive Plan development. This retreat
will serve as a bridge between technical understanding and strategic decision-making,
empowering the Board to confidently guide the next phase of the county's land use planning
process.
Step 3. Wrap-Up
CPRC will produce a summary report of the retreat that highlights discussion and action items
and meet with staff to review the report.
Staffing
Alana Keegan, Local Government Services Director
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CENTRAL :;:: PINES
REGIONAL COUNCIL
Chris Lawson, Senior Planner
Grace Berry, Lead for NC Fellow
See attached resumes for backgrounds.
Proposed Cost
Based on the scope and timeline, CPRC proposes to provide the services listed above for
$7,500. This includes mileage and materials.
Acceptance and Questions
Proposal acceptance, questions or requests for further clarification can be directed to:
Alana Keegan
Local Government Services Director
nrralpinesnc.gov
919.588.2706
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Alana Keegan
LOCAL GOVERNMENT SERVICES DIRECTOR
Raleigh, North Carolina 1203.623.8186 1 akeegan748@gmail.com
Overview
Strategic government leader with almost a decade of experience designing and delivering impactful public
policy initiatives, technical assistance programs, and federal-state-local collaborations. Proven record in
securing funding, activating stakeholder engagement, and enhancing the capacity of local governments to
make data-driven, community-centered decisions.
Experience
Central Pines Regional Council 2016-Present
Local Government Services Director May 2023-Present
• Oversee CPRC's flagship local government policy and support division, advancing data-informed
operational and strategic decisions across 50 local governments through technical assistance,
communications, and funding strategy.
• Developed and scaled a regional grant assistance program for 18 communities that has secured
over$32M in federal and state funding for housing and transportation infrastructure, disaster
resilience and climate, public safety, parks and open space, and economic development needs.
• Scaled team from 1 to 4 full-time staff, 3 part-time staff, and 2 intern positions to support strategic
planning, technical assistance for local governments, communications, and government affairs.
• Fostered relationships with elected officials, municipal leaders, and agency partners to inform
responsive, collaborative service offerings. Increased organizational membership by 75% through
targeted outreach and policy-focused programming.
• Designed and launched a technical assistance dashboard to track member requests that is a tool
for leadership to identify gaps in services, growing areas of need, and engaged/disengaged local
governments.
• Facilitated governing board retreats and strategic planning processes for local governments as
large as the City of Raleigh, helping elected boards and staff align community vision with
actionable and timely policy goals.
• Administered the subrecipient process for the NC Association of Regional Councils of
Governments' (NCARCOG) $10M American Rescue Plan allocation to sixteen COGs, tracking
spending and policy outcomes, ensuring compliance, and acting as the liaison between the NC
Pandemic Recovery Office, NCARCOG, and subrecipients.
Member Engagement Manager January 2021-May 2023
• Built CPRC's first federal affairs and policy analysis program, enabling local governments to
influence and respond to evolving guidance under federal legislation including the American
Rescue Plan and Bipartisan Infrastructure Law.
• Led successful organizational rebrand, improving public-facing communications and stakeholder
engagement through a new name, logo, and brand strategy.
• Managed governing board processes including the oversight of the Clerk to the Board and
engagement efforts
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Assistant to Executive Director September 2020-January 2021
• Supported executive leadership in creating a three-year strategic plan and reinvigorated
approach to member services and technical assistance that reduced internal silos.
Engagement Specialist August 2016-August 2020
• Led regional communication campaigns and civic engagement efforts to support local policy and
innovation pilots.
• Developed "The Innovation Sandbox," an award-winning initiative that crowdsourced the region's
toughest challenges and tested creative approaches to solve them.
o Launched the Regional Recruitment Partnership which brought together fourteen police
departments, researchers at NC State University and NC Central University, and local
media agencies, to launch a 12-month, research-driven recruitment campaign entitled
"Committed to Better" that connected 10,000 job seekers to local job postings.
• Planned and executed the council's first regional policy conference for 250+ elected officials, city
and county managers, local government leadership, and partner agencies.
NEOS Consulting May 2015-August 2016
Analyst
• Conducted analysis to identify process improvements for clients, and facilitated strategic
workshops with senior management in NYC, Tampa, and London.
• Managed all aspects of the firm's editorial calendar, press releases, email campaigns, a website
redesign, and marketing interns.
• Redesigned internal content review process for efficiency, doubling the rate of published content
being produced and downloaded.
South Central Regional Council of Governments May 2014-April 2015
Management Intern
Education
NC State University, M.S Policy Communication 2022
Focus on communication theories of persuasion and social change, and narrativity within the public policy
process
Muhlenberg College, B.A International Studies 2014
Minor: Economics
Skills & abilities
• Strategic Planning
• Grant Writing
• Project Management
• Facilitation
• Communication and Brand Strategy
• Intergovernmental Affairs
• Stakeholder Engagement
• Policy Research and Analysis
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CH RISTOPH ER LAWSON, AICP, CZO
American Institute of Certified Planners Certification No. 260989
North Carolina Certified Zoning Official Member No. 113
(252)599-1717
calawson89@gmail.com
EDUCATION
East Carolina University, Master of Geography December 2014
• Conducted research into and wrote an internship report titled Town-Gown Relations in Downtown Revitalization:The Case of
Greenville, North Carolina.
East Carolina University, Bachelor of Science in Urban and Regional Planning May 2012
PROFESSIONAL EXPERIENCE
Central Pines Regional Council,Community Development Senior Planner July 2024-Present
• Serves as the Town Planner for Goldston, NC and Vass, NC. Processes development applications including rezonings, special use
permits,variances,site plans,and similar applications. Project lead on Goldston's Land Use Plan and Zoning Ordinance update.
