AGENDA #1
MEMORANDUM
TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Public Hearing: University Application to Modify Development Plan
DATE: May 17, 2004
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 Town Council originally approved the Development Plan on October 3, 2001. In 2003, the University submitted an application to modify the 2001 Development Plan. That application, Development Plan Modification No. 1, was reviewed and approved by the Council on June 25, 2003 and August 26, 2003. This request would be a second modification.
This cover memorandum will outline key procedural issues, and summarize the modifications to the Development Plan that are requested. We have prepared a Staff Report (Attachment 1) which discusses the proposed changes, and evaluates the changes in the context of zoning regulations and the 2003 Development Plan.
A full set of application materials is available for review in the Town Clerk’s Office and in the Chapel Hill Planning Department. Materials can also be accessed through the Town’s website, http://www.townofchapelhill.org. A link at the bottom of the main page leads to materials describing UNC’s Development Plans from 2001 and 2003 and a description of this application for a modification.
In the winter and spring of 2001, the Town Council was engaged in discussions with University representatives regarding zoning regulations for UNC’s main campus. A new zoning category was created, called Office/Institutional-4, designed to allow Council review and approval of a general Development Plan for the main campus. The zoning regulations state that upon submittal of a Development Plan application, a 90-day period of evaluation and public review follows. Council action is required by the ordinance within 90 days of the acceptance of an application. Following approval of a Development Plan, the University submits building-by-building Site Development Permit applications. These detailed plans go through an administrative review and action process, with action required within 15 working days of acceptance of an application.
On October 3, 2001, the Town Council approved a Development Plan for the central campus. The plan proposed approximately 4 million square feet of net new floor area on campus, accompanied by a net increase of 1,550 parking spaces on campus. On June 25, 2003 and August 26, 2003, the Council approved Modification No. 1. Modification No. 1 approved 274,150 square feet of new floor area and 29 additional parking spaces. Individual Site Development Permit applications have been submitted and approved pursuant to the modified Development Plan.
On April 1, 2004, the Council conducted a public meeting at which the University made a presentation of the proposed Modification No. 2 application. Town advisory board members and property owners within 1,000 feet of the Development Plan boundary were notified and invited to the April 1, 2004 meeting. During the April 1, 2004 meeting, Council members raised several questions about the proposed modifications. The questions and a response from staff and the applicant are included as Attachment 2.
The application before the Council was accepted on April 1, 2004; accordingly, action is to be taken prior to June 30, 2004.
Proposed changes to the Development Plan are described and evaluated in the attached evaluation. A summary listing of the proposed changes follows:
New Structure: 130,000 square foot physician’s building.
Building Additions: 10,000 square foot addition to Morehead Planetarium.
28,000 square foot addition to Fetzer Gym.
1,600 square foot addition to 410 East Franklin St.
Infrastructure Modifications: Relocate the proposed Science Complex chiller plant to the future Bell Tower parking deck.
Parking Modifications: Relocate the 600 parking spaces from the proposed Science Complex parking deck to the proposed 1,000 space Bell Tower parking deck, increasing that deck to a proposed 1,600 spaces.
The proposed application also includes changes to pedestrian circulation and utilities.
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.
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.
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.
This application proposes to modify the Development Plan approved by the Council in 2003. The focus of evaluation has been on the changes proposed, and on the differences in impact of the proposed development compared to the impact of the development approved in 2003.
We believe that the main areas of impact would be: changes in traffic and pedestrian patterns resulting from reallocation of parking spaces on campus; perimeter transition issues; fixed guideway corridor; and changes to the Bell Tower green roof and pedestrian corridor. The attached Staff Report discusses these 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, Parks and Recreation Commission and Bicycle and Pedestrian Advisory Board have chosen to offer comments for the Council’s consideration.
Planning Board Recommendation: On May 4, 2004, the Planning Board voted 9-1 to recommend that the Council approved the Development Plan Modification No. 2 with the adoption of Resolution B. Please see the attached Summary of Planning Board Action.
Resolution B includes the following stipulations as recommended by the Planning Board:
1. Construction Management Plan Enforcement: That each Construction Management Plan shall describe how the University will enforce the requirements of the Construction Management Plan. In particular, the plan must describe how the University intends to enforce and ensure that pedestrian and bicycle corridors will remain open and safe during construction periods.
2. Construction Management Contact Information: That each construction site will include visible signage listing a telephone number and a University representative available to answer questions and respond to concerns about pedestrian safety and security. A detail of the proposed sign, including number of signs and general locations, shall be submitted with each Site Development Permit application.
3. Pedestrian Safety: Detailed information on how the Pedestrian Management Plan will provide for the safe and continued use of bicycle and pedestrian corridors during construction shall be included in Site Development Permit applications.
4. Pedestrian Security: Detailed information on pedestrian security measures including the placement of security phones and lighting shall be included in Site Development Permit applications. The plan shall also include additional information on security for pedestrian bridges during evening hours.
The above recommended stipulations have also been included in Resolution A, the Manager’s preliminary recommendation. Resolution B differs from the Manager’s preliminary recommendation in that Resolution B does not include stipulations discussed at other advisory board meetings.
Transportation Board Recommendation: On May 4, 2004, the Transportation Board voted 7-0 to recommend that the Council approve this application with the adoption of Resolution A. Please see the attached Summary of Transportation Board Action.
Resolution A includes the following stipulations as recommended by the Transportation Board:
1. Construction and Pedestrian Management Plans: That the Construction and Pedestrian Management Plans should consider respond to the following issues:
a. Construction fencing should not be placed directly adjacent to the roadway or an alternative pedestrian path be provided.
b. Any missing sidewalk and curb and gutter sections near new construction projects be completed before new construction begins.
c. Damaged roadways near construction areas should be repaired in a timely manner.
d. The impact of proposed construction on safe routes for bicycle traffic should be considered.
