MEMORANDUM
TO: Roger L. Stancil, Town Manager
FROM: J.B. Culpepper, Planning Director
George Small, P.E., Engineering Director
Gene Poveromo, Development Coordinator
SUBJECT: Public Hearing: University Application to Modify Development Plan
DATE: November 13, 2006
PURPOSE
We have received an application from the University of North Carolina at Chapel Hill, requesting approval of a Modification of a Development Plan for the central campus. The proposal includes the addition of approximately 1.2 million square feet of new floor area. The application does not include new parking spaces. Development in the central campus occurs with Town Council approval of a Development Plan in accordance with the Office/Institutional-4 zoning district.
The Council originally approved a Development Plan for the main campus on October 3, 2001. In 2003, and 2004, the University submitted applications and the Council approved the request to modify the 2001 Development Plan. This request would be a third modification. In 2005, the Council also amended the Land Use Management Ordinance as it pertains to Development Plans and the Office/Institutional-4 zoning district.
This cover memorandum will outline key procedural issues and summarize the modifications to the Development Plan that are requested. We have prepared an attachment called “Evaluation of Application Prepared by Staff” (Attachment 1), which discusses the proposed changes and evaluates the changes in the context of zoning regulations and the 2004 Development Plan.
A full set of application materials is available for review in the Clerk’s Office and in the Planning Department. Materials can also be accessed through the University’s website, http://www.fpc.unc.edu/DevelopmentPlan. A link to the application is located at the bottom of the web page. Links to the 2001, 2003 and 2004 Development Plan applications are also available on the University’s web page.
2001 Development Plan: On July 5, 2001, the University submitted the first Development Plan application for building improvements on the main campus, following the enactment of the OI-4 zoning district. Improvements include new buildings, multi-level parking decks, renovations and additions to existing facilities and extensions to the campus pedestrian and open space network. The Town Council approved the University Development Plan on October 3, 2001.
2003 Development Plan Modification No. 1: On April 3, 2003, the University submitted an application to modify the October 3, 2001 Development Plan. Proposed improvements/changes included:
On June 25, 2003, and August 26, 2003, the Town Council approved the University Development Plan Modification No. 1, with conditions.
2004 Development Plan Modification No. 2: On March 15, 2004, the University submitted an application to modify the 2003 Development Plan. Proposed improvements included:
On June 14, 2004, the Town Council approved the University Development Plan Modification No. 2, with conditions.
2006 Development Plan Modification No. 3: On April 19, 2006, the Council conducted a public meeting at which the University presented a Concept Plan for the proposed Development Plan Modification No. 3. A copy of summary minutes from that meeting are attached (Attachment 6). Several issues were raised by the Council during the April 19 meeting. We understand that the University will respond to comments from the April 19 meeting at tonight’s meeting.
On June 8, 2006, the University applied for approval of a modification to the June 2004 Development Plan Modification No. 2.
The application before the Council was conditionally accepted on August 10, 2006. Accordingly, the Land Use Management Ordinance requires that Council action is to be taken prior to December 8, 2006.
On October 23, 2006, the University held a neighborhood meeting on the Perimeter Transition Area Projects. Notes from the meeting are attached to this memorandum (Attachment 5).
DEVELOPMENT PLAN MODIFICATIONS
The OI-4 zoning district allows minor changes to the Development Plan to be approved by the Town Manager. Major changes are considered to be Modifications that go through the same review and approval process as an initial Development Plan application (120 day review period, final action by the Town Council following a Public Hearing). The ordinance states that the Town Council shall approve a Development Plan unless it finds that the proposed development would not:
The University has prepared and submitted an application for Modification No. 3 of the Development Plan. That application is the subject of this memorandum. Notification of the application was mailed to property owners within 1,000 feet of the campus boundary. A Public Hearing on the application has been scheduled for November 13, 2006. This application was conditionally accepted on August 10, 2006. Accordingly, action could be taken at the December 4, 2006 meeting.
We anticipate that the University will discuss the four findings required by the Town Council during the Public Hearing portion of the process.
Review and approval of development on the University’s main campus takes place in the context of a specially-tailored zoning district called Office/Institutional-4. Following is a summary of key features of this zoning district.
OVERVIEW
OFFICE/INSTITUTIONAL-4 AND DEVELOPMENT PLANS
The purpose and intent of the Office/Institutional-4 District (OI-4) is to establish procedural and substantive standards for the Town Council’s review and approval of development on large tracts of land where the predominant use is to be college, university, hospital, clinics, public cultural facilities, and related functions.
A key feature of the Office/Institutional-4 zoning district is the preparation of a Development Plan that would allow a property owner, immediate neighbors, and the larger community to understand specifically what levels of development are being proposed, and what impacts would likely accompany the development, so that mitigation measures can be designed and implemented. If the Development Plan is approved, or approved with conditions, the Town Manager may then accept applications for individual Site Development Permits for specific buildings that are described in the Development Plan.
Development Plans: Owners of properties zoned OI-4 are able to prepare Development Plans, for review and action by the Town Council. Development Plan application submittal requirements include an analysis of impacts resulting from the proposed development, along with options to mitigate impacts relating to transportation, stormwater, noise and lighting. On July 2, 2001, the Council endorsed guidelines for use when evaluating impacts resulting from proposed development identified on a Development Plan. The guidelines address transportation impact, stormwater management, and noise and light. The adopted guidelines are included as an attachment to this memorandum.
