HomeMy WebLinkAbout1 & 2 - Orange County Land Use Plan 2050 – Board Request for Additional Information ORANGE COUNTY
BOARD OF COMMISSIONERS
ACTION AGENDA ITEM ABSTRACT
Meeting Date: November 21, 2025
Action Agenda
Item No. 1 & 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, Cy Stober, 919-245-2592
Part A Perdita Holtz, 919-245-2578
B. BOCC Request for Additional Information, Tom Altieri, 919-245-2579
Part B
C. Conservation Subdivisions PowerPoint
Presentation by Randall Arendt
PURPOSE: To receive a presentation as response to the Board's request for additional
background information and determine next steps for the Land Use Plan 2050 process.
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 were scheduled for work
sessions on September 9, October 14, and November 11, 2025; half-day retreats were 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.
The presentation (Attachment C) addresses BOCC questions, as follows:
Agenda Item 1 - 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?
Agenda Item 2 — Facilitated Discussion for Identification of Next Steps
Strategic Planning Manager Kelly Guadalupe will facilitate a Board discussion on next steps
including the following questions:
1) What topics/concerns remain to be addressed?
2) What in the current draft of the 2050 Land Use Plan requires deletion, revision, or other
modification in order to be released for public comment that will be incorporated into a
future, revised draft?
3) Discussion of practical timeline to allow staff to coordinate with the consultant on an
amended scope of work and plan for and support Community Engagement Window#3 that
will provide input to be incorporated into a revised draft of the 2050 Land Use Plan.
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
Why does Orange County Need to Update its Land Use Plan? - In North Carolina, local
governments that apply "...zoning regulations... shall adopt and reasonably maintain a
comprehensive plan or land-use plan (G.S. 160D-501(a)). This statute requires that zoning
regulations are "in accordance with a comprehensive plan" and requires that local governments
make statements of consistency when making rezoning decisions on a development application.
The existing Orange County Comprehensive Plan was adopted in November 2008.
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. Fiscal Year 2025-26 Budget Amendment #3, approved at the
October 21, 2025 Business Meeting, included funding for the additional professional services.
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
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 receive the presentation
and provide any comments and questions, as well as providing feedback to staff on next steps.
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.
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?
6
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)
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?
Conservation Subdivision Design :
An excellent way to preserve rural resources
in the Rural Area and in the Rural Buffer
Copyright 2025 by Randall Arendt
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With CSD, there is little correlation
between lot size and lot price.
The smaller lots can either be pricey or not.
Below are small lots with starter houses --
and the next slide shows them with expensive homes .
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Expensive homes like these are on very small lots
in the Westwood Commons CSD north of Detroit.
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An opposing abutter was very concerned about proposed
small-lot houses next-door devaluing his larger-lot home.
But after he saw them built, he decided to join the small-lot
neighborhood with a new driveway from his back yard
to the new cul-de-sac with the pricey homes
-- thereby improving his own property values.
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This is why CSDs are sometimes described
as "golf course developments
without the golf course" —
with neighborhood greens instead of
putting greens,
and greenways instead of fairways .
In fact, CSD canrovide a variety of 19
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housing types and price-points .
At Battle Road Farm in Lincoln, MA
120 homes (40% of which are affordable) are located
on 24 acres at S du/ac, and with 59% open space.
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Conservation Subdivision Design 20
Typically Protects 50-65 % of the land
Much more than either Clustering
or "Flexible Development"
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CSI)s protect at least 50% of the unconstrained land,
PLUS
all of the wetlands, floodplains, and steep slopes.
In contrast,
Flexible Developments are allowed to include ALL
of these unbuildable land types
plus "wet pond" stormwater basins
in meeting their minimum open space requirements.
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The need to require "Yield Plans" is illustrated below,
where not only were there many acres of undevelopable
wetlands, but also parts of the property
that probably could not be accessed
on the other side of the two streams.
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If this parcel were redesigned according to CSD principles
with an appropriate unit count, it would create a useful
comparison between current Flexible Development and
Conservation Subdivision Design.
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To better protect more of the developable land
(such as farmland)
in the rural areas, and in the Rural Buffer,
the County might consider upgrading
Flexible Developments with the better CSD standards,
OR
Replacing the Flexible Development provisions with
those for Conservation Subdivision Design.
