TO: Mayor and Town Council
From: W. Calvin Horton, Town Manager
Subject: Public Hearing: Town Operations Center - Application for Special Use Permit
DATE: March 15, 2004
INTRODUCTION
Attached for your consideration is an application for a Special Use Permit in the Joint Planning Transition Area for a public service and public use facility on a 53.78 acre site between Interstate 40 and Millhouse Road, approximately 2,000 feet north of Eubanks Road. The applicant, the Town of Chapel Hill, is proposing to construct six buildings, associated outbuildings and structures, including: approximately 168,600 square feet of building area; 287 employee/visitor parking spaces; 125 bus storage spaces; and storage areas for Town-owned vehicles and equipment. The entire proposed facility will contain approximately 20 acres of impervious surface area. The site is located in the Mixed-Use Residential-1 (MU-R-1) zoning district, in the Resource Conservation District and is identified as Orange County Tax Maps 7.18..4, 7.19..23, 7.19..23G, and 7.19..23H
The proposed development includes building heights that exceed the maximum secondary height limits and parking space numbers that are below the minimum parking space requirements. The applicant is requesting modifications of regulations as a part of this application. On September 8, 2003, the Town Council granted expedited processing for review of this Special Use Permit application.
Tonight’s Public Hearing has been scheduled to receive evidence in support of and in opposition to approval of the application, and further to receive evidence which the Council may consider as the Council determines any appropriate conditions to impose upon the proposed development.
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This package of materials has been prepared for the Town Council’s consideration, and is organized as follows: ¨ Cover Memorandum: Introduces application, describes process for review, summarizes staff and advisory board comments, and offers recommendations for Council action. ¨ Staff Report: Offers a detailed description of the site and proposed development, and presents an evaluation of the application regarding its compliance with the standards and regulations of the Land Use Management Ordinance. ¨ Attachments: Includes a checklist of requirements for this development, resolutions of approval and denial, advisory board comments, citizen letters and the applicant’s materials. |
PROCESS
The Land Use Management Ordinance requires the Town Manager to conduct an evaluation of this Special Use Permit, to present a report to the Planning Board, and to present a report and recommendation to the Town Council. We have reviewed the application and evaluated it against Town standards; we have presented a report to the Planning Board; and tonight we submit our report and preliminary recommendation to the Council.
The standard for review and approval of a Special Use Permit application involves consideration of four findings (description of the findings follows below). Evidence will be presented tonight. If, after consideration of the evidence, the Council decides that it can make each of the four findings, the Land Use Management Ordinance directs that the Special Use Permit shall then be approved. If the Council decides that the evidence does not support making one or more of the findings, then the application cannot be approved and, accordingly, should be denied by the Council.
DESCRIPTION OF THE APPLICATION
This proposed Special Use Permit application is for a public service and public use facility on the 53.78-acre site. The applicant is proposing to construct six buildings, associated outbuildings and structures, including approximately 168,600 square feet of building area, parking spaces (including bus parking spaces) and storage areas for Town owned vehicles and equipment. The applicant currently operates the Town of Chapel Hill Public Works and Chapel Hill Transportation Departments on leased ground owned by the University of North Carolina. The proposed development plan includes two distinct areas, one being developed on the northern portion of the site to accommodate the Public Works Department, and a second area on the southern portion of the site for the Transportation Department.
This project is divided into two development phases. The initial phase of this proposal is scheduled for completion in 2006. The follow-up long term construction phase (2010-2035) includes additional floor area and parking spaces. A brief description of the improvements proposed with the initial phase (2006) and future phase (2010-2035) is outlined below:
Initial Development Phase (2006)
Public Works Complex: Proposed improvements associated with the Public Works portion of the site include (square footage and parking figures approximate):
a) 82,000 square feet of floor area and work space.
b) 150 employees/visitor parking spaces.
c) Storage areas for Town vehicles and equipment.
d) Refuse/recycling areas, bus stops and bicycle parking.
Transportation Complex: Proposed improvements associated with the Transportation portion of the site include (square footage and parking figures approximate):
a) 54,800 square feet of floor area and work space.
b) 135 employee/visitor parking spaces.
c) 101 bus parking spaces.
d) Storage area for Town vehicles and equipment.
e) Refuse/recycling area and bicycle parking.
Other proposed on-site improvements include stormwater management facilities, utilities, and walking paths. Proposed off-site improvements include roadway improvements to Eubanks Road and Millhouse Road and the extension of water, sewer and natural gas to the proposed development site.
Future Development Phase (2010-2035)
a) Public Works Compound: Approximately 19,433 square feet of additional floor area and work space, and 40 employee/visitor parking spaces.
b) Transportation Compound: Approximately 2,400 square feet of additional floor area and work space, 28 employee/visitor parking spaces and 24 bus spaces.
c) A 10,000 square foot building with 30 employee/visitor parking spaces.
BACKGROUND
On September 8, 2003, the Town Council granted expedited processing for review of this Special Use Permit application. A Concept Plan review of this application was conducted by the Community Design Commission on October 22, 2003, and by the Council on November 17, 2003.
We have evaluated the application regarding its compliance with the standards and regulations of the Town’s Land Use Management Ordinance. Based on our evaluation, our preliminary recommendation is that the application as submitted, complies with the regulations and standards of the Land Use Management Ordinance and Design Manual with the conditions and modifications of regulation in Resolution A. We believe the proposal conforms with the Comprehensive Plan.
Tonight the Council receives our attached evaluation, and also receives information submitted by the applicant and citizens. The applicant’s materials are included as attachments to this memorandum. All information that is submitted at the hearing will be placed into the record.
Based on the evidence that is submitted, the Council will consider whether or not it can make each of four required findings for the approval of a Special Use Permit. The four findings are:
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Special Use Permit – Required Findings of Fact
Finding #1: That the use or development is located, designed, and proposed to be operated so as to maintain or promote the public health, safety, and general welfare;
Finding #2: That the use or development complies with all required regulations and standards of this Chapter, including all applicable provisions of Sections 3 and 5, the applicable specific standards contained in the Supplemental Use Regulations (Section 6), and with all other applicable regulations;
Finding #3: That the use or development is located, designed, and proposed to be operated so as to maintain or enhance the value of contiguous property, or that the use or development is a public necessity; and
Finding #4: That the use or development conforms with the general plans for the physical development of the Town as embodied in this Chapter and in the Comprehensive Plan.