• Conducts presentations and work sessions with elected and appointed officials.
• Consults on and reviews various planning documents including Unified Development Ordinances,Comprehensive Transportation
Plans,and similar plans.
• Drafting Digital Opportunity Plans for Lee, Moore,Johnston, and Orange Counties. Leads and facilitates steering committees for
plans,conducts public outreach and engagement, and committee work sessions.
• Facilitates other regional meetings including TriCities.
Town of Morrisville, Planning Manager September 2020—April 2024
• Served as head of the Development Review Committee, ensuring site plan review quality control and supervised development
review staff within the Planning Dept. Reviewed site plans and rezonings which were considered to be intricate or high profile and
those which may require substantial tact.
• Supervised three Planner 11's who are the primary review staff for the Town and review various development applications including
site plans,rezonings,annexations,special use permits,variances,telecom tower modifications,and modifications.Additional staff
projects included the creation of a Public Arts and Mural Program and Public Arts Master Plan for the Town.
• Previously supervised Planner I, Planning Technician, and the Code Enforcement Officer positions from September 2020-
November 2021.The review duties of these staff, respectively, included final plat review, processing of annexations,commercial
building compliance review, residential plot plan and final surveys, serving as Secretary to the Planning and Zoning Board, food
truck permits,sign permits,and general code enforcement.
• Previously supervised the Planner II —Transportation position from September 2021-November 2022. The duties of this staff
member included the review of transportation-related items including reviewing Transportation Impact Analysis and
implementation of the Comprehensive Transportation Plan through requiring street improvements such as lane widening and
installation of bike and pedestrian facilities.Shifted to a newly hired supervisor who specialized in transportation Nov.'22.
• Amended the Town's Unified Development Ordinance(UDO), including the following:
N.C.G.S. 160D compliance.
Overhauled the tree preservation, common open space, and landscaping sections of the UDO based on resident
surveys and developer outreach. UDO amendments required additional tree preservation and encouraged
developers to preserve existing trees in landscaped buffers.
Created and zoned the Gateway Overlay zoning district (the GO district) along the McCrimmon Parkway ext.
(opened summer 2020), which was designed to provide an attractive, pedestrian-oriented space with buildings
fronting the street, requiring outdoor spaces, and also partially requiring buildings to contain vertical mixed use.
Collaborated with private developers to ensure that the Town UDO defined and permitted biomanufacturing and
similar uses.Since installation,this district has become a hub for life science and biomanufacturing uses.Currently,
210 acres of life science are under development within this zoning district.
Various other text amendments.
• Lead the implementation of the 2021 Land Use Plan,tasks included:
- Issued Requests for Proposals, led the selection committee,and managed the selected consultant's contracts.
- Led a two-phase project, which designed and installed a Transit Oriented Development District, updated the
Town's UDO to bring it into compliance with the 2021 Land Use Plan, and rezoned large portions of the Town.
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- Led Town outreach to Town residents and the development community.
- Coordination with regional partners, including Raleigh-Durham International Airport staff.
• Planning Department lead on Morrisville's Town Center, a public-private partnership that will develop a traditional downtown
and public park that Morrisville has lacked.
• Hired,onboarded,and trained 5 Planning staff members.
• Provided staff trainings on communication,de-escalation,and dealing with difficult customers.
• Considerable public speaking experience.
• Served as backup for the Planning Director in her absence.
Town of Morrisville, Planner II September 2018-September 2020
• Reviewed applications for annexations, subdivisions, residential and commercial site plans, rezoning's and telecommunication
plans for compliance with the Unified Development Ordinance.
• Led pre-submittal and Development Review Committee meetings,and presented items to the Planning and Zoning Board, Board
of Adjustment,and Town Council.
• Conducted training with the Planning and Zoning Board (PZB)on quasi-judicial decisions,and legislative decisions,and developed
a PZB handbook.
• Served as acting Code Enforcement Officer due to staff vacancies from January 2020-June 2020.
Pitt County, Planner I August 2015-September 2018
• Served as the lead Subdivision Administrator reviewing proposed preliminary and final plats for compliance with the Subdivision
Ordinance.
• Led Technical Review Committee meetings and presented preliminary plats to the Planning Board for their review.
• Drafted Subdivision Ordinance text amendments, most notably to bring the ordinance into compliance with the General Statutes
by creating objective development standards and creating street cross-access requirements.
• Other duties included reviewing applications and assessing damage to residential buildings as a part of the Community
Development and Disaster Recovery Programs as well as serving as a point of contact for the road assessment program,allowing
for previously unmaintained roads to be adopted by NC-DOT.
City of Virginia Beach,Zoning Inspector I September 2014-August 2015
• Reviewed permits for proposed development and businesses for compliance with the Zoning Ordinance and the Air Installation
Compatible Use Zone.
• Processed and prepared applications for review by the Board of Zoning Appeals.
• Inspected violations of the City's Zoning Ordinance.
SKILLS
• Microsoft Suite, including Word, Excel, PowerPoint,Outlook,SharePoint,OneDrive.
• Tyler Technologies Permitting and Licensing Software including Energov and Munis.
• Bluebeam Revu.
• Adobe PDF.
• Qualtrics Survey Software.
ADDITIONAL PROFESSIONAL MEMBERSHIP
• American Planning Association.
• North Carolina Association of Certified Zoning Officials.
• Strong Towns.
