Rogers Road Small Area Plan Task Force Final Report. DRAFT Report. January 12, 2009

Transcription

1 Rogers Road Small Area Plan Task Force Final Report DRAFT Report January 12, 2009

2 Study Area Rogers Road Small Area Plan Task Force: Council Member Bill Strom Council Member Mark Kleinschmidt Bonnie Norwood Robert Dowling Susan Levy James Stroud Tom Tucker Ruby Sinreich Laura Wenzel Delores Bailey Neloa Barbee Jones Barbara Hopkins Robert Campbell Timothy Peppers

3 T a b l e o f C o n t e n t s Introduction Development and Infrastructure Concepts Community Design Workshop Task Force Recommendations Implementation

4 B a c k g r o u n d The Rogers Road Small Area Plan Report summarizes the activities and reccomendations of the Chapel Hill rogers Road Task Force.The information included in this report represents work undertaken by the Task Force to identify key issues and prepare a small area plan intended to address those issues. The Report draws from the interim report from June of 2007 (Appendix 1) and the Urban Design Workshop from June of 2008 (Appendix 2). The Rogers Road Task Force was created by the Chapel Hill Town Council on December 4th, 2006 and held its intitial meeting in February of In establishing the Rogers Road Task Force, the Council identified the following topics to be addressed. Desirable Land Uses and a Revision to the Land Use Plan Water and Sewer Extension Plan Roadway Network Bicycle and Pedestrian Facilities Plan At the initial meetings of the Task Force, members reviewed background information about existing conditions and infrastructure within and near the study area in order to establish a vision for the future. The Task Force met a total of six times between February 15, 2007 and the submission of an interim report to the Town Council on June 21, Subsequent meetings of the Task Force included two consultant-led workshops with the Rogers Road Urban Design Assitance Team during the summer of The workshops produced a draft land use plan and recommendations for policies to support the proposed land use. Final meetings of the Task Force focused on gathering feedback for the consultant s work and reviewing a range of implementation strategies. This report begins with a review of background information about the study area. The following sections detail information presented to the Task Force about concepts for new development and infrastructure in the area. The last sections include the final recommendations of the Task Force and the suggested course for implementation of the Rogers Road Small Area Plan. Transit Service Plan Zoning Ordinance and Map Amendment

5 Rogers Road Small Area Plan Task Force Timeline Joint Planning Agreement between Chapel Hill, Carrboro, and Orange County for Greene and Neville Tracts 1987 Petition to Council to initiate asmall area plan for Rogers Road Community May Carrboro and Orange County appoint officials to serve as members of the Task Force. Summer 2006 Resolution /R-15 sets a schedule Small Area Plan process and composition of the task force Dec First meeting of the Rogers Road Small Area Plan Task Force Feb The town partnered with the Durham Area Design Group. The Rogers Road Urban Design Assistance Team facilitated a planning workshop on June June Final draft reports by the Design Assistance Team are completed and available for comment. Oct Habitat for Humanity submitted concept plan for the Rusch Hollow Subdivision April 2002 Council resolution appoints Bill Strom and Mark Klienschmidt as representitaves for the creation of a small area plan for the Rogers Road area, including the Greene Tract Jan Preliminary staff discussions Summer/Fall 2006 Town Sponsered Rogers Road open house at Faith Tabernacle Oasis of Love Dec Interim Report to Council -Council refers to Carrboro and Orange County June The Design Assistance Team presented the Task Force three plans which emerged from the June workshop, emphasizing common elements of each design July Task Force meeting to review and comment on the Town Staff s suggested course for implementation December Guiding Principles Endorsed by the Task Force - June Provide alternative road access into and out of the neighborhood - Improve transportation access through all modes - Manage existing and through traffic - Maintain affordable living to current residents - Preserve the environment and cultural heritage of the study area - Foster a sense of community amongst the residents Encourage rehabilitation of declining residential properties - Encourage a full range of services for existing and future residents - Don t leave the existing residents behind - Provide utilities to meet community needs - Encourage well built, affordable, smaller homes - Improve the standard of facilities for the community