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Following the Public Hearing, we will prepare an evaluation of the evidence submitted in support of and in opposition to this application.
KEY ISSUES
Our full evaluation is included in the attached Staff Report. Based on the review of this development application by Town advisory boards and the Town staff, we believe that the four key issues that have been identified pertain to a) traffic control on Millhouse Road; b) installation of a fence between the proposed development and the adjacent 10.3 acre residential parcel in the southern portion of the site; c) aeration of the stormwater ponds; and d) generation of noise and light. These issues are discussed below:
a) Traffic Control on Millhouse Road: The potential for increased traffic on a portion of Millhouse Road was expressed during the Planning Board meeting. A citizen residing on the portion of Millhouse Road north of the railroad crossing, asked that the applicant attempt to minimize traffic impacts on Millhouse Road. In particular the citizen suggested that the applicant agree to restrict its vehicles from traveling on that portion of Millhouse Road north of the proposed entrance to the Public Works compound. In response to this concern the Planning Board recommended that the applicant implement a policy that generally prohibits Town-owned vehicles from traveling on that portion of Millhouse Road, north of the proposed entrance into the Public Works portion of the site.
Staff Comment: Based on the traffic impact analysis and traffic count information from the North Carolina Department of Transportation, the current 24 hour traffic volume on the portion of Millhouse Road, north of the entrance to the propose Public Works compound, is approximately 1,450 vehicles per day. The traffic impact analysis anticipates that in 2006, after the proposed development is completed and operational, the 24-hour traffic count on this portion of Millhouse Road will increase by approximately 170 vehicles. This estimate includes traffic generated by the proposed development site and other background traffic generators (Parkside II Subdivision, The Homestead, Larkspur Subdivision, and Chapel Watch Village). Of the 170 additional trips that the analysis anticipates will occur in 2006, within a 24 hour period, approximately 30 trips would be generated by the proposed development.
Because the entire operational area served by the proposed development is located to the south, all Town-owned vehicles (buses, trucks, refuse collection, fire, police vehicles) traveling between the proposed facility and the community are expected to travel on the southern portion of Millhouse Road (between Eubanks Road and the entrances to the facility). We do not anticipate that the 30 additional trips projected in 2006, on the portion of Millhouse Road north of the railroad crossing, involve Town-owned vehicles.
We recommend that the applicant establish a policy that requires Town vehicles to travel on that portion of Millhouse Road, south of the proposed entrance into the Public Works portion of the site, with exceptions for emergency conditions. We recommend that the policy be reviewed and approved by the Town Manager prior to the issuance of a Zoning Compliance Permit. Resolution A includes this recommendation.
b) Installation of a fence between the proposed development and the adjacent 10.3-acre residential parcel in the southern portion of the site: Adjacent to the southern half of the proposed site is a 10.3-acre parcel that contains a residential structure. The north, east and south property lines of this 10.3-acre parcel are adjacent to the proposed development. Along portions of the north and south property lines along this 10.3-acre parcel, the applicant is proposing to install a solid fence.
The Planning Board recommended that the applicant install a continuous solid wooden fence along the entire length of the three common property lines between the proposed development and the 10.3-acre parcel. Recognizing that a property line may cross the Resource Conservation District or impact significant or notable stands of trees, the Planning Board amended its recommendation to exclude areas in the Resource Conservation District and near significant trees. The Planning Board also recommended that in locations where the installation of a fence could negatively impact significant or notable stands of trees, the fence should not be installed and instead may be located within the applicant’s landscape buffer area.
Staff Comment: Resolution A includes a stipulation requiring that, except in the Resource Conservation District and near significant trees, the applicant shall install a solid fence along the north, east and south property line of the 10.3-acre parcel adjacent to the southern half of the proposed development site. We also recommend that in those areas where the installation could negatively impact significant or notable stands of trees, the fence shall not be installed and instead may be located within the applicant’s landscape buffer area. Prior to installation, final location of the fence shall be field located and approved by the Town’s Urban Forester.
We understand that, instead of installing a wooden fence, the applicant may eventually prefer to install a solid fencing made of recycled materials. We recommend, and Resolution A stipulates, that the applicant shall install a solid fence without specifying the type of fencing material.
c) Aeration of the stormwater ponds: Expressing a concern with the two proposed stormwater management ponds and the potential for water stagnation and mosquito habitat, the Planning Board adopted a resolution recommending that the applicant install aeration devices in the two stormwater management ponds.
Staff Comment: Based on preliminary stormwater management plans for this proposed development, we understand that the installation and operation of an aeration devices, or similar water circulation equipment, in the two proposed stormwater management ponds is feasible. We understand that both ponds are designed with some water storage capacity and will retain a water level suitable for an aeration device. Resolution A includes a stipulation stating that, if practicable, the applicant shall install aeration devices, or similar water circulation equipment, in the proposed stormwater management ponds. The final type and design of the aeration device shall be review and approved by the Town Manager.
d) Light and Noise: At the Planning Board meeting, a citizen expressed a concern with the potential noise and lighting impacts on the surrounding residential neighborhood along Millhouse Road. The Planning Board recommended that the applicant comply with the lighting standards in the Land Use Management Ordinance. The Planning Board also recommended that the applicant submit with a final plan application a signed and sealed letter certifying that any increase in measurable noise will not exceed noise levels allowed by the Town Noise Ordinance.
Staff Comment-Lighting: Regarding lighting, we recommend that the final plan application comply with the lighting standards in the Land Use Management Ordinance. Lighting standards in the Land Use Management Ordinance include the following:
I. Lighting sources shall be shielded or arranged so as not to produce within any public right-of-way glare that interferes with the safe use of such right-of-way and so as not to constitute a nuisance to the occupants of adjacent properties.