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TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
Cy Stober
Planning & Inspections Director
Phone: 919-245-2585
300 West Tryon Street
P.O. Box 8181
Hillsborough, NC 27278
Subject: Proposal for Facilitation Services
Dear Mr. Stober,
True North Performance Group (TNPG) is pleased to submit this proposal to support Orange
County in the facilitation of the Board of Commissioners' upcoming retreats related to the
development of the Comprehensive Plan. With nearly two decades since the last plan adoption,
these sessions represent a critical opportunity to advance community priorities and ensure a
clear, actionable pathway for final adoption.
Our team specializes in helping local governments navigate multi-faceted policy discussions,
engage elected officials in productive dialogue, and build consensus around strategic decisions.
TNPG brings extensive experience in planning facilitation, strategic visioning, and high-
performance frameworks designed to elevate organizational outcomes.
Rebecca Jackson, CEO, will serve as project lead and facilitator. She is a strategic leader with a
track record of delivering successful planning initiatives for recent clients such as Cumberland
County Schools, Harnett County, Carolina Beach,the Town of Leland, North Carolina Local
Government Association and Cumberland County. Her full biography is attached.
We would be honored to partner with Orange County on this important effort. Please do not
hesitate to contact me with any questions or to discuss adjustments to the scope or approach. I
look forward to the opportunity to work with you and the Board of Commissioners to ensure a
successful Comprehensive Plan process.
Sincerely,
Rebecca Jackson
Chief Executive Officer I Principal Consultant
True North Performance Group, LLC
rebeccajackson1884@gmail.com
(910) 322-8182
1 of 8 Visit us at https://www.truenorthperformancegroup.com
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TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
Scope of Work & Deliverables
True North Performance Group offers the depth of experience typically associated with larger
consulting firms, while maintaining the flexibility and responsiveness of a specialized practice.
Our model ensures clients receive direct, executive-level facilitation and personalized attention
from start to finish—without the additional overhead often built into larger firm proposals. This
approach allows us to deliver high-quality, consensus-driven outcomes at a cost that reflects
both efficiency and value for the public sector.
Sessions 1 and 2: Introduction, Review, and Research (Nov. 11 & Nov. 14)
• Conduct virtual planning meetings with the Planning Director and Senior Planner.
• Review key materials, including the draft plan, background reports, and prior input.
• Nov. 11 (In-Person): Attend session to introduce the consultant role and outline the
upcoming facilitation process.
• Nov. 14 (In-Person): Participate in review session and related feedback discussions to build
understanding and gather insight.
Session 3: Board Retreat— November 21
• Develop a tailored agenda, facilitation guide, and framing tools.
• Review draft agenda with staff and incorporate feedback for final approval.
• Facilitate a 4-6 hour retreat with the Board of Commissioners.
o Retreat Focus: Build consensus to advance the Comprehensive Plan into the
community engagement phase.
• Deliverables:
o Written post-session summary capturing key decisions and next steps.
o Executive consultation with staff and key stakeholders to align priorities, clarify
follow-up actions, and ensure readiness for the community engagement process.
Session 4: Board Retreat—TBD (Following Community Engagement Process)
• Conduct executive consultation with staff and stakeholders in advance to prepare for the
final retreat.
• Develop a tailored agenda, facilitation guide, and framing tools.
• Review the draft agenda with staff and incorporate feedback for approval.
• Facilitate a 4-6 hour retreat with the Board of Commissioners.
o Retreat Focus: Review the updated Comprehensive Plan draft following
community engagement and build consensus to move forward with the public
hearing and adoption process.
• Deliverables:
o Written post-session summary capturing outcomes and adoption readiness.
o Executive consultation with staff and key stakeholders to confirm follow-up
actions and ensure alignment on next steps.
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17
N TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
Deliverables (Total Across Sessions)
1. Pre-session consultation and coordination.
2. Two customized retreat agendas and facilitation plans.
3. Facilitation of two 4-6 hour retreats.
4. Two written post-session summary reports with executive consultation.
Flat Fee Proposal
• Sessions 1 & 2 (Intro, Review, & Research — Nov. 11 & 14): $2,500
(Covers in-person introduction, virtual review, document preparation, and staff planning
meetings.)
• Session 3 (Board Retreat— Nov. 21): $7,500
(Includes agenda design, facilitation of a 4-6 hour retreat, executive consultation, and
written summary.)
• Session 4 (Board Retreat— Post-Engagement, TBD): $7,500
(Includes preparation, facilitation of a 4-6 hour retreat, executive consultation, and
written summary.)
• Travel & Expenses: Included
Total Project Fee: $17,500
Total Project Fee: $17,500 $10,000
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18
TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
Approach & Methodology
TNPG employs a collaborative, high-engagement approach designed to foster trust, encourage
open dialogue, and build consensus among governing boards. Our process ensures
commissioners have the space and structure to consider complex issues, weigh diverse
perspectives, and reach alignment on key decisions that shape the county's future.
This includes:
• Collaborative Planning—Structured facilitation that promotes open discussion, mutual
understanding, and respect for different viewpoints, ensuring commissioners move
forward with a shared vision.
• Consensus-Building Tools— Use of framing questions, structured exercises, and decision-
mapping methods to guide groups toward common ground and clear outcomes.
• Clarity &Alignment— Providing a clear process that helps boards focus on priorities,
identify points of agreement, and resolve areas of divergence constructively.
• Contextual Awareness—Ensuring discussions are grounded in community values and
priorities, such as affordable housing, environmental stewardship, and sustainability.
• Strategic Decision Support— Offering structure, reflection, and practical tools that help
boards make informed decisions with confidence and unity.
