HomeMy WebLinkAboutMinutes 03-19-2026-Joint Meting with Mebane 1
APPROVED 4/21/26
MINUTES
ORANGE COUNTY BOARD OF COMMISSIONERS
MEBANE CITY COUNCIL
JOINT MEETING
March 19, 2026
7:00 p.m.
The Orange County Board of Commissioners met for a joint meeting with the Mebane City Council on
Thursday, March 19, 2026 at 7:00 p.m. at the Whiffed Human Services Center in Hillsborough, NC.
COUNTY COMMISSIONERS PRESENT: Chair Jean Hamilton, Vice-Chair Amy Fowler, and Commissioners
Jamezetta Bedford, Sally Greene, Earl McKee, and Phyllis Portie-Ascott
COUNTY COMMISSIONERS ABSENT: Commissioner Marilyn Carter
COUNTY ATTORNEYS PRESENT: John Roberts
COUNTY STAFF PRESENT: County Manager Travis Myren, Deputy County Manager Caitlin Fenhagen, and
Clerk to the Board Laura Jensen. (All other staff members will be identified appropriately below)
MEBANE CITY COUNCIL MEMBERS PRESENT: Mayor Ed Hooks, Mayor Pro Tern Tim Bradley, and Council
Members Katie Burkholder, Sean Ewing, Montrena Hadley, and Jonathan White
MEBANE CITY COUNCIL MEMBERS ABSENT:
CITY OF MEBANE STAFF PRESENT: City Manager Richard White III and Assistant City Manager Preston
Mitchell (All other staff members will be identified appropriately below)
Chair Hamilton and Mayor Hooks called the meeting to order at 7:00 p.m.
Chair Hamilton noted that Commissioner Carter would not be in attendance. She invited the
Mebane City Council Members, Orange County Board of Commissioners, and staff to introduce
themselves.
Chair Hamilton and Mayor Hooks welcomed everyone to the meeting.Chair Hamilton emphasized
the importance of collaboration given current fiscal challenges.
Mayor Hooks said Mebane is honored to meet with the Board and acknowledged that both
jurisdictions have a lot going on, but have the right people in the right place to make things happen.
1. City of Mebane and Orange County Comprehensive Land Use Plan Updates
The City of Mebane adopted its 2045 Comprehensive Plan in December 2025. Orange County has
been engaged in the process of developing its 2050 Land Use Plan since 2023.Approximately 30%
of Mebane's incorporated area and just under half of Mebane's "Planning Area" lies in Orange
County.
Much of the City's Planning Area in Orange County is not currently served by utilities and remains
in Orange County's planning jurisdiction for zoning, permitting, and environmental regulation.
Staff have communicated about identifying similar "Development Activity Centers" or "Activity
Nodes" on their respective Future Land Use Maps (FLUMs). Both FLUMs generally share a
common vision of the areas around Mebane's incorporated limits in Orange County: lower density
residential or agricultural land uses, with the exception of the Buckhorn Economic Development
District (BEDD). Orange County is proposing"conservation subdivisions" in proximity to the city's
extraterritorial jurisdiction that would allow for smaller lots in exchange for larger dedications of
open space surrounding a development. Mebane's adopted FLUM is available at this interactive
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link: https://cityofinebanenc.gov/2045-flum/ and within Attachment 1a; Orange County's draft
FLUM is shown in Attachment 1b.
Historically, Mebane and Orange County collaborated on planning forthe BEDD,investing in utility
extension and joint land use planning for this area.These utilities were originally constructed by
Orange County using federal grants and Article 46 tax funds and are now owned and operated by
City of Mebane. Mebane's connection policies require that a petition for voluntary annexation be
filed with the City in order to receive municipal water and sewer service, often placing newer
developments within the City's zoning authority.
Ashley Ownbey, City of Mebane Development Director, began the following presentation:
Slide#1
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The Planning Area
+` Mebane Corporate Limits
$ � Mebane Extraterritorial Jurisdiction
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Area of Interest for the Comprehensive Plan
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Full Planning Area for the Comprehensive Plan
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[139 \ Major Road/Streets in and Around Mebane
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Ashley Ownbey said that Mebane started the process of adopting a new comprehensive plan in
July 2024, updating their previous plan from May 2017. The city established a community advisory
committee and involved the public throughout approximately a year of drafting.She said the planning area
was based on Mebane's long-range utility plan, which the city council had accepted in July 2024. This
represented an expanded area from the 2017 plan, showing where utilities could potentially be extended
rather than where they currently existed. Ashley Ownbey noted that the city limits had changed since
planning efforts began in September 2024, and she highlighted the extraterritorial jurisdiction shown in
green on the map.