2. Relation to Potential Fixed Guideway Corridor: A fixed guideway corridor, in the area of the proposed medical building, should be preserved to allow future connections between north and south campus.
Historic District Commission Recommendation: The Historic District Commission will meet May 13. We will provide the Commission’s recommendation as soon as it is available.
Community Design Commission Recommendation: The Community Design Commission will meet May 19. We will provide the Commission’s recommendation as soon as it is available.
Parks and Recreation Commission Recommendation: The Parks and Recreation Commission will meet May 19. We will provide the Commission’s recommendation as soon as it is available.
Bicycle and Pedestrian Advisory Board Recommendation: The Bicycle and Pedestrian Advisory Board will meet May 25. We will provide the Board’s recommendation as soon as it is available.
Manager’s Preliminary Recommendation: We recommend that the Council approve this application with conditions, with adoption of Resolution A.
Resolution B would approve the application as recommended by the Planning Board.
Resolution C would deny the application.
We recommend that, at the conclusion of tonight’s discussions, the Council recess this hearing to June 14, for further consideration and possible action.
ATTACHMENTS
1. Staff Report (p. 8)
2. Resolution A - Manager’s Preliminary and Transportation Board Recommendation (p. 16).
3. Resolution B - Planning Board Recommendation (p. 22).
4. Resolution C – Denial (p. 24).
5. Response to Council questions from April 1, 2004 (p. 25).
6. Summary of Advisory Board Actions (p. 29).
7. May 3, 2004 Transportation Impact Analysis (p. 31).
8. OI-4 Zoning District (p. 37).
9. Guidelines for Noise, Light, Stormwater, and Traffic Impacts (p. 44).
10. Location Map (p. 61).
11. Aerial Photos (p. 62). Photo 1, Photo 2, Photo 3, Photo 4, Photo 5
12. Figure 4-12: “Traffic Calming and Pedestrian Safety” (p. 67).
Additional Materials:
Cover Letter
Development Plan Modification No. 2 - Supplement #1
Development Plan Modification No. 2 - Transportation Impact Analysis
University of North Carolina at Chapel Hill Development Plan Modification No. 2
Differences between Resolutions
|
ISSUES |
Resolution A (Approval)
Town Manager’s Preliminary and Transportation Board Recommendation |
Resolution B (Approval)
Planning Board |
|
Construction Management Plan to address how University will ensure pedestrian & bicycle corridors remain open during construction |
Yes |
Yes |
|
Construction information signs with University contact name and phone numbers. |
Yes |
Yes |
|
Pedestrian Management Plan designed to provide continued use of pedestrian & bicycle corridors |
Yes |
Yes |
|
Pedestrian Management Plan to address pedestrian security measures on pedestrian bridges |
Yes |
Yes |
|
Reservation of fixed guideway corridor near Physician’s Building |
Yes |
* |
|
Specific requirements for construction fencing, repair of sidewalks, curb, gutter and roadways, and impacts of construction |
(Incorporated into above conditions) |
* |
* - Issues not raised at Advisory Board meeting.
STAFF REPORT
SUBJECT: Public Hearing: University Request for Development Plan Modification No. 2
DATE: May 17, 2004
INTRODUCTION
This is an application for approval of a modification to the August 26, 2003 Development Plan for the University of North Carolina at Chapel Hill. The site is the main campus of the University of North Carolina at Chapel Hill. The property is located within the Office/Institutional-4 (OI-4) zoning district and is identified on Chapel Hill Township Tax Maps 71, 73, 74, 86, and 87.
BACKGROUND
2001 Development Plan: On July 5, 2001, the University submitted a Development Plan application for building construction on the main campus. Construction included 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 held a Public Hearing on the Development Plan and on October 3, 2001 adopted a resolution approving the University Development Plan. A map of the approved 2001 Development Plan is included in the current application materials (see Addendum 2, Map 2 in the March 15, 2004 materials).
2003 Development Plan Modification No. 1: On April 3, 2003, the University submitted an application for approval of a modification to the October 3, 2001 Development Plan. Proposed construction included:
· Information Technology Building (100,000 square feet floor area);
· Jackson Circle parking deck (800 parking spaces);
· Cobb Hall parking deck (600 parking spaces); and
· Utility chiller plant behind Cobb Residence Hall.
The proposed plan also included two changes to the 2001 Development Plan:
· Mason Farm Road Student Family Housing (reduction in the number of buildings, increasing floor area and dwelling units, changing access and circulation, revising parking lot location and design, and increasing the width of the “housing corridor” area); and
· Manning Drive parking deck (deletion from the Development Plan).
On June 25, 2003 and August 26, 2003, the Town Council adopted resolutions approving the University Development Plan Modification No. 1, with conditions, including a reduction in the number of spaces for the Cobb Hall parking deck.
2004 Development Plan Modification No. 2: On March 15, 2004, the University submitted an application for approval of a modification to the Development Plan. Supplemental information was submitted on May 3, 2004.
On April 1, 2004, the Council held a public meeting at which the University made a presentation of the proposed Modification No. 2 application. Town Advisory Board members and property owners within 1,000 feet of the OI-4 zoning district boundary were notified and invited to the April 1, 2004 meeting.
