Page Road Assemblage Durham, North Carolina Submitted June 22, 2006 (CPR-06000)

Transcription

1 Attachment 3, Applicant s Justification Statement A06-15 Page Road Assemblage LOCATION Page Road Assemblage Durham, North Carolina Submitted June 22, 2006 (CPR-06000) The eight parcels comprising the subject site total approximately 405 acres; approximately acres of which (six of the subject parcels) are proposed for Land Use Plan amendment for reallocation of existing Industrial, Low Medium Density Residential, and Commercial designations. The assemblage of parcels proposed for development are located at the northwest corner of the Chin Page Road and Page Road intersection, east of Research Triangle Park and just west of the Durham/Wake County line. The entirety of the assemblage lies within the Suburban Tier and the first three parcels identified on the subject parcel list (attached) lie within a Suburban Transit Area. Further, the entire assemblage sits outside of the City limits but within the Urban Growth Area. Page Branch (Stirrup Iron Creek Tributary C) and another unnamed tributary (Stirrup Iron Creek Tributary D) flow NE to SW through portions of the site, to Stirrup Iron Creek, and eventually into Crabtree Creek. The site is located within the Neuse River Basin but does not lie within a Durham watershed protection overlay district. According to FEMA Flood Zone mapping (DFIRM Panels: J and J effective May 2, 2006) Stirrup Iron Creek Tributary C is defined as a Special Flood Hazard Area (SFHA) containing 100-year and 500-year floodplains along with a defined regulatory floodway. Additionally, areas of jurisdictional wetlands are distributed throughout the site. PIN numbers for the eight parcels constituting the subject site are attached. The six parcels for which the Land Use Plan Amendment is specifically requested are listed on the Land Use Plan Amendment application. A copy of the corresponding Zoning Map Change exhibit is attached, as well. EXISTING ONSITE AND ADJACENT LAND USES Onsite Generally, the subject acreage is undeveloped and forested. Parcels 3 and 4 are vacant residential/agricultural and residential uses, and parcel 3 features overgrown fields and several dilapidated accessory structures from past agricultural activity. A powerline easement runs SW to NE from Chin Page Road through the western portion of the assemblage. All existing structures on the subject assemblage will be demolished. Existing Land Uses on Chin Page Road between Miami Blvd. & Page Road The Chin Page Road corridor features a mix of Industrial and Residential uses. Moving west to east along Chin Page Road existing land uses are identified as follows: Between Miami Boulevard and the Stirrup Iron Creek floodway, an undeveloped portion of IBM s Pinnacle One industrial park occupies the NE corner of the Chin Page

2 Page 2 Road/Miami Boulevard intersection and the Edinborough apartments are located on the SE corner. Immediately east of the Stirrup Iron Creek floodway, the Cree manufacturing facility is located on the north side of Chin Page Road and along both sides of Silicon Drive. IBM office buildings lie on both sides of Silicon Drive just north of the Cree facilities. The GCF Nature Center is sited across from Cree on the south side of Chin Page Road. Two to three single-family residential lots lie on both sides of Chin Page Road just west of Page Branch creek and in proximity to the Cree and GCF sites. Immediately east of Page Branch, Allied Waste Services is sited at the end of a private drive off the north side of Chin Page Road, and the Cardinal Health warehouse facility lies on the south side of Chin Page Road. Between the Allied Waste Services access road and the powerline easement, two singlefamily residential lots, as well as Park Auto Service (an automotive repair use) lie on the north side of Chin Page Road. Between the powerline easement and the Chin Page Road/Page Road intersection, the AT&T telecommunications facility lies on the south side of Chin Page across from the Avanti tract. The approximately 50-acre Ward Family farm residential/agricultural assemblage is located on the south side of Chin Page Road at its intersection with Page Road, and a portion of its acreage extends across Page Road and into Wake County/City of Cary. Existing Land Uses north along Page Road from Chin Page Road As with Chin Page Road, the Page Road corridor is primarily a mix of industrial and singlefamily residential uses, with evidence of past (and possibly current) agricultural use. Beginning at Chin Page Road and the Ward Family farm and Avanti tract, and moving along the Page Road/Sorrell s Grove Road (AKA Pleasant Grove Church Road or Airport Road) intersection and north toward the Page Road/Globe Road intersection and beyond to T.W. Alexander, single-family residential/agricultural uses and industrial uses are interspersed along both sides of Page Road. Specifically, between the Chin Page Road/Page Road intersection and the Page Road/Globe Road intersection to the north, single-family residential/agricultural is featured on the west side, and single-family is interspersed with industrial on the east side of Page Road in the proximity of the World Trade Park (note that Longistics Way intersects with Page Road directly across Page from subject Tract 3 s frontage) and Mac Papers. North of the Globe Road/Page Road intersection, between Globe Road and T.W. Alexander Parkway, the same trend of single-family residential/agricultural uses interspersed with industrial is featured. Specific uses along the west side of Page Road include the Henderson Grove Missionary Baptist Church, the Accent On Stone quarry, and the vacant Page Road frontage acreage of the industrial site currently occupied by the Roma Tech Distribution Center (which lies within Technology Park and also fronts on T.W. Alexander). At the Page Road, T.W. Alexander intersection, the Wind

