AGENDA #13

 

MEMORANDUM

 

TO:                  Mayor and Town Council

 

FROM:            W. Calvin Horton, Town Manager

 

SUBJECT:       Potential Property Relocation of Municipal Operations Functions

 

DATE:             January 24, 2000

 

 

Adoption of the attached resolution would authorize the Town Manager to undertake a site analysis of properties north of Eubanks Road and within the Town’s zoning jurisdiction to determine their suitability for possible future municipal operations functions.  Attachment #1 is a map showing the location of these properties.

 

SUMMARY

 

The Town’s Municipal Operations Facility includes the Town’s Public Works facilities, Transit facilities and car impoundment lot, as well as the Orange County Animal Shelter and two recycling sites (see Attachment #2).  The 24.2 acre site is part of the Horace Williams tract and is under lease from the University until December 31, 2006.

 

If the lease expires we believe that some, and possibly all of the current municipal functions on the site may need to be relocated.  Based on this assumption, this report proposes a process of studying possible future sites for these relocated functions.

 

If all of the current municipal operations functions are relocated together, we believe that approximately 28.4 developable acres may be needed.  Including adequate perimeter buffers and appropriate stormwater management improvements, we believe that the Town would need to acquire a site totaling about 40 acres.

 

Finding a site within the Town’s Planning jurisdiction that is suitable for a future Municipal Operations Facility will likely be difficult. Based on the preliminary analysis provided in this report, the most suitable site we have been able to identify is located in the area north of Eubanks Road shown on Attachment #1. We propose that a site analysis and preliminary cost study be done of this area to determine whether any specific sites exist that could be used for municipal operations functions. 

 

BACKGROUND

 

On January 1, 1977, the Town entered into a thirty-year lease agreement with the University for the current 24.2 acre Municipal operations facility site.  Initially used for the Town’s Public Works functions, the uses of the site have been expanded to include the Town’s Transportation Department and car impoundment lot as well as the County Animal Shelter and two recycling centers, one operated by the Solid Waste Department and one run by a local boy scout troop.  Attachment #2 shows how the current site is laid out.

 

In November 1996, the University released a study entitled “Outlying Parcels Land Use Plans Project Summary” developed by the planning firm Johnson Johnson & Roy.  Although this study is conceptual in nature, it did provide some insight into the University’s long range objectives for the area currently being leased to the Town.  Attachment #3 is a section of the study’s proposed land use plan showing the Horace Williams tract’s major Airport Road entrance running through the existing Public Works Facility and identifying the adjacent areas as intended for utilitarian and local commercial uses.

 

In January 1998, we prepared a draft study entitled “Municipal Operations Facility on the Horace Williams Tract – Preliminary Summary of Long Range Planning Issues”.  This study identified the site’s current uses, provided estimates of long range space needs for Town municipal operations functions, attempted to quantify the impact of the University’s Johnson Johnson & Roy plan on existing facilities, and presented a conceptual plan for possible future expansion onto adjacent areas of the Horace Williams tract.  This draft study was presented to the Town – Gown Committee on Fiscal Affairs to elicit comments on a possible extension and expansion of the current lease.  Attachment #4 is a graphic representation of this study’s conceptual redevelopment plan showing the impact of the University’s likely Airport Road entrance drive and suggesting possible relocated and expanded Town functions for areas west of the current 24.2 acre lease site.  It should be noted that because essentially all of this western expansion is located over an abandoned landfill, considerable additional study would be needed to determine the feasibility of this plan, in the event that the University were willing to consider a lease for an expanded area.

 

In the last several years there have been some informal discussions with the University regarding a lease extension on the Horace Williams tract but the University has not provided any clear indication of their long-term intent.  We believe that a likely outcome is a short-term lease extension, and the Chancellor has recently suggested informally  that a two-year extension of the lease for the current site is possible.  Considering the conflicts between the current Municipal Operations Facility site and the University’s likely future uses for the property, however, and the anticipated old landfill-related development constraints associated with needed expansion, we believe that it is appropriate to initiate a site search for a possible future Municipal Operations Facility site now. 