3
Slide#2
Goals & Objectives
Goal#1-Vibrant downtown Goal#6:Welcoming and inclusive
4 community
8 Goal#2:Safe,walkable,and ��I Goal 47:Flourishing and innovative
bikeable streets local businesses
® Goal#3:Protected natural areas Goal#8:Sustainable and dependable
infrastructure
Goal#4. Celebrated cultural history V Goal#9•Range of community services
and community character
Goal#5:Plentiful recreation Goal#10:Abundant and affordable
housing choices
t• . _ L L
Ashley Ownbey shared that Mebane conducted three public forums during the process, with
surveys and additional community participation opportunities following each forum. These efforts
resulted in ten goals, including creating a vibrant downtown, supporting flourishing innovative local
businesses,and providing abundant and affordable housing choices. Each goal included specific objectives
and implementation projects envisioned over the plan's 20-year timeframe, which the city council had
reviewed in detail during a work session.
Slide#3
Future Land Use Map
This scenario prioritizes compact growth,connected vibrant centers,
reuse over sprawl,preservation of natural and rural lands,and
people-focused design.
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Mui[Ifemily eeaitlemlel EurN CneereeEaS � m��,�tna•
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• The place types"shown on the map are descdbed in the suhs..Dun that �L, •¢,. l
follows the map. 111
• The uses associated with each are the predominant uses.Other uses,though
not fisted in the piece type description,maybe compatible and appropriate. r
• Some areas on the map reflect what currently exists today,some are more
aspiratienal in nature,and others are a mix of what exists today and what could
be in the future I
• Anychanges in the currentdeveiopment pattern would be the resuttof
individual property owners choosing to make a change. a.•«b.ca.MY ���
MEBANE 2045 •
4
Ashley Ownbey explained that the 10 goals drove the creation of the future land use map, which
was amended on March 9th with a small parcel change in western Alamance County.The place types were
categorized as functional, open space, residential, mixed use, and commercial and employment. She
explained that three different scenarios had been presented to the public before arriving at the final
combination approach.
Commissioner Bedford asked what Mebane's primary water source is.
Ashley Ownbey said Mebane's water comes from the Graham-Mebane Lake.
Ashley Ownbey noted that most of Mebane's downtown was in Alamance County, while the city
worked to connect different neighborhoods to downtown and parks, with Lake Michael being the most
prominent park in Orange County. The plan was adopted by city council in December 2025 and recently
amended in relation to a rezoning case.
Cy Stober, Orange County Planning and Zoning Director, began the following presentation:
Slide#1
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Cy Stober noted his supervision of inspections, planning and zoning, long-range planning, and
significantly, the erosion control division, which was delegated by the state to provide erosion control
regulations throughout the county, including within Mebane.
5
Slide#2
Project Timeline
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Phase 1� Phase 2: Phase 3:
Launch Identify New Evaluate
Project Issues and Planning
Opportunities
Inftuences
Surnil�e, -.�zo2s Fauzo2s
2023 � - to winter
2024 2024
Community Engagement Window#1: Community Engagement Window 82:
Confirming Community Aspirations Testing the Conservation and Growth Framework COMPLETE]_
[COMPLETE] Community Engagement Window It3:
Unveiling of Draft Plan
PUBLIC ENGAGEMENT
Cy Stober explained that Orange County began its land use plan effort in summer-fall 2023,
contracting with Clarion Associates out of Chapel Hill. This represented the county's first land use plan
since 2008, nearly 20 years later, reflecting changing county dynamics. He emphasized that Mebane was
Orange County's smallest municipality by population but fastest growing, at nearly 10% annually,
compared to Chapel Hill's approximately 5%growth rate.
Cy Stober noted that the county had completed two public engagement windows,in October 2023
and September 2024,which informed a drafted plan presented to commissioners in March 2025. However,
the commissioners requested additional information on provocative ideas in the plan, including
community septic systems and the county's 13 different water supply watersheds. Phases four and five are
paused while staff addressed 17 different topics over the past year.
Slide#3
tVision
Continue to Protect Critical
Watershed Areas and Open
Spaces and Preserve
Agricultural Lands
r SUSTAINABLECULTIVATE
DEVELOPMENT
OpportunitiesAdvance Implement
DevelopmentI Attainable,Equitable Transportation
Housing and Systems and Economu&,
Employment
Initiatives A
6
Slide#4
1. Agriculture, Working Lands, and Open Spaces
2. Community Equity
3. Economy and Employment
4. Environment, Parks, Recreation
5. Housing Attainability
6. Regional and Local Growth
7. Resiliency
8. Services and Community Facilities
9. Transportation and Mobility
Cy Stober noted that several of these goals are in alignment with Mebane's goals.
