This report
represents the completion of a study begun in November 1996 to develop a
Comprehensive Greenways Master Plan for the Town of Chapel Hill, North
Carolina. The plan has been prepared by Lappas + Havener, PA under the auspices
of the Chapel Hill Town Council, the guidance of the Chapel Hill Greenways Commission, and in cooperation with the Chapel Hill Parks and Recreation Department.
This Report is a revision of the Greenways Master Plan that was adopted by the Council on May 26, 1998. Since that time the Town has identified several changes in the Greenways Master Plan document that would make the document more useful and responsive to the Town’s needs. These changes include:
The underlying
assumption and need for this study emerges from three long-term concerns of the
Town’s governing body and its active citizenry. The first reflects the Town’s
continuing commitment to provide quality recreational facilities for the
community. The second exemplifies the Town’s commitment to preserving open
space as an integrated component of the Town’s urban landscape. The third
reflects Chapel Hill’s commitment to offer alternatives to automobile
transportation. The Comprehensive Greenways Master Plan recommends for the
linking of the Town’s land use objectives with its environmental,
transportation and recreation goals to provide a viable network of
pedestrian/bicycle trails and other passive recreation opportunities.
As the Town continues to grow, the notion of conserving undeveloped land has become a more pressing matter. Significant population increases and growth are projected over the next several decades in Chapel Hill and surrounding communities. Development pressure will continue to influence the character of the Chapel Hill landscape, inevitably shaping the form and quality of the Town’s open space.
The Town-wide greenway system proposed within this Master Plan occurs primarily along the Town’s streams and watercourses. These open spaces along wooded stream corridors both protect and make accessible many of Chapel Hill’s unique and beautiful natural settings.
The development of this Comprehensive Greenways Master Plan and its continuing update will contribute to the strategic organization of the Town’s open space and greenways. The Master Plan is intended to provide a foundation for making decisions related to the greenways program and the quality of Chapel Hill's physical environment. The Plan’s guidelines will help to assure the continuity and coordination of open space conservation, passive recreation and trail facilities for future decades.
The term "greenway" is used in many communities throughout the United States. However, there is not a single, consistent definition of the term that would fit the needs of each locale. In some communities the word greenway is synonymous with the word "trail". In other towns and cities, the public may associate the term with specific types of trails, such as paved bicycle accessible paths along streams. Other communities use the words "greenbelt" or "greenway" to identify areas which are simply set aside for preservation and/or buffers between non-complimentary uses or between communities.
In 1993, the Chapel Hill Greenways Commission adopted the following language to describe Town "greenways":
Networks of natural spaces which provide corridors connecting areas such as neighborhoods, parks, and schools. These passageways typically include trails for pedestrians and non-motorized vehicles. They are a link to nature for the enjoyment of the community.
This definition describes greenways as linear natural areas which sometimes may be suitable for the inclusion of trails. It is an important distinction to note, however, that some greenway areas in Chapel Hill may not be suitable for trail development and may find their “highest and best” land use by remaining as undeveloped open space, and providing the community with valuable buffers, environmental preserves or wildlife corridors.
Greenways can provide economic, environmental, recreation, and transportation-related benefits to the entire community in which they are found. A greenway system, well integrated within the Chapel Hill community, can function to:
1. Preserve the natural environment that makes Chapel Hill a pleasant place to live.
2. Provide recreational opportunities ranging from quiet enjoyment of natural areas to hiking and bicycling.
3. Provide natural laboratories where flora, fauna and ecological relationships can be studied by all Chapel Hill citizens.
4. Influence urban growth patterns by conserving open space, separating and buffering conflicting land uses, and connecting compatible land uses.
5. Provide a network of pedestrian and bicycle trails - a safe and pleasant alternative to the Town's street system - that will connect neighborhoods, schools, shopping areas, and parks.
6. Increase the value of all properties in Chapel Hill by creating an aesthetically pleasing community with greater options for non-motorized vehicle transportation and recreation and open space.
