MEMORANDUM

AGENDA #14

MEMORANDUM

TO: Mayor and Town Council

FROM: W. Calvin Horton, Town Manager

SUBJECT: Special Use Permit and Phasing Options for Development of the Southern Community Park

DATE: June 24, 2002

The purpose of this memorandum is to discuss methods for proceeding with the Southern Community Park project, including phasing options.

Both Resolutions A and B would authorize the Mayor to communicate to the Board of Orange County Commissioners the Council’s desire that the County authorize the release of the remaining $800,000 in 1997 Orange County Parks bond funds that the Board has allocated for the Southern Community Park.

Resolution A would authorize the Manager to prepare construction phasing recommendations after the completion of the project’s Special Use Permit.

Resolution B would authorize the Mayor to request County funds for a specific first phase of the project selected by the Council that would be constructed after completion of the Special Use Permit.

The Manager recommends adoption of Resolution A.

BACKGROUND

In 1997, Orange County voters approved the sale of Parks bonds that included $1,000,000 designated for the Southern Community Park. Approximately $100,000 has been spent for development of the athletic/soccer field at Scroggs Elementary School. About $50,000 has been spent or committed for environmental assessment of the site and the development of the park conceptual plan. In 2001 Orange County voters approved issuance of additional Parks bonds that included $2,000,000 designated for the Southern Community Park. We understand that the 1997 bonds have been sold and the 2001 bonds have not.

The Town Council appointed the Southern Community Park Conceptual Plan Committee in July 2000. On January 28, 2002, the Council received the committee’s report and referred it to advisory boards and directed that copies be shared with the Board of Orange County Commissioners and the Intergovernmental Parks Work Group.

On March 25, 2002, the Town Council adopted the Report of the Southern Community Park Conceptual Plan Committee with one significant change from the version that was submitted by the Committee. The Council deleted the youth athletic field and substituted a third full-size athletic/soccer field. The addition of the third full-size field will likely result in a change in the final field configuration. Please see the attached “Map 1 – Proposed Revision to the Conceptual Plan”.

In the original plan all three fields were located along Highway 15-501. Please see the attached “Map 2 – Original Proposed Conceptual Plan (not adopted)”. The revised plan shows two fields along the highway and the third field north of Dogwood Acres Drive and further west than the other two fields. We believe that this configuration will likely be necessary in order to preserve enough land for the other park elements.

This change would have some impact on the appearance of Dogwood Acres Drive due to the clearing for the full-size athletic field. In addition, field lights would be somewhat closer to the Dogwood Acres Drive subdivision than originally shown. However, these observations are preliminary and details would not be available until the Special Use Permit phase of park design.

DISCUSSION

Summary of Adopted Plan: The Council has adopted a conceptual plan that includes a mix of active and passive amenities. As proposed about 65% of the park would be left in a natural state and served by trails. The remaining 35% would be more intensely developed with:

Full size athletic fields, suitable for soccer (3)
Youth baseball/softball field
Dog park
Extension of Fan Branch Greenway Trail
Recycling center
Children’s play area and spray park
Picnic facilities
Open space/passive recreation area
Performance space
Basketball court
Roller hockey court

Additional space would be reserved for:

Future community center and/or pool
Expanded parking (if needed)

Budget: The 1997 Orange County Parks bond included $1,000,000 for development of the Southern Community Park. The County has allocated $205,000 of the amount for development of the athletic/soccer field at Scroggs School and for conceptual planning of the park. We have used or committed about $150,000 of that amount. When the County makes the remainder of the 1997 Park bond funds available to the Town we would have approximately $850,000 for the Special Use Permit process and construction. In 2001 Orange County voters approved another Parks bond issue that included $2,000,000 designated for the Southern Community Park. At this time the County’s draft Capital Improvement Program shows bond sales for the Southern Community Park project of $1,000,000 each in FY 2004-05 and FY 2005-06.

Status of Orange County Review: On January 28, 2002, the Council referred the adopted conceptual plan to the Board of Orange County Commissioners and the Intergovernmental Parks Work Group. The Work Group reviewed the conceptual plan at its February 27 meeting, but did not take action. We understand the Board of County Commissioners has taken no action.