PROCEDURAL CONTEXT
A Development Plan is to address the following:
a) Environment: Development should minimize impacts on natural site features, and be accompanied by measures to mitigate those impacts.
b) Transportation: Development should be accompanied by measures to mitigate transportation impacts that are caused by the development.
c) Stormwater Management: Development should be accompanied by measures to mitigate stormwater impacts (quantity and quality) that are caused by the development.
d) Public Utilities: There must be a general demonstration that water, sewer, and other needed utilities can be made available to accommodate development proposed in the Development Plan.
e) Historic Districts: Special provisions apply to any development proposed within one of Chapel Hill’s Historic Districts.
f) A Development Plan is to also designate Perimeter Transition Areas establishing appropriate standards at borders of the Development Plan, necessary to minimize impacts of development proposed in the Development Plan on adjacent property, to be approved by the Town Council as part of the Development Plan.
DESCRIPTION OF THE CURRENT APPLICATION
Proposed changes to the Development Plan are described and evaluated in this report. A summary listing of the proposed changes follows:
New Structure: 130,000 square foot physician’s building.
Building Additions: 10,000 square foot addition to Morehead Planetarium.
28,000 square foot addition to Fetzer Gym.
1,600 square foot addition to 410 East Franklin St.
Infrastructure Modifications: Relocate the proposed Science Complex chiller plant to the future Bell Tower parking deck.
Parking Modifications: Relocate the 600 parking spaces, from the proposed Science Complex parking deck, to the proposed 1,000 space Bell Tower parking deck increasing that deck to a proposed 1,600 spaces.
The proposed application also includes changes to pedestrian circulation and utilities.
EVALUATION
We have reviewed this application for compliance with the standards of the Office/Institutional-4 zoning district and the Council-endorsed guidelines that set forth of transportation, stormwater management, noise, and light standards. We offer the following comments.
Noise and Light
The Development Plan application submitted by the University states that each Site Development Plan for buildings within the approved modification to the Development Plan will conform to the noise and light performance standards adopted by the Town Council on July 2, 2001. As provided for by the Council endorsed guidelines, information and compliance with the noise and light performance standards must be submitted with each application for a Site Development Permit.
Stormwater Management
The University Development Plan Modification application includes a section on Stormwater Management which indicates that development proposed with the Development Plan will be accompanied by measures to mitigate stormwater impacts (rate, volume and quality) during construction and resulting from the development. The Site Development Permit application for this component of the Development Plan must include a certification of compliance with required Stormwater Management Performance Standards.
Transportation
Transportation impacts associated with these proposed modifications to the Development Plan are local in nature. There are no new parking spaces proposed, but 600 spaces that had previously been approved would shift within the campus. Individual new buildings will create need for pedestrian and bicycle access. The improvements that were required as conditions of approval of previous applications, in order to mitigate transportation impacts, still stand and would be carried over with approval of this Modification No.2.
The intersections on campus that would experience differential impacts as a result of this proposed shift in the location of parking spaces are:
South Road / Bell tower Drive (would drop from Level of Service B to C)
Manning Drive / Craig Deck Drive (need for signal timing adjustments)
Cameron Avenue / S. Columbia Street (would drop from Level of Service D to E in AM)
South Road / S. Columbia Street (2 second additional delay)
The most significant of these impacts would be the AM peak hour movements at the Cameron/Columbia intersection. We agree with the applicant’s statement in Transportation Impact Analysis Summary: “Due to physical constraints and the character of the area, geometric improvements are not recommended at this location.” Accordingly, our recommendations for additional transportation improvements to accompany these proposed changes to the Development Plan focus on pedestrian and bicycle facilities in the vicinity of and during construction of new buildings.
New Building
Physician’s Office Building (UNCH-4 Mod): This proposed five-story structure is to include approximately 130,000 square feet of floor area. Located at the southwest corner of Manning Drive and East Drive, the building is proposed to be sited in front of the future Jackson Circle parking deck. We understand that this five-story building is to be similar in height to the adjacent Dogwood/Cardinal parking decks.
The Physician’s Office Building is proposed to provide space for physicians and staff offices to support the NC Clinical Cancer Center Building (UNCH-3) previously approved in the 2001 Development Plan. Parking for this office building will be available in the previously approved Jackson Circle parking deck and other existing parking facilities in the area.
Because the parking for this office building is to be provided in the previously approved Jackson Circle parking deck and other existing parking facilities in the area, there are no vehicular traffic impacts associated with this proposed building.
We believe that upon completion, this building will impact pedestrian movements that will result in the need for additional pedestrian circulation improvements, and we list those at the end of this evaluation under “Recommendations.”
Relation to Potential Fixed Guideway Corridor: The proposed Physician’s Office Building is in a location that might be directly adjacent to a possible fixed guideway corridor. We believe that it would be appropriate to include a condition of approval that requires, as part of a Site Development Permit application, that attention be given to the location of this building with respect to the potential transit corridor, and that the placement of the building be arranged such that a fixed-guideway transit corridor would remain a possibility.
Morehead Planetarium (C-5 Mod): A 10,000 square foot addition to the Morehead Planetarium is proposed for the north side (East Franklin Street frontage) of the building. The proposed addition is to accommodate a new lobby and areas for visitors. The footprint of the proposed 10,000 square foot addition will not extend beyond the current building façade fronting East Franklin Street. The area around the parking lot, Rose Garden and Morehead Sundial, between the current building and East Franklin Street, is to remain unchanged.
The Morehead Planetarium site is located adjacent to a portion of the Franklin-Rosemary Local Historic District. Although the site is not within the boundary of a local historic district, the applicant recently participated in a courtesy review before the Chapel Hill Historic District Commission.
Fetzer Gymnasium (SL-4 Mod): A 28,000 square foot addition to Fetzer Gym is proposed for the southwest corner of the gym. Located on the east side of Stadium Drive, this proposed addition is to provide office and clinical space, a rehabilitation and treatment center for student athletes, and expanded facilities for men’s wrestling team. There is no change in parking associated with this proposal.