II. Outdoor lighting, except sports and athletic field lighting, shall be mounted at heights no greater than fifteen (15) feet for non-cutoff lights; and no greater than thirty-five (35) feet for full cutoff lights.
III. Increases in illumination on off-site property shall not result in lighting levels in excess of 0.3 foot-candles, measured at ground level. Where existing ambient off-site lighting levels are in excess of 0.3 foot-candles, no increase in measurable off-site lighting levels will be allowed as a result of outdoor lighting in the development.
IV. All streets, driveways, bikeways, sidewalks, pedestrian paths, parking areas, and other common areas and facilities shall be lighted where necessary to ensure the security of property and the safety of persons using such streets, driveways, bikeways, sidewalks, pedestrian paths, parking areas, and other common areas and facilities.
V. All principal entrances and exits to principal buildings used for non-residential purposes or containing more than five (5) dwelling or lodging units shall be sufficiently lighted to ensure the safety of residents and the security of the building.
VI. Each application for a Zoning Compliance Permit for development other than a single-family or two-family dwelling shall include a lighting plan that shows existing and proposed lighting fixture types and locations. The plan shall indicate, by isolux contour diagram and grid points, the measured and calculated pre-development and post-development foot-candles at grade both on the development site and on adjacent property where lighting impacts are expected. The lighting plan must be sealed by a Professional Engineer with demonstrable expertise in lighting design and mitigation strategies, or a lighting specialist who is Lighting Certified (LC) by NCQLP (National Town Council on Qualifications for the Lighting Professions).
Staff Comment-Noise: In regards to noise, we recommend that the final plan application shall include a signed and sealed letter from a Professional Engineer, licensed in the State of North Carolina and with demonstrable expertise in acoustical design and attenuation practices, certifying that any increase in measurable noise will not exceed noise levels allowed in the Town Noise Ordinance as established at the time the final plan application is approved by the Town. This noise restriction shall not apply to property that is owned by the applicant.
Although this recommendation on noise is beyond the requirements of the Land Use Management Ordinance, the applicant has voluntarily agreed to comply with this recommended stipulation.
Resolution A includes the above recommendations on light and noise.
PROPOSED MODIFICATION OF REGULATIONS
The applicant is requesting modification to regulations in Section 5.9.7 (minimum parking requirements) and Section 3.8.1 (building heights) of the Land Use Management Ordinance:
1. Parking, Section 5.9.7: This project proposes a total of 287 employee/visitor parking spaces. The Land Use Management Ordinance requires a minimum number of 391 spaces. The applicant believes that the proposed 287 parking spaces will meet the existing and future needs of the facility and can preserve trees and natural areas.
We understand that the number of proposed parking spaces is based on an actual needs assessment that the applicant conducted specifically for this project. The assessment was based on the number and time-of-day scheduling of current and projected employees. The assessment determined that if the applicant calculated the parking spaces using the formula outline in the Land Use Management Ordinance (1 space for every 350 square feet of floor area for a Public Use Facility), the result would require more spaces than needed.
Staff Comment: We believe that the applicant’s requests to modify the parking regulations of Section 5.9.7 of the Land Use Management Ordinance are supported by the following reasons:
a) The proposed number of parking spaces is based on a vehicle needs study that specifically addressed the employee and visitor parking space requirements for the proposed development;
b) According to the vehicle needs study, the proposed 287 parking spaces will meet the existing and future needs of the facility; and
c) Minimizing the number of parking spaces will preserve trees, natural areas and decrease the amount of impervious surface area and stormwater runoff.
2. Secondary Building Height, Section 3.8: The other non-complying item is the secondary height of the new buildings. The vehicle maintenance buildings for this project will require a height sufficient to allow daylighting components. Table 3.8-1, Dimensional Matrix, has a maximum secondary height of 40 feet. These maintenance buildings require high bays to work on Town buses and large Public Works vehicles, such as fire trucks and refuse trucks. Additional height is required to accommodate the upper story space needed for daylighting the workspace, which could be as high as 55 feet.
Staff Comment: We believe that the applicant’s requests to modify the secondary building height regulations in Section 3.8.1 of the Land Use Management Ordinance are supported by the following reasons:
a) Construction of vehicle maintenance buildings in excess of the maximum secondary building height would permit sufficient height to allow daylighting components including upper story space for windows;
b) Additional height would allow the construction of vehicle maintenance buildings that permit the installation of high vehicle service bays necessary to work on large vehicles such as Town buses, and large Public Works vehicles such as fire trucks and refuse trucks; and
c) Lower building heights would not permit the construction of a sloped roof, which requires less long term maintenance than a flat roof and facilitates construction of a rainwater collection system.
Accordingly, we recommend that the Council modify the regulations as follows:
1. Modification of the dimensional regulations in Section 3.8.1 of the Land Use Management Ordinance, to allow a secondary height of 55 feet.
2. Modification of the minimum parking regulations in Section 5.9.7 of the Land Use Management Ordinance, to allow a minimum of 287 parking spaces.
SUMMARY
We have attached a resolution that includes standard conditions of approval as well as special conditions that we recommend for this application. The special conditions that we recommend are described in detail in the accompanying staff report. With these conditions, we believe that the Council could make the findings regarding health, safety and general welfare, and consistency with the Comprehensive Plan. The Manager’s recommendation incorporates input from all Town departments involved in review of the application.
Following is a brief outline describing the next steps in the development review process, should the Council approve the Special Use Permit application for this site:
1. Applicant accepts and records a Special Use Permit, which incorporates the terms of the Council-adopted resolution.
2. Applicant submits detailed Final Plans and documentation, complying with Council stipulations. Information is reviewed by Town departments and the following agencies:
3. Community Design Commission reviews and approves building elevations and site lighting.
4. Upon demonstration of compliance with remaining Council stipulations, Town staff issues a Zoning Compliance Permit authorizing site work. Permit includes conditions specific to the development and requires pre-construction conferences with Town staff.
5. Inspections Department issues Building Permits and Certificates of Occupancy.
RECOMMENDATIONS
Recommendations are summarized below. Please see summaries of board actions and recommendations in the attachments.