Special Use Permit: We believe that a Special Use Permit application should be developed and submitted to the Planning Department for the standard review procedure once funds have been released by the County. A Special Use Permit is not required for the Southern Community Park project because it does not involve the construction of a building. However, we believe that the Special Use Permit process should be used in this case because it would allow the public to review and comment on detailed plans, and it would also create a record of the Council’s deliberations on the final design and construction. In addition, the process would provide us with additional information about the exact placement of facilities, extension of utilities, lighting, grading requirements, stormwater management requirements, and other issues. This information would help us make our best recommendations regarding phasing.

Process: We believe that the Council should request that the County release the remainder of the funds from the 1997 Parks bond so that the Town can develop a Special Use Permit application.

The Special Use Permit would be followed by even more detailed work necessary to prepare the working drawings and apply for a Zoning Compliance Permit. At the same time we would secure all other needed NCDOT and environmental permits.

Once all necessary permits have been secured we would bid the project. The bid process would be followed by construction.

Schedules: We offer the following possible schedule based on the amount of time each phase might take:

County approval of conceptual plan unknown

Special Use Permit 12-14 months

Detailed drawings and permits for phase one 6 months

Bidding and contract process for phase one 2-3 months

Construction 9-12 months

After approval of the Special Use Permit, each subsequent phase would require about 17-20 months for the development of detailed drawings, permits, bidding, contracting, and completion of construction.

If County release of funds is delayed beyond the end of 2002 it might make more sense to build the park in one phase because of the length of time it would take to complete the Special Use Permit, Zoning Compliance Permit, bidding, and contracting phases of any such project. We believe that the time gap between when a first phase could be started and the sale of the last of the Park bond funds in 2005 may not be significant enough to warrant construction in phases, if the Special Use Permit process is started in 2003 or later. The planning, design, and approval process would take at least 20-23 months before a first phase could be started. This time line may have to be extended because of the need to work closely with the County.

Benefits of Phasing: Phasing would allow the Council to construct some facilities immediately upon completion of the Special Use Permit for the project and receipt of funds. There could be some savings by scheduling an earlier phase based on the remainder of the 1997 Parks bonds, because of loss of value of the funds due to inflation.

Costs of Phasing: Depending on the phasing schedule adopted there could be costs associated with a phasing plan instead of developing park amenities as one large project. Construction costs are usually lower if projects can be built as a unit rather than in phases. Costs are usually higher with phased projects for three reasons:

Staging Costs – Contractors charge for the costs of bringing personnel, material, and machines onto a site. If the project is built in a single phase this cost is assessed one time. If the project is phased, the cost would be assessed for each phase.
Grading – Development of the portions of the park site that would support fields, parking, buildings, and other improvements would require grading. Grading costs sometimes are the most significant portion of overall park construction costs and can best be lowered when the entire site is graded at one time. The larger the area to be graded, the more likely it is that the designer can balance the volumes of soil to be cut and filled, and minimize the hauling distances.
Conflicts – Phasing sometimes creates conflicts that result in increased difficulty and expense in building later phases. Extension of new utilities or the introduction of heavy equipment through already developed areas are examples. It is sometimes necessary to demolish portions of already completed work in order to build subsequent phases. It is more difficult and expensive to work around existing facilities than on a site that has no prior development.

Phasing Options: We believe that two phases could be considered at the end of the Special Use Permit process. We believe that the options listed below minimize some of the negative aspects of phasing. Preliminary cost estimates indicate that all of the options below could probably be built with the $850,000 remaining from the 1997 Orange County Parks bonds. Some of the options may not contain optimal groupings of amenities. The features found in each option were selected in order to stay within the funds that would be available for a first phase and to reduce conflicts and additional expense with future phases.

Option A - Focus on Athletic/Soccer Fields

This option would focus an early phase on development of two athletic/soccer fields with some additional recreation elements. Please see the attached “Map 3 – Athletic Field Option”. The anticipated program would include:

2 athletic fields, suitable for soccer (irrigated, but no lights)
Youth ballfield
Dog park
Open space/passive recreation area
Paved access trails as far as the fields
Parking lot south of Dogwood Acres Drive
Traffic calming on Dogwood Acres Drive
Sidewalk/trail on north side of Dogwood Acres Drive
Partial installation of the water line along 15-501

Benefits of Option A

There is currently a high demand for athletic/soccer fields
This option would have more active recreation amenities than other options.