410 E. Franklin Street/James Love House (A-19 Mod): This proposal, to add 1,600 square feet of floor area to the structure located at 410 East Franklin Street, is to provide office space for the Center for the Study of the American South. Also known as the James Love House, the principal occupants are to be faculty and staff. The proposal includes one new parking space.
This site is located in the Franklin-Rosemary Local Historic District. A courtesy review of this proposed addition has been conducted with the Chapel Hill Historic District Commission. Final building elevations for this proposed addition are subject to the review and approval of a Certificate of Appropriateness by the Chapel Hill Historic District Commission.
Chapel Hill Local Historic District: This site is located in the Franklin-Rosemary Local Historic District. A courtesy review of this proposed addition has been conducted with the Chapel Hill Historic District Commission. Final building elevations for this proposed addition are subject to the review and approval of the Chapel Hill Historic District Commission. We recommend that approval of this Development Plan Modification application stipulate that the University’s submittal of a Site Development Permit for the addition to 410 East Franklin Street include verification that the proposed addition was reviewed and approved by the Chapel Hill Historic District Commission.
Perimeter Transition Area: Because the location of this proposed facility is at the edge of the University property, the applicant has identified this project as being located within a Perimeter Transition Area. We concur with this designation. The designation of this project as a Perimeter Transition Area triggers standards addressing screening mechanical equipment, exterior lighting, height limits and landscaping.
Following is a list of standards that the applicant is proposing for the 410 East Franklin Street Perimeter Transition Area:
a) Mechanical Equipment: All mechanical equipment, both rooftop and ground locations, visible from Battle Lane and East Franklin Street will be screened from view.
b) Lighting: All interior and exterior building lighting will be designed to:
1. Minimize spillover onto property outside of the OI-4 zoning district.
2. Prevent glare on property outside of the OI-4 zoning district.
c)Height Limits: The height of the addition will not exceed the roof peak of the existing building.
d) Landscape: The current landscape buffer elements will be maintained including street trees, shrubbery, stonewalls and brick sidewalks.
We recommend that the approval of this Development Plan Modification application stipulate that the submittal of a Site Development Permit for 410 East Franklin Street include a Construction Management Plan. We recommend that the plan include a construction traffic routing map that identifies the local street network that will be impacted by construction traffic associated with this proposed addition. We recommend that the routing plan minimize, and where practical, prohibit construction traffic on local streets. We also recommend that the Construction Management Plan provide for the safe and continued use of bicycle and pedestrian corridors during construction.
Bell Tower Parking Lot Chiller Plant (I-5 Mod): This proposal involves the construction of a 25,000 ton chiller adjacent to the future Bell Tower parking lot. This project is proposed at this time because the recently completed Utilities Master Plan for the University identified the need for a renewal/replacement of the majority of the existing equipment in the North Chiller Plant, located in the Bell Tower area.
Associated with this proposal is the deletion of a 10,000 ton chiller plant, previously approved (2001 Development Plan) for the basement of the Science Complex Phase II (A-8). The proposal for the Bell Tower Parking Lot Chiller Plant includes the demolition of the existing North Chiller Plant.
Science Complex Phase II Chiller Plant (A-8): The 10,000 ton chiller plant, planned to be located in the basement levels of the Science Complex Phase II building, would be removed from the Development Plan. Building A-8 is to remain in the Development Plan.
Bell Tower Parking Deck (P-4 Mod): The proposal to modify the Bell Tower Parking Deck (originally proposed and approved in the 2001 Development Plan) will increase the parking in the Bell Tower Deck from 1,000 cars to 1,600 cars. There are now approximately 670 parking spaces in the Bell Tower surface parking lot.
Since the proposal intends to relocate 600 previously approved parking spaces to the Bell Tower deck, the number of net new parking spaces on campus would not increase. The main difference is in the location of the 600 spaces.
We believe that the relocation of 600 parking spaces from Science Complex Phase II to the Bell Tower parking deck will impact pedestrian movements and require modifications to existing pedestrian crosswalks. These recommended changes are noted at the end of this evaluation under “Recommendations.”
Green Roof and Pedestrian Corridor: The Development Plan approved in 2001 included a 1,000 space deck and a conceptual green pedestrian plaza on the roof of the parking deck. The proposal is to add 600 spaces in the parking deck and reconfigure the previously approved green roof on the deck.
We understand that the proposed changes to the Bell Tower parking deck will adjust the 2001 Development Plan pedestrian network connecting the North Campus to the Medical School complex. Information submitted by the University includes the following description of pedestrian circulation in this area:
“The deletion of the green roof on the Bell Tower Parking deck will not impact pedestrian circulation patterns. The strong pedestrian connection between North Campus and the Medical School complex, envisioned by the Master Plan will remain. Its precise location will be determined during the design of the project. An elevated pedestrian walkway that will span South Road, connecting the unnamed Science building under construction adjacent to Kenan Laboratories with the Stone Center/Bell Tower Development is also included in this project.”
Science Complex Phase II-Venable Hall Parking Deck (P-2): The 600 spaces previously approved (2001 Development Plan) will be removed from the Development Plan.
DEVELOPMENT PLAN FINDINGS
For approval of a Development Plan in the Office/Institutional-4 zoning district, the Council must make the following findings, as set forth in Section 3.5.2 of the Land Use Management Ordinance: The Town Council shall approve a Development Plan unless it finds that the proposed development would not:
a) Maintain the public health, safety, and general welfare; or
b) Maintain the value of adjacent property.
Upon review of the application and information that has been submitted to date, our preliminary recommendation is that with the recommended conditions of approval, these findings can be made.
CONCLUSION AND RECOMMENDATION
We believe that the proposed Development Plan addresses the required issues that are spelled out in the OI-4 Zoning District. We have identified improvements and mitigation measures that we believe are necessary in order to accommodate the proposed development.
