TO: Mayor and Town Council
FROM: W. Calvin Horton, Town Manager
SUBJECT: Response to Petitions Related to a Possible Third High School on the Southern Community Park Site
DATE: February 10, 2003
The purpose of this report is to respond to petitions regarding co-locating a high school on the site of the Southern Community Park. The petitions were received by the Town Council and referred to the Manager for recommendations.
Resolution A would affirm the Council’s intent to proceed with development of the Southern Community Park.
Resolution B would authorize the initiation of a new conceptual plan for development of a joint high school and park site.
Resolution C would authorize the Manager to negotiate with the School Superintendent for sale of the park site, subject to approval by the Town Council.
BACKGROUND
A summary of events related to the Southern Community Park during the fifteen years since the Town initially purchased land for the park is attached as Attachment 1 , Appendix A, p. 10 and 11.
On January 13, 2003 the Council received petitions from citizens interested in or concerned about the possibility of co-locating a third high school on land planned for development as the Town’s Southern Community Park:
DISCUSSION
The Mayor, at the request of the Town Council, participated in meetings of the High School Planning Task Force last fall. The group included members of the Board of Orange County Commissioners and the Chapel Hill/Carrboro City School Board. On November 22, 2002, in response to a question during a discussion, the Mayor stated that the park is an important element in the implementation of Chapel Hill’s long-range planning effort, but that he would consider any proposal that would not require the loss of the elements of the adopted conceptual plan for the park. The Manager stated that if the School System would define its interest in the use of the Town’s park land, then it would be possible for the Town to determine whether those interests could be accommodated at the site without interfering with the Town’s planned use of the site to meet community park and recreation needs.
Co-location
The Council received and referred petitions that request consideration of co-locating a high school and park on the 70 acres of the Southern Community Park site. Co-location could be attempted in two ways: facility sharing and site sharing.
Facility Sharing: One approach would be to design an integrated site in which the Town and the school would use the same facilities at different times. We have found the best opportunities for sharing facilities to be on elementary school sites, and the Town does so at Scroggs Elementary School and will do so at Rashkis Elementary School. However, unlike elementary schools, high schools have significant demands on recreation and sports facilities for sport team practices and games, band practices, and other needs that begin before and conclude after normal classroom hours. We believe that the ultimate result of a facility sharing agreement would be little community access to fields, gymnasiums or other facilities needed by the high school for its own programs.
Actual hours of availability for various facilities would be the subject of negotiation. For example, the Town is allowed to use the Scroggs athletic field after 5:00 p.m., Monday – Friday and has priority for use on weekends and during the two-month period when the school is out of session during the summer. We believe the hours and periods of use would be different for high school facilities, with even fewer hours on weekdays available for general community use.
Site Sharing: Another approach would be to attempt to accommodate both Town and school uses in separate areas on the park site. We understand from Assistant School Superintendent Steve Scroggs that the school system would require 35-50 acres of the park site’s 70 acres for development of a high school. We also understand from review of a report on the School System’s website, that the School System’s design consultant has estimated that the park site could be developed as a high school only with changes in the park plan, including deletion of three soccer fields, the youth baseball field, the roller hockey court, and the disk golf course. As he notes, the School System’s design consultant did not consult the Town in the preparation of his report. We do not know whether his assumptions and conclusions would be agreed to upon review by the Town. His report appears to make assumptions about the feasibility of beneficial co-location that we believe may be unwarranted. In general, we believe that allocating 35 to 50 acres of the 70-acre site for school use would diminish the utility of the site for park and recreation purposes.
Need for Park and Recreation Facilities in Southern Area
The background information in the appendix notes four major planning efforts whose policy goals would be advanced by the development of the Southern Community Park as described in the adopted concept plan:
· In 1989, the Council adopted the Community Facilities Report, as part of the Town’s Comprehensive Plan. The Report identified the need to build a southern community park in order to meet the community’s future park needs.
· In June 1992, the Council approved the Small Area Plan, Southern Area. The plan envisioned recreation needs for the area being addressed by the Southern Community Park, a recreation area within Southern Village, and a greenway system. The greenway and interior recreation area in Southern Village have been built.
· On May 8, 2000, the Council adopted a new Comprehensive Plan that includes several goals and objectives related to the planned development of the Southern Community Park.
· In 2002, the Council adopted the Parks and Recreation Master Plan that recommends that the Southern Community Park be built by the year 2011. The report also notes that the Town does not have enough land to meet its recreation goals for 2011 even with the Southern Community Park fully constructed unless another community park is purchased or open space areas in other parks are fully developed to accommodate active facilities.