Slide#5
- Land Use Plan Status&Purpose Recap Staff
September&October WASMPBA&Joint Planning Agreement Staff
(Rural Buffer)
Watershed Regulations Staff
Hillsborough Utilities Town Management&Utilities
Rural Activity Nodes Staff
November(Retreat) Community Septic&Wastewater Treatment Tony Whitaker,P.E.,Board of Health
Groundwater Resources C.J.Comette,PG,Applied Resource
Management,PC
Conservation Subdivisions Randall Arendt
r Demographic Update&Housing Gap Staff
Discussion
March 21(Retreat) Housing Markets&Affordability Yonah Freemark,Urban Institute Marc
OWA5A Utilities OAWASA Staff
Affordable Housing Roundtable Affordable Housing Partners,Chambers,
and County
r Discussion of Draft Plan Recommended Commissioners&Staff
Actions
7
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The draft future land use map included rural activity nodes, which Cy Stober compared to
Mebane's development centers, suggesting areas of potential alignment or shared visions.
8
Slide#8
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Cy Stober noted that Orange County currently had more areas identified for economic
development than Mebane's map showed, requiring coordination to ensure both jurisdictions are
promoting the same sites to businesses.
Slide#9
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Cy Stober described rural conservation neighborhoods, which would allow the same number of
housing units on smaller lots with more open space protection.This concept would move from traditional
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one-acre lots to half-acre or smaller lots while doubling or tripling open space and agricultural land
protection. Stober acknowledged this was "a tough trade off" and "a tough question" for commissioners
and the public, involving the same net stormwater impacts, density, and school demand but with more
open space protection.
Cy Stober posed the question to the Mebane City Council: is this the type of growth you want to
see around the city?
Slide#10
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Uses the Highest and
Higher priority areas °
identified in the Eno- � `z
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Conservation Plan
Katie Burkholder asked if conservation subdivisions are being used in other areas of the state and
across the country.
Cy Stober offered to share a 150-slide presentation with examples from Randall Arendt, author of
"Rural by Design," who spoke to the Board about conservation subdivisions and related wastewater
treatment considerations. He noted that the most useful examples came from the Midwest, New England,
and Mid-Atlantic regions rather than west of the Mississippi River. He mentioned examples in North
Carolina from Chatham and Durham counties, with Hard Scrabble Plantation being a notable Durham
example.
Councilmember Sean Ewing asked about the municipal transition areas on the map.
Cy Stober said those areas are specific to the Joint Planning Agreement (JPA) with Carrboro and
Chapel Hill, related to the rural buffer and Carrboro's infill goals.
Councilmember Jonathan White asked about countywide growth trends.
Cy Stober said Mebane constitutes just under 20%, Chapel Hill 60%, Hillsborough is 15-20%, and
Carrboro 2%. He said Mebane represents single-family housing approvals,whereas multifamily housing is
dominant in Chapel Hill/Carrboro.
Vice-Chair Fowler asked if Mebane City Council has any comments.
Mayor Hooks described a recent development that seemed similar to a conservation subdivision
that the Mebane City Council denied because the surrounding neighbors wanted larger lots. He asked for
clarification on whether the Board would like to see more dense development.
10
Cy Stober clarified that yellow areas on the map represented conventional subdivision patterns
(one-acre lots) but acknowledged these were areas that could potentially see different development
patterns with city services through annexation.
Mayor Hooks asked the Mebane City Manager to comment on the industrial goals for Buckhorn.
Preston Mitchell, Mebane Assistant City Manager, started by thanking Travis Myren and Orange
County's Economic Development staff for their efforts and work in recruiting business. He reported
significant activity in the Buckhorn Economic Development Zone, including announced projects and
substantial spec industrial building development. Some developers are taking a "paper spec" approach,
obtaining approvals but waiting fortenants before construction. Recent expansions included ABB and AKG,
while Medline had expanded to use all their facility space, possibly relocating another North Carolina
facility there without additional incentives.Over approximately five years, Preston Mitchell reported about
7 million square feet of industrial construction was approved, with the majority currently under
construction in the Buckhorn Economic Development District. He said having existing buildings made a
real difference on landing an industry that brings jobs and investment.
Commissioner Fowler asked about data centers, noting that the county is working on data center
moratorium.
Preston Mitchell responded that no one has contacted Mebane about data centers in their
jurisdiction. He emphasized that Mebane preferred industries that produced jobs and investment without
significantly impacting utility infrastructure, noting that the Buckhorn zone, specifically, is geared toward
lower utility users.
Ashley Ownbey explained that Mebane's Unified Development Ordinance has two industrial
zoning districts: light manufacturing (where data centers required special use permits) and heavy
manufacturing (where they were permitted by right). Most Buckhorn zoning is light manufacturing, often
with conditional zoning requiring public processes and site-specific conditions.
