3.   Planning and Development Committee, June 22, 2006 (any committee consent agenda item pulled for discussion will be discussed at the beginning of the committee discussion portion of the agenda, which is item G on this agenda) (Mr. Roseland)

a.   Searstone:  Waiver of Road Improvements (EN07-003)
Committee unanimously recommended granting a waiver of the APF Roads requirements at High House and Cary Parkway.

STAFF REPORT

Planning and Development Committee, June 22, 2006

Searstone:  Waiver of Road Improvements (EN07-003)
Consideration of a waiver to the APF Roads Ordinance for Searstone

Speaker:  Tim Bailey

 

From:  Tim Bailey, P.E., Director of Engineering
Prepared by:  C. Richard Moore, Traffic Engineering Manager
Approved by:  William B. Coleman, Jr., Town Manager
Approved by:  Benjamin T. Shivar, Assistant Town Manager

Searstone is a mixed use development for active adults at the intersection of Davis Drive and High House Road.  A traffic impact analysis was required in accordance with the Adequate Public Facilities Roads Ordinance.

Mr. Andrew R. Padiak, P.E., of The John R. McAdams Company, Inc. requested a waiver of road improvements at the Cary Parkway/High House Road intersection.  A copy of the letter is attached.  A recent ordinance revision establishes a waiver procedure under limited circumstances.

The Town conducted a traffic study (01-TAR-124) for the Searstone development in 2001. A more recent traffic study for this intersection was completed for another proposed development in December 2004.  For the intersection of High House Road and Cary Parkway, the results are as follows:

Since the level of service (LOS) is less than D, the Town’s ordinances require mitigation.  Right turn lanes for both northbound and southbound Cary Parkway are the least cost solution to add capacity to offset impacts of site traffic. 

Even though the level of service is below D, the “built-out” traffic scenario adds less than five seconds of additional delay to the current delay.  Right turn lanes would be disruptive to this intersection.  This intersection is enhanced with landscaping, walls, and decorative metal signal poles.  A project to add right turn lanes would be difficult, have a negative aesthetic impact, and have construction impacts on traffic.  The turn lanes are estimated to cost $500,000.

A waiver of improvement can only be approved if the existing roadway network meets the Thoroughfare Plan.  This requirement is met as both Cary Parkway and High House Road are four-lane median divided at this intersection, meeting the current Thoroughfare Plan.

Staff Recommendation:  Staff recommends granting a waiver of the APF Roads requirements at High House and Cary Parkway.  The intersection would need multiple improvements to operate at LOS C for the typical 20 year design life.  If these improvements are desired, they should be part of a more comprehensive project.

ACTION: Ms. Dorrel moved to approve the consent agenda; Mrs. Robinson provided the second; council granted unanimous approval.

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b.   Southwest Area Plan Update (PL06-045)
Committee unanimously directed staff to proceed with a study to update the SW Area Plan as described.

STAFF REPORT

Planning and Development Committee, June 22, 2006

Southwest Area Plan Update (PL06-045)
Consideration of Potential Southwest Area Plan Updates Due to Changing Conditions
Speaker:  Meredith Chandler, Urban Designer/Senior Planner

From:  Jeffery G. Ulma, Planning Director
Prepared by:  Scott Ramage, Principal Planner, Meredith Chandler, Urban Designer/Senior Planner
Approved by:  William B. Coleman, Jr., Town Manager
Approved by:  Benjamin T. Shivar, Assistant Town Manager

Background

New issues have arisen regarding assumptions and conditions within a portion of the Southwest Area Plan.  Staff recommends that these new issues be addressed comprehensively, with a targeted plan update.  These issues are described below.

A.  Southwest Area Plan Thoroughfare Issues

The proposed road network in the Southwest Area Plan includes a north-south thoroughfare bypass east of and around the Green Level National Register Historic District, so that the existing Green Level Church Road within the historic district can remain as a rural collector.  (These recommendations are also reflected in the Town’s Comprehensive Transportation Plan.)   This bypass thoroughfare would need to cross Bachelor Branch at a point just south of Thomas Brooks Park.  The bypass thoroughfare would connect Green Level Church Road north of the historic district to Green Level West Road at a point east of the historic district. 

The conceptual alignment illustrated in the Southwest Area Plan shows the bypass thoroughfare entering a mixed-use Community Activity Center southeast of Bachelor Branch, and west of the future I-540 interchange at Green Level West Road.  This road alignment was designed to protect the character of the Green Level Historic District and provide improved access to the land uses in the mixed use area.

There is currently a subdivision plan submittal under review, 06-SB-004 Hatcher Tract, that lies within the conceptual path of the bypass thoroughfare.  During review of this subdivision, the applicant’s engineering consultants have raised the issue of whether or not it will be possible to obtain the required permits from the U.S. Army Corps of Engineers (COE), and from the NC Division of Water Quality (DWQ), to enable this thoroughfare to cross Bachelor Branch.  Staff met with representatives from COE and DWQ, as well as the applicant’s engineers, to discuss the likelihood of obtaining the required permits.  Neither the COE nor the DWQ staffs were optimistic that the crossing would qualify under their current rules of evaluation. 