We believe that construction of the Southern Community Park is an important element in the Town’s adopted plans, especially for the southern area of Town.
Need for High School in Southern Area
We have no expertise, and it would be inappropriate for the Town staff to comment on whether or not a high school should be located in the southern area of the community. Such decisions are appropriate for others to make.
OPTIONS
We believe there are three primary options for consideration by the Council.
Option One: Affirm the Southern Community Park Plan.
Adoption of Resolution A would affirm the Council’s intention to proceed with development of the Southern Community Park as envisioned in the conceptual plan adopted in March 2001.
We believe the principal argument in favor of this option is that it would be consistent with the community goals and plans over the past 15 years. We believe that the need for the Southern Community Park is clearly established and that neither facility sharing nor site sharing would meet the community’s needs for park and recreation facilities. We also believe that it would be difficult to assemble and purchase an alternate site for development of a community park in the southern portion of the Town.
We believe the principal argument against this option is that it would not attain whatever benefits might be gained by any feasible co-location of park and school facilities. This option also would preclude sale of the park property to the School System.
Option Two: Develop a New Conceptual Plan for a Joint High School-Park Site.
Adoption of Resolution B would authorize the initiation of a new conceptual plan for development of a joint high school and park site. The present plan for development of the Southern Community Park was prepared through the Council’s normal public process and allowed significant opportunity for citizens to be involved in and to affect the design of the planned park. If significant changes are to be made in the conceptual plan for development of the park property, we think that a similar process should be followed to ensure effective community involvement in developing any new design.
We believe that the principal advantage of this option is that it would allow redesign of the site to most efficiently address both park and school needs to the extent feasible, while providing adequate opportunity for involvement of neighbors and other citizens. Both the Town Council and the School Board would have to agree on a final conceptual design. The design consultant would be selected jointly by the Town Council and the School Board. We believe all costs should be paid by the School Board.
Because Orange County has agreed to fund part of the park development costs, we believe that the County Commissioners would wish to participate in any school-park design process also.
We believe that the principal disadvantage of this approach is that it is not likely to result in a plan that would meet the needs of the community for park and recreation facilities in the southern part of Town. There also would be no certainty that the Town Council, School Board and County Commissioners would reach agreement on a conceptual development plan, resulting in delay in construction of both the park and the high school without benefit.
Option Three: Sell the Park Site to the School System and Purchase a Replacement Site.
Resolution C would authorize the Manager to negotiate with the School Superintendent for sale of the park site, subject to approval by the Town Council.
We believe that the primary advantage of this option would be that the School System would gain a site that is suitable for development as a high school.
We believe that the primary disadvantage of this option is that the Town would lose a site that it has planned for and spent time and money on for development of a community park in the southern area of Town.
If the Council chooses to authorize negotiations toward sale of the site, we would recommend that the sale price of the Southern Community Park site be based on the cost of assembling and purchasing sufficient land in the southern part of the community to allow development of facilities in replacement of those now planned for the present park site, plus the cost of developing a new conceptual plan, and reimburse Orange County for the costs it funded to allow preparation of the present conceptual plan.
CONCLUSION
We recognize that how to proceed in regard to use of the land now reserved for a southern community park is a policy decision to be made by the Council. There are arguments both for and against each of the options presented, and a reasonable argument can be presented in support of each.
We are most influenced in our assessment by the clear need for park and recreation services in the southern part of the community. The Town has made multiple key decisions over the past 15 years that have included the assumption that the Southern Community Park will be constructed.
Unlike elementary schools, where we can attain some community use of school facilities, we believe that high school facilities would be used more extensively for high school purposes, allowing for minimal general community use. Therefore, we find little promise in the argument for co-location or joint use of facilities.
Finally, we believe that acquiring sufficient land to replace the present site would require excessive costs. It is likely that a larger acreage would have to be assembled, because of the topography of the remaining least-developed areas, and that some property might be acquired only through eminent domain proceedings.
RECOMMENDATIONS
Manager’s Recommendation: We recommend that the Council adopt Resolution A, which would affirm the Council’s intent to proceed with development of the Southern Community Park.
Resolution B would authorize the initiation of a new conceptual plan for development of a joint high school and park site.
Resolution C would authorize the Manager to negotiate with the School Superintendent for sale of the park site, subject to approval by the Town Council.
Parks and Recreation Commission Recommendation: The Commission met on January 15, 2003, and voted 7-0, with 2 abstentions to recommend that the Council retain the site for park purposes. Please see the attached copy of the Commission recommendations.