Planning Board Recommendation: On March 2, 2004, the Planning Board voted 7-0 to recommend that the Council approve this application, with the adoption of Resolution B. We will provide a copy of the recommendation as soon as it is available.
Transportation Board Recommendation: On March 2, 2004, the Transportation Board voted 6-0 to recommend that the Council approve this application with the adoption of Resolution C. Please see the attached Summary of Transportation Board Action.
Community Design Commission Recommendation: The Community Design Commission will meet March 17. We will provide the recommendation as soon as it is available.
Bicycle and Pedestrian Advisory Board Recommendation: The Bicycle and Pedestrian Advisory Board will meet March 23. We will provide the recommendation as soon as it is available.
Greenways Commission Recommendation: The Commission will meet March 24. We will provide the recommendation as soon as it is available.
Manager’s Preliminary Recommendation: Based on our evaluation of the application, our preliminary conclusion is that, with the stipulation in Resolution A and the modification to regulations as requested by the applicant, the application complies with the standards and regulations of the Land Use Management Ordinance.
Following tonight’s Public Hearing, we will prepare an evaluation of the evidence submitted in support of and in opposition to this application. If the Council makes the required findings for approval of a Special Use Permit, we recommend that the application be approved with the adoption of Resolution A.
Resolution D would deny the application.
Town Operations Facility - Special Use Permit
Differences between Resolutions
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ISSUES |
Resolution A (Approval) Town Manager’s Preliminary Recommendation. |
Resolution B (Approval)
Planning Board Recommendation |
Resolution C (Approval)
Transportation Board Recommendation |
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Traffic management policy for operations vehicles on Millhouse Road |
Yes |
Yes |
* |
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Perimeter solid fence adjacent to 10.3 acre residential property to be solid or solid wooden |
Solid
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Solid Wood |
* |
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Certification verifying compliance with noise and light ordinance |
Yes |
Yes
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*
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Aeration device in stormwater management ponds |
Yes |
Yes
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*
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Specific lighting plan for Transportation employee walkway |
Yes |
Yes |
* |
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Bus Shelter, bench, pad in Public Works portion |
Yes |
* |
* |
* - Issues not raised at advisory board meeting.
ATTACHMENTS
1. Planning Staff Report (p. 13).
2. Project Fact Sheet Requirements (p. 29).
3. Resolution A (Manager’s Preliminary Recommendation Approving the Application) (p. 30)
4. Resolution B (Planning Board’s Recommendation Approving the Application) (p. 39).
5. Resolution C (Transportation Board’s Recommendation Approving the Application) (p. 41).
6. Resolution D (Denying the Application) (p. 43)
7. Summary of Action- Transportation Board (p. 44)
8. Statement of Justification (p. 45).
9. Project Fact Sheet (p. 48).
10. Area Map (p. 51).
11. Reduced Plan (p. 52).
STAFF REPORT
Subject: Public Hearing: Town Operations Center - Application for Special Use Permit
Date: March 15, 2004
INTRODUCTION
We have received a request for a Special Use Permit for a public service and public use facility on a 53.78 acre site between Interstate 40 and Millhouse Road, approximately 2,000 feet north of Eubanks Road. The applicant, the Town of Chapel Hill, is proposing to construct six buildings, associated outbuildings and structures, including approximately 168,600 square feet of building area, 287 employee/visitor parking spaces, 125 bus parking spaces, and storage areas for Town owned vehicles and equipment. The proposed development will included approximately 20 acres of impervious surface.
This project is divided into two development phases. The initial phase of this proposal, scheduled for completion in 2006, includes the construction of a new facility to replace the existing Municipal Operations Facility on Airport Road. Proposed on-site improvements associated with this initial phase include approximately 136,000 square feet of building area, employee, visitor, bus and parking spaces, storage areas for Town owned vehicles and equipment, on-site stormwater and utilities, refuse collection areas, bike racks and two bus stops. A portion of the initial construction phase (yard/material storage and vehicle impound and auction storage area) is located outside the boundary of this Special Use Permit application and is not a subject of tonight’s application.
Several off-site improvements, including the extension of water, sewer and natural gas service and roadway improvements along Millhouse Road and Eubanks Road are included with this initial construction proposal.
The follow-up long term construction phase (2010-2035) includes approximately 31,800 square feet of additional floor area and parking areas.
The development proposed with the initial construction phase includes building heights that exceed the maximum secondary height limits and employee/visitor parking space numbers below the minimum parking space requirements. The applicant is requesting modifications of regulations as a part of this application. In this set of circumstances, the Town Council has the ability to modify the regulations if it determines that public purposes are served.
EVALUATION
The Town staff has reviewed this application for compliance with the standards of the Land Use Management Ordinance and the Design Manual and offers the following evaluation.
Existing Conditions
Location: This 54 acre site is located between Interstate 40 and Millhouse Road, approximately 2,000 feet north of Eubanks Road. The west property line (1,230 feet) is adjacent to the Norfolk Southern Railroad corridor and Millhouse Road. The east property line (1,920 feet) is adjacent to the eastbound travel lanes of Interstate 40. The area proposed to be included within this Special Use Permit is entirely within Chapel Hill’s Joint Planning Transition Area.
North of the proposed development site is approximately 30 acres of undeveloped land, owned by the Town of Chapel Hill. There are three properties immediately south of the site, between 10 and 18 acres in area. These properties are undeveloped, mostly wooded, and do not contain any residential dwellings. Adjacent to the southern half of the proposed site is a 10.3 acre parcel that contains a residential structure. The proposed development adjoins this 10.3 acre parcel on three sides.
Opposite the proposed development site, across Millhouse Road, are three properties. Two of the properties are each approximately 1.7 acres in size and contain a residential dwelling. The third property is farm land of approximately 84 acres. This site also contains a residence.
Existing Structures: There are no existing structures on the proposed development site.
Vehicular Access: Vehicular access is proposed from Millhouse Road. Millhouse Road is an asphalt 20-foot wide road without curb, gutter and sidewalk and is maintained by the North Carolina Department of Transportation (NCDOT).