8. Retard the degradation of air quality by allowing vegetation in the greenways areas to add oxygen, filter dust and air-borne pollutants, and cool the air.
9. Mitigate noise pollution by allowing vegetation in the greenways areas to act as natural noise barriers.
10. Preserve
habitat and travel corridors for wildlife within the urban area.
11. Contribute to the aesthetic and visual structuring of the Town, helping to retain and amplify the character of the Town landscape.
The Chapel Hill greenways program was established by Council resolution in 1985. See Appendix A. However, the concept of preserving open space and greenways has been part of Chapel Hill's planning efforts for four decades. The first deliberate efforts toward preserving linear parcels of open space for the purpose of developing a greenways program began in the 1960s and early 1970s.
The early movement was led by Planning Board member and later Alderman Alice Welsh who led the effort to acquire easements from landowners along the Bolin Creek corridor. These early efforts resulted in an almost unbroken chain of Town-owned properties and easements that stretched along Bolin Creek from Umstead Park to Franklin Street. The acquisition of these properties and easements contributed greatly toward the Town's goal of preserving Chapel Hill's first and one of its most important greenway corridors – the Bolin Creek Greenway.
During the 1980s, the Town’s greenways planning and development efforts became more formalized. In 1981, the Parks and Recreation Department surveyed the Chapel Hill community to determine user concerns. Eighty-four percent of the respondents thought that greenway development was a high to moderately high priority. These findings were reinforced by the 1982 report, "Subcommunities in Chapel Hill: Conditions, Problems, Recommendations." A major concern of citizens outlined in that study was the fear that greenways development would be dropped as a Town priority.
As the decade progressed, greenways programs in other North Carolina cities grew, especially in nearby Raleigh and Cary. As the success of the Raleigh and Cary programs grew, other municipalities, including Chapel Hill, became more interested in a greenways program.
This interest led to a January 9, 1984 resolution of the Town Council to create an eleven member Greenways Task Force to study whether or not the Town should initiate a greenways program. The members of the task force included Lightning Brown (Chair), Diane Byrne, Valerie Carter, Lynn Cox, Karen Davidson (Vice Chair), Betsy Pringle, Zora Rashkis, Gordon Rutherford, Betty Sanders, Randy Schenck, and Philip Szostak. The group included representatives of the development community, the University, environmental groups, the business community, and various neighborhoods. The group presented their report, "Greenways Task Force Final Report" to the Council on February 11, 1985.
The Task Force Report recommended the creation of a Greenways Commission. The Council agreed and on July 8, 1985 adopted a resolution (see Appendix A) which directed that the Greenways Commission be established and that the Parks and Recreation Department provide staff support for technical and administrative functions. The Council then appointed a seven member Commission which met for the first time in October 1985.
Since its first
meeting in October 1985, the Greenways Commission has worked to expand the amount
of land preserved by the Town and to plan and oversee construction of trails.
The Greenways Commission has been partially responsible for the Town's purchase
of over 100 acres of land and has made recommendations that resulted in many
acres of property being dedicated or donated to the Town. The Commission has
dedicated four six major trails to date, and has been a vital
part of the decision making process of Town government.
Historical Highlights
1960
Chapel Hill population is 12,500.
1965
An open space
plan is was adopted by Town Council.
The Council hears reviewed the Mayor’s Ad Hoc Open Space Committee Report. The
report urges urged the development of a greenways system through
fee simple purchase of land and easements. The report is was not
adopted by the Council.
1969
The Research
Triangle Planning Commission recommends recommended in its
report, Chapel Hill, NC, Development Alternatives,
that the Town undertake extensive linear park development and acquire open
space. No formal action is was taken on the recommendations.
1970
The Community
Recreation Evaluation recommends recommended that greenways
be developed along streams and urges urged that the findings of
the Mayor’s Ad Hoc Open Space Committee Report and the Research Triangle
Planning Commission Report be adopted. The recommendations of the Reports are
were not adopted.