Intersection Analysis: The 2001 Development Plan approval required that updated Transportation Impact Analyses be prepared biennially and include current traffic counts and updated projections. The first update to the TIA was subsequently submitted in January 2002. A second analysis was provided in January 2004. As part of the current application, the University submitted a traffic assessment (March 2004) of the proposed modifications to the Development Plan.
Because two additional signalized intersections (Manning Drive/Old East Drive and South Road /Bell Tower North) will be affected by the proposed reallocation of the 600 parking spaces from Science Complex Phase II to the Bell Tower deck, we recommend that subsequent updates to the TIA include these two additional intersections on the list to be studied. As requested by staff, the two intersections were included and analyzed in the applicant’s March 2004 traffic impact analysis. Resolution A includes a condition adding these intersections to future biennial reports and lists the intersections.
Traffic Signal System Improvements: We recommend that the two intersections discussed above be added to the biennial traffic signal timing plan studies. We also recommend that the signalized intersection at the South Columbia Street/Mason Farm Road intersection be upgraded to include pedestrian phasing, marked crosswalks, and countdown heads on all approaches. Resolution A includes a condition with these recommendations.
Traffic Calming Improvements: We recommend that conditions of approval require the following pedestrian improvements:
1. Raised crosswalk on Mason Farm Road at the MRI Building.
2. Stamped asphalt (street imprint) for the signalized mid-block crosswalk on Columbia Street at the Public Health Building.
3. Stamped asphalt (street imprint) for the un-signalized mid-block crosswalks on South Road between Bell Tower and Raleigh Street (2 locations).
We have included these conditions in the attached Resolution A.
RESOLUTION A
(Manager’s Preliminary Recommendation)
A RESOLUTION APPROVING AN APPLICATION FOR A DEVELOPMENT PLAN MODIFICATION NO. 2 FOR THE UNIVERSITY OF NORTH CAROLINA AT CHAPEL HILL
WHEREAS, the Chapel Hill Town Council enacted a new zoning district on July 2, 2001, to address the need to allow for growth while mitigating impacts, and applied this zoning district to the University’s Main Campus; and
WHEREAS, on June 25, 2003 and August 26, 2003, after reviewing Development Plan Modification No. 1 materials submitted by the University the Town approved the Development Plan Modification No. 1 application that maps out future campus growth and addresses mitigation of impacts; and
WHEREAS, the University submitted a Development Plan Modification No. 2 application dated March 15, 2004 and supplemental materials dated May 3, 2004, seeking to amend the Development Plan Modification No. 1 approved by the Council on June 25, 2003, and August 26, 2003;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that it finds that development proposed by the Development Plan Modification No. 2 application of The University of North Carolina at Chapel Hill, for property identified as parts of Chapel Hill Township Tax Maps numbered 71, 73, 74, 86, and 87, if developed according to the Development Plan Modification No. 2 dated March 15, 2004, and supplemental information dated May 3, 2004 and in compliance with the conditions listed below, would:
1. Be located, designed, and proposed to be operated so as to maintain or promote the public health, safety, and general welfare; and
2. Be located, designed, and proposed to be operated so as to maintain or enhance the value of adjacent property.
BE IT FURTHER RESOLVED that the Town Council hereby approves the application for a Development Plan Modification No. 2 in accordance with the plans listed above and with the conditions listed below:
General Stipulations
1. Relationship to 2001 and 2003 Development Plans: This approval modifies the terms of the University of North Carolina at Chapel Hill Development Plans approved by the Town Council on October 3, 2001, June 25, 2003, and August 26, 2003. Except as specifically authorized or modified by this document, the terms and conditions of the Development Plan Resolutions as adopted by the Council on October 3, 2001, June 25, 2003, and August 26, 2003, remain in effect.
2. Level of Development: This Development Plan Modification No. 2 approval represents preliminary authorization for demolition and construction of facilities as shown on Modification No 2- Map 2 from the Development Plan Modification No 2, dated March 15, 2004 and May 3, 2004. Additional information is included in the March 15, 2004, and May 3, 2004, Development Plan Modification No. 2 modified by conditions outlined below.
In any case involving conflicting information, the controlling component of the Development Plan Modification No. 2 shall be the Map called Modification No. 2 Map 2 dated May 3, 2004. The controlling maps for the 410 East Franklin Street Perimeter Transition Area in the Development Plan Modification No. 2 shall be Modification No. 2 Maps 7 and 8 dated March 15, 2004.
3. Land Use: Unless otherwise modified by conditions herewith, this Development Plan Modification No. 2 authorizes the following:
· Removal of a parking deck (600 spaces) approved with the October 3, 2001, Development Plan and identified as structure P-2;
· Removal of a chiller plant from the basement of a building approved with the October 3, 2001, Development Plan and identified as A-8;
· Construction of an UNC Health Care building (130,000 square feet) identified as structure UNCH-4 Mod;
· Construction of a 10,000 square foot addition to a cultural building identified as C-5 Mod;
· Construction of a 28,000 square foot addition to a student life building identified as SL-4 Mod;
· Construction of a 1,600 square foot addition to an academic building identified as A-19 Mod;
· Relocation of 600 parking spaces from parking deck P-2 to a parking deck approved with the October 3, 2001 Development Plan and identified as P-4 Mod; and
· Relocation of a chiller plant from building A-8 to an infrastructure building identified as I-5 Mod.
· Academic building A-19 Mod;
· Cultural building C-5 Mod;
· Infrastructure building I-5 Mod;
· Parking deck structure P-4 Mod;
· Student life building SL-4 Mod; and
· UNC Health Care building UNCH-4 Mod.