Topography, Drainage, Vegetative Cover: The general topography of the site (more than 90 percent of the site) has slopes less than 10 percent. The steeper slopes (10-20 percent) occur in the Resource Conservation District areas adjacent to the two streams on the site at its northern and southern boundary.
Old Field Creek and a small tributary are located on the southernmost edge of the site. An existing unnamed stream and a pond form the northern boundary line of the Special Use Permit application. Both drainage systems flow from west to east and include Resource Conservation District and wetlands. The highest elevation on the site (508 feet) is located along Millhouse Road. The lowest elevation (450 feet) is in the southeast corner of the site where Old Field Creek flows under Interstate 40. The railroad track to the west of the property provides a drainage boundary and blocks offsite drainage onto the site. Approximately 70 percent of the 54 acre site drains into Old Field Creek and its tributary, with the remainder of the site draining to the unnamed northern stream and pond.
With the exception of a 20 acre open field in the northern portion of the site, the property is a mix of wooded areas including pines and hardwoods. The submitted application identifies several areas containing Significant Tree Stands.
Bus Stops, Routes: The Town of Chapel Hill does not provide bus service along Millhouse Road at this time. The Eubanks Road Park and Ride Lot is approximately 1,000 feet east of the Eubanks Road-Millhouse Road intersection.
The application includes improvements, on and off-site, that are to be completed by 2006. The application includes additional development that the applicant anticipates implementing after 2010.
This proposed Special Use Permit application is for a public service and public use facility on the 53.78 acre site. The applicant is proposing to construct six buildings, associated outbuildings and structures, including 168,600 square feet of building area, 287 employee/visitor parking spaces, 125 bus storage spaces, and storage areas for Town owned vehicles and equipment. The applicant currently operates the Town of Chapel Hill Public Works and Transportation Departments on leased land owned by the University of North Carolina.
Although the applicant owns approximately 84 acres, tonight’s application is focused on the 54 acres of the site that is within the Town planning jurisdiction. The northern end and southern end of the 54 acres is bordered by two perennial streams. The eastern and western edges of the site are adjacent to Interstate 40 (eastside) and Millhouse Road/ Norfolk Railroad corridor (westside). A 10.3 acre residential property on the east side of Millhouse Road is located in the southern half of the site and adjoins the applicant’s property on the north, east and south.
The proposed development plan includes two distinct areas, one being developed on the northern portion of the site to accommodate the Public Works Department, and a second area on the southern portion of the site for the Transportation Department. Each facility includes a driveway entrance along Millhouse Road. Except for an emergency restricted access lane, between the Public Works employee parking lot and the bus storage area on the Transportation portion of the site, internal vehicular travel between the two operations is restricted.
A portion of the planned improvements associated with this new facility (yard/material storage and vehicle impound and auction storage area) is located outside the boundary of this Special Use Permit application and is not a subject of tonight’s application.
A brief description of the improvements proposed with the initial phase (2006) and future phase (2010-2035) is outlined below:
Initial Development Phase (2006)
· Public Works Complex: Proposed improvements associated with the Public Works portion of the site include:
a) Town Building Maintenance and Public Housing Maintenance and Field Operations, and Administration buildings– 52,000 square feet of floor area.
b) Town vehicle maintenance, surplus storage buildings, fuel and wash areas- 30,000 square feet of floor area and work space.
c) Parking for employees and visitors- 150 spaces.
d) Operational/fleet vehicle storage areas.
e) Three refuse/recycling areas.
f) Two on-site bus stops and three bicycle racks.
· Transportation Complex: Proposed improvements associated with the Transportation portion of the site include:
a) Administration and operations buildings- 16,800 square feet of floor area.
b) Maintenance, fuel and wash areas- 38,000 square feet of floor area and work space.
c) Parking for employees and visitors- 135 spaces.
d) Bus parking spaces- 101.
e) Operational/fleet storage areas.
f) Refuse/recycling area.
g) A bicycle rack.
· Stormwater Management: The proposed plan includes two stormwater management ponds, seven bio-retentions areas, approximately 40,000 square feet of permeable pavement, infiltration ditches and four, 10,000 gallon stormwater retention tanks for reuse of rainwater.
· Utilities: Water, sewer, gas and electric service is proposed to be installed throughout the site. In order to provide sewer service, a new sanitary sewer pump station is proposed to be installed in the southern most portion of the site. All new utilities are proposed to be installed underground.
· Walking paths: Several walking paths, connecting the building areas to undisturbed woodlands and the existing pond, are proposed.
· Internal Access Road: An internal access road, to that portion of the applicant’s property outside of the Special Use Permit boundary, is proposed to be constructed.
· Off-Site Roadway Improvements: The proposed plans include roadway improvements at the Airport Road/Eubanks Road and Eubanks Road/Millhouse Road intersections. Other proposed roadway improvements include upgrades to the pavement and travel lanes on Millhouse Road and a realignment of the railroad crossing on Millhouse Road.
· Off-Site Utility Improvements: Water and sewer service must be extended to this proposed development site. The applicant is proposing to install approximately 6,600 feet of water line between an existing water line near the Airport Road/Eubanks Road intersection and the main entrance to the site. The extension of sewer service to this property will require the construction of a pump station (on-site) and installation of approximately 4,300 feet of sewer line.
Future Development Phase (2010-2035)
· Public Works Compound: Proposed improvements associated with the Public Works portion of the site include approximately 19,433 square feet of additional floor area and work space, and 40 parking spaces.
· Transportation Compound: Proposed improvements associated with the Transportation portion of the site include approximately 2,400 square feet of additional floor area and work space, 28 parking spaces and 24 bus spaces.
· Other Improvements: A 10,000 square foot building with 30 parking spaces is also proposed with the future development phase.
Except for the 24 bus spaces and the 10,000 square foot building and associated 30 space parking lot on the Transportation Department site, the building sites for the other areas proposed in the future development phase (2006-2035) are proposed to be cleared and graded with the initial 2006 development phase. In those areas where it is anticipated that the final location of the future greenway trail will be adjacent to land disturbance associated with the initial phase development, the greenway is proposed to be cleared and graded.