Site Development Permits: If the Development Plan is approved, or approved with conditions, the Town Manager may then accept applications for individual Site Development Permits for specific buildings that are described in the Development Plan. If the Manager finds that the Site Development Permit application is consistent with the Development Plan, he must approve the application and issue the Site Development Permit within 15 working days of the submittal of a complete application. If the Manager finds that the application is not consistent with the Development Plan he will deny the application within 15 working days of the acceptance of the
application and refer the applicant to the Special Use Permit process described in Section 4.5. Alternatively, the applicant may revise the Site Development Permit application, or apply for an amendment to the Development Plan.
Site Development Permits for individual buildings are to be issued by the Town Manager, following a determination by the Manager that such individual building plans are generally consistent with the Council-approved Development Plan. No work on a building identified on the Development Plan may begin until a Site Development Permit has been issued. We believe that “generally consistent” does not mean “identical.”
OI-4 and the Main Campus Rezoning: On July 2, 2001, the Council also adopted an Ordinance amending the Zoning Atlas to rezone 582 acres of the University of North Carolina main campus to the new Office/Institutional-4 zoning district.
Proposed changes to the Development Plan are described and evaluated in the attached evaluation (Attachment 1). A summary listing of the proposed changes follows:
Perimeter Transition Areas
I-6 Grounds Facility: 48,000 square-foot building (near Odum Village)
ATH-1 Boshamer Stadium: Add 25,000 square-foot (Ridge Road)
Law School: Addition to the Law School of 50,000 square-foot (South Road)
A-5 Arts Common: Modify previously approved bldg height (South Columbia Street)
New Structures
O-4 Medical Office Building: 180,000 square-foot building (N. Medical Drive)
P-12 Tennis/Parking Deck: 231-space deck with tennis courts (Skipper Bowles Drive)
R-5 UNC Imaging Center: 330,000 square-foot building (near Lineberger Cancer Center)
I-7 Reclaimed Water Tank: Water storage facility (south of Manning Steam Plant)
A-20 School of Information & Library Sciences: 200,000 square-foot bldg (south of Blythe Drive)
Modifications
A-14 Dental Science Building: Demolish bldg. and add 175,000 square-foot (Dental Office/Research Bldgs)
A-21 Bell Tower/Academic Building & R-1, 2, 3: Reconfigure Research Bldg. 1, 2, & 3, add 80,000 square-foot building, and add pedestrian bridge (near Bell Tower)
I-5 Chiller Building: Relocate existing chiller (near Bell Tower)
P-4 Bell Tower Parking Deck: Reduce parking by 890 spaces (near Bell Tower)
A-22 Replace Davie Hall: Demolish/replace with 75,000 square-foot building (near Coker Arboretum)
Additions
P-11 Craige Parking Deck: Add two levels - 990 parking spaces (Manning Drive)
O-5 Alumni Center: Add 12,000 square feet (Stadium Drive)
ATH-2 Kenan Stadium: Add 8,804 seats and 125,000 square feet (Stadium Drive)
C-6 Carolina Inn: Add 15,000 square feet (Pittsboro Street and South Road)
The proposed application also includes changes to pedestrian circulation and utilities.
This application proposes to modify the Development Plan approved by the Council in 2004. The focus of evaluation has been on the proposed changes, and on the differences in impacts between the development proposed here and the development approved in 2004.
We believe that the main areas of impact would be: 1) changes in traffic and pedestrian patterns resulting from reallocation of parking spaces on campus; and 2) proposed projects located near the perimeter of the campus.
Attachment 1, “Evaluation of Application Prepared by Staff,” discusses this and other possible impacts.
RECOMMENDATIONS
The Land Use Management Ordinance specifies that when a Development Plan or a Modification of a Development Plan in the OI-4 zoning district is submitted, it shall be reviewed by the Planning Board. Review by other Town Advisory Boards is not required, but we have made information about this application available to all advisory boards that are involved in development review. In addition to the Planning Board, the Transportation Board, Historic District Commission, Community Design Commission, and Bicycle and Pedestrian Advisory Board have chosen to offer comments for the Council’s consideration.
Planning Board Recommendation: The Planning Board will review this application on November 21, 2006. A copy of their summary comments and recommendation will be provided as soon as it is available.
Transportation Board Recommendation: On October 26, 2006, the Transportation Board voted 6-0 to recommend that the Council approve this application. The attached Summary of Transportation Board Action includes comments for the Council’s consideration.
Historic District Commission Recommendation: On October 12, 2006, the Historic District Commission voted 7-0 to recommend that the Council approve the proposed changes to the Carolina Inn. The attached Summary of Historic District Commission Action includes comments for Council’s consideration.
Community Design Commission Recommendation: On October 25, 2006, the Community Design Commission voted 7-0 to recommend that the Council approve this application with the adoption of Resolution A. The attached Summary of Community Design Commission Action includes comments for Council’s consideration.
Bicycle and Pedestrian Advisory Board Recommendation: On October 24, 2006, the Bicycle and Pedestrian Advisory Board voted 8-0 to recommend that the Council approve this application with adoption of Resolution A. The attached Summary of Bicycle and Pedestrian Advisory Board Action includes comments for Council’s consideration.
Staff’s Preliminary Recommendation: We recommend that the Council approve this application with conditions, with adoption of Resolution A.
We recommend that, at the conclusion of tonight’s discussions, the Council recess this hearing to December 4 for further consideration and possible action.
ATTACHMENTS