Our Value & Experience
Led by Rebecca Jackson,True North Performance Group brings deep experience guiding boards
and leadership teams through retreats, strategic planning, and decision-making processes. We
specialize in helping elected officials and executives navigate multi-faceted policy issues,
balance competing priorities, and build alignment that translates into actionable outcomes.
Expertise & Methodology
Our facilitation model integrates both structure and flexibility—balancing agenda-driven
discussion with space for dialogue that builds trust and ownership. We combine proven
facilitation techniques with consensus-building strategies to ensure that boards not only reach
decisions but also strengthen collaboration and relationships in the process.
TNPG has worked with counties and municipalities across North Carolina to facilitate strategic
planning retreats, board workshops, and community engagement processes.
• Consensus Building: We specialize in guiding boards through complex issues to achieve
clarity and actionable outcomes.
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19
TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
• Planning Familiarity: Experienced with planning processes, land use considerations, and
community priorities such as affordable housing, environmental protection, and
sustainability.
Multi-Method Input&Communication
Preparation and facilitation include document review, targeted planning sessions with staff, and
the use of tailored communication tools (agendas, guiding questions, framing exercises) to
ensure clarity and focus. Each retreat is designed in collaboration with county staff so that the
agenda aligns seamlessly with desired outcomes.
Commissioner& Community Alignment
TNPG recognizes the importance of connecting board decisions to broader community
priorities. Our facilitation approach ensures commissioners' discussions are transparent,
inclusive, and aligned with community values, building public trust and support for the
Comprehensive Plan process.
5 of 8 Visit us at https://www.truenorthperformancegroup.com
20
TRUE NORTH PERFORMANCE GROUP, LLC
Attachment A: Proposal for Facilitation Services
References
Harnett County—Mike Morrow, Assistant County Manager
Phone: 910-814-6892 1 Email: mmorrow@harnett.org
• Designed community and employee engagement sessions and surveys to inform the
strategic plan framework.
• Supported development and adoption of Harnett County's first strategic plan.
• Facilitated board retreats, staff workshops, performance management programs, and
departmental business plans.
Strategic Plan (Jan 2025)
Town of Leland— Missy Rhodes, Deputy Town Manager
Phone: (910) 332-4295 1 Email: mrhodes@townofleland.com
• Designed community and employee surveys to inform the strategic plan framework.
• Supported development and adoption of Leland's Strategic Plan.
• Facilitated board retreats and staff workshops.
Leland 2030 Strategic Plan
Cumberland County—Kirk deViere, Chairman
Phone: 910-678-7771 1 Email: kdeviere@cumberlandcountync.gov
• Conducted executive consultations and pre-retreat interviews/surveys to tailor content
and identify priorities.
• Facilitated 1%-day Board retreat and %-day Leadership Retreat to define Vision, Mission,
Core Values, set strategic goals, align departments, and plan next steps.
• Collaborated with staff to finalize a strategic framework and guide production of the
strategic plan document.
Cumberland County Schools—Jay Toland, Associate Superintendent of Business Operations
Phone: 910-678-2300 1 Email: businessop@ccs.kl2.nc.us
• Supported Finance Department in enhancing customer service and employee
experience through structured feedback.
• Designed and deployed Customer Service and Employee Engagement Surveys.
• Synthesized survey results in a summary report with recommendations for training,
strategic decisions, and service improvements.
6 of 8 Visit us at ttps://www.truenorthperformancegroup.com
21
REBECCA JACKSON
CEO, TRUE NORTH PERFORMANCE GROUP, LLC
A Commitment to Purpose and Quality
Rebecca Jackson is a dynamic consultant with over 25 years of experience
navigating complex business and government environments. As the founder of
True North Performance Group, LLC, she helps organizations achieve
exceptional results through strategic planning, performance management,
and leadership development. Specializing in collaborative governance and
High-Performance Organization (HPO) frameworks, Rebecca is the creator of
the copyrighted Five Pillars of Excellence, a high-performance framework that
empowers organizations to implement proactive, sustainable solutions for
success.
In addition to her consulting work, Rebecca serves as an adjunct faculty member at the University of North
Carolina's Center for Public Leadership and Governance. As a sought-after facilitator, speaker, and
educator, she is known for her ability to build consensus in diverse, challenging environments and inspire
organizations to reach their full potential.
The Five Pillars of Excellence is a comprehensive, adaptable framework that enhances organizational
performance. Centered on five interconnected pillars supported by a foundation of Leadership Excellence,
the framework includes 10 actionable criteria for each component, offering a structured yet flexible
approach to achieving optimal results. With its companion organizational survey assessment, the
framework enables organizations to fine-tune operations efficiently without requiring extensive consulting
or formal training, ensuring seamless alignment and effective service delivery.
Rebecca's expertise has earned her national recognition. In 2017, her leadership contributed to the City of
Fayetteville receiving top honors from Governing Magazine for excellence in strategic planning and
performance management. Her team also earned five consecutive awards for performance excellence from
the International City/County Management Association (ICMA). During her tenure she served as Chief of
Staff and Chief Performance Officer for Fayetteville, and oversaw strategic planning, corporate
communications, community engagement initiatives, and intergovernmental affairs, earning numerous
accolades for effective communication, innovation and results-driven leadership.
Rebecca holds a Bachelor of Science in Accounting from the University of North Carolina at Pembroke,
where she was named Business Student of the Year. She is a lifetime member of the Wine Country Chapter
of the North Carolina Association of Certified Public Accountants and has earned a Municipal
Administration Certification from UNC-Chapel Hill. Additionally, she is a Certified Budget and Evaluation
Officer, trained in Six Sigma, certified in the COBIT framework, and accredited in the True Tilt Profile, a self-
assessment tool designed to enhance personal agility and character development.