Staff will continue to explore the feasibility of the stream crossing in a future meeting with DWQ, COE, and the State Historic Preservation Office (SHPO).  In the interim, staff wishes to advise Council of the issues posed by this new situation: 

1.       If 06-SB-004 is approved under the current Thoroughfare Plan, the applicant will reserve right-of-way for the bypass thoroughfare.  In the event that COE and DWQ permits are not issued, then the right-of-way could revert to the subdivision.  It may prove awkward for a revision to the subdivision to re-incorporate such returned right-of-way into a meaningful subdivision design.

2.       06-SB-004 will only be required to dedicate right-of-way and improvements for a rural collector along the existing Green Level Church Road.  However, if the COE and DWQ permits are not issued, then the thoroughfare may need to revert back onto the Green Level Church Road alignment.  However, the thoroughfare would require additional lanes and right-of-way width beyond that secured in the initial subdivision approval.  The Town would then have to shoulder additional road improvement costs in order to upgrade the rural collector to a thoroughfare.  Further, such a road-widening post-subdivision approval could infringe on subdivision streetscape buffers.

3.       If the thoroughfare alignment reverts back onto Green Level Church Road through the historic district, there will be additional impacts on the integrity of the district, and on the assumptions made during development of the SW Area Plan related to the historic district. 

4.       If the thoroughfare alignment reverts back onto Green Level Church Road, it is likely that traffic generated by the mixed-use Community Activity Center recommended by the SW Area Plan could no longer be supported with Green Level West Road as the only thoroughfare and point of access serving the center.  In such a case, the SW Area Plan might have to be amended in order to lower land use intensities and traffic generation within the activity center.  A special study may be needed to determine the precise impact of losing the thoroughfare through the activity center, and to determine appropriate Southwest Area Plan revisions related to land use, development limits, and vehicular circulation.

B.  Green Level Historic District Issues

One of the recommendations of the Southwest Area Plan is to engage landowners within the Green Level Historic District in a process to develop a detailed master plan for this area, and to develop architectural design guidelines for infill development, in order to protect the integrity of the district.  Edwards-Pitman Environmental, Inc. was contracted last fall to provide Historic District Design Review Guidelines and work with the community and Town staff to create a master plan for the Green Level area. 

During a recent meeting, Edwards-Pitman advised staff that anything more than minimal amounts of new development within the historic district, coupled with any widening of Green Level Church Road to a four-lane thoroughfare, would seriously threaten the integrity and viability of the  Green Level Historic District.  The consultants advised that retention of the rural viewsheds and the rural landscape are instrumental in maintaining the distinct character of the Green Level area, and in maintaining the integrity of the historic district.  The current trend in this area is for developers not to keep historic structures and leave the minimum amount of open space along roadways.  If development continues to occur in the same pattern, the consultant advises that there may not be a reason to have a Green Level Historic District.

Recommendation:  Southwest Area Plan Update

In response to the aforementioned issues, staff recommends that the Town undertake a special study and plan update for this portion of the Southwest Area Plan, in order to address the issues described above related to the thoroughfare, historic district, and gateway activity center.  The general area of the proposed study is shown below.  A precise study boundary will be determined if and when staff initiates work on the update.

As part of the plan update, staff will examine a range of possible responses to the new issues, including but not limited to:

1.       Examination of any possible bypass thoroughfare alternative locations.  Identify whether a Transportation Plan update is needed.  Identify whether changes are needed for the recommended cross-section for Green Level Church Road.

2.       Identification and evaluation of impacts of thoroughfare plan changes on the historic district.

3.       Revisions to recommended land uses within the gateway activity center.

4.       Re-evaluation and verification of Town goals for the Green Level Historic District.  Identify policy options for the historic district, such as:

a.          Explore feasibility and advisability of acquiring land or conservation easements to ensure the preservation of the rural context and views of the Green Level Historic District.

b.          Explore feasibility and advisability of creating a Historic Zoning District.

c.          Consider development of Design Review Guidelines for in-fill development in the Green Level Historic District, perhaps including limits on the amount and location of infill.

d.          Eliminate the Historic District Design Guidelines project in the Green Level area and eliminate the Green Level Historic District Master plan action item from the Southwest Area plan.

Fiscal Impact:   Due to existing Planning departmental workload, a consultant will be necessary to prepare this concept plan.  The FY 2007 budget includes $120,000 for the development of activity center concept plans, and this concept plan includes an activity center.  While specific amounts won't be known until bids are received, staff anticipates that this work scope will not exceed $50,000, thus utilizing no more than 42% of the activity center planning budget, leaving at least $70,000 or more for other concept plan related consultant work.   Staff believes that this is a high priority effort that can be accomplished with existing FY 2007 funding that will still allow for other targeted concept plans to be undertaken during FY 2007.

Staff Recommendation:   Direct staff to proceed with a study to update the SW Area Plan as described.

ACTION: Ms. Dorrel moved to approve the consent agenda; Mrs. Robinson provided the second; council granted unanimous approval.

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