4. Land Use Intensities: Land Use Intensities, authorized by the June 25, 2003 and August 26, 2003 Development Plan Modification No. 1, are modified as specified below:
|
Land Use Intensity |
Development Plan Modification No. 2 |
|
Academic floor area |
+ 1,600 sq ft (increase) |
|
Cultural floor area |
+ 10,000 sq ft (increase) |
|
Infrastructure floor area |
+ 100,800 sq ft (increase) |
|
Student life floor area |
+ 28,000 sq ft (increase) |
|
Health care |
+ 130,000 sq ft (increase) |
|
Parking |
0 spaces (no change) |
|
Impervious Surface Area |
+ 2.3 acres (increase) |
5. Consistency of Site Development Permit Application with Development Plan Modification No. 2: No application for a Site Development Permit, for land use authorized by this permit within the boundary of this Development Plan Modification No. 1, as shown on the Modification No. 2-Map 2 dated May 3, 2004, shall be approved unless such application is consistent with the Council-approved Development Plan Modification No. 2. Consistent does not mean identical; building footprints and landscaped areas shown on the Council approved Development Plan Modification No. 2, except as otherwise noted below for certain Perimeter Transition Areas, shall be considered to indicate approximate size and location.
6. Interpretation of Modification No 2 - Map 4: Modification No. 2-Map 4 dated March 15, 2004 shall be considered to indicate, approximately, areas of pervious and impervious surface that will exist within the area covered by this Development Plan Modification No. 2 after full development has been completed. Except for incidental paving for walkways and fire lanes, areas shown as “Forest” and “Cleared Woodlands” will be expected to be pervious surface after full development, either with existing vegetation left undisturbed or with new vegetation planted and maintained, unless further specified by stipulations below.
Stipulations Related to Transportation
7. Requirements for Ongoing Data Collection and Analysis for Biennial Transportation Impact Analysis:
a) Intersection Analysis: 2005 and subsequent Biennial Transportation Impact Analyses shall analyze the following intersections for existing, no-build, and build conditions Level of Service (LOS) in addition to the 44 intersections analyzed in the 2003 Transportation Impact Analysis:
1. Manning Drive and Old East Drive (Signalized)
2. South Road and Bell Tower North (Signalized)
Existing A.M. and P.M. peak hour turning movement counts for the above intersections shall be undertaken on Tuesday, Wednesday or Thursday when school is in session.
b) Average Daily Traffic Count Analysis: 2005 and subsequent Biennial Transportation Impact Analyses shall include the following locations for existing, no-build, and build conditions Average Daily Traffic (ADT) Counts in addition to the 18 locations analyzed in the 2003 Transportation Impact Analysis:
1. Manning Drive east of Columbia Street
2. Bell Tower south of South Road
3. South Road east of Bell Tower
Existing counts for the above locations shall be undertaken on Tuesday, Wednesday or Thursday when school is in session.
7. Traffic Signal System Improvements: The University shall be responsible for the following traffic signal system improvements:
a) Traffic signal system timing plans for progression shall be studied and revised as necessary at all intersections that are analyzed for LOS criteria (total 46 intersections). Signal system timing plans for progression shall be submitted and implemented in the Chapel Hill system in December 2005 and biennially thereafter (referred to as Biennial Updates) until construction of the buildings included in the Main Campus Development Plan is substantially complete or until a new Development Plan is approved.
b) The following signalized intersection shall be upgraded to include pedestrian phasing, marked crosswalks, and “countdown” heads on all approaches:
1. South Columbia Street and Mason Farm Road
The upgrades must be approved by the Town Manager and North Carolina Department of Transportation (NCDOT), and construction must be completed prior to the end of calendar year 2005.
9. Traffic Calming Improvements: Install traffic calming devices to improve pedestrian safety at the following locations:
a) Raised crosswalk on Mason Farm Road at the MRI Building
b) Stamped asphalt (street imprint) for the signalized mid-block crosswalk on Columbia Street at the Public Health Building
c) Stamped asphalt (street imprint) for the un-signalized mid-block crosswalks on South Road between Bell Tower and Raleigh Street (2 locations)
The exact location, design, and construction details of the traffic calming devices must be approved by the Town Manager and North Carolina Department of Transportation (NCDOT), and construction must be completed prior to the end of calendar year 2005.
Stipulations Related to Site Development Permit Applications
10. UNCH-4 Mod (Physician’s Building) Fixed Guideway: The Site Development Permit for UNC Health Care structure UNCH-4 Mod (Physicians Building) must include details on the proposed Fixed Guideway Corridor and that the placement of the building be arranged such that a fixed-guideway transit corridor would remain a possibility.
11. A-19 Mod (410 East Franklin Street): For A-19 Mod, the following stipulations shall apply:
a) Historic District Commission Approval: That the submittal of a Site Development Permit for the addition to 410 East Franklin Street shall include verification that the proposed addition was reviewed and approved by the Chapel Hill Historic District Commission.
b) Construction Management Plan: That the submittal of a Site Development Plan shall include a construction traffic routing map that identifies the local street network that will be impacted by construction traffic associated with this proposed addition. That the routing plan minimizes, and where practical, prohibits construction traffic on local streets. That the plan also provide for the safe and continued use of bicycle and pedestrian corridors during construction.