Outside of work, Rebecca enjoys traveling with her husband, spoiling her grandchildren, and discovering
hidden gems at estate sales. A passionate advocate for empowering women, she co-founded HER Week, an
initiative focused on Heart, Equality, and Resilience, which provides women with opportunities for
education, networking, mentoring, and partnerships.
Visit Rebecca's website at True North Performance Group to learn more about her innovative approach to
leadership and organizational excellence.
w-
22
114%��W-MMOMM.
r�
ORANGE COUNTY
NORTH GAROLINA
Item 1
Orange County Land Use Plan 2050 - Board
Request for Additional Information
9q
� ft' 23
114%��W-MMOM.
ram
ORANGE COUNTY
NORTH GAROLINA
Central Orange Coordinated Area (COCA)
Water & Sewer Management, Planning , and
Boundary Agreement (WASMPBA)
24
BOCC Request
a) Remind us about the rural buffer/joint planning and distinguish that from the WASMPBA
(Water and Sewer Management, Planning, and Boundary Agreement).
b) What is the rationale for each?
c) Where does the WASMPBA interact?
d) Who are the Agreement partners?
e) Which includes policies and practices that would be implemented if there were failing
wells and septic systems and/or a water/sewer emergency?
f) If appropriate, please reference other joint agreements with the towns and utility
providers.
g) What can be built and/or operated in the rural buffer?
h) What are the processes to make changes to the agreements?
i) If the Board does wish to have an action item to explore expanding water/sewer at
some location of the map where it is not currently allowed, then is that in the Land Use
Plan 2050? Or is it a separate work petitioned by the Board? What is the order of doing
things? Seems like it matters? What would that process look like?
j) On the map of Carrboro Transition and/or ETJ area, is that blue dot in the rural buffer?
N49
ORANGE COUNTY
NORTH CAROLINA
25
Central Orange Coordinated Area
(COCA)
ORANGE COUNTY
NORTH CAROLINA
Town of H i I I s boroug WOra nge County Central Orange Coordinated Area La9n§use Plan
Areas Within the Town's Urban Service Boundary
Parties: Town of
Hillsborough and Orange -
l
County _ L
• 2006 — Strategic Growth ,
- r .. .
Plan Report (Phase 1 )
r J i
• 2009 — I nterlocal Land
Management Agreement
.
(Phase 11 ) _ r ��
• Called for preparation - _
F 3`
of a Joint Land Use - #rd - {
Plan _ --
\�iglu.:Iln.iiuic.. -
0 Jrhsn Sar.ka Bo-rdvy P I '-
• 2013 — Joint Land Use
L:mn�ay*ert
r?ilni anon - �
1
Plan adopted by both fln"�°`°'�
=rok nu�r arr xeaxntiel y ,+d ppQ
�rr�i.wrm.ine�mrxe�hharhona �r
_ML,bd 45e The rJrIbM S@mvlC4 0P4rldery�n&CRl96 lnd@ 4m>ts a HPQDQIQ Igh raker vW a4wer**Wv sw"W,l Wth an
I�+k4d i
hid hid U. "eraccalA7reewNnk,b4,oravy ak Carly.❑WA5A.Chapel Hk.Cwrbpm and FW'Won t,FutuZtWA Uq e
jurisdictions _P—Opm fir, Y MW 4e used 4y HusWruigh 190 Orange County a3lhe basis wr Vp-Wng xmrp 4aslarwllwn v colored
�%,Wll5—l'. parolli o90 ft"witm tho kourtluy.wrw;hiWw Hh 1ha lnlgraetW AgnernaM"W-gb l pran9a Cwnd and
I��..ILiswre Husbnnx,Oh
I�Smy ltt RliltliMlil Aws ou15W IN urn#n WwPus eMnOry WNh i 1`40*La o Ulio tlwgnarwn arc dry m M aMr7..y
�Suhurban 4fhx crascmg a parcel.drags wrhidm 1ho Lkhan Sursxrc Boundary wlh curtont uhbty wmc¢*am Ina Fawn of
H,rsbaror.,gh.,ill-Lin.snot, App—d by Hrld."h3A 1-13
IhhanNN 'hcrhowl Apbrow:triby the MCC 11.5,98
https://www.orangecountync.gov/3031/Long- � �i�krm Am dedbjHleb—Rhtaza-°al'nd br, d-wBOC(1"-2o]
Range-Comprehensive-Planning
27
Water & Sewer Management, Planning , and
Boundary Agreement (WASMPBA)
N45�=--
ORANGE COUNTY
NORTH CAROLINA
28
Water & Sewer Management, Planning , and
Boundary Agreement (WASMPBA)
Appen5-Party Interlocal Agreement Management
nin
• Water and Sewer Management Planning and Boundary Agreement
— OC, Chapel Hill , Carrboro,
Hillsborough , OWASA
• Signed in 2001 after several
years of work on the topic IN
,o
.pL
• The map defines areas where s-
i
parties to the agreement may
and may not provide water - �e®nd
O HiIlsGem.gn wn6.R Inleiesl Ne.
O Mililb .gn Rfl.Smim Area
and/or sewer service.
0 Oiange co�my Primary smieewe.
o�,�.Pnmary sa�.�cea�
OOxnpe County LongTeim NlercgArea
—.ura1 Evnei amneary
0 1 2 3 4
I Myles
7 inch-3 miles
https://www.orangecountync.gov/3031 /
Long-Range-Comprehensive-Planning
E7red—d-1111 MO20
zs
Orange County Primary Service Area
• Orange County does not operate a water system and no
longer operates a sewerage system
— (former Efland system was transferred to the City of
Mebane in the early/mid 2010s).