1972
The Chapel Hill, Long Range Policy Plan, recommends recommended greenway
development. The plan is was not adopted.
1979
The Comprehensive
Plan: Community Facilities Report defines defined “greenways” and recommends
recommended implementation of a greenways system that would connect parks and recreation areas. The plan is was adopted by the Council.
The Cedar Falls Trail is
was completed.
1980
Chapel Hill population is was 32,400.
1981
The Parks &
Recreation Department administers administered, The Townwide
Leisure Survey, and finds found that 84% of the respondents rate
rated the importance of greenways as moderately high to high.
1982
The results of
neighborhood surveys in the report, Subcommunities in Chapel Hill:
Conditions, Problems, Recommendations, indicates indicated that
greenways were looked upon with great favor. Neighbors were afraid that the
greenways program would be dropped by the Town.
1984
The Council passes passed a resolution to create a Greenways Task Force.
The Greenways
Task Force makes made an interim report to the Council.
1985
The Greenways
Task Force Final Report is was presented to the Council. The Council accepts accepted the Report and incorporates incorporated
it into the Town's Comprehensive Plan.
The Chapel Hill Greenways Commission is was formed and meets met for the first time
in October.
1986
The Tanyard Branch Trail is
was dedicated.
A $2.5 million bond for parks and open space is passed.
1988
The Greenways Commission makes made an extensive evaluation of greenway
possibilities along upper Bolin Creek and Battle Branch.
1989
A master plan
for the middle Bolin Creek corridor is was completed.
The Battle
Branch Trail is was dedicated.
The Council adopts adopted the 1989 Community Facilities Report which recommends
recommended greenway development.
A $5 million
bond for parks and open space is was passed.
1990
Chapel Hill population is was 38,719.
1991
Phase I of the Lower Booker Trail was completed.
1993
Construction of
Phase I of the Bolin Creek Greenway Trail begins started.
The Council approves approved the Bolin Creek Greenway Advisory Committee's
recommendations concerning Phase II of the Bolin Creek Trail. Work on the
Special Use Permit is started.
1994
Phase I of the
Bolin Creek Greenway Trail is was dedicated.
1996
Phase I of the
Fan Branch Trail is was constructed.
The first Greenways Trail Guide is was
published.
$3 million bond
for parks and greenways land acquisition is was passed with 66%
of the voters approving.
The Council authorizes authorized the expenditure of funds for a Conceptual Plan Study
of the Dry Creek and Upper Booker Creek Trails.
The Dry Creek
Trail Advisory Committee is was established by the Council.
Hurricane Fran damages
damaged all existing trails and felleds numerous trees.
The Council dedicates
dedicated the first phase of the Bolin Creek Trail in honor of former
Alderman Alice Welsh.
1997
The Council approves
adopted the Conceptual Plan for the Dry Creek Trail.
Temporary A temporary 1.5-mile natural surface trail is
was constructed at the future site of Southern Community Park.
1998
The Council anticipates
dedication of dedicated Phase II of the Bolin Creek Trail in honor
of Lightning Brown, chair of the 1984-85 Greenways Task Force.
On May 26, 1998 the Council adopted the Chapel Hill Greenways Comprehensive Master Plan.
1999
On March 14, 1999 the Council adopted the Booker Creek Linear Park Advisory Committee’s Report to the Town Council.
2000
The Council adopted the Report of the Merritt Pasture Access Committee report on November 27, 2000. The report made recommendations to secure access to the pasture.
The second Greenways Brochure was produced.
2001
The Greenways Commission sponsored the first annual Greenways and Open Space Award.
Voters approved Orange County Parks bonds that included $2,000,000 for the Southern Community Park and $1,000,000 for greenway development in Chapel Hill.
Phase I of the Dry Creek Trail was completed.
2002
The Lower Booker Creek Trail was dedicated.
2003
The Pritchard Park Trail was completed using all volunteer labor.
2004
The last sections of the paved Meadowmont Greenway Trail were completed. Work started on the natural surface sections of trail in the low areas.
