AGENDA #9
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Response to Petition Regarding Chapel Ridge Apartments
DATE: February 24, 2003
This memorandum responds to Council discussion of a citizen petition on November 25, 2002. At that time, the Council heard citizens and discussed concerns raised about access and circulation surrounding a new development, Chapel Ridge Apartments.
BACKGROUND
On October 7, 2002, Ms. Kristina Bach, a resident of Brookstone Apartments, petitioned the Town Council requesting that the Council consider alternative options for vehicular access to the Chapel Ridge apartment complex. Specifically, the petition requested that the Town Council close the public vehicular connection between the Brookstone apartment complex and the Chapel Ridge development.
On November 25, the Council received a report from the Manager in response to this petition (attached). The report summarized the regulatory context for the Chapel Ridge Development. Following discussion, the Council asked for additional information and options.
DESCRIPTION OF CHAPEL RIDGE APARTMENTS
On November 13, 2000, the Town Council approved a Special Use Permit for Chapel Ridge apartment complex. The Special Use Permit authorized a multi-family development with 180 dwelling units on 23.6 acres of land. The site is located west of Northfield Drive and south of Brookstone Drive (please see attached area map). We note that both Northfield Drive and Brookstone Drive are existing public streets.
The project is currently under construction and we anticipate that portions of the development will be available for occupancy early next year.
ACCESS AND CIRCULATION
The applicant’s original proposal included vehicular access to the site from two points: Airport Road via Northfield Drive, and Homestead Road via Brookstone Drive. During the Public Hearing process the Council discussed traffic impacts at the Northfield Drive/Airport Road intersection. In response to concerns about turning movements at this intersection, the Council approved the Special Use Permit with the following stipulation:
Northfield Drive: Access between Northfield Drive and this development shall be limited to emergency access only, until such time as the Town Council approves measures to address the safety of turning movements along Airport Road and permits access for other than emergency purposes. Such changes shall not require a Special Use Permit Modification.
We have attached a copy of the approved Special Use Permit for the Council’s reference.
DISCUSSION
Access to Chapel Ridge was a key topic of discussion during the Council’s review of the project. We provided notification that the application was being considered in the following manner: signs posted at the edges of the site (including at the Brookstone connection), mailed notices to property owners within 1,000 feet, advertisements in the newspaper, and posting of the agenda materials on the Town’s website.
During the Council’s Public Hearing, discussion focused on safety concerns for turning movements into and out of Northfield Drive from Airport Road. In response to the discussion and concerns, the Council decided that traffic to and from the new apartments should be channeled through the signalized intersection at Homestead Road, requiring Chapel Ridge traffic to use the public right-of-way through Brookstone Apartments, with a condition of the approval that prohibits access from the new apartments onto Northfield Drive.
The petition requests that the vehicular access to Chapel Ridge via Brookstone Drive be closed. We note that Brookstone Drive is a public road, and that the Council has the authority to close a Town-maintained public road. In this instance, however, Brookstone Drive is the only approved point of vehicular access to the Chapel Ridge site. Thus, closing Brookstone Drive would leave the Chapel Ridge development without a point of access, and would represent a significant change to the Chapel Ridge approved plan.
Regarding the alternative option of opening Northfield Drive to public vehicular access, the approved Council Special Use Permit suggests additional study of Airport Road. Following the Council’s direction, we have reviewed the traffic patterns in this area and offer the following comments.
DISCUSSION OF TRAFFIC PATTERNS
The Town Council asked the staff to provide information regarding the following traffic-related issues associated with the Chapel Ridge Development:
We offer a response for each issue:
1. Repercussions to Airport Road of opening Northfield Drive to the Chapel Ridge Apartments:
Comment: The applicant’s original proposal included vehicular access to the site from Airport Road via Northfield Drive and from Homestead Road via Brookstone Drive. During the Public Hearing for Chapel Ridge Apartments, the Council discussed traffic impacts at the Northfield Drive/Airport Road intersection. In response to concerns about turning movements at this intersection, the Council approved the Special Use Permit with the following stipulation:
Northfield Drive: Access between Northfield Drive and this development (Chapel Ridge Apartments) shall be limited to emergency access only, until such time as the Town Council approves measures to address the safety of turning movements along Airport Road and permits access for other than emergency purposes. Such changes shall not require a Special Use Permit Modification.