• Idea for Orange County Primary Service Areas (PSA)
was for Orange County to coordinate with providers to
operate systems within the County's PSAs.
— Former agreements with the Cities of Mebane and
Durham
• Agreements now defunct
ORANGE COUNTY
NORTH CAROLINA
30
Purpose ( paraphrased )
• To provide a comprehensive, countywide system of utility
service areas.
• To complement growth management, land use, and
annexation plans.
• To resolve in advance and preclude future conflicts about
future service areas.
• To provide predictable long-range water/sewer capital
planning and financing .
• To provide for limitations on water and sewer service in
certain areas.
ORANGE COUNTY
NORTH CAROLINA
31
Some Key Definitions ( paraphrased )
• Primary Service Area: Areas where water and/or sewer service is
provided, or might be provided according to adopted plans and
future amendments to adopted plans (see Appendix A map).
• Long-Term Interest Areas: Areas where water and/or sewer service
is not anticipated, but if provided, OWASA, Hillsborough. or Orange
County (depending on the geographic area) will be responsible for
coordinating the provision of service (see Appendix A map).
• Essential Public Facility: A publicly owned facility such as a school,
fire station, or solid waste convenience center that provides a
service for the health, safety, and/or general welfare of county
residents.
• Adverse Public Health Condition: A situation where a wastewater
(septic) system is failing and no on-site repair area is available or a
well water supply system is contaminated and options to remedy
the situation do not exist. NA1
ORANGE COUNTY
NORTH CAROLINA
32
Provision of Service
• Within a primary service area (or as needed in a long-
term interest area), the designated provider agrees to
provide service as system capacity, financial resources,
and other reasonable considerations allow.
• The designated provider for a primary service area or
long-term interest area has the right of first refusal to
provide service to an adverse public health condition or
essential public facility. Orange County retains the right
to address an adverse public health condition of
essential public facility need if no other water and sewer
provider is available.
ORANGE COUNTY
NORTH CAROLINA
33
Limitations on service
• No extension of public water and sewer lines into a
long-term interest area except to address an adverse
public health condition or serve an essential public
facility.
• Public water and sewer lines extended into along-term
interest area shall be sized so as to serve only the
intended use and cannot be used for other purposes.
ORANGE COUNTY
NORTH CAROLINA
34
Amending the Agreement
• Prescribed Process in Section II . D
• Any change requires approval of all parties to the
agreement
• The addition of other parties to the agreement requires
the consent of the current parties
ORANGE COUNTY
NORTH CAROLINA
35
Withdrawal from the Agreement
• Prescribed Process in Section II . E
• Party wishing to withdraw must hold a public hearing
on the proposed withdrawal
• Written notices to the other parties after public hearing
• Withdrawal effective one year after receipt of written
notice by other parties
• Withdrawal of one party does not invalidate the
Agreement with respect to the remaining parties
ORANGE COUNTY
NORTH CAROLINA
36
Order of Amending
(County-only Plans/Regulations vs . Joint
Plans/Agreements)
ORANGE COUNTY
NORTH CAROLINA
37
• A joint plan and/or agreement should be amended first,
but process can run concurrently with the amendment
process for a County-only plan/regulation .
• Rationale:
• The County (or Towns) should not adopt
something in conflict with a joint plan/agreement
— Causes confusion
— Possibly violates terms or spirit of a joint
plan/agreement
— If County adopts something inconsistent with a
joint plan/agreement, there would be ambiguity
regarding which applies.
ORANGE COUNTY
NORTH CAROLINA
• Draft 2050 Land Use
r
Plan (LUP) contains =-�
1 r �r ` r
NbF
Topics for Future �
Coordination .
• The proposed # P%r mks =3 D-44ULF#
4 ■ - C3u.,rndbr as
Conservation and Yr+ '
Fi-rdUr..
Growth Framework map �+ si �'° i Ha FEL 1{1 L `*°ate
p _ PL rd PIERaffrid
A M[F LF[ lur 7wuhy
in the draft 2050 LUP A
does NOT change ; `��I
J
existing policy in the �4 _� r_; W M4 TW�
L
Rural Buffer or Municipal - , �---�-
ran-pe -DUn`y-C'.ap el H-1 I- Carrhofo J-Dint Planni ng Area Land Use
Transition Areas. Plan Topics of Future Cord ination
Draft plan includes an fie-evaluation of RUrJ BU.