6 L o c a t i o n The Rogers Road study area is located in Orange County northwest of the Town limits of the Town of Chapel Hill; it also borders the northeastern border of Carrboro.(Figure 1) It is also located in the Chapel Hill Transition Area, which includes areas planned to become part of the Town of Chapel Hill. The Transition Areas of Chapel Hill and the Town of Carrboro were established with Orange County in 1987 though the Joint Planning Agreement. (Figure 2) The Town of Chapel Hill Comprehensive Plan, a long range plan for future development of the Town reflects the Joint Planning Agreement and identifies an Urban Services Boundary. This boundary defines the future town limits in which it is intended that the Town will grow and provide typical urban services. The Rogers Road study area is located within the Urban Services Boundary. The Rogers Road study area is approximately 330 acres. It is bounded by the Norfolk and Southern Railroad to the east, the existing residential neighborhood of Billabong Road and Homestead Place to the south, Rogers Road to the west, and the Orange County Landfill to the north. Almost half of the study area (164 acres) consists of the jointly owned Greene Tract. Approximately 60 acres was deeded exclusively to Orange County pursuant to the 1999 interlocal Agreement for Soild Waste Management. The remaining 104 acres is jointly owned by Orange County, the Town of Chapel Hill and the Town of Carrboro. The Greene Tract was originally purchased in 1984 as a potential Figure 1 - Study Area

7 L o c a t i o n future landfill. It is located south east of the existing Orange County landfill. A concept plan prepared by a Greene Tract Workgroup¹ was approved by the joint owners in late The concept plan identifies that 18.1 acres of the jointly owned portion will be developed for housing and the remaining acres of the jointly owned portion will be preserved and managed as open space (See Figure 1 - Study Area). The remaining portion of the study area consists of approximately 80 lots and tracts in the Historic Rogers Road Neighborhood. The properties are primarily accessed via Purefoy Drive off Rogers Road. Left Blank Intentionally ¹ The Greene Tract Work Group was comprised of staff and elected officials. They met in 2002 to determine the ultimate use for the remaining 109 acres of the of the Greene Tract and to discuss the disposition of the property. The decided that the three public purposes of of open space, affordable housing, and recreation were the uses to be be programmed for these 109 acres.

8 Aerial Image of Rogers Road Area I-40 Eubanks Rd. Orange County Landfill Weaver Dairy Ext. Neville Tract Area of Focus Rogers Rd. Greene Tract Sandburg Chapel Hill Chapel Hill Merin Carrboro Carrrboro Billabong Homestead Rd. N 1 / 2 M i l e Rogers Road Study Area: Aerial Imagery

9 D e v e l o p m e n t a n d I n f r a s t r u c t u r e C o n c e p t s The early meetings of the Task Force addressed the manner in which new infrastructure such as sanitary sewer and additional road access could be provided in association with new developments, particularly on the Greene Tract. The Task Force also developed a set of guiding principles and recommendations. C o n c e p t s f o r S e w e r E x t e n s i o n Most of the Rogers Road study area is served with water from OWASA. Water lines extend eastward from Rogers Road. OWASA sanitary sewer has been extended into the southwestern part of the study area. OWASA policy is that to work best sewers need to run downhill so that wastewater will flow using gravity rather than being pumped mechanically. Pumps are not desirable because they may fail during storms and they involve operating costs for electricity and maintenance. In March 2007, OWASA staff presented a conceptual layout of a sanitary sewer network that could provide service to existing lots within the Rogers Road study area. The conceptual layout identifies new lines that would need to be constructed and an existing line extended to provide a gravity sanitary sewer service to existing lots. Topography in the study area indicates that portions of the study area would best be served with gravity sewer falling in different directions from the study area. This includes extending the existing line from the south west, a new line to Eubanks Road in the north east and a new line to the west which could be provided in cooperation with the Town of Carrboro. Figure 2 on page 8 is a map showing a conceptual sewer network plan to serve most of the existing lots in the study area. There is one concept for the Rogers Road study area with two versions ( A and B). Both rely on the extension of sewer mains into the northeastern territory of Carrboro. They differ in that Concept A serves the Neville Tract and the adjoining 24 acre Harris property from a new line to the north that ties onto the extension for the Orange County Landfill. Concept A has greater potential to facilitate subdivision of the Harris property. Construction is estimated to cost $ 2.9 million² in 2007 dollars. Concept B serves the same properties via a new line to the west. Construction is estimated to cost $ 2.5 million² in 2007 dollars. Neither Concept A or B serve properties off Sandberg Lane or 3 lots off Merin Road. Concept C shows how gravity sewer could be provided to those lots not served by A or B via a new line along Billabong Lane. Billabong Lane is beyond the study area. A third concept,concept C,would add $1.3 million² in 2007 dollars to the construction cost of Concepts A or B and extend service to the properties in the southeastern corner of the study area. In accordance with the OWASA policies, benefiting properties would bear the cost of extending water and sewer lines. The Task Force also reviewed the assessment process for neighborhoods pursuing water and sewer service. Task Force members expressed great concern over the ability of existing homeowners to bear the cost of installing main lines, hooking up to services and paying utility bills, thereby decreasing the affordability of lowcost housing that currently exists in the study area. ² The proposed sewer and water lines are preliminary configurations provided by OWASA (Orange Water and Sewer Authority). If the Town decides to pursue these or other concepts, additional engineering and professional services will be needed to provide site-level detail and overall determination of project feasibility. These estimates do not include the additional cost for connecting individual properties to the sewer system.