Costs of Option A

Grading and staging costs would likely be higher at the end of all phases. The ideal situation would be to grade the entire site at the same time as the fields and trails in order to best balance cut and fill.

Option B - Focus on the Southern Portion of the Park

This option would result in the total buildout of the portion of the park south of Dogwood Acres Drive with the exception of the water line installation along Highway 15-501. Please see the attached “Map 4 – Southern Region Option”. The anticipated program would include:

Greenway trail from Dogwood Acres Drive to the Dog Park
All other trails south of Dogwood Acres Drive
Dog park
Open space/passive recreation area
Parking lot south of Dogwood Acres Drive
Traffic calming on Dogwood Acres Drive
Sidewalk/trail on north side of Dogwood Acres Drive
Youth baseball field
Bury CP&L distribution line

Benefits of Option B

One entire region of the park would be built at one time resulting in minimal future construction-related disruptions and conflicts caused by phasing.
This option would result in the least amount of extra costs attributable to phasing because of the smaller amounts of cut and fill required to grade the area south of Dogwood Acres Drive.

Costs of Option B

None of the soccer fields would be available in the first phase.

Grading and staging costs would likely be somewhat higher. The ideal situation would be to grade the entire site at the same time as the fields and other trails in order to balance cut and fill.

Option C - Focus on Extension of the Fan Branch Trail and Sewer Line

This option would extend the Fan Branch Trail from its current terminus adjacent to Scroggs Elementary School to Dogwood Acres Drive. Please see the attached “Map 5 – Fan Branch Trail Option”. If the trail is built we would also extend sewer lines into the park that would be needed for future phases. We recommend that this be done because we believe the best location of the sewer line would be under the paved trail. Locating the sewer under the trail would minimize clearing and land disturbance in a portion of the park that we think should be preserved to the greatest extent possible. The anticipated program would include:

Extend the Fan Branch Trail approximately 1,850 feet from Scroggs School to Dogwood Acres Drive.
Extend sewer lines approximately 2,650 feet to serve future phase(s) of the park.
Dog park
Parking lot south of Dogwood Acres Drive
Traffic calming on Dogwood Acres Drive
Sidewalk/trail on north side of Dogwood Acres Drive
Youth baseball field
Trail to ballfield

Benefits of Option C

Currently a high demand for pedestrian/bicycle access from Dogwood Acres Drive to Southern Village
Installation of sewer lines would aid future development of the park.
Some recreation amenities could be built in first phase

Costs of Option C

Ultimate grading and staging costs would likely be higher than Option B or if the park were built in one phase. The ideal situation would be to grade the entire site at the same time as the trail in order to balance cut and fill.

Construction related conflicts would be likely during future phases of development.

SUMMARY

We recommend that the once the County has released the 1997 Parks Bond funds the Town should apply for a Special Use Permit, which is expected to take a least one year for completion. The Special Use Permit process would allow the designer to refine the conceptual plan and provide opportunity for additional public comment and review of detailed plans. In addition, the process would provide more information than we have now regarding exact placement of facilities and utilities, lighting, grading requirements, stormwater management requirements, and other issues. Information gathered during the Special Use Permit would provide better information than we have now to make our best recommendations regarding phasing.

If County approval of the park conceptual plan is delayed beyond the end of 2002, we believe that it would be reasonable to build the park in one phase, because of the length of time it takes to complete various permits, bidding, and contracting. At the end of the Special Use Permit process we would be better able than we are now to consider the benefits of phasing versus construction all at one time.

RECOMMENDATION

Manager’s Recommendation: That the Council adopt the attached Resolution A, which would authorize the Mayor to communicate to the Board of Orange County Commissioners the Council’s desire that the County release the remaining $800,000 in 1997 Orange County Parks bond funds that the Board has allocated for the Southern Community Park. Resolution A would also authorize the Manager to prepare phasing recommendations after the completion of the project’s Special Use Permit.

Alternative Resolution B would also authorize the Mayor to communicate to the Board of Orange County Commissioners the Council’s desire that the County release the remaining $800,000 in 1997 Orange County Parks bond funds that the Board has allocated for the Southern Community Park. In addition, Resolution B would authorize the Mayor to request County funds for a specific first phase of the project, selected by the Council, that would be constructed after completion of the Special Use Permit.