 

We believe that the availability of suitable sites for Municipal Operations functions within the Town’s Planning jurisdiction will become increasingly limited if we wait until more information is available about the University’s long-range plans.  We note that a parcel, located between Homestead Park and the Greene Tract, that we considered as a possible relocation site when we initiated our preliminary evaluation of available properties last year, is now under contract and is no longer available.  Similarly, we anticipate that the properties proposed for additional study in this report may be developed in the near future and therefore may also become unavailable.  The likely cost of any future site, currently estimated at approximately one million dollars for 40 acres in the less expensive part of the  study area, is also likely to increase significantly in future years.  Because of these concerns, we believe that there is some urgency in initiating a formal process of evaluating potential relocation sites.  

 

DISCUSSION

 

Future Site Size:

 

The amount of property the Town would need to relocate municipal operations functions depends on whether all the existing municipal functions on the current site would need to be relocated or if one or more could be retained at the current site.  A review of the Town’s conceptual redevelopment plan (attachment #4) shows that the Town’s Transportation Facility, unlike the Town’s Public Works Facility, would not be affected by the University’s likely Airport Road access drive and it is possible that the University may allow it to remain at the current site while not extending the lease in a manner that would permit the larger Public Works Facility to be reconfigured on the Horace Williams tract.  At this point, however, lacking any clear signal from the University, we believe that it is prudent to include Transportation facilities in the site selection criteria.

 

Another issue that will affect the amount of land needed for a future site is growth in the municipal services the Town provides.  The Town’s 1998 study included a table, reproduced here, showing anticipated space needs for municipal operations functions over the next thirty years.  This table is based on what we believe is a reasonable assumption that space needs will track projected population growth and also includes the addition of two new municipal functions; a public housing maintenance facility and a fueling station/wash pit.  This table suggests that a site with about 28.4 developable acres will be needed in the future.

 

            Function                                               Current                         Anticipated

 

Public Works Operations                                    7.6                                         10.6

 

            Housing Maintenance                              ---                                            1.3

 

            Fuel and Wash Pit                                  ---                                            0.9

 

Public Works Storage and Transfer                     4.2                                           5.0

 

Transit Operations                                              7.0                                           9.8

 

Municipal Tow Lot                                             0.6                                           0.8

 

Total                                                               19.4 Acres                              28.4 Acres

 

There are several variables that will determine what size parcel would be needed to provide for the estimated 28.4 acres of developable space.  Physical site factors including steep slopes and the existence of Resource Conservation Districts may make some sites unsuitable or require them to be larger in order to accommodate the necessary development.  Similarly, regulatory restrictions on the amount of impervious surface permitted in the Watershed Protection District and the livability space requirements of low density residentially zoned property may require that a site be significantly larger in order to be used for municipal operations type uses.  It is noteworthy that the current Municipal Operations Facility site has only about 31% livability (non-impervious) space, a level of development only permitted on sites zoned for institutional or commercial uses.  The need for ample perimeter buffers will also add to the size of the site as will necessary stormwater detention and/or water quality retention ponds.  Considering these variables, we suggest that a site of approximately 40 relatively level acres excluding Resource Conservation District areas, zoned for institutional type uses or so located as to be reasonably rezoned, may be needed. 

 

Future Site Location:

 

The current site is located fairly close to the geographic center of Town and therefore is an efficient location for most Town services.  Unfortunately, with the notable exception of the Horace Williams Tract, there are no other undeveloped tracts of property close to the Town center that could reasonably be used for municipal operations functions.  A quick overview of undeveloped and underdeveloped properties within the Town’s jurisdiction indicates that there are two general locations where sites totaling 40 acres or more may still be available. 

 

After surveying the entire Town and surrounding urban services area, we looked more carefully at a number of parcels on both sides of 15-501 south of Town.  These parcels tend to be reasonably level and some of them are quite sizable.  The development constraints for these parcels are considerable: They are located within the Jordan Lake Watershed Protection District and they are zoned for low-density residential and therefore have an 87% livability space requirement.  Although rezoning one or more of these parcels to a zoning designation that would permit municipal operations type development characterized by large impervious parking and service areas is possible, it may not be desirable.  Similarly, although the use of water quality ponds might legally permit development of a municipal operations facility in the Watershed Protection District, we believe that other locations should be considered first.