10 Existing and Proposed Sewer: Rogers Road and Surrounding Area I-40 Sewer Extension Cost Estimates Adjusted for Inflation from 2007 Estimate Concept A $3,110,400 Concept B $2,721,600 Concept C $1,393,200 Concepts A+C $4,503,600 Concepts B+C $4,082,400 Legend Concepts A and B are identical except that B extends sewer to the properties west of the Neville Tract. Eubanks Rd. Orange County Landfill *Note the differences between A and B A Extension for Landfill OWASA Proposed_Sewer W GravitySewerMains Proposed Landfill Gas Pipe Routing B Neville Tract PROPOSED LANDFILL GAS PIPE ROUTING Rogers Road Study Area Area of Focus Future Extension by Carrboro Rogers Rd. Sandburg Greene Tract Chapel Hill Chapel Hill Merin Carrboro Billabong Concept C Carrrboro Homestead Rd. Map by - Chapel Hill Planning Source: Sewer Data from OWASA N 1 / 2 M i l e Figure3 - Conceptual sewer network proposed by OWASA 10 Rogers Road Study Area: Conceptual Sewer Network

11 E x p a n d R o a d A c c e s s Most properties in the study area are accessed from Purefoy Drive off Rogers Road. Rogers Road is currently classified as a collector street by the North Carolina Department of Transportation (NCDOT), carrying approximately 5,000 vehicles per day in 2007, a rise from 3,000 vehicles per day in (In general traffic on Rogers Road has increased by 4 to 6 percent per year.) Purefoy Drive as currently constructed is sufficient to accommodate trips per day. The Task Force recommendations propose that new development in the study area may require expansion or upgrade of existing streets. The Task Force identified the need for additional access to the neighborhood and more internal road connections. In particular it identified the need to have a north-south roadway connection through the study area to connect to Eubanks Road. Orange County owns approximately 70 percent of the property with frontage on Eubanks Road including the landfill site, the solid waste operations center and the animal shelter. The Task Force considered options to provide an east to west road connection to the neighborhood through the Greene Tract. The viablity of this option may be limited by potential conservation easements and the difficulty of negotiating for a new vehicular crossing of the railroad. Figure 4 is a conceptual road network developed by the Task Force and was used as part of the design workshops in conjunction with the the Rogers road Urban Design Assistance Team. Figure 4 - Road Network Options developed by Task Force prior to Design ASstance team. 11

12 T h e G r e e n e T r a c t The Task Force received information from the Director of the Orange County Environment and Resource Conservation Department at The Greene Tract Orange County concerning the environmental sensitivity and importance of the Greene Tract.. The 2002 Greene Tract Concept Plan¹ was Orange County adopted by Orange County, Chapel Hill, and Carrboro. The proposed land uses from this work group are represented in Figure 5. Study Area L a n d U s e P r e f e r e n c e s Preliminary Graphic The Task Force took part in a land use visioning exercise where they explored different building types, arrangment, and density. Members expressed a preliminary preference for residential densities between 1-8 Units/Acre, recreational, and small commercial land uses in the Rogers Road study area. Additionally, Town staff utilized 3-D modeling software to convey the scale of the proposed Habitat for Humanity project off of Purefoy Road. Figure 4 - Representation of proposed Habitat Subdivision of Purfoy Road. Model generated by Town Staff using Google Sketch Up Carrboro Figure 5 - The Greene Tract and Land Uses Endorsed by the Greene Tract Work Group Chapel Hill Acres Land Use Ownership 85.9 Open Space Jointly 18.1 Housing Jointly 60 Open Space/ Gov t Services Orange County 12 Greene Tract Concept Plan - Land Uses