Miscellaneous Stipulations
12. Construction Management Plan: That in addition to the current Site Development Permit application requirements for the submission of a Construction Management Plan, each application for a Site Development Permit for those projects approved by this Development Permit Application shall include the following:
a) Construction Management Plan Enforcement: That each Construction Management Plan shall describe how the University will enforce the requirements of the Construction Management Plan. In particular, the plan must describe how the University intends to enforce and ensure that pedestrian and bicycle corridors will remain open and safe during construction periods.
b) Construction Management Contact Information: That each construction site will include visible signage listing a telephone number and a University representative available to answer questions and respond to concerns about pedestrian safety and security. A detail of the proposed sign, including number of signs and general locations, shall be submitted with each Site Development Permit application
13. Pedestrian Management Plan: That in addition to the current Site Development Permit application requirements for the submission of a Pedestrian Management Plan, each application for a Site Development Permit for those projects approved by this Development Permit application shall include the following:
a) Pedestrian Safety: Detailed information on how the Pedestrian Management Plan will provide for the safe and continued use of bicycle and pedestrian corridors during construction.
b) Pedestrian Security: Detailed information on pedestrian security measures including the placement of security phones and lighting. The plan shall also include additional information on security for pedestrian bridges during evening hours.
14. Continued Validity: Continued validity and effectiveness of this approval is expressly conditioned on the continued compliance with the plans and conditions listed above.
15. Severability: If any of the above conditions is held to be invalid by a court of competent jurisdiction, all other conditions shall remain valid and this approval shall remain intact.
BE IT FURTHER RESOLVED by the Council that the Council hereby approves the application for a Development Plan Modification No. 2 by the University of North Carolina at Chapel Hill.
This the day of , 2004.
RESOLUTION B
(Planning Board Recommendation)
A RESOLUTION APPROVING AN APPLICATION FOR A DEVELOPMENT PLAN MODIFICATION NO. 2 FOR THE UNIVERSITY OF NORTH CAROLINA AT CHAPEL HILL
WHEREAS, the Chapel Hill Town Council enacted a new zoning district on July 2, 2001 to address the need to allow for growth while mitigating impacts, and applied this zoning district to the University’s Main Campus; and
WHEREAS, on June 25, 2003, and August 26, 2003, after reviewing Development Plan Modification No. 1 materials submitted by the University the Town approved the Development Plan Modification No. 1 application that maps out future campus growth and addresses mitigation of impacts; and
WHEREAS, the University submitted a Development Plan Modification No. 2 application dated March 15, 2004 and supplemental materials dated May 3, 2004, seeking to amend the Development Plan Modification No. 1 approved by the Council on June 25, 2003 and August 26, 2003;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that it finds that development proposed by the Development Plan Modification No. 2 application of The University of North Carolina at Chapel Hill, for property identified as parts of Chapel Hill Township Tax Maps numbered 71, 73, 74, 86, and 87, if developed according to the Development Plan Modification No. 2 dated March 15, 2004, and supplemental information dated May 3, 2004 and in compliance with the conditions listed below, would:
1. Be located, designed, and proposed to be operated so as to maintain or promote the public health, safety, and general welfare; and
2. Be located, designed, and proposed to be operated so as to maintain or enhance the value of adjacent property.
BE IT FURTHER RESOLVED that the Town Council hereby approves the application for a Development Plan Modification No. 2 in accordance with the plans listed above and with the conditions listed below:
1. Resolution A: That all of the stipulations in Resolution A shall apply to the proposed development unless modified or superseded by those stipulations below.
2. Deleted Stipulation: That the stipulations regarding UNCH-4 Mod (Physician’s Building) Fixed Guideway shall be deleted.
BE IT FURTHER RESOLVED by the Council that the Council hereby approves the application for a Development Plan Modification No. 2 by the University of North Carolina at Chapel Hill.
This the day of , 2004.
RESOLUTION C
A RESOLUTION DENYING AN APPLICATION FOR A DEVELOPMENT PLAN MODIFICATION NO. 2 FOR THE UNIVERSITY OF NORTH CAROLINA AT CHAPEL HILL
BE IT RESOLVED by the Council of the Town of Chapel Hill that it fails to find that development proposed by the Development Plan Modification No. 2 application of the University of North Carolina at Chapel Hill, for property identified as parts of Chapel Hill Township Tax Maps numbered 71, 73, 74, 86, and 87, if developed according to the Development Plan Modification No. 2 materials dated March 15, 2004 and supplemental materials dated May 3, 2004 would:
1. Be located, designed, and proposed to be operated so as to maintain or promote the public health, safety, and general welfare; and
2. Be located, designed, and proposed to be operated so as to maintain or enhance the value of contiguous property.
BE IT FURTHER RESOLVED that the Town Council hereby denies the application for a Development Plan Modification No. 2 by the University of North Carolina at Chapel Hill.
This the day of , 2004.
Response to Council questions from the April 1, 2004 Development Plan
Modification No. 2 presentation by the University of North Carolina at Chapel Hill
410 EAST FRANKLIN STREET (PERIMETER TRANSITION AREA)
1. The 410 East Franklin Street site is located in the Franklin-Rosemary Local Historic District. Prior to the April 1, 2004 meeting, the applicant conducted a courtesy review with the Historic District Commission. A Council member asked that the comments from the Historic District Commission be forward to the Council.
Staff Comment: The Historic District is scheduled to review the Development Plan Modification No. 2 application on May 13, 2004. We will forward a copy of their comments as soon as they are available.
2. A Council member asked if staff has received any comments from neighbors.
Staff Comment: As of this time we have not received any comments from neighbors. In addition to the previous mailings inviting property owners to the April 1 and May 17 Council meetings, all property owners within 1,000 feet of this project will be notified when the applicant submits a Site Development Permit for this Perimeter Transition Area.
3. What parking and driveway changes proposed with this project?
Staff Comment: One new handicap parking space is proposed to be added to the existing lot. Vehicular access to the site will remain in its existing location.
4. What traffic issues are associated with this proposed addition?
Staff Comment: Transportation impacts associated with these proposed modifications to the Development Plan are local in nature. There are no new parking spaces proposed, but 600 spaces that had previously been approved would shift within the campus. Individual new buildings will create need for pedestrian and bicycle access. The improvements that were required as conditions of approval of previous applications, in order to mitigate transportation impacts, still stand and would be carried over with approval of this Modification No. 2.