Mayor Pro Tern asked about Orange County's perspective on the one-acre versus smaller lots
concept, and whether the county supported Chapel Hill's multifamily development approach.
Cy Stober said from a county planning perspective, he didn't have strong opinions on municipal
matters, but noted the county's affordability concerns. He explained that Orange County faced both price
point issues and volume shortages across all price ranges,resulting from design choices like the rural buffer
and poor soils in Northern Orange County limiting septic capacity. He noted that multifamily development
brought retirees and young adults to the community, adding vibrancy and sales tax base benefits.
Councilmember Tim Bradley asked for more information on the activity node on Efland-Cedar
Grove Rd.
Cy Stober said the activity node is right at McAdams Farm, but that the map is a draft and subject
to change as needed. He expressed preference for sharing visions with municipalities on such issues.
Commissioner McKee emphasized the importance of detailed conversations between the boards,
predicting that Mebane would no longer be Orange County's smallest municipality within a few years as it
approached Hillsborough and Carrboro in size and population. He advocated for maintaining diversity in
housing types rather than focusing on one or two options. He expressed appreciation for Mebane's
assistance with economic development, stating that without Mebane, nothing would be happening on I-
85 in that area.
Commissioner Portie-Ascott asked about Mebane's definition of "abundant and affordable
housing choices."
Preston Mitchell acknowledged that definitions were relative to individual situations and would
differ between Mebane and Chapel Hill.
Ashley Ownbey explained that the comprehensive plan didn't specify income level details but
focused on expanding housing types to increase affordability options. A housing consultant study had
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found that owned homes were generally affordable in Mebane compared to the region, but rental units
were lacking, leading to objectives about exploring rental options.
Going back to conservation subdivisions, Chair Hamilton asked about conservation subdivisions,
wanting to understand whether Mebane's single-family growth included more open space or just smaller,
denser units.
Mayor Hooks explained that Mebane requires certain percentages of open space and green space,
with developers creating R-6 and R-8 developments with multiple houses per acre plus, green space,
walking trails,and recreational amenities. He said there is more bang for the buck with housing in Mebane.
He again referenced a recent subdivision Mebane denied where neighbors on one- to three-acre lots
objected to dense development with greenways, illustrating the challenges they faced in balancing
different community preferences.
Chair Hamilton said it is interesting to hear about the pushback as well. She said there are people
in Orange County that want to maintain rural areas.She asked if the required open space is also accessible
to others.
Mayor Hooks said staff makes sure that there is connectivity built into the proposed plans.
Councilmember Katie Burkholder mentioned the Saddle Club development as an example, which
features cluster housing with soccer fields for the city's recreation program, sidewalk access, and entry-
level housing options that aligned with their bike and pedestrian master plan and recreation master plan.
Commissioner Bedford asked if these developments have water and sewer. She said the cluster
subdivisions the county learned about was more of an option when those utilities were not available. She
appreciated Mebane's focus on economic development for water and sewer infrastructure,and suggested
that the potential elementary school location might provide opportunities for family housing, whereas
previously the county had requested focus on economic development due to precious water and sewer
resources.
Commissioner McKee asked about price escalation in Mebane, referencing his observations of
Chapel Hill, Carrboro, and Hillsborough becoming unaffordable for workforce residents over 50 years.
Mayor Hooks acknowledged that land prices were rising,citing an 80%average increase in the last
tax revaluation in Alamance County. He noted constraints from limited remaining land, multi-generational
families selling to developers, and requirements for developers to connect to water and sewer at their
expense. Despite rising costs, he maintained that Mebane remained more affordable than Orange and
Guilford counties.
Commissioner McKee confirmed his concern that Mebane was experiencing the same transition
he'd observed in other communities.
Mayor Hooks explained that Mebane limited certificates of occupancy to 400-450 houses per year
to manage growth,though they could potentially approve twice or three times that number.
Commissioner McKee predicted that by 2075, Hillsborough and Mebane might be adjoining
communities, prompting Mayor Hooks to joke about annexing Hillsborough.
Councilmember Sean Ewing observed the"missing middle" housing at$150,000-$350,000, noting
that land prices had increased from $10,000-$15,000 per acre a few years ago to $40,000-$50,000 per
acre on town edges.
Commissioner McKee provided additional context, noting that land he bought in the early 2000s
for$5,000 per acre for residential development had recently sold next door for$28,000 per acre.
Commissioner Greene responded to Commissioner McKee's 50-year projection by emphasizing
that growth patterns were within their control through planning, which was why they were meeting. She
asked about the Saddle Club development's public space arrangement.