3 Page 3 River apartment community occupies the SE corner of the intersection and the recently constructed Alexander Village commercial center occupies the NE corner. Existing Land Uses along T. W. Alexander Parkway and Lumley Road The T. W. Alexander Parkway and Lumley Road east-west corridor features the most recent development activity exhibiting the current trend of planned subdivisions and multi-family communities integrating with existing and recently developed industrial uses. From east to west along the T. W. Alexander Parkway, Technology Park (including the Roma Tech Distribution Center frontage on T. W. Alexander and the Lab Corps campus), GE, and the Triangle Business Center are sited on the south side of the parkway. On the north side of the parkway, from east to west, sits vacant Technology Park land, the Alexander Crossing single-family residential subdivision, CenterPoint Distribution Center, and the Creekside townhouse development. Commercial and office/industrial development is located at the NE corner of the T.W. Alexander Parkway/S. Miami Boulevard intersection. Uses along both sides of Lumley Road are predominantly planned residential subdivisions Bradbury Trace, Stirrup Creek, Alexander Crossing, Ashley Forest and The Meadows at Pagehurst. Exceptions include the Lakeshore Golf Course on the north side of Lumley Road, and the Brassfield office/industrial development at the NW corner of Lumley and Page. Additionally, the Indigo Apartments lie on the east side of Page Road just north of the Alexander Village commercial site. Existing Land Uses along S. Miami Boulevard Generally, along the S. Miami Boulevard corridor between T. W. Alexander and Interstate 40, uses are predominantly high-intensity industrial and research uses on both sides of the Boulevard, including the GE tract and IBM s Pinnacle One industrial park. The Boulevard also generally constitutes the eastern boundary of the Research Triangle Park research applications district. Further south along Miami Boulevard, the corridor features more of a mix of industrial (Imperial Center), office (Imperial Center and Creekstone Office Park) and commercial (Creekstone Crossing Shopping Center) with some elements of residential use in the vicinity (Creekstone Crossing). EXISTING COMPREHENSIVE PLAN DESIGNATIONS Existing Comprehensive Plan land use designations on the subject site are: Industrial; Low Medium Density Residential (4 8 DU/acre); Commercial; Recreation/Open Space; Suburban Transit Area. Adjacent Comprehensive Plan land use designations include: Industrial designated area lies to the west, north, northeast and southeast of the subject assemblage;

4 Page 4 Medium Density Residential (6 12 DU/acre) lies to the immediate east of subject Tracts 1 & 2; Commercial and Suburban Transit Area Node designations lie to the immediate east of subject Tracts 2 & 3; Low, Low Medium and Medium Density Residential designations lie south across Chin Page Road; Office and High-Density Residential (12 20 DU/acre) designations lie along the east side of Page Road and north of Globe Road; Recreation/Open Space is designated along major stream courses (Page Branch, Stirrup Iron Creek tributaries, etc.); and The 2001 Durham Trails and Greenways Master Plan proposes the Page Branch Creek Trail running along the course of Page Branch Creek through subject Tract 8. The Page Branch Creek Trail corresponds to other area land use plans (CAMPO, CORE). Raleigh city limits extend across the Durham/Wake County line up to Page Road across from the subject assemblage. Raleigh s Umstead District Plan identifies the area east of Page Road as Triangle Regional Center. Additionally, the Umstead District Plan shows a transit corridor (variably identified as a transit corridor, rail transit corridor or alternative rail transit corridor) through a Regional Intensity Area located between RDU Airport and the subject assemblage, and corresponding to the area identified as Suburban Transit Area and Node by Durham s Comprehensive Plan. The Triangle Regional Center (and by extension the Regional Intensity Area) is defined as an area of high growth potential. Raleigh s Umstead District Arterials, Thoroughfares and Collectors Plan identifies Chin Page Road and Page Road as major thoroughfares, shows a realignment of Globe Road s intersection with Page Road, shows a realignment of Sorrell s Grove Road/Pleasant Grove Church Road/Airport Road to create a four-way intersection at Chin Page and Page Roads, and shows a proposed collector road extending west across the county line roughly in alignment with the proposed Transit Corridor corresponding to the Suburban Transit Area and Node identified in Durham s Comprehensive Plan. The Capital Area Metropolitan Planning Organization (CAMPO) identifies a future RTP TTA bus line route along Chin Page Road in the June 21, 2005 CAMPO Long Range Transit Plan (CAMPO LRTP). CAMPO includes Globe Road across the County line in its July 11, 2005 map of Incidental Bike Projects. The Draft CAMPO Bicycle Transportation Plan Map identifies Globe Road up to its intersection with the County line as a Priority Corridor of Greater Needs. The Triangle J Council of Governments (TJCOG) Center of the Region Enterprise (CORE) April 22, 2005 Bicycle Pedestrian Green Space Plan identifies the following elements: Priority Planned On-Road Bicycle Facilities for Chin Page Road and Page Road, A conceptual, priority Page Branch Creek greenways trail, Sidewalks proposed for Globe Road,