The intersections on campus that would experience differential impacts as a result of this proposed shift in the location of parking spaces are:
South Road / Bell tower Drive (would drop from Level of Service B to C)
Manning Drive / Craig Deck Drive (need for signal timing adjustments)
Cameron Avenue / S. Columbia Street (would drop from Level of Service D to E in AM)
South Road / S. Columbia Street (2 second additional delay)
The most significant of these impacts would be the AM peak hour movements at the Cameron/Columbia intersection. We agree with the applicant’s statement in Transportation Impact Analysis Summary: “Due to physical constraints and the character of the area, geometric improvements are not recommended at this location.” Accordingly, our recommendations for additional transportation improvements to accompany these proposed changes to the Development Plan focus on pedestrian and bicycle facilities in the vicinity of and during construction of new buildings.
5. What is plan for construction traffic and how will the applicant maintain bicycle and pedestrian corridors during construction?
Staff Comment: A condition of the Development requires that the applicant submit a Construction Management Plan as a component of each Site Development Permit application. In addition to this requirement we recommend that Site Development Plan applications for these new proposed facilities provide supplemental information including a construction traffic routing map that identifies the local street network that will be impacted by construction traffic associated with this proposed addition. We recommend that the routing plan minimize, and where practical, prohibit construction traffic on local streets. We also recommend that the Construction Management Plan provide for the safe and continued use of bicycle and pedestrian corridors during construction. This recommendation has been included in Resolution A.
BELL TOWER PARKING DECK
6. Does the mobility report card reflect or account for this proposed change to relocate 600 parking spaces from the Science Complex Phase II deck to the previously approved 1,000 space Bell Tower deck?
Staff Comment: No. The information contained in the mobility report card is based on existing conditions and does not account for the proposed 1,600 space Bell Tower parking deck.
7. How many spaces are in the current Bell Tower surface lot?
Staff Comment: We understand that there are approximately 670 spaces in the Bell Tower surface parking lot.
8. Describe the previously approved green roof on the parking deck and what is proposed now.
Staff Comment: The Development Plan approved in 2001 included a 1,000 space deck and a conceptual green pedestrian plaza on the roof of the parking deck. The proposal is to add 600 spaces in the parking deck and reconfigure the previously approved green roof on the deck.
We understand that the proposed changes to the Bell Tower parking deck will adjust the 2001 Development Plan pedestrian network connecting the North Campus to the Medical complex. Information submitted by the University includes the following description of pedestrian circulation in this area:
“The deletion of the green roof on the Bell Tower Parking deck will not impact pedestrian circulation patterns. The strong pedestrian connection between North Campus and the Medical School complex, envisioned by the Master Plan will remain. Its precise location will be determined during the design of the project. An elevated pedestrian walkway that will span South Road, connecting the unnamed Science building under construction adjacent to Kenan Laboratories with the Stone Center/Bell Tower Development is also included in this project.” [Applicant’s Statement]
9. Describe vehicular access points and routes to the Bell Tower deck.
Staff Comment: The proposed vehicular access points for the Bell Tower deck project include the existing vehicular access from South Road on the north and a new vehicular access point from Manning Drive on the south.
10. How tall will the deck be?
Staff Comment: We understand that the design of the proposed parking deck has not been finalized and the overall height of the structure is unknown at this time.
PEDESTRIAN BRIDGES
11. Describe the pedestrian bridges that are proposed with this application including the construction timetable.
Staff Comment: Two new elevated pedestrian walkways are proposed with the Development Plan Modification No. 2 application:
· The Student Union/Fetzer Gym walkway will cross South Road, connecting the Pit area of North Campus with Fetzer Gym. This bridge will be constructed as part of the proposed expansion to the Gym. The anticipated construction completion date is June 2007.
· The Science Complex/Stone Center/Bell Tower walkway will also cross South Road, connecting the unnamed science building under construction adjacent to Kenan Laboratories with the Stone Center and Bell Tower deck. This walkway will be constructed as part of the Bell Tower parking deck. The anticipated construction completion date is January 2007.
For additional information on the pedestrian bridge locations, please refer to Figure 4-12, titled “Traffic Calming and Pedestrian Safety” dated May 3, 2004 (Attachment 12).
GENERAL QUESTIONS
12. Translate Level of Service into the number of cars for traffic impact at key intersections (for deck and planetarium) and seconds of delay.
Staff Comment: The applicant stated on April 1 this information will be provided. We will forward this information as soon as it is available.
13. A Council member stated a concern about traffic coming down Mason Farm Road and making a U-Turn onto Fordham Boulevard.
Staff Comment: Fordham Boulevard is a NCDOT maintained roadway. U-turn movements are not prohibited at the two median cuts along Fordham Boulevard between Manning Drive and South Columbia Street. We will give attention to this issue during review of Construction Management Plans to avoid the routing of construction traffic through neighborhood streets.
14. How tall will the Physician’s Building be?
Staff Comment: We understand that the overall height of the proposed Physician’s Building will not exceed the height of the adjacent Dogwood Parking deck.
15. Why are there no traffic impacts from the Physician’s Building?
Staff Comment: Parking for this proposed building is to be provided in the previously approved Jackson Circle parking deck and other existing parking facilities in the area.
16. What happens to Gravely Building?
Staff Comment: We understand the Gravely building will be demolished at some future date.
17. Describe the proposed landscape island in Manning Drive.
Staff Comment: We understand that this proposed landscape island has not been designed at this time.
18. What will pedestrian bridges look like? Can bikes use them?
Staff Comment: We understand that the proposed pedestrian bridges have not been designed at this time. The applicant stated on April 1 that bicycles would be able to use the pedestrian bridges.