GDnoept of Municipal Tranaitiofl Airea expanSian
action item for coordinated 10 Lk,ityServim Area haUndalies andpalir,-e&
review of 0 Cbnoeppt of a M ixL-d Uses CentEr around Blackwood Station
Canoept of Rural Comervation Neighborhoods. in RBI Buffer
intergovernmental 0 CanOR-pt of Rural Activity Noces in Rural Buffer
planning agreements on a
10-year cycle
39
Questions / Discussion
ORANGE COUNTY
NORTH CAROLINA
ao
ORANGE COUNTY
NORTH GAROLINA
Town of Hillsborough Utility Constraints
41
Land Use Planning and
Water & Sewer Capacity
Update
BOCC Presentation on Orange County Draft Land Use Plan
October 141 2025
III
TOWN OF
HILLSBOROUGH
42
Topics
• Town Water & Sewer Capacity Constraints and Updates
• Town and County Land Use Planning Updates and how Hillsborough is
planning for sustainability through coordinated land use, utilities, and
transportation planning
43
Water & Sewer Capacity Status
• Water treatment capacity remains, sewer treatment plant capacity °�" s•_ <,�
is constricted by permit limits '
• Projection through 2040 ` ' `�
• Projects based upon water capacity spreadsheet provided by planning department—
committed and potential
• River sewer basin is capacity constrained due to wet weather
asTT Pano`s Pun
• Monitor Elizabeth Brady sewer basin �°,a� ��; •.--a
Other smaller sewer pumping stations projected capacity concerns
• Additional developments that are already approved will use more
treatment plant capacity
Legend 1
Pump station basins=
• Currently working on water system capacity modeling
• Given the constraints with pressure and water quality, the Town is C-Ly5-Maros re.�
reserving the remaining sewer capacity for projects that can be
�a
served with better quality water at higher pressures. ;��
44
Water Supply
• WFER
Estimated Days
%Remaining Streamflow Channel Remaining Remaining with
Mean Total Storage Unusable Usable Storage Useable Current Average Augmentation Loss Lake Orange Days of 20%
Condition Depth Elevation al Storage al al Storage al Daily Use d d Multiplier Supplement d Storage Evaporation
Phase 2 53 643 1,829,157,124 7,692,649 1,821,464,475 100% 1,700,000 650,000 1.2 516.73
Full
• Jordan Lake Allocation (1 MGD)
45
Water Quality
Figure 4.4.Potential Growth Areas
cvrem�mm seize aomwarruma ` ___ .
• Water service area reduced to
decrease the distance from the
I
Town's water plant
• The Urban Service Boundary
was adjusted most significantly
p- on the eastern side of the
N b system, the water plant is on
the western edge of the Town s
p ; service area.
t .
—.1 growth
significant water antl sewer syst¢m
Improvements depmding-type of -
landusepmposedandayallableflow
and capaoryoftheeycte,
.
so�.re:me r w�o/wusno,o�8n
46
Water Quality
• The further water gets from our water
® A -
treatment plant, the longer it sits in the - Mom ......
gin..... .
pipes and tanks nn Fl.,p°
A w.e.aw� -,.�aR�., n•�i
77°r- i
C U
• Water age affects water quality. Older
water has lower chlorine and increase risk '�" W.WAV
ruo;�;..:.. Nnrrewiwn:«.
of developing disinfection byproducts F 10
E F
Amvwrna'- Nmwnw-
Town changes disinfection process and
flushes annually to address water quality, - C °
but the volume of water required is
significant Figure taken from Nitrification in Premise Plumbing:A Review,Bradley,Hass,Sales.Water
Quality in buildings,2020.ammonia-oxidizing bacteria(AOB),Nitrobacter(NOB)
47
Topography
• The Town's water system is � C
divided into three pressure zones. �
These zones are defined the
elevation of the water tank that
serves them
• The north zone's tank is at an
elevation of 814'. There are
isolated areas in this zone that are
over 700' in elevation. These � l
areas would likely not have
enough pressure. `'
48
Wastewater Plant
Wastewater Plant Daily Flows
5
4.5 �* • ♦ • -
4 • •
3.5 •� �� • •
i • • • • • . 2019 AVG
3 '
�_ •► • • • 2024 AVG
2.5 �� •S • •
♦. .♦ •• •• • • • • •• •■ 2019 MAX
2 • • • •• • • i6 •■ 2024 MAX
1.5 �• 9' • • • • • . �� -Max Hydraulic Capacity
1 • • �
0.5
0
Jan Feb Mar Apr May June July Aug Sept Oct Nov Dec
49
Future Wastewater Flow Projection
Hillsborough Wastewater Average Annual Daily Flow
Million Gallons per Day
3
WWTP Rated Capacit
6sellne-
:21g :gzo xw6 Cone of uncertainty
Average Average Average
2 5 wily Deily 2022 Average 2030 Average Gaily
Flow Flow Deily Flow DeII= Flow
Flow MGD MGD MGG MGG MGD
Nm Col-Iftol NB NIA 0.m 0.36 0.02 0.00
Development Flow Role
Committed New NIA 0,19 0.3e 0,02 0.01
2 Oevelopmenl Flow R.I.
Total New Developmept
Flow Reb(Not Proposed NIA 0.30 0.72 0,04 0.01
Incree..)
Tool W WTP Flow Rate
(Gumulativel IAS 1.M 2.16 L20 2.21
1.5
Trendlin
1
Past 16years of historical data averages an annual
increase of 2.4%in average daily hydraulic flow.
0.5
0
00 01 O -1 N M V to ID r\ 00 0) O -1 N M V Ln l0 n 00 M O -1 N M RT In 10 n 00 01 O
O O -1 ci -1 -1 ci -1 -1 -1 -1 -1 N N N N N N N N N N M M M M M M M M M M RT
O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O O
N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N N
50
Nutrient Limitations
• Falls Lake Rules
• Town wastewater permit limits pounds of nitrogen and phosphorus
discharged annually
• No concentration permit limit for these but measured in mg/L and converted to pounds
• Nitrogen is of main concern
• Found in organic waste (i.e., mostly human and food sources)
• Limited to 10,422 lbs. per year
• Used 68% in 2024
• Noticeable increase in 2023 and 2024
51
Capacity Takeaway
Utilities Staff Concerns in Priority
Order
1. Collection system
2. Distribution system
3. Nutrient wastewater limits
4. Water treatment process
limits
5. Water storage/fire protection
SUPPLY WTP DIST COLL WWTP
6. Water supply
52
Figure 4.4.Potential Growth Areas
Sewer Capacity Connection to Land Use Plans
The Town's Comprehensive Sustainability Plan t
recommendations: is
• Reduction of the Urban Service Boundary to
prevent/reduce sprawl and encourage ro -
consolidated infrastructure and easier
system maintenance. This will impact the -
WASAMPBA agreement and necessitate updates.