A big drawback to Flexible Development is that —
in allowing developers to count unbuildable land as
part of their required minimum open space —
they can satisfy much of that requirement with
wetlands, steep slopes and floodplains —
thereby allowing them to locate houselots on
farmland and other resources needing protection.
IMPO, the Rural Buffer zoning is still too rigid
— even with "Flexible Development" -- and
does not allow the greater flexibility of CSD,
which would enable new developments
at the desired overall two-acre density
to conserve much more land, with smaller lots.
CSDs can help achieve 29
a number of important goals, including
Environmental Resource Protection
Climate Resilience
Farmland Conservation
Housing Attainability
More and Better Wastewater Options
Wastewater treatment can be provided
in a variety of different ways with
Conservation Subdivision Design:
On-lot individual septic drainfields
Off-lot individual .septic drainfields
Off-lot shared drainfields
Better sails
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Six on marginal soil All on better soil
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The CSD approach is well-suited to
Individual Off-Lot Septics
serving smaller lots that enable
substantial open space to be preserved.
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If off-lot septic drainfields need to be located
on the better farmland soil,
the house lots could be located
on other nearby soils,
thereby minimizing farmland loss .
Shared Off-Lot Septics .and Wells
can serve CSDs .
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AN
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Acres Saved with CSD
Towns and Townships
Westborough, MA 448 acres
Westford, MA 650 acres
Hamburg Twp, MI 750 acres
Hopkinton, MA 875acres
Counties
Cherokee County, GA 1 ,374 acres
Waukesha County, WI 1 ,670 acres
Hanover County, VA 5,550 acres
Calvert County, MD 7,765 acres
San Luis Obispo County, CA 9,000 acres
Nationwide Estimate: 100,000 to 180,000 acres
CSI)s have been created in many states in
different regions of the country, including
the Northeast, the MidAtlantic, the South, the
Midwest, the Rockies, the West Coast, and
across Canada.
Such as Maine, Massachusetts, CT, PA, MD,
VA, KY, NC, GA, FL, TX, OH, IL, WI, MN,
CO, CA, and Washington State .
37
Ownership of CSD Open Space
Homeowner Associations
Land Trusts
Counties or Municipalities
38
Permanent Protection
of the Open Space
Through Conservation Easements
held by
Land Trusts
Counties or Municipalities
State or Federal Agencies
39
Management
of the Protected Open Space
Performed by the Open Space Owner
According to a Management Plan
Approved by the County or Municipality
Detailing what needs to be done,
how frequently, and by whom
Conservation Lands in CSDs
have been used
in many different ways :
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Site Visits :
An Essential First St
eF
with Applicants (and abutters)
To Discover and Evaluate
Special Site Features
Site visits are essential because
reviewing a paper plan
without walking the property
is like hiring a person
on the basis of a resume only,
and
with no in-person interview .
These site visits are
informal outdoor Work Sessions
conducted by PB members
(and sometimes by BOCC members too),
advertised in the usual manner,
at which no decisions are made .
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It ' s extremely difficult for officials
to really understand a property
simply by looking at atwo-dimensional
abstraction, like a paper map .
Everyone benefits when they see the land
three-dimensionally, in person.
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collaboratively,
immediately following a site visit —
when impressions and ideas are
fresh in everyone ' s minds .
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I recommend that codes require that
Sketch Plans be created
by Landscape Architects or by
physical planners, and not by engineers,
whose training is mostly in streets and
stormwater.
Let designers do the designing, and
engineers do the engineering.
I ' ve had excellent experiences
involving abutters upfront during
informal site visits —
where they can ask questions and
sometimes provide useful
information .
This kind of public input can be
very helpful
at the critical Sketch Plan stage —
before the expensive "Preliminary Plan"
is engineered.
The following resource examples
can be seen on site walks
and can be protected during the
Sketch Plan design process .