Preston Mitchell explained that through conditional district zoning, the developer proposed
donating six acres for a public park instead of traditional private clubhouse amenities. The developer
agreed to construct the park at project completion, including soccer field,playground, bathrooms, parking,
12
and pickleball courts. He noted this represented an evolution from past practices of private amenities
available only to subdivision residents.
Greene clarified the voluntary nature of this arrangement, noting that local government couldn't
demand developers turn over land for public use without negotiation.
Preston Mitchell confirmed this while adding that Mebane had bike and pedestrian plan
requirements for greenways, multi-use paths, and pedestrian networks as allowed by general statutes,
though implementation sometimes required adjustments from original paper plans.
Commissioner Portie-Ascott asked about the number of units in Saddle Club.
Preston Mitchell confirmed there are 110 single-family houses on city water and sewer.
2. Water and Sewer Capacity Opportunities and Limitations—High Level Overview
The City of Mebane provides water services to the businesses located at the Buckhorn Economic
Development District, and many of the residences to its west. The City provides wastewater
services to the BEDD as well as much of the Efland community, a result of previous financial and
capital improvement partnerships between Orange County and Mebane.
As provided in the City of Mebane's Wastewater Collection and Treatment Facility Annual Report
(available by clicking on the following link:
https://citvofinebanenc.gov/documents/2024-2025-annual-wastewater-collection-treatment-
facility-report/):
Every day in Mebane, nearly 1.9 million gallons of wastewater are collected from our
homes, businesses, and industries.This wastewater travels through more than 129 miles
of sewer lines and is carefully treated before being safely returned to our waterways.The
system is funded almost entirely by the monthly user charges paid by our customers.
The City's wastewater system includes more than 6,400 service connections and 21 pump
stations that help move wastewater where gravity alone cannot. To keep the system
reliable,crews also perform regular maintenance,such as cleaning over 12 miles of sewer
lines during the past year.
At the wastewater treatment plant, the City can currently treat up to 2.5 million gallons
per day using a combination of physical, chemical, and biological processes.The heart of
the system is a biological process that uses naturally occurring bacteria to break down
waste and protect water quality. Because Mebane discharges into a small local stream,
the plant must meet some of the most stringent water quality standards in North
Carolina. These high standards apply year-round, even during storms when flows are
much harder to manage.
To meet the needs of our growing community, the City of Mebane is expanding the
wastewater treatment plant.This project will increase treatment capacity from 2.5 million
gallons per day to 4.0 million gallons per day,with construction scheduled for completion
in 2028. The expansion will ensure that Mebane continues to provide safe, reliable, and
environmentally responsible wastewater treatment for years to come.
John Dodson, City of Mebane Water Resources Director, made the following presentation:
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Slide#1
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Slide#2
A. ■
ANE WATER RECOURCE AND
RECOVERY FACILITY (WRRF)
CURRENT UPGRADE AND EXPANSION
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John Dodson explained that the current capacity was 2.5 million gallons while the new facility
would provide 4 million gallons with expansion capability to 6 million. The new facility was scheduled to
come online in late 2027 or early 2028 at approximately $90 million cost and would meet Jordan Lake
requirements.
14
Reading questions from an Orange County Water and Sewer Authority(OWASA) board appointee
who couldn't attend, Commissioner Bedford asked about fluctuation between average minimum and
maximum flow for current and approved projects, how much flow was attributable to stormwater or
infiltration, and the nature of approved projects.
John Dodson explained that current flows were at 1.6 million gallons daily, with normal daily
maximum flows reaching 2 to 2.5 million gallons during midday, and storm flows increasing to 6-7 million
gallons daily. He offered to provide detailed responses via email for technical questions and confirmed that
expansion would accommodate both residential and commercial projects.
Slide#3
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B. PUMP STATIONS
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OPERATIONAL PUMPING CAPACITY 172.80) GRAVELLY HILL PUMP STATION
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OPERATIONAL CAPACITY:115,200GPO
APPROVED FLOW:S9.500GPD OLRPENTuSE:32,DI
PUMP STATUN AND FORCE MAIN REK
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$1 MILLION TO BE LOCALLY FUNDED ADENTIONALCAPALITYTO GE PUMP
STATION-S75GOCIOSEEKIMIS FEDERAL
COMMUNITY DEVELOPMENT f0NPIN-
t AVAILABLE PLOW:34.633 GOD
OPERATIONAL CAPACITY 403,2006PD
Fry: APPROVE D FLOW:16,SOD GPD
CURRENT USE:256,5556PD FUTURE IMPROVEMENTS NONE AT THIS TIME
APPROVED FOCI 313'270CPD
FUTURE IMPROVEMENTS NONE AT THIS TIME
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Kyle Smith, Public Utilities Director for Mebane, presented information about four primary pump
stations serving areas tributary to Orange County.