5 Page 5 CORE Conceptual Transit Loop corresponding to future alignment/extension of Globe Road; and A Stirrup Iron Creek Village Center area corresponding to future alignment/extension of Globe Road. A Community Park is identified within the Raleigh Regional Intensity Area between this proposed development and RDU Airport. EXISTING AND PROPOSED ZONING The subject site is currently zoned IL, RR and CC. Specifically, Tracts 1, 2, 3, 7 and 8 are zoned IL. Tracts 4 and 5 are zoned RR. Tract 6 is split zoned IL and CC. The districts proposed in the Zoning Map Change request submitted concurrent with this Land Use Plan Amendment application are IL(D), CG(D) and PDR with a density of just over 4 units per acre. The purpose of the Zoning Map Change request is to allow development of a mixeduse community featuring approximately 500,000 sq. ft. of office campus floor area; approximately 1,000 multi-family residential units; approximately 220 single-family residential lots, and support retail of approximately 150,000 sq. ft. of floor area. ADJACENT ZONING Adjacent zoning districts are primarily IL and RR, with the following exceptions: The portion of the CC-zoned Avanti tract SE of the Chin Page Road/Page Road intersection; The approximately 46-acre Wilson tract SW across Chin Page Road from Tract 6 is zoned RS-M; and A small area of OI district NE of the subject assemblage and abutting the easternmost boundary of the GE tract; and IP district applied to Technology Park along both sides of T. W. Alexander west of the Page Road intersection. PROPOSED LAND USE PLAN AMENDMENT This proposal for amendment of the Durham Comprehensive Plan applies only to reallocation of the existing Industrial, Low to Medium Density Residential, and Commercial designations for subject Tracts 3 8 as listed on the accompanying Land Use Plan Amendment application. Specifically, the Land Use Plan Amendment requests: A reduction of Industrial designated area from 199 acres to 63 acres; A reduction of the Commercial designated area from 28 acres to approximately 20 acres: and An increase of Low Medium Density Residential designation from approximately 141 acres to 265 acres. No adjustment to existing Recreation/Open Space designations is requested. Reallocation of the existing Comprehensive Plan designations will assist in establishing the feasibility of the proposed development and its utility in achieving regional planning goals specific to:

6 Page 6 Durham s Comprehensive Plan Suburban Transit Area designation, The City of Raleigh s Umstead District Plan Triangle Regional Center area (generally defined as land located between the Research Triangle Park and the RDU Airport and encompassing both SW Durham County and NW Wake County areas), CAMPO plans for inter-municipal transit and bicycle connections, TJCOG CORE plans for regional growth, and Future TTA transit routes. While recognizing the County s concerns over loss of Industrial designated land, it is presented that greater regional goals can be attained through amendment of the future land use designations in the subject area. Generally, a comparable amount of nonresidential square footage allowed under the current land use designations will be concentrated more suitably along the Chin Page Road and Page Road frontages, while support areas of residential and commercial are planned for the periphery of the Industrial designated area. The mixed-use approach of the proposed community, though comparable but not identical to Compact Neighborhood support area development, should be more desirable than piecemeal development under current land use designations, especially in regard to the anticipated benefits the development will bring to this sensitive and key SE Durham location between the Research Triangle Park and RDU Airport. Ted Conner, Vice President of Economic Development with the Durham Chamber of Commerce, states in an attached letter dated June 9, 2006, that while this general area is attractive to industrial and corporate developers due to its proximity to RDU and ease of access, the area s marketability is negatively impacted due to inherent difficulties related to environmental constraints, lack of street access for two of the key parcels (Tracts 7 and 8 are land-locked parcels), and lack of community context and support services. Specifically, he states that subject Tract 8 (which is entirely designated Industrial) is encumbered by stream buffers, floodplain and wetlands, and a lack of access, and is therefore ill-suited for industrial development. In addition, a 200-foot wide Duke Power easement runs SW to NE through subject Tract 7 (also featuring an Industrial designation) and effectively renders it impractical for industrial use, in addition to a lack of access for this parcel as well. Mr. Conner s key point is that it is increasingly difficult to market land for industrial use outside of the context of an integrated mixed-use community. The proposed amendment to the current land use designations will create a more attractive location for increased economic development. Mr. Conner has also recommended to Planning staff that the area be removed from the critical industrial lands map that the Planning Department is preparing. [Additionally, on several occasions Liz Rooks of the Research Triangle Foundation has indicated RTF s desire that more residential and support services develop within close proximity to RTP.] Hand-in-hand with access deficiency and a lack of roadway frontage for Tracts 7 and 8, extension of municipal service lines requires participation of a developer willing to tie this acreage into a larger network of infrastructure as exhibited in the development plan submitted with the accompanying Zoning Map Change request. In order to do so, expansion of the area designated Low Medium Density Residential is necessary to ensure financial viability for the proposed development and offset the significant investment burden that would be shouldered by Crosland. Without the support of a larger residential base, development as proposed (and providing for the level of improvements required to realize the proposed project) is infeasible.