We have provided trip distributions in Attachment #11 for Chapel Ridge Apartments for the following scenarios:
Scenario 1: Only Brookstone Drive providing full access to and from the Chapel Ridge Apartments
Scenario 2: Both Northfield Drive and Brookstone Drive providing full access to and from Chapel Ridge Apartments
Scenario 3: Brookstone Drive providing full access to and from Chapel Ridge Apartments and Northfield Drive providing only right-in/right-out access to and from Chapel Ridge Apartments
In Scenario 1, the capacity analysis at the unsignalized intersection of Brookstone Drive and Homestead Drive shows Level of Service B for existing conditions and Level of Service C for future conditions. (Level of Service is the standard measure of how well an intersection is operating. Level of Service A is the best. When Level of Service drops below D, the intersection is operating below Town standards.) However, provision of only one means of access to and from the apartment complex raises safety concerns in the event of an emergency. Also, the traffic volume generated by the Chapel Ridge Apartments may create periodic traffic congestion at the Brookstone Drive/Homestead Road intersection during peak hours.
In Scenario 2, the majority of the traffic would utilize Northfield Drive. This could result in some congestion and conflicting movement problems at the Northfield Drive/Airport Road intersection due to increased number of left-turn movements and conflicts with the existing driveways in the vicinity of the intersection. The capacity analysis at the unsignalized intersection of Northfield Drive and Airport Road indicated a level of service B for the existing and proposed conditions. Under this scenario, operation of the intersection of Brookstone Drive and Homestead Road would improve, and the capacity analysis at this location shows level of service is B for existing and future conditions.
In Scenario 3, restricting traffic to right-in/right-out on Northfield Drive at Airport Road would mitigate the congestion and conflicting movement problems associated with left-turns as described above in Scenario 2. The level of service remains to be B in both existing and proposed conditions at the intersections of Northfield Drive/Airport Road and Brookstone Drive/Homestead Road. However, restrictions on left-turn movements would have an adverse affect on the business located on Northfield Drive, and may result in safety-related problems resulting from drivers making difficult and illegal left turns in an attempt to access the right-in-only lane via a left turn.
We attach a detail (Attachment #12) showing a possible configuration of a right-in/right-out intersection at this location.
Our original recommendation on access for the Chapel Ridge site was to provide two points of access: one via the existing public street through Brookstone Apartments, and one via access to Northfield Drive (assuming a full array of turning movements at the Northfield-Airport intersection). After reviewing the information described above, we continue to recommend this option: opening the access to Northfield Drive, without restricting turning movements at the Northfield/Airport intersection. We also recommend pursuing installation of a traffic calming device (speed hump) in the Brookstone Drive right-of-way.
2. Possibility of a new road connection from Chapel Ridge Apartments:
Comment: During the conceptual stage of the Chapel Ridge Apartment project, the applicant proposed a new road connection from the apartments to Homestead Road. The proposed road connection would have required removal of a significant number of trees near Homestead Road, and the applicant was advised by Town staff that the proposal was not consistent with the Town’s objectives to preserve trees. Subsequently, the applicant built a retaining wall as required by the Special Use Permit; any new road connection would require removal and relocation of portion of the wall. We think that a new road connection to Chapel Ridge Apartments would not be practical due to the significant clearing, grading, and expense that would be involved.
3. Information on Stipulation #7 of Special Use Permit, Airport Road Pedestrian Improvements and the current status:
Comment: The Council approved the Special Use Permit with the following stipulation regarding pedestrian improvements on Airport Road:
Airport Road Pedestrian Improvements: That the applicant shall seek approval of (a) some type of median, (b) a center refuge island, or (c) a pedestrian crossing light from the North Carolina Department of Transportation (NCDOT) and the Town Manager, and shall pay for such improvement if approved. If NCDOT does not provide approval by the time the first Certificate of Occupancy is ready to be issued, then the applicant shall post a payment-of-lieu with the Town in an amount approved by the Town Manager to meet the cost of (a), (b), or (c) above, whichever is greater. If NCDOT later approves, installation shall be arranged by the Town using the payment-in-lieu. If NCDOT does not approve one of these alternatives within five years after issuance of the last Certificate of Occupancy, then the applicant shall have no responsibility to pay for the improvements and the payment-in-lieu would be returned to the applicant.