ATTACHMENTS

Map #1 – Proposed Revisions to the Conceptual Plan (p. 10).
Map #2 – Original Proposed Concept Plan (not adopted) (p. 11).
Map #3 – Athletic Fields Option (p. 12).
May #4 – Option B – Southern Portion of Park Option (p. 13).
Map #5 – Option C – Fan Branch Trail Development (p. 14).

RESOLUTION A

A RESOLUTION AUTHORIZING THE MAYOR TO COMMUNICATE TO THE BOARD OF ORANGE COUNTY COMMISSIONERS THE COUNCIL’S DESIRE TO PROCEED WITH A SPECIAL USE PERMIT FOR THE SOUTHERN COMMUNITY PARK AND RECEIVE THE REMAINING 1997 ORANGE COUNTY PARKS BOND FUNDS THAT THE BOARD HAS ALLOCATED FOR THE PARK (2002-06-24/R-25a)

WHEREAS, in 1997 Orange County voters approved the sale of Parks bonds that included $1,000,000 designated for the Southern Community Park; and

WHEREAS, approximately $800,000 of the 1997 Orange County Parks bonds allocated for the Southern Community Park has not yet been transferred to the Town; and

WHEREAS, in 2001 Orange County voters approved another Parks bond issue that included $2,000,000 designated for the Southern Community Park; and

WHEREAS, the Council has adopted the Southern Community Park Conceptual Plan Committee’s Report of the Southern Community Park Conceptual Plan Committee; and

WHEREAS, on January 28, 2002, the Council directed that copies of the abovementioned report be shared with the Board of Orange County Commissioners and with the Intergovernmental Parks Work Group; and

WHEREAS, population growth in the southern portion of Chapel Hill and Orange County has increased the need for recreation facilities there; and

WHEREAS, the Special Use Permit application for the park is anticipated to take 12-14 months to develop, process and act on; and

WHEREAS, other permits, bidding, and contracting would require an additional 8-9 months;

NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Mayor is authorized to communicate to the Board of Orange County Commissioners the Council’s desire that the County release the remaining $800,000 in 1997 Orange County Parks bond funds that the Board has allocated for the Southern Community Park.

BE IT FURTHER RESOLVED by the Council that the Manager is authorized to prepare phasing recommendations after the completion of the project’s Special Use Permit.

This the 24th day of June, 2002.

RESOLUTION B

A RESOLUTION AUTHORIZING THE MAYOR TO COMMUNICATE TO THE BOARD OF ORANGE COUNTY COMMISSIONERS, THE COUNCIL’S DESIRE TO PROCEED WITH A SPECIAL USE PERMIT FOR THE SOUTHERN COMMUNITY PARK AND RECEIVE THE REMAINING 1997 ORANGE COUNTY PARKS BOND FUNDS THAT THE BOARD HAD ALLOCATED FOR THE PARK IN ORDER TO PROCEED WITH A FIRST PHASE (2002-06-24/R-25b)

WHEREAS, in 1997 Orange County voters approved the sale of Parks bonds that included $1,000,000 designated for the Southern Community Park; and

WHEREAS, approximately $800,000 in 1997 Orange County Parks bonds is unallocated, but currently available for use; and

WHEREAS, in 2001 Orange County voters approved another Parks bond that included $2,000,000 designated for the Southern Community Park; and

WHEREAS, the Council has adopted the Southern Community Park Conceptual Plan Committee’s Report of the Southern Community Park Conceptual Plan Committee; and

WHEREAS, On January 28, 2002, the Council directed that copies of the abovementioned report be shared with the Board of Orange County Commissioners and with the Intergovernmental Parks Work Group; and

WHEREAS, population growth in the southern portion of Chapel Hill and Orange County has increased the need for recreation facilities; and

WHEREAS, the Special Use Permit application for the park is anticipated to take 12-14 months to develop, process and act on;

BE IT FURTHER RESOLVED by the Council that the Manager is authorized to proceed with the first phase of park development, (INSERT PREFERRED OPTION HERE), after the completion of the project’s Special Use Permit.

This the 24^th day of June, 2002.