The proposed plan includes a conceptual location for a future 10-foot wide pedestrian/bicycle path along the east side of the site, adjacent to Interstate 40. Installation of this greenway is not proposed with the initial or future construction phase of the Town Operation Facility. However, some grading activity associated with the initial construction phase is anticipated to facilitate the future construction of this greenway.
Ordinance Requirements
Zoning: This property and the adjacent properties to the south are in the Joint Planning Transition Area and are zoned Mixed-Use Residential-1 (MU-R-1). The adjoining properties to the north, east and west are located outside the Town’s zoning jurisdiction and are subject to Orange County’s zoning regulations. We understand that the Orange County zoning designation is Rural Buffer.
Because the submitted application does not provide a mix of office, commercial, or residential land uses to be a mixed-use development, the proposal is subject to the land use requirements for Residential-1 zoning district. Some of the permitted uses in the R-1 zoning district include a public use facility, place of worship, non-profit recreation facility and an elementary or secondary school. A public service facility is permitted with a Special Use Permit.
Dimensional Standards: The proposal is subject to the dimensional standards outlined in the Dimensional Matrix (Table 3.8-1) of the Land Use Management Ordinance for the Residential-1 zoning district.
The applicant is proposing to construct approximately 168,000 feet of building area. Approximately 31,000 square feet of this building area (garage, fuel and vehicle wash area) is not defined as floor area. The maximum floor area permitted on this 54 acre site is 149,730 square feet. The applicant is proposing to construct approximately 137,034 square feet of floor area.
This proposal would result in 870,875 square feet (approximately 20 acres) of impervious surface area. Because this site is located outside the Watershed Protection District, the Land Use Management Ordinance states that up to 70 percent of a non-residential development may be covered by impervious surface area. Approximately 37 percent of this 54 acre site would become impervious surface under this proposal.
The proposal complies with all of the dimensional requirements for the R-1 zoning district except for the secondary height limit. The applicant is proposing to construct two buildings that will exceed the maximum height limit of 40 feet. Preliminary designs for the Public Works and Transportation vehicle maintenance buildings include a potential overall building height of 55 feet. We understand that these maintenance buildings require high bays to work on Town buses and large Public Works vehicles, such as fire trucks and refuse collection vehicles. The applicant has also indicated that the design of the buildings is proposed to allow natural lighting of the work areas.
The applicant has indicated its intent to seek Council approval of modifying the regulations in the Land Use Management Ordinance with respect to secondary height limits for this site with the justification that the higher buildings will permit the use of daylighting in the vehicle service areas. We recommend approval of this modification.
Access and Circulation
Traffic Impact Analysis: The Traffic Impact Analysis (TIA) was prepared by a Town consultant in accordance with the Town’s TIA guidelines.
Traffic flow conditions were analyzed at the following intersections:
1. Eubanks Road and Millhouse Road.
2. Millhouse Road and proposed future Town Operations Center north driveway.
3. Millhouse Road and proposed future Town Operations Center south driveway.
4. Eubanks Road and Airport Road.
In accordance with the Town’s Traffic Impact Analysis guidelines, based on the size and extent of the proposed development, and the existing and future land use and traffic conditions at and around the proposed development site, the intersection of Eubanks Road and Rogers Road was not included in the traffic study area. Traffic volumes from other existing and proposed developments (Parkside II, Vineyard Square, Larkspur and Chapel Watch Village) in the immediate area were included in the analysis of future conditions. Future traffic conditions were calculated by applying an annual growth of 3 percent.
The purpose of this analysis is to determine the impact of the proposed development to the surrounding transportation system. The traffic impact analysis was based on the anticipated 2006 build out. According to the analysis, the proposed development (2006 build-out) would generate approximately 2,000 vehicle trips daily.
TIA Findings: Roadway Improvements: The findings of Traffic Impact Analysis study concludes that there are safety considerations and operational efficiency considerations that should be addressed due to the impact of the proposed development. Roadway improvements recommended by the TIA and proposed improvements by the applicant are outlined below.
Eubanks Road Improvements - Recommended by TIA
a) Upgrade the pavement cross-section, approaching the Airport Road intersection, to include wider lanes and flared areas for improved turning movements at Airport Road intersection.
b) Lengthen the east bound left-turn lane at Airport Road to 300 feet.
c) Construct a west bound right-turn lane onto Millhouse Road.
Eubanks Road Improvements - Proposed by Applicant
a) Improve the turning radii at the Airport Road intersection as necessary to accommodate buses and large service vehicles if adequate right-of-way can be obtained.
b) Construct a 300-foot east bound left-turn storage lane at the Airport Road intersection, if adequate right-of-way can be obtained.
c) Construct a westbound right-turn lane onto Millhouse Road.
We support the findings of the Traffic Impact Analysis as they relate to Eubanks Road. We believe that the improvements proposed by the applicant address the recommendations provided in the Traffic Impact Analysis. Resolution A stipulates that prior to occupying the proposed development, subject to NCDOT approval and if adequate right-of-way can be obtained, the applicant shall construct the Eubanks Road improvements as proposed by the applicant and stated above.
Millhouse Road Improvements – Recommended by TIA
a) Widen and repave between Eubanks Road and the railroad crossing.
b) Construct a southbound turn right-turn lane onto Eubanks Road.
c) Construct a sidewalk along the east side from Eubanks Road to the proposed north driveway.
Millhouse Road Improvements – Proposed by Applicant
a) Between Eubanks Road and the Public Works driveway- Widen roadway to accommodate two 12-foot wide travel lanes, two 5-foot wide striped bike lanes, curb and gutter on both sides of the road.
b) Improvements at the southbound approach to Eubanks Road: Widen roadway (36-foot pavement width) to accommodate three travel lanes-- one 12-foot wide northbound travel lane, one 12-foot wide southbound left-turn lane onto Eubanks Road, and one 12-foot wide southbound right-turn lane onto Eubanks Road.
c) Construct a 5-foot wide sidewalk along the east side of the roadway between Eubanks Road and the Public Work driveway.
d) Relocate the railroad crossing to realign with the proposed northern entrance to the development and install a four-way stop at the intersection.