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Four- Step Design Process :
1 Identify Potential Conservation Areas
2 Locate House Sites
3 Connect Homes with Streets
4 Draw in the Lot -Lines
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A quick example drawn by
a municipal planner in
New England to show an
applicant the simplicity of the
CSD process :
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Compare Two .Sketch Plans
(prepared by a LA or Planner)
BEFORE
"Preliminary" Plan is Submitted
121
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Rural CSD Examples
illustrating more and better options
for
Water Supply and Sewage Disposal
Conservation Subdivisions with
Individual Wells and Septics
Fields at Cold Harbor
Hanover County, V-./,
Individual on-lot Wells
and
Individual on-lot Septic Systems
At a Five-acre Overall Density
(25 one-acre lots on 120 acres)
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Conservation Subdivisions
with
Shared Wells and Shared Septics
Indian Walk
Buckingham Twp. , PA
Individual on-lot Wells
and
Shared Central Septic Drainfield
50 acres with ten lots (20 ,000 to 30 ,000 SF)
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Conservation Subdivisions
with
Off-Lot Individual Septic
Strathmore Farm
Madison, cr,-r
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( 1 . 2-acre density)
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Community Septic
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Ipswich, M?
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Chadds Ford Twp., Delaware County, PA
Shared Wells and Shared Septic Drainfields
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219
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Lower Makefield Twp. Bucks County, PA
310 homes on 310 buildable acres
with 108 acres of unbuildable land conserved
Density of one dwelling per buildable acre
Total 208 acres land preserved ( 140 ac. farmland, 68 ac. woodland)
Designed by a Landscape Architect
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Borough of Elversot, t�,
318 homes on 137 acres
Density of 2.3 dwellings per acre
Variety of housing types
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Use mix with shops, offices, and a
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Roughly 33 % o-pen space
neighborhood
corner store Route 23
post office S1
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day care . �---�...�-�Pasture _
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120 dwellings on 24 acres (5 du/ac gross)
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60% are a) Senior and b) Market Rate
59 % Permanent Open Space
Layout is designed like a golf course development,
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(aka Pocket Neighborhoods or Cottage Clusters)
with "Detached Townhouses"
Higher Density Infill
with Central Open Space
Either on shared septics and wells,
or with public water/sewer
Cottages on Greene, East Greenwich, RI4o
An excellent way to ensure that affordable units blend with
market-rate units is to require that they often share the same
two-, three-, or four-family building.
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Single-Family
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Can be also located along streets ,
or
Can surround a "Green"
("Cottage Clusters)
Three Victorian Cottages
built on 100 feet of street.
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along Madison Ave in Winslow, WA
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Idea: On homes built close together,
use clerestory windows (above eye level)
on the side that faces regular windows
on the adjacent house, for privacy.
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SUMMARY
PLAN NUMBER. P07008
BEDROOMS 3
BATHROOMS 2�5
ti'La'eet... ... ..... ..
LEVELS
BLDG. WIDTH 18,081,
BLDG.
BUILDING AREA
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s ■ ! TOTAL LrVING
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PORCH 220.00 S.F.
TOTALBLDG AREA 2 0168,00
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North Boulder, CO
100% Affordable Cottages
14 dwellings on I .4 acres ( 10 du/ac)
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Because CSD is not explicitly discussed
in the 2030 Comp Plan,
the 2050 Plan needs to include it, for the
Rural Area and the Rural Buffer.
In the meantime, a guidance document to
support this approach would be very helpful,
besides updating the UDO .
To sum up ,
CSD protects more land than Flexible Subdivs,
Can be designed to minimize farmland loss,
Can utilize various wastewater options,
Is compatible with "Attainable Housing", and
Is very applicable to the Rural Buffer.
Thank you .
Randall Arendt
rgarendt(a,comcast. net
www. r,� e�nerprospects . com
Copyright Randall Arendt 2025
263
Anotherprovensewa e alternative is
g
"Wastewater Reclamation and Re-Use"
which has performed very well for 28 years in
the large Weatherstone CSD (273 d.u.)
in West Vincent Township, PA
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This well-tested approach
has alsover erformed well foryears,p Y
serving the historic village of Glenmoore
(in Wallace Township, PA, where many old septic
systems had begun to fail) .
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Historical Commissian� res °•, �% mean Betn }
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' Wagenseller Park 0 Generator service
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nmooreWaste• '• r9
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And it has also worked very well at
The Fields of Long Grove (in Long Grove, ILS
over the last 3 6 years
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The Fields of Long Grove
Long Grove, IL
Wastewater Reclamation and Re-use
plus Community Wells, since 1989
87 homes on 300 acres (two-acre density)
About 75% open space
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