   

A potentially more suitable location is north of Town and includes the Greene Tract and a group of parcels on both sides of Eubanks Road.  These parcels vary somewhat in topography, include some Resource Conservation Districts and fall into several zoning categories including mixed use office and institutional zoning directly adjacent to Eubanks Road.  From the perspective of topography, the Greene tract is likely to be the most developable. Because of its Rural Transition zoning and joint ownership, however, its use for municipal operations functions may be problematic.  A number of smaller parcels also exist south of Eubanks Road that could be considered as a group, but because of their proximity to developed residential neighborhoods they may not be as well suited to municipal operations functions as would property that is more remote relative to neighborhoods. 

 

The group of parcels north of Eubanks Road, by comparison, may include suitable sites.  This area, shown on Attachment #1, includes 17 separate parcels with a total of about 206 acres.  Of these parcels, seven currently have residential buildings, one has a United Parcel Service business and one is the Town park and ride lot.  The eight undeveloped parcels total approximately 127 acres.  The area includes some Resource Conservation Districts that may limit future development but the extent of these limitations is not fully known at this time.  All of the area is currently zoned for multiple use, some as residential multiple use and some as office and institutional multiple use.  Although the site is relatively far from the center of Town, it has good access to NC 86 and I-40; and, therefore, would likely function satisfactorily.  The site is within the Town’s Urban Services Boundary and is expected to receive Town services upon any future annexation.  Currently, the closest existing water and sewer is at Chapel Hill North, suggesting that off-site utility work may need to be considered when the site is developed.

 

CONCLUSION

 

We believe that the area north of Eubanks Road shown in Attachment #1 is likely to include a site or sites that may be the most suitable location for a relocated Municipal Operations Facility in the event that relocation becomes necessary.  In order to determine if the area is suitable, we would need a detailed Resource Conservation District delineation and a site analysis.  We believe that the Town staff could develop this information if property owners would allow access to the properties.  We have begun making preliminary contacts with local property owners.

 

Adoption of the attached resolution would authorize the Town Manager to undertake these preliminary studies.  If it is determined that a suitable site may exist, we would restudy our initial cost estimates and report back to the Council before a more comprehensive feasibility study is undertaken.  This feasibility study would include sub-soil investigations and other engineering studies, preliminary site planning, and a definitive real estate appraisal and may cost from $30,000 to $50,000.

    

RELATED AGENDA ITEM

 

A different item on tonight’s agenda discusses the renovation of the Police Headquarters.  One option presented is the possibility of acquiring another site and building a new headquarters building instead of renovating the present structure.  It is possible that the area north of Eubanks Road discussed in this memorandum could also include a site for a new police building.  This site could be part of a future Municipal Operations Facility or could be located on a separate parcel.  This additional acreage is not considered in this memorandum’s discussion of future site size criteria but, if it is determined that it should be a part of a future larger facility, could be included in future studies.

 

RECOMMENDATION

 

We recommend that the Council adopt the attached resolution authorizing the Town Manager to develop a preliminary site analysis of properties on the north side of Eubanks Road as shown on Attachment #1.


 

ATTACHMENTS

 

1.            Proposed Study Area Map (p. 8)

2.            Chapel Hill Municipal Operations – Current Use Analysis (p. 9)

3.            UNC Horace Williams Property – Final Proposed Land Use Plan (p.10)

4.            Chapel Hill Municipal Operations – Conceptual Redevelopment Study (p.11)

 

 


 

A RESOLUTION AUTHORIZING THE TOWN MANAGER TO DEVELOP A SITE ANALYSIS OF PROPERTIES NORTH OF EUBANKS ROAD AND WITHIN THE TOWN’S PLANNING JURISDICTION TO DETERMINE THEIR SUITABILITY FOR POSSIBLE MUNICIPAL OPERATIONS FUNCTIONS (2000-01-24/R-12)

 

WHEREAS, the current lease for the Municipal Operations Facility site expires on December 31, 2006; and

 

WHEREAS, there may be a need to relocate some or all municipal operations functions; and

WHEREAS, information currently available suggests that the most suitable site may be in the area north of Eubanks Road and within the Town’s planning jurisdiction; and

 

WHEREAS, additional information is needed to determine if the above area includes a suitable site;

 

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council authorizes the Town Manager to develop a site analysis of properties north of Eubanks Road and within the Town’s planning jurisdiction to determine their suitability for possible municipal operations functions and, if a suitable site is found, report back to the Council prior to initiating a development feasibility study.

 

This the 24th day of January, 2000.