We support the findings of the Traffic Impact Analysis as they relate to Millhouse Road. We believe that the improvements proposed by the applicant address the recommendations provided in the Traffic Impact Analysis. Resolution A stipulates that prior to occupying the proposed development, the applicant shall construct the Millhouse Road improvements as proposed by the applicant and stated above.
TIA Findings: Traffic Signal Analysis: In addition to the recommended improvements to Eubanks Road and Millhouse Road, the Traffic Impact Analysis also recommended an additional traffic study after the proposed facility is open in 2006. The study recommended by the analysis included a traffic signal analysis at Eubanks Road/Millhouse Road intersection. Although the results of the Traffic Impact Analysis do not identify the installation of a traffic signal as a necessary improvement at the Eubanks Road/Millhouse Road intersection, the analysis recommends that a signal warrant analysis be conducted after the facility is open in 2006.
We do not support the finding of the Traffic Impact Analysis recommending a signal warrant analysis after the facility opens in 2006. We believe a traffic signal is required before the proposed facility is occupied.
In addition to the traffic consultant study, the Town staff conducted a traffic signal warrant analysis at the intersection of Eubanks Road and Millhouse Road. Based on that analysis, the staff determining that a traffic signal was warranted before the proposed facility opens for the following reasons:
1. The proposed development will generate approximately 2,000 trips daily.
2. Average daily trips at the Eubanks Road/Millhouse Road intersection will increase once the warehouse facility currently under construction at the corner of Eubanks Road and Millhouse Road is completed.
3. A majority of the current and future southbound vehicle trips on Millhouse Road make east bound turning movements (left turns) onto Eubanks Road.
4. The current posted speed limit (45 mph) on Eubanks Road warrants a traffic signal.
5. The State plans to install automatic railroad gates for the railroad crossing on Eubanks Road at Millhouse Road.
The Town staff believes that the signal is warranted based on the number of trips and the above mentioned reasons. Citing the above reasons, the Town staff forwarded a request to the North Carolina Department of Transportation (NCDOT) recommending that NCDOT permit the installation of a traffic signal at the Eubanks Road/Millhouse Road intersection, before the proposed development is occupied. We understand that NDCOT is currently reviewing the need for a traffic signal at this intersection and we anticipate a response soon.
We recommend that the applicant install a traffic signal, subject to NCDOT approval, at the Eubanks Road/Millhouse Road intersection, prior to occupying the proposed facility. This recommendation has been incorporated into Resolution A. Subject to NDCOT approval, the applicant has agreed to install a traffic signal prior to occupying the proposed facility.
Vehicular Parking: Minimum parking requirements for a Public Service Facility are based on 1 parking space for every 350 square feet of floor area. For this development, the minimum number of on-site parking spaces required is 391 spaces. The applicant is proposing 287 parking spaces.
The applicant has indicated intent to seek Council approval of modifying the regulations in the Land Use Management Ordinance to provide less than the minimum parking space requirements on the justification that its parking space demands are different than the typical Ordinance standards. We recommend approval of this modification.
Bicycle Parking: The applicant proposes to exceed the minimum requirements for bicycle parking spaces. Based on the minimum number of required parking spaces (319), the minimum number of required bicycle parking spaces equals 32 (calculated on 10% of the required vehicular parking spaces). The applicant is proposing a total of 57 bicycle parking spaces (29 Class I and 28 Class II spaces). Individual bicycle lockers and lockable storage areas are proposed to satisfy the Class I parking standards. Four covered bicycle racks are proposed for the Class II spaces.
The Resolution A includes a stipulations requiring that the applicant provide 29 Class I and 28 Class II bicycle parking spaces.
Bus Stop, Routes: Two bus stops are proposed for the Public Works area. At such time that a bus service is extended to this facility, we recommend that the applicant install a pad, bench and shelter at the appropriate locations. This recommendation has been incorporated into Resolution A.
Greenway Path: The greenway trail, shown conceptually on the proposed Town Operations Facility plan, is part of the Rail and North Trails greenway network as identified in the Chapel Hill Master Greenway Plan. These greenway trails are planned to be part of a larger greenway network that will eventually connect to an Orange County greenway trail system as well as future and present trails such as the Bolin Creek, Upper Booker Creek, Lower Booker Creek, Tanyard, and Battle Branch Trails.
The Town’s Greenways Commission is involved in studying modifications to the Greenway Master Plan. A public forum to discuss the Rail Trail alignment was held on February 25. Some of the changes being considered to the Greenway Plan included a proposal to create a greenway path between the Town Operations Facility and the Eubanks Road Park and Ride Lot.
Construction of the greenway segment concept identified on the submitted site plan is not anticipated in the immediate future. The construction of this greenway is not a recommended improvement. However, in those areas where it is anticipated that the final location of the future greenway trail will be adjacent to land disturbance associated with the initial phase of the Operations Center, the applicant is proposing to clear and grade the anticipated greenway corridor. We support this proposal in order to facilitate construction of a greenway in the future.
Pedestrian Circulation: The proposed plan includes an internal sidewalk network connecting buildings and parking areas. The proposed plan includes two internal sidewalks between Millhouse Road and the employee/visitor parking areas. An internal sidewalk connection is also proposed between the Public Works portion of the site and the Transportation Department portion.
The applicant is also proposing to construct a 5-foot wide public sidewalk, along the east side of Millhouse Road, between Eubanks Road and the Public Works driveway.
We believe the sidewalk plans are appropriate.
Three walking paths are proposed between the building areas and future Rail and North Trails greenway corridor. We understand that the applicant is considering combining the walking paths with an on-site educational exhibit highlighting some of the site’s proposed sustainable development techniques such as the wet ponds, bio-retention facilities, porous pavement areas and the rain water recycling systems.