The Chapel Hill Greenways
Program has had substantial impact on the community as a natural, scenic and
recreational resource during its first twelve eighteen years of
existence. The quality and character of specific greenway corridors contribute
significantly to the quality, image and livability of the Town.
The creation and
adoption of this revision to the 1998 Comprehensive Greenways Master
Plan are important steps in the process of continued evaluation of the
greenways program. Adoption of a Comprehensive Greenways Master Plan is
critical in helping to assure the continuity and direction of the program and
its coordinated planning over time. This Plan is actually an updated master
plan, replacing the 1985 Greenways Task Force Report which has been the
foundation of the Chapel Hill greenways program since its inception.
Through this current master planning effort, citizens, elected officials, and
Town staff have reexamined the direction of the Town's greenway corridor
preservation and trail development efforts.
Specifically, the Plan will provide an updated evaluation of potential greenway conservation areas and trail opportunities along the Town’s primary greenway corridors. Recommendations have been formulated for greenway opportunities in recently annexed areas of Town and for greenways related to new schools and Town parks, recent land acquisitions, as well as to recent private land developments.
As an adopted public policy document, the revised Comprehensive Greenways Master Plan would assist the Council in several important ways:
• The Master Plan would become an important planning tool, articulating a vision of what the greenways system may become, thereby becoming an essential guide for all future planning and decision-making which impacts the system’s physical form.
•
The Master Plan would
support the Council’s legal basis, established in Section 17.9.3 of the Development Land Use Management Ordinance, for requiring the dedication
of land for certain recreation areas and easements during the development
approval process.
• The Master Plan would provide the Town with a policy mechanism to enter into discussion and negotiation regarding regional initiatives.
• The Master Plan would provide a tool for interacting with State agencies and other regulatory bodies. Some agencies, such as the North Carolina Department of Transportation, may not alter their projects to meet local greenways needs without the adoption of a greenways master plan or similar document.
The Master Plan is organized into eight complementary sections:
1. The Introduction provides a historical perspective of the Chapel Hill greenways program and describes the philosophical underpinnings of the Plan and its organization.
2. The Planning Process outlines assumptions for the process, goals for the Plan, a brief summary of the planning methodology especially related to the process of consensus-building within the community.
3. Analysis of Current Conditions is a look at the greenways system as it exists today, including the administration of the program, the role of the Greenways Commission and the role of past planning efforts and supportive Town Ordinances. A summary of current land holdings within the greenways system and existing trail development is also provided.
4. Strategic
Planning is divided into
three four sections that organize the greenway system into
identifiable corridors and discuss problems related to major streets and
roads:
• Stream Corridors
• Man-Made Corridors
• Connector Trails
• Key NCDOT Road Intersections
These corridor types define the physical framework of the greenways system. Within each corridor type specific greenways are identified and evaluated for potential open space preservation and/or trail use. Recommendations for the development of specific trail segments are given. In addition, the Report discusses recommended solutions for major NCDOT street and road intersections.
This chapter also discusses other key strategic issues.
• Regional and Local Coordination discusses potential connections with neighboring jurisdictions, Town sidewalk and bicycle plans, and other regional and local open space/trail and transportation systems. The potential for cooperative greenway efforts with the University of North Carolina at Chapel Hill, especially at the proposed Carolina North campus, is also addressed.
• Implementation Policies provides a policy approach for future land acquisition and an outline of potential methods for acquisition.
• Financing the Greenways Program provides guidelines for funding the acquisition of land and the construction of trails.
5. The Action Plan outlines the criteria and guidelines for priority land acquisition and trail construction to be accomplished during the next 5 years.
6. Maintenance and Operational Policies provides a basis for making decisions related to trail maintenance and security and presents opportunities for citizen participation in the greenways program.
7. Design Standards and Guidelines provide design guidelines for the alignment and construction of trails within greenways corridors and design standards for special trail needs and amenities.
8. The Conclusion provides a synopsis of the master planning process and the future of the greenway program in Chapel Hill.