ATTACHMENTS
1. Appendix A – Background Information (p. 10).
2. Recommendation of the Parks and Recreation Commission (p. 12).
3. Petition from Valerie P. Foushee, Chair of the Board of Education, January 13, 2003 (p. 13).
4. Petition from Doug Ostanek, January 13, 2003 (p. 14).
5. Petition from Council Member Bateman , August 25, 2002 (p. 15).
6. Letter from Mayor Foy to Chair Foushee, August 28, 2002 (p. 16).
7. Letter from Mayor Foy to Chair Jacobs, August 28, 2002 (p.17).
8. Letter from Superintendent to Town Manager, January 28, 2003 (p.18).
9. Correspondence from Citizens (p. 19).
10. Report of the Southern Community Park Conceptual Plan Committee (p. 57).
RESOLUTION A
A RESOLUTION STATING THE COUNCIL’S INTENT TO PROCEED WITH DEVELOPMENT OF THE SOUTHERN COMMUNITY PARK AS ENVISIONED IN THE CONCEPTUAL PLAN ADOPTED IN MARCH 2001 (2003-02-10/R-8a)
WHEREAS, the Town Council purchased 78 acres of property in 1988 and 1990 from proceeds of the 1986 and 1989 Parks General Obligation bonds; and
WHEREAS, in 1997 and 2001 voters approved Orange County bonds that included a total of $3,000,000 designated by the Board of Orange County Commissioners for the Southern Community Park; and
WHEREAS, the Town Council adopted the Small Area Plan, Southern Area in June 1992, which envisioned the Southern Community Park; and
WHEREAS, the Town Council adopted the Parks and Recreation Master Plan in 2002, which anticipated the construction of the Southern Community Park to meet a significant portion of the Town’s recreation needs by the year 2011; and
WHEREAS, the Council created the Southern Community Park Conceptual Plan Committee to make recommendations concerning the potential development of a park on Town property; and
WHEREAS, the Council adopted the Report of the Southern Community Park Conceptual Plan Committee in 2002; and
WHEREAS, the Southern Community Park would promote the goals and objectives of the Town’s Comprehensive Plan; and
WHEREAS, the Council received petitions on January 13, 2003, both in support of retaining the property exclusively for park purposes and in support of sharing the site with a third high school; and
WHEREAS, the Council has considered the benefits of the proposals to the citizens of Chapel Hill;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council indicates its intent to proceed with the Southern Community Park as envisioned in the adopted Report of the Southern Community Park Conceptual Plan Committee.
This the 10th day of February, 2003.
RESOLUTION B
A RESOLUTION AUTHORIZING THE INITIATION OF A NEW CONCEPTUAL PLAN FOR THE DEVELOPMENT OF A JOINT HIGH SCHOOL AND PARK SITE INCLUDING A PROCESS OF CITIZEN PARTICIPATION (2003-02-10/R-8b)
WHEREAS, on January 13, 2003, the Town Council received petitions from citizens and the Chapel Hill/Carrboro City School Board asking the Council to consider the option of locating a third high school on the Southern Community Park site; and
WHEREAS, both high schools are located in the northern portion of Chapel Hill; and
WHEREAS, the Chapel Hill/Carrboro City School Board has stated that the Southern Community Park site is the best parcel available in the southern portion of Town suitable for a high school; and
WHEREAS, the current conceptual plan for the park was developed with the Council’s usual public process that allowed significant opportunity for citizens to be involved in and to affect the design of the planned park;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Council authorizes the Mayor and Manager to contact and begin negotiations with the School Board Chair, School Board Superintendent, Chair of the Orange County Board of County Commissioners, and the Orange County Manager, and proceed to:
· select an architect
· produce a design to most efficiently address both park and school needs to the extent feasible,
· provide opportunities for citizens to be involved in and affect the design of the park-high school site
· present the new design for approval by the Town Council and the School Board
BE IT FURTHER RESOLVED that all costs of the process be paid by the School System.
This the 10th day of February, 2003.
RESOLUTION C
A RESOLUTION AUTHORIZING THE TOWN MANAGER TO NEGOTIATE WITH THE SUPERINTENDENT OF SCHOOLS TO SELL THE PARK SITE TO THE SCHOOL SYSTEM, SUBJECT TO APPROVAL BY THE TOWN COUNCIL (2003-02-10/R-8c)
WHEREAS, the Town Council purchased 78 acres of property in 1988 and 1990 for development as the Southern Community Park; and
WHEREAS, both high schools are located in the northern portion of Chapel Hill; and
WHEREAS, the Chapel Hill/Carrboro City School Board has stated that the Southern Community Park site is the best parcel available in the southern portion of Town suitable for a high school;
NOW, THEREFORE, BE IT RESOLVED by the Council of the Town of Chapel Hill that the Town Manager is authorized to negotiate with the Superintendent of Schools the sale of the Southern Community Park site to the School System, subject to approval by the Town Council.