The GE Pump Station had operational capacity of roughly 173,000 gallons per day,with only 34,000
gallons per day of available capacity remaining after accounting for current and approved flows. Planned
improvements included upsizing the station and force main with new pumps, estimated at$5 million with
anticipated $4 million in federal funding.
The Graveley Hill Pump Station,flowing to the GE station, had 115,000 gallons per day operational
capacity with roughly 35,000 gallons daily available capacity. Plans involved tying this station into the West
Ten Force main connecting to Southeast Regional, which would remove 80,000 gallons per day from GE
Pump Station while increasing GE capacity.This project was estimated between$750,000 and slightly over
$1 million, with federal funding being sought.
The West Ten Pump Station had 400,000 gallons per day operational capacity with 338,000 gallons
daily available capacity, described as "sitting pretty good." The Southeast Regional Pump Station was a
million gallon per day station with roughly 432,000 gallons daily available flow, pumping directly to the
Water Recovery Facility.
15
Slide#4
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GRAVELLY HILL
PROJFCT COST$2M W/NO FUNDING SOURCE IDENTIFIED TO DATE
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Kyle Smith outlined a proposed improvement: extending the 12-inch gravity line to Graveley Hill
pump station across the interstate, which would free up approximately 500 acres north of the 1-40/85
corridor east of Buckhorn, south of the railroad, primarily for economic development and industrial
facilities.This project was estimated at$2 million with no identified funding yet.
Commissioner Bedford asked whether the red line on the map extended gravity feed service area
to Graveley Hill or represented a proposed force main.
Kyle Smith clarified it was gravity service, extending from an existing gravity line behind the
Medline facility toward the former jockey lot location, running under the interstate to serve land on the
other side.
Commissioner Portie-Ascott noted that freeing up 500 acres might enable residential
development near the proposed school, since people liked living near schools.
Kyle Smith said that they would still be limited by Graveley Hill pump station capacity despite
planned upgrades, restricting development to less dense patterns like warehouse space.
Chair Hamilton asked about the goal to build 400-500 homes per year and whether some of that
is based on utility capacity.
Mayor Hooks confirmed this reflected current capacity, noting they could "open a barn door" and
dramatically increase certificates of occupancy once the new wastewater treatment plant was operational.
Chair Hamilton asked for estimates of additional housing units possible after expansion
completion.
Preston Mitchell said Mebane's wastewater capacity policy, designed to prevent "paper flow"
situations where fully permitted subdivisions counted against capacity even if construction took years to
complete.This policy prevented sewer moratoriums experienced by other communities. He said the 400-
unit number came from a Stantec study of their 10-year capital improvement program, determining the
number needed to help pay debt through system development fees from new development rather than
burdening current customers. He noted that plant upgrades would have been required regardless of
expansion due to Jordan Lake rules,so current customers would have seen rate increases anyway. Preston
Mitchell explained that 400 was manageable and helped with debt service, though the number might
16
increase to 450 due to inflation. Many developers approached them about sites outside their comfortable
service area, and they typically provided timeframes for developers to return, with developers usually
returning early.
Chair Hamilton asked whether the 400 number might increase substantially after consultant
discussions.
Preston Mitchell said he didn't anticipate substantial increases beyond inflation adjustments,
though other necessary projects could affect the number.
Chair Hamilton asked about "general services".
Preston Mitchell explained that this included garbage collection, police services, and fire services.
He noted that infrastructure discussions occurred daily or every other day in Mebane, with GIS analysis
determining optimal locations for parks and fire stations, though implementation required willing sellers
at reasonable prices.
3. Proposed New Schools in Mebane-Orange
a) Proposed School Site(s)
As part of the 2024 Bond Projects, Orange County Schools is planning to build a new Elementary
School facility on County owned property next to the existing Soccer.Com Center. The school
district is still in the process of site testing and initial planning for the new elementary school. If
there is sufficient space, the school district plans to place the facility on the 37.79-acre parcel to
the east of the existing Soccer.com facility. In the development process,the county and the school
district will move to have the three continuous parcels of Gravelly Hills Middle School,Soccer.com
Center and the expected Elementary School all annexed by the Town of Mebane.The site plan for
the Elementary School may also recommend making changes to the existing roads that serve the
middle school and the soccer facility to allow for better vehicle stacking during drop off and pick
up, improving traffic flow on West Ten Road.