• Adjusting the UDO during the re-write to include ,
by-right he
through zoning for smaller lot ` M
sizes, more density, and varied housing types to
focus growth within town limits and encourage q;
contiguous annexation --
a
• gnfAcantt waW and sewer systelm
Future alignment of the FLUM with Fig. 4.4 improvementsdependmgn„type„t ,
(Potential Growth Areas) This will impact the land usepmp„seeayateallableflow
and capacity„f[nesystem. r, A
COCA agreement and JPA with Hillsborough and 5-:� T.-fH➢Ab—gh {7
Orange County. This may also impact established
EDD areas.
53
Figure 6J.Volume and Congestion Map—Triangle Regional Model
Sewer Capacity Connection to Land Use PlansI 11a11ipal6ountlary ,-
ExhatelAtWalJueWklion --I
(cont. ) 2050 Total Volume
Congestion
Colp al Feature=Cangest-
The Town's Comprehensive Sustainability Plan 00 8 G,
recommendations:
laUNs•Mn,al Average DaIN Trafll[
L0 JZDD
Not concentrating density or large development ° `�` o N '�
projects north of US HWY 70 due to r
transportation impacts on the Churton Streets DD
corridor
Already con ested intersections projected to
continue to be congested based on the 2050Po
regional model include: $1 $
- N Churton Street and US HWY 70 lNC 86 N 17
°°^°S '�
1- 25(9 `
- S Churton Street and US HWY 70A 6 N7
Develop and maintain a safe, efficient, and
sustainable multimodal transportation system - �
(including bicycle, pedestrian, and transit -- $
options) that offers alternatives to single-
occupancy vehicle trips and promotes health and
3
access to jobs, destinations, and services in town.
wore::orhm chapelNil!-carrboro merapafltan aann;g oTnniza-
61]
54
Communicating About New Projects with Developers
• There is limited capacity for development projects that will use a large
amount of water/sewer, at this time, especially those outside of town limits
or non-contiguous to town limits
• Utilities will evaluate potential available capacity for projects at the pre-
development meeting, but capacity is not guaranteed until a Water and
Sewer Extension Contract is executed (construction drawings)
• There are options for developer cost sharing and/or modifying scheduled
water/sewer improvements to keep pace with development demand
through conditional zoning and development agreements with developers
• Properties that want to develop immediately, located on the edges of town
or outside of town may look to evaluate cost/benefit of developing in the
County with traditional large lot well/septic vs. annexation into the town
55
Financial Constraints
Population v.Employee Growth 2004-2025
Water&Sewer Operations
90Rb
80% —
70%
60%
• High utility bills, particularly for out-of- 500A
40R5
town customers 304
20%
10%
ow
-ILo% Oho-O�h 0�6 Off^O�� 6--Off' O
• Tight operating ratios — cost of operations -20RG" " " " " " " " " " " " " " " "
and debt service increasing faster than —EmPtoYee� ��.ease —PoP��to���«ease
revenues
Debt Service Coverage
4.00 —
3.50
• Significant CIP needs - $50m by FY32 — 3.M
not including any plant upgrades 200
L50
LOD
0.50
• Adding significant customers may increase 0.00 2026 2027 2028 2029 2M 2031
revenues, but also increases need for —De bt Service Coverage
system improvements —Rev.Bond Debt Service Coverage w/SDF Revenues-15%Unrestri{ted Net Position
—Minimum DSC
56
Orange County Land Use Plan updates & how we can align
• In order for the County to align with the Town's growth strategy, areas
outside of the Town's new recommended Urban Service Boundary should
remain zoned and planned for as agricultural and/or rural residential with a
focus on agricultural uses and large lot (1 ac +) subdivisions that can be
served with traditional well and septic systems
• Density and large development projects should be encouraged within the
municipality and not out in the County, where traffic generation and private
sewer systems may cause operational issues within the town
• Expansion of existing commercial nodes between municipalities, in the
County, that can be destinations connected with future greenways and
transit stops (example: Blackwood, Calvander)
57
Land Use Planning and
Water & Sewer Capacity
Update
BOCC Presentation on Orange County Draft Land Use Plan
October 141 2025
III
TOWN OF
HILLSBOROUGH
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ORANGE COUNTY
NORTH GAROLINA
Board Feedback on Meeting Facilitation
Consultant
True North Performance • • Central Pines 59
Introduction, Review, and Research Preparation
• Meetings with staff • Review key documents
• Review key materials • Individual meetings with Commissioners
• Attend Nov 11 to introduce role and • Attend Nov 14
process
• Attend Nov 14
Nov 21 Retreat Facilitation Nov 21 Retreat Facilitation
• Tailored agenda, facilitation guide, and • Structure facilitation
tools • Facilitate to find consensus and identify
• Facilitate to build consensus to advance next steps for Plan development
Plan to community engagement
Deliverables Wrap-Up
• Written summary with key decisions and • Written summary report that highlights
next steps discussion and action items
• Consultation with staff and key • Meet with staff to review report
stakeholders to align priorities, clarify
follow-up actions, and ensure readiness for
community engagement
Key Staff Key Staff
Rebecca Jackson, CEO, Project Lead and Alana Keegan, Local Government Services
Facilitator Director, Project Lead and Facilitator; and
Chris Lawson, Senior Planner
Proposed Cost: $10,000 Proposed Cost: $7,500
60
Questions / Discussion
ORANGE COUNTY
NORTH CAROLINA