BE IT FURTHER RESOLVED that the Manager is directed to consider during the negotiations the cost of assembling and purchasing sufficient land in the southern part of the community to allow development of facilities in replacement of those now included in the Conceptual Plan for the Southern Community Park, and the planning costs already expended.
This the 10th day of February, 2003.
In 1986 voters approved a $2,500,000 Parks bond. Proceeds from this bond were used to purchase the first 50 acres of the Southern Community Park property in 1988 for $1,050,000 ($21,000 per acre).
In 1989 voters approved a $5,000,000 Parks bond. Proceeds from this bond were used in 1990 to purchase 28 additional acres of the Southern Community Park property for $658,000 ($23,500 per acre).
In 1989, the Council adopted the Community Facilities Report, as part of the Town’s Comprehensive Plan. The Report identified the need to build a southern community park in order to meet the community’s future park needs.
In 1990, the Council approved a conceptual plan for the Southern Community Park. In March 1991, the Council considered a Special Use Permit application for the park. However, due to budget constraints and concerns related to the intersection of Dogwood Acres Drive and Highway 15-501, the Council decided to postpone development of the project.
In June 1992, the Council approved the Small Area Plan, Southern Area. The plan envisioned recreation needs for the area being addressed by the Southern Community Park, a recreation area within Southern Village, and a greenway system. The greenway and interior recreation area in Southern Village have been built.
In 1994 construction started on the 312 acre Southern Village development. This development now nears completion. The Southern Village developer donated 6 acres of land for the current Scroggs Elementary School. As part of the process, the Town also exchanged some additional high, dry, buildable land for an equal amount of land in the Resource Conservation District in order to allow construction of the school.
In 1997, voters approved Orange County Parks bond funds that included a total of $1,000,000 specified by the Board of Orange County Commissioners for the Southern Community Park.
In 1998 the Town entered into a cooperative agreement with the Chapel Hill/Carrboro City Schools. The Town provided an additional 6.3 acres of land for the Scroggs School. In exchange, the School Board built a joint-use soccer field on the property. Approximately $100,000 of 1997 Orange County Park bond funds were used to add irrigation and lights to the Scroggs School joint-use soccer field.
In 2000, the Board of Orange County Commissioners approved the use of up to $100,000 from the 1997 Orange County Parks bond for park planning purposes. So far about $35,000 has been used to develop the park’s conceptual plan.
On May 8, 2000, the Council adopted a new Comprehensive Plan that includes several goals and objectives related to the use of the Southern Community Park property.
The Town Council appointed the Southern Community Park Conceptual Plan Committee in July 2000. The Committee met regularly from March through November 2001, and conducted public forums in September and October, 2001. Please see the attached Report of the Southern Community Park Conceptual Plan Committee, adopted by the Council with amendments on March 25, 2002.
In 2001, Orange County voters approved a second Parks bond that included an additional $2,000,000 specified by the Board of Orange County Commissioners for the park project. These bonds have not yet been sold by Orange County.
On January 26, 2001, the Town Council referred the park concept plan to the Board of Orange County Commissioners. The concept plan was reviewed throughout 2001 by the Board of Orange County Commissioners, the Intergovernmental Parks Work Group (IPWG), and the Assembly of Governments. The Board of Orange County Commissioners has not yet acted on the concept plan for the park.
In 2002, the Council adopted the Parks and Recreation Master Plan that recommends that the Southern Community Park be built by the year 2011. The report also notes that the Town does not have enough land to meet its recreation goals for 2011 even with the Southern Community Park fully built out unless another community park is purchased or open space areas in other parks are fully developed to accommodate active facilities.
Members of the Council and Board of Orange County Commissioners are currently engaged in a discussion related to the process that would be followed to build a Town park on Town land using County funds.
On August 26, 2002 a Council member petitioned the Council to contact the School Board and Board of Orange County Commissioners in order to begin discussions related to possible use of the site for a school. The Council agreed and on August 28 the Mayor contacted the School Board. Please see attached letter. The Mayor met with representatives of the School Board and County Commissioners in the High School Planning Task Force in October and November.
On January 28, 2003, the Schools Superintendent wrote to the Town Manager requesting the Town and School District staffs confer on “any and all possibilities.”