Kirk Vaughn, Budget Director, reviewed information on the bond, and Orange County Schools'
(OCS) plan to open a new elementary school near Mebane. Through the bond passed by Orange County
residents, both school districts had submitted bond plans,with Orange County Schools'first priority being
a new elementary school facility in the county's western end. The school district selected a location next
to Graveley Hill Middle School and the Orange County soccer.com facility on West Ten Road. Monthly
meetings between school staff, Mebane town staff, and county staff are spent coordinating design
components for the new elementary school.
Kirk Vaughn showed initial concept design maps for the elementary school next to the soccer.com
facility, including suggestions for carpool and bus lanes for both the elementary school and the existing
middle school. He noted they were not far along in the design process, and that this image represented
initial concepts.
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Vice-Chair Fowler asked about concerns regarding roads in riparian buffers or sensitive areas,
noting that the design appeared to avoid such areas while showing what appeared to be lakes or artificial
retention ponds.
Kirk Vaughn acknowledged that while the site was large for an elementary school (needing only
about 16 acres), there are considerable constraints, requiring site testing to ensure sufficient space for
the elementary school.
Councilmember Jonathan White asked what the process is like for a new school construction.
Kirk Vaughn said that the county appropriated design and construction money, but all three
parcels were planned for annexation into Mebane, making it a Mebane planning conversation.
Ashley Ownbey confirmed ongoing annexation discussions, which would require establishing
Mebane zoning. Schools and athletic fields both required special use permits, necessitating three public
hearings related to the school site,triggered by the request to connect to city utilities.
Mayor Hooks emphasized traffic concerns on West Ten Road, stressing the need for turn lanes
and proper planning to avoid parking on road shoulders like some Alamance County schools. He hoped
the planning process would involve DOT through Traffic Impact Analyses.
Mebane City Manager Richard White III pointed out the curvy line on the map's right side,
explaining that it provided stacking space to prevent traffic from backing into the roadway by keeping
vehicles on campus.
Vice-Chair Fowler asked whether elementary school access to the middle school could use back
roads to avoid main road congestion.
Kirk Vaughn confirmed that bus loops for both schools would connect through the same road,
allowing connection through both drop-off zones.
Councilmember Jonathan White asked whether Orange County School Board would meet with
Mebane's planning department and go through Technical Review Committee (TRC) processes like any
other construction
Ashley Owenby confirmed this standard procedure, noting their monthly meetings and recent
sessions with design teams, engineers for traffic studies, and site design.
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Preston Mitchell credited Orange County and Orange County Schools for reaching out very early
in the process, describing their team as "very impressive" and expecting continued quality collaboration.
b) Potential Recreation Considerations
The construction of a new Elementary School at this site will have two impacts on the recreation
options in that part of the county. First and most directly, the use of the land for education will
permanently set the boundaries of the Soccer.com Center, which was previously set to expand.
However, the construction of parking lots for the elementary school will provide additional
parking for soccer events during off-school hours. The County already has a use agreement with
the school district for use of parking during off-school hours. The second impact for recreation
options is still being explored during the school design process. Municipal, County and School
District staff are reviewing the possibility of expanding the gymnasium for the new elementary
school for community and recreational use. Staff are planning a trip to Rashkis Elementary School
to review a prior experience of oversizing an elementary school gymnasium for community uses.
Travis Myren explained that Orange County's school capital funding policy engaged municipalities
regarding recreational facilities and building capacity for recreational facilities in new schools. He asked
Preston Mitchell or Richard White to discuss potential use as a recreation center.
Richard White confirmed discussions about partnership opportunities with the school district for
recreation facilities to expand their programming.They had explored shared gym use, designing facilities
to meet both city and school needs,and had ongoing conversations about appropriate gym size for shared
use.
Sean Ewing said it seems counter-intuitive to him to have a school in the economic development
district.
Preston Mitchell said one of the unique aspects of this property was that it was owned by Orange
County already. He said Mebane staff did encourage the stacking space to give them options, but it doesn't
solve all the school traffic and risks from industrial traffic. He noted that NCDOT said West Ten was
widened and can handle the additional traffic. A traffic impact analysis will have to be done as part of
City's zoning.
Commissioner McKee speculated that most future development would likely occur West back
toward Buckhorn Rd., and should not impact the proposed school.
Tim Bradley asked why the middle school wasn't annexed, the elementary school would be.
Preston Mitchell said there is a partnership opportunity for recreation facilities, and it also
prevents a donut hole in terms of Mebane's zoning jurisdiction, which would otherwise create an issue.
He explained that the benefit to OCS is they get in-city utility rates, and there are density benefits.
Commissioner Bedford said from the school board side, a benefit is having the K-8 campus and
improving parking at the middle school and soccer facility. She emphasized the opportunities of the
shared gym.