13 C o m m u n i t y D e s i g n W o r k s h o p For the Task Force to more accurately communicate its vision, the town contracted with the Durham Area Design Group to host a charette in the Summer of The information from early Task Force meetings provided a foundation for this interactive process. The first community design workshop on Saturday, June 7, The objective was to find a community consensus for components of the proposed small area plan. The Components of a typical small area plan include: Land use guidelines Appearance guidelines An expanded multi-modal transportation network Infrastructure improvements Community development strategies molded its conceptual plan of future development in the Rogers Road community. The individual plans developed by each team are included in Figure 6 on page 14. From the analysis of the different schemes developed at the design workshop, the Rogers Road Urban Design Assistance Team proposed a plan for both land use and open space as well as written recommendations. This work was presented to the task force and workshop attendees at a meeting on July 31, 2008, at which time the findings and the proposed land use plan were presented for discussion and approval. The final land use plan (Figure 7) and recommendations are presented in the next section. The workshop included a presentation describing the community and introduced tools and concepts for use during the workshop. Attendees divided into three teams which were designated A, B, and C. Two members of the Urban Design Assistance Team were at each team table to facilitate the work and provide design assistance for visualizing the team members ideas. The workshop included two design sessions in which each team developed ideas. These ideas included a new road and trail network, suggestions for type of development in specific areas of the community, and plans for preservation of Rogers Road s unique cultural heritage. After each of the design sessions, each team shared its ideas with the group. This process allowed ideas to become the property of each team as it 13

14 Team 1 Team 2 Areas of Commonality Team Connection north to Umstead Road 2 - Connection across the railroad track on Weaver Dairy Extension using Purefoy Road 3- Two plans and possibly the third show an east-west road to the north of Purefoy, connecting to Rogers Road 4- Cross-roads at the center of the area to become a community center with mixed use development; might include a community center/library 5- School near the center of the area Buffer on the north side of study area to shield the area from the landfill site 6- The historic house is retained in all plans and made part of the proposed Church complex 7- Greater density of development to lessen the individual cost of sewer; at the same time, areas near Rogers Road and along the north side of area seen as less dense to retain the current feel of the area 8- Farmers market and community gardens 9- The community needs to write a cultural history and create a plan to preserve its cultural heritage Figure 6 - Team Designs 14

15 Rogers Road Task Force Recomendations The recommendations of the Rogers Road Task Force are summarized below. D e s i g n a n d L a n d U s e - The masterplan should become the basis for a future land use plan amendment for the Rogers Road area. - Support for a neighborhood core that includes a school, neighborhood commercial, and varied housing types from individual residence to town house - The community wanted to maintain the rural feel of the community at its edges. Streets and roads in this area would not have curb and gutter; in areas where there is greater density, the streets would have a more urban character with curb and gutter. O p e n S p a c e a n d R e c r e a t i o n - The Task Force recommends that the Greene Tract support a wide variety of open space and recreation amenities including; preservation, greenways and trails, and space for more active recreation near the proposed school site. T r a n s p o r t a t i o n a n d I n f r a s t r u c t u r e - A bike and pedestrian trail system should be developed; the trails should be separted from the road system and all trails should lead eventually to the proposed school locaiton. - The task force recommends that the Town secure dedication of rights-of-way that will allow the development of a street grid with multiple access points to the community - The task force desires a front porch community, where houses are built to a line close to sidewalks Streets should be designed to a country road standard at the peripheries of the community - As a neighborhood center develops around the school and other community facilities, the Chapel Hill Transit System should bring buses into the center - The community also expressed a desire to maintain current densities and the rural character of the peripher ies of the area Rogers Road Community - A 45 maximum height would be in keeping with the character of the area - Traffic calming methods should be used in the design of the streets and crosswalks - The Task Force recommends that the Town negotiate with N.C. Railroads to secure permission to have an at-grade crossing where Purefoy Drive is proposed to be extended to Weaver Dairy Road. - The community also expressed a desire for a so-called front porch community, where houses are built to a - Extend sanitary sewer to all properties in this community line close to sidewalks. C o m m u n i t y P r e s e r v a t i o n I m p l e m e n t a t i o n - Preserve the remaining historic buildings withing the are and integrate them into the new community facilities in the future. - The area around the log cabin should be set aside for community gardens and for a small farmers market. - The Town should explore options similar to the Homestead Exemption that would keep taxes low for properties that are not being redeveloped. - The Town and the Rogers Road commnity should maintain the type of dialogue whihc was made passible by the efforts of the Task Force and by the work done during the design workshop - The Town of Chapel Hill should intiiate a discussion about annexation as part of the future dialogue on providing services to the Rogers Road community. - That the Small Area Plan incorporate mechanisms which will educate the community on development in order to empower it to develop its assets. 15