Transportation Management Plan: We recommend that a Transportation Management Plan be submitted for this development. A Transportation Management Plan outlines measures for encouraging employees of a development to utilize alternative modes of transportation, minimizing traffic to and from the site. We have included a stipulation in Resolution A that a Transportation Management Plan be approved by the Town Manager, prior to issuance of a Zoning Compliance Permit.
Landscaping and Architectural Issues
Buffers and Landscaping: The table below outlines the minimum landscape buffer requirements for the site and the buffers proposed by the applicant.
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Landscape Buffers |
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Location |
Ordinance Requirement |
Applicant’s Proposal |
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Interstate-40 |
100’ wide Type E |
100’ wide Type E |
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Millhouse Road |
30’ wide Type D |
50’ wide Type D |
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Three property lines adjacent to Nunn property |
20’ wide Type C |
Nunn north & east property lines 30’ wide Type C |
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Nunn south property line 30’ to 50’ wide Type C |
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Southern property line between Millhouse Road and I-40 |
20’ wide Type C |
50’ wide Type C
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In addition to replanting buffer areas cleared during the initial construction phase, it will be necessary for the applicant to install landscape buffer materials in the existing pasture area along Interstate 40. A cross-section of the proposed planting area for this meadow is included as a detail on plan sheet C3.3 (Conceptual Buffer Section B-B). This plan sheet also includes a planting cross-section for the buffer area adjacent to the two driveways on Millhouse Road (Conceptual Buffer Section A-A).
We recommend that a detailed Landscape Protection Plan be approved by the Town Manager prior to issuance of a Zoning Compliance Permit. This plan must include a detail of protective fencing and construction parking and materials staging/storage areas. This plan must also indicate which labeled trees are proposed to be removed and where tree protection fencing will be installed.
We recommend that detailed landscape plans (including buffers), landscape maintenance plans, and parking lot shading requirements be approved by the Town Manager prior to issuance of a Zoning Compliance Permit. The landscape plan shall indicate the size, type, and location of all proposed plantings.
We also recommend that all parking areas be screened from view in accordance with the provisions of Section 5.6 of the Land Use Management Ordinance. The screening plans shall be approved by the Town Manager prior to the issuance of a Zoning Compliance Permit.
Building Elevations and Lighting: We recommend that detailed building elevations and a lighting plan be approved by the Community Design Commission prior to the issuance of a Zoning Compliance Permit.
Resource Conservation District: The Town’s Engineering Department conducted an on-site inspection and determined that this site contains perennial streams (Old Field Creek and the unnamed northern stream) and an intermittent stream (tributary to Old Field Creek). The Resource Conservation District boundaries on this site include a 50-foot wide corridor along the pond, a 50 foot corridor along each stream edge of the intermittent tributary stream and 150-foot wide corridor along each stream edge of the two perennial streams.
The applicant has calculated that approximately 25 percent of the site (14 acres) is Resource Conservation District. Of the 14 acres, approximately 13 percent (1.94 acres) is proposed to be disturbed. Proposed land disturbance in the Resources Conservation District includes a portion of an internal access road leading to an off-site yard-material storage area, a section of stormwater drainage pipe, grading associated with a stormwater management pond, walking trails, a boardwalk between transportation buildings and a parking lot, and a sewer line and pump station. All activity proposed in the Resource Conservation District complies with Land Use Management Ordinance provisions.
Wetlands: The submitted application identifies wetlands along the unnamed stream and a potential wetland area along Old Field Creek. The final wetland boundary along Old Field Steam is currently under review by the Army Corps of Engineers and an exhibit generally outlining the anticipated final boundary is attached to this report (see Exhibit A). Anticipated land disturbance in the wetland area is associated with the installation of a sewer line across Old Field Creek and the construction of the access road to the yard-material storage area.
We recommend that prior to the issuance of a Zoning Compliance Permit the applicant identify the location of State or federally regulated wetlands on the site. We recommend that all wetlands associated with the proposed off-site improvements also be identified. We recommend that any proposed disturbance of wetlands demonstrate compliance with applicable State and federal regulations.
Significant Tree Stands: The applicant has identified several areas on this site containing significant tree stands. The largest uninterrupted stand of significant trees is located within the Resource Conservation District along Old Field Creek. A second notable significant tree stand is located between the proposed Public Works and Transportation portions of the site.
Proposed improvements, primarily associated with utilities, will impact a portion of some of the significant tree stand along Old Field Creek. Most of the significant tree stand between Public Works and Transportation is proposed to be retained, although a portion of this area could be impacted with the future construction of additional bus parking spaces.
Stormwater Management: Except for an old pond along the north boundary of the proposed Special Use Permit boundary, this site does not contain any type of man-made stormwater facilities. The railroad tracks that run along the entire western boundary of the site blocks off-site surface runoff from draining onto the property. This site contains two streams: Old Field Creek and a small tributary are located on the southernmost edge of the site and an existing stream and the pond form the northern boundary line of the Special Use Permit. Both drainage systems flow from west to east and discharge off-site under Interstate 40. Approximately 70 percent of the site drains into Old Field Creek and its tributary, with the remainder of the site draining to the northern creek.
The applicant’s Stormwater Impact Statement states that no existing off-site drainage will be introduced into the project’s area of development and the existing streams and natural channels at the site will not be impacted by the proposed development. The proposed stormwater management for this site includes the use of two wet stormwater ponds, infiltration ditches, seven bio-retention areas, filter strips, 40,000 gallons of underground stormwater re-use tanks, 40,000 square feet of permeable pavement areas and level spreaders.
The submitted application states that the proposed development will comply with the Land Use Management Ordinance requirements for rate, volume and water quality controls.
We recommend that, prior to the issuance of a Zoning Compliance Permit, the applicant submit a Stormwater Management Plan for review and approval by the Town Manager. We recommend that the plan be based on the 1-year, 2-year, and 25-year frequency, 24-hour duration storms, where the post-development stormwater run-off rate shall not exceed the pre-development rate and the post-development stormwater runoff volume shall not exceed the pre-development volume for the local 2-year frequency, 24-hour duration storm event. Engineered stormwater facilities m