Chair Hamilton highlighted the importance of the elementary school being in Mebane because
that is where the population is growing.
c) Potential Emergency Management/Sheltering Considerations
As new public schools and recreational facilities are proposed, the inclusion of features that
improve resilience and support community protective actions during disasters should be
evaluated. The County maintains agreements with the school systems for the use of facilities as
mass care shelters and recommends that all new schools be developed with this in mind. By
incorporating criteria from the American Red Cross, projects can gain the secondary benefit of
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increasing mass care shelter readiness alongside their primary function, allowing facilities to
double as emergency shelters when needed.
Key features that may require intentional consideration are mainly in the electrical and HVAC
systems design.A facility must,at a minimum,include a generator interconnect with an automatic
transfer switch that services lighting, communications, refrigeration,food preparation, and HVAC
servicing the shelter zones. Additionally, Orange County routinely operates co-located pet
sheltering in partnership with Animal Services,which requires at least one separate room or zone
for pets that has sufficient outdoor air exchange and avoids returning shared air to the other
zones.
Other features, such as ADA accessibility, adjacent rooms for medical isolation, staff use, special
populations, and storage, enough restrooms and showers, and a kitchen with cold storage and
food prep equipment, are also necessary; however, newly constructed educational and
recreational facilities typically meet many of these needs in their core designs.
Travis Myren noted that on the county's western side,there is no emergency shelter or warming
center. They had investigated requirements to make the facility capable of serving as an emergency
shelter or warming center for evacuations from either side of the county line.
Kirby Saunders, Director of Emergency Services for Orange County, explained their successful
experience with similar approaches at Smith Middle School, where separate gym facilities could operate
as standalone emergency shelters separate from schools for various reasons, including the importance of
standby generators. He emphasized the importance of separate, redundant, independent power grids
that could operate with temporary generators if school generators failed or weren't equipped. This
separation also prevented interaction with school property,avoiding situations where shelter populations
might access student belongings left behind during school year activations. Kirby Saunders strongly
recommended the consideration of risk factors in any new facility,particularly critical facilities like schools,
especially given the combination of industrial locations with schools. While acknowledging this wasn't
impossible, he stressed caution about hazardous materials in nearby industries and their potential risks.
The greatest county risk, he noted, typically came not from fixed facilities but from unknown materials
transported on interstate highways. While placarded materials were clearly identified, mixed cargo
without placards posed the most concern. He noted that the western Orange County corridor, including
Mebane, showed the county's highest concentration of hazardous material reports. Regarding shelters,
they followed American Red Cross standards for evaluation and design.The key limiting factor for shelters
or warming centers was staffing rather than facility capacity. Orange County currently had capacity to
shelter roughly 3,600 individuals across all locations but couldn't staff that many shelters simultaneously.
Their operations concept relied on Orange County and mass care partners handling the first 72 hours
while mobilizing other resources like the Red Cross and volunteer organizations. However, volunteer
partners could no longer simply be called to open shelters, requiring county staff to take primary
responsibility. Finally, he emphasized that every facility should be equipped and prepared to operate as
an emergency center or shelter when possible.
Councilmember Katie Burkholder asked whether Orange County had heard about tractor-trailers
bypassing weigh stations by using West Ten Road, and whether there were discussions with DOT about
weigh station location or operation.
Kirby Saunders confirmed staying in contact with State Highway Patrol's motor carrier unit
responsible for enforcing DOT regulations, including route enforcement. While not aware of specific
incidents resulting from commercial operators bypassing commercial highways, he had personally
observed such attempts. He noted that interstate travel was usually faster and correct, but diversions
occurred case-by-case. They worked with motor carrier units to better understand interstate transport
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through enforcement operations, stopping vehicles to inventory cargo and using that data to project
assumptions about other traffic,though this wasn't an exact science.
Jonathan White thanked Kirby Saunders for considering these factors ahead of time.
Councilmember Sean Ewing asked if this could also benefit residents in Eastern Alamance.
Kirby Saunders said Orange County generally doesn't turn anyone away from shelters or warming
centers and doesn't check county residency. The only complexity involved transportation coordination,
which could be worked out through collaboration with transportation partners.
Adjournment
Councilmember Sean Ewing expressed appreciation for the meeting, noting it had been several
years since the last joint session,and hoped such meetings would occur more frequently,thanking Orange
County, Mebane staff, and everyone involved.
Mayor Hooks asked if there were other questions from Mebane,and Chair Hamilton asked for any
questions or comments from the Orange County Board of Commissioners.
As there were no further items on the agenda to discuss,the meeting was adjourned at 8:43 p.m.
VOTE: UNANIMOUS
Jean Hamilton, Chair
Recorded by Tara May, Deputy Clerk to the Board
Submitted for approval by Laura Jensen, Clerk to the Board