16 Map Prepared by Chapel Hill Planning January 2nd, 2009 s n k b a E u R d NORTH Northwood Orange County Landfill Larkspur L e a k L n L n E. x t W e a v e r Ed g a r St. Pri sc il la M L n. D a e a d o w r u n i r y St Pauls A.M.E R o Pur foy g D r. e S an db er g r s R d Lan e. T g e R r u Parkside L n. Z T a l l y h o ie h R d sc r a i l Proposed Land Uses Open Space Vineyard Square n v a B i l l a b o n g School R e s i d e n ti a l - 1 t o 4 U n i t s / A c r e R e s i d e n ti a l - 1 U n i t s / A c r e Figure 7 - Proposed Land Uses by the Task Force 16 o r e R d..25 M.5 M H o m e s t e a d R d. P r o p o s e d L a n d U s e s b y t h e R o g e r s R o a d Ta s k F o r c e R d. Mixed Use Village m S c h o o l Buffer C y S e a w e l l Affordable Housing /Civic l a L n. M e r i n W a y R e s i d e n ti a l - 4 t o 8 U n i t s / A c r e R d S y l

17 I m p l e m e n t a t i o n A c t i o n s During the Rogers Road Small Area Planning Process the Task Force developed a long-range vision for future land uses and desirable community enhancements. The Rogers Road Small Area Plan Implementation Plan supports the Task Force vision and addresses the relevant social, economic, and environmental issues that affect the Rogers Road Community. Collaboration between the Towns of Chapel Hill and Carrboro, along with Orange County will be essential in realizing many of the Task Force recommendations, in part because the Rogers Road study area falls under joint planning jurisdiction (See Figure 8 on page 18 ). We have outlined a series of implementation actions and a implementation schedule intended to achieve the recommendations of the task force. Figure 9 on page 20 is a proposed schedule for implmentation. A: Task Force to provide the to the Town Council with a request that the report be adopted as a component of the Town s Comprehensive Plan and with the associated amendment to the Chapel Hill Land Use Plan. B: Town Council to initiate the Joint Planning process to amend the Joint Land Use Plan. C: Establish a work group of elected officials and appointed staff from each jurisdiction and OWASA to identify responsibilities that Chapel Hill, Carrboro, Orange County, and OWASA would need to assume to implement the Rogers Road Small Area Plan vision. D₁: D₂: D₃: Work group to develop a utility funding and phasing plan for water and sewer connections for review by the three local governments. Work group to identify transportation and traffic calming projects and funding options consistent with the recommendations of the Rogers Road Small Area Plan. Review Greene Tract agreement and related concept plan to incorporate the recommendations of the Rogers Road Small Area Plan D: Town Council to ask the Chapel Hill-Carrboro City Schools to determine the facility needs to construct an elementary school in the Greene Tract. E: Town Council to ask the Greenways Commission to prepare an update of the Chapel Hill Greenways Master Plan to reflect the trail system proposed by the Task Force, for council consideration. The Task Force suggested that this log cabin, located in the Rogers Road Study Area, could be a focal point for a Community Garden or a Farmers Market in the future. F: Town staff to develop an annexation strategy for the Rogers Road area reflecting the final water and sewer implementation plan and the provision of additional Town services. Town staff to facilitate dialogue about annexation with the residents through the work group established in strategy D. 17

18 I m p l e m e n t a t i o n G: Town Council to establish a Community Preservation Steering Committee to assess the feasibility of restoring the historically significant buildings of the Rogers Road study area, preserving the cemetery, and addressing other issues of historical significance. H: The Town staff to host a development information workshop at which town staff, developers, and property owners could discuss market trends and potential development options. I: The Town staff to work with residents to identify appropriate sites for a community garden project in the Rogers Road area. Figure 8 - Map of Planning Areas in Southern Orange County 18

19 I m p l e m e n t a t i o n Rogers Road Small Area Plan Implementation Timeline 2009 DRAFT Chapel Hill Activities Council receives and referes Rogers Road Report to Chapel Hill advisory boards Adopt Task Force Report as component of comprehensive plan and amend Land Use Plan January February March April May June July August September October November December Council Hearing Action Initiate discussions with Chapel Hill Carrboro City Schools Preservation Steering Commitee Work with Greenways Commission to update Greenways Masterplan Develop Annexation Strategy Rogers Road Development Work Group 2009 Intergovernmental/Joint Planning Activities January February March April May June July August September October November December Refer to Orange County, Carrboro, and OWASA Joint Planning Hearings Amend the Joint Land Use Plan Assembly of Governments Meetings Discuss Inter- Governmental Work Group Establish local government work group Develop funding and phasing plan for water and sewer service Identify Transportation and Traffic Calming Projects Figure 9- Proposed Schedule for Implementation of the Rogers Road Small Area Plan Identify Short Term Improvements and Funding Identify Short Term Improvements and Funding 19

20 A c k n o w l e d g e m e n t s Town of Chapel Hill Planning Staff J.B Culpepper - Director David Bonk - Long Range Planning Coordinator Garrett Davis - Long Range Planner Scott Simmons - Graphics Specialist 20