The North Carolina Department of Transportation (NCDOT) will not permit the installation of a median, a center refuge island, or a pedestrian crossing light on Airport Road in the vicinity of Northfield Drive at this time. However, the NCDOT has agreed to study the area as development continues in the area. A copy of the letter from NCDOT is provided on Attachment #13. For information purposes, a schematic diagram of a median on Airport Road with pedestrian refuge island is provided on Attachment #14.
As stipulated in the Special Use Permit, we have asked the applicant for a payment-in-lieu for installation of a median, a refuge island, or a pedestrian signal at this location. If the NCDOT later approves the installation, the Town will arrange for the installation of the improvements using funds from the payment-in-lieu. If the NCDOT does not approve one of these alternatives within five years after issuance of the last Certificate of Occupancy, then the applicant would have no responsibility to pay for the improvements and the payment-in-lieu would be returned.
4. Provide Information on bus routes that serve Chapel Ridge Apartments and the type of pedestrian movements required as a result of the bus stops:
Comment: The Council approved the Special Use Permit with the following stipulation regarding bus stops:
Bus Stops: That the applicant is not required to construct the proposed on-site bus stop with shelter, bench and pad. Instead, the applicant shall provide a payment-in-lieu for the construction of two bus stops, including shelter, bench and pad. This payment-in-lieu may also be used for improvements to existing bus stops that may serve this site.
Bus Routes Serving This Area: Bus service is provided to this area with regular service of Chapel Hill Transit’s A, N/S, and T routes, from approximately 6:30 a.m. to 7:30 p.m. Maps showing these routes are included in Attachment #16.
The applicant provided a $10,000 payment-in-lieu in April, 2001 to meet the above stipulation of the Special Use Permit. We plan to improve the exiting bus pull-offs and shelters located in the vicinity on Airport Road and Homestead Road with the funds from the payment-in-lieu. We plan to monitor the area for pedestrian circulation to and from the bus stops after the apartments are fully occupied and work with NCDOT to improve the pedestrian safety on Airport Road and Homestead Road.
CONCLUSION
We believe that access to and from Chapel Ridge Apartments via Northfield Drive would reduce traffic volumes on Brookstone Drive and congestion at the Brookstone Drive/Homestead Road intersection. We do not believe that it is feasible at this time to create a new means of access to and from the Chapel Ridge Apartments.
In addition, we believe that installation of a speed hump on Brookstone Drive may reduce potential speeding problems that could result as traffic on Brookstone Drive increases. We note that we have been in contact with the owner/developer of Chapel Ridge Apartments, who has indicated a willingness to provide a payment-in-lieu of construction for a speed hump on Brookstone Drive.
RECOMMENDATION
We believe that the language of the Chapel Ridge Special Use Permit gives the Council the authority to approve a Northfield Drive entrance to Chapel Ridge. We recommend that the Council take that action with approval of the attached resolution, which would accomplish the following:
ATTACHMENTS
Manager’s Recommendation
A RESOLUTION AUTHORIZING ACCESS TO CHAPEL RIDGE APARTMENTS FROM NORTHFIELD DRIVE, AND DIRECTING THE TOWN MANAGER TO ARRANGE FOR INSTALLATION OF RIGHT-IN/RIGHT-OUT RESTRICTIONS AT THE INTERSECTION OF NORTHFIELD DRIVE AND NC 86 (2003-02-24/R-10)
WHEREAS, the Town Council approved a Special Use Permit for Chapel Ridge apartment complex on November 13, 2000; and
WHEREAS, on October 7, 2002, Ms. Kristina Bach, a resident of Brookstone Apartments, petitioned the Town Council requesting that the Town consider alternative options for vehicular access to the Chapel Ridge apartment complex; and
WHEREAS, on November 25, 2002, the Council asked for additional information and options concerning this situation; and
WHEREAS, a condition of the November 13, 2000 Special Use Permit states:
Northfield Drive: Access between Northfield Drive and this development shall be limited to emergency access only, until such time as the Town Council approves measures to address the safety of turning movements along Airport Road and permits access for other than emergency purposes. Such changes shall not require a Special Use Permit Modification.
WHEREAS, the owner/developer of Chapel Ridge Apartments has offered to provide a payment-in-lieu of construction for a speed hump on Brookstone Drive,
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council:
This the 24th day of February, 2003.