7 Page 7 Plan Amendment Criteria: A. Whether the proposed change would be consistent with the intent, goals, objectives, policies, guiding principles and program of any adopted plans; Response: As the subject assemblage lies partially in a Suburban Transit Area designation and in immediate proximity to a Suburban Transit Area Node that corresponds to proposed regional transit corridors, the proposed amendment specifically supports the goals of Comprehensive Plan Section 2 Land Use and Alternative Transportation Modes in that similar to a Compact Neighborhood, the proposed development would be characterized by mixed land uses, exceptional pedestrian and bicycle accessibility beyond the level provided for at nearby Brier Creek, interconnections with proposed local transit services, a network of open space areas, and community design appropriate for this key area between RTP and RDU. Additionally, the proposed Land Use Plan Amendment is consistent with the following specific policies of the Comprehensive Plan: Policy 2.2.4b. Office Uses as Transition Within the proposed development, office use will be sited in order to serve as a transition between commercial and residential uses. Policy 2.2.5b. Spacing of Commercial Development The commercial use within the proposed development is sited at the major intersection adjacent to the proposed community rather than mid-block, and meets/exceeds the Commercial Separation Criteria of Table 2 3. Policy 2.3.2d Suburban Tier Housing Types The proposed community will feature a mix of housing types of varying costs, sizes and design within the context of an integrated multi-use neighborhood in proximity to, and in support of, a proposed future transit node, employment centers, and support retail. Policy 4.2.2a. Varied Housing in New Development The proposed community will feature a mix of single-family detached and attached home sites, as well as multi-family residential use in the form of apartments and townhomes/condos. Housing is proposed in a range of cost, sizes and design. Policy 7.2.1a. Open Space Level of Service Standards. The proposed community will feature 27% open space within the PDR portion of the development (exceeding the Level of Service Standard of Table 7 1) and approximately 12% open space within the non-residential IL and CG portions of the site (exceeding the Level of Service Standard of Table 7 1). Policy 8.1.2k. Center of the Region Collector Street Plan. The proposed community not only supports the goals of the CORE collector street plan, but will facilitate the realization of those goals. Policy 8.1.4h. Bicycle Facilities in New Development.

8 Page 8 The developer of the proposed community is committed to providing significant bicycle amenities, at or exceeding levels set by policy guidelines within the Comprehensive Plan as well as other regional plans. Policy 8.1.4i. Pedestrian Facilities in New Development. The proposed community will feature extensive pedestrian amenities, facilitating the realization of Comprehensive Plan policy guidelines as well as the goals of other regional plans. Policy 8.1.6e. Internal Connectivity. The proposed community will provide for an integrated and inter-connected streets network, featuring pedestrian and bicycle friendly design and amenities. B. Whether the proposed change would be compatible with the existing land use pattern and designated future land uses; Response: In proposing only a reallocation of existing Comprehensive Plan land use designations throughout the assemblage, and which land use designations are present on adjacent properties, the proposed amendment is compatible with existing land use designations and land use patterns. Further, realization of this proposed mixed-use community is consistent with the current trend occurring in this area of residential uses sited adjacent to industrial use (with nodes of support retail) occurring in SE Durham County. [Regarding Table 2-3, Summary of Commercial Separation Criteria, the Commercial designation within the proposed development meets the spacing criteria of commercial nodes within the immediate area.] C. Whether the proposed change would create substantial adverse impact in the adjacent area or in the City or County in general; and Response: It is not anticipated that the proposed reallocation of existing land use designations onsite, allowing for development of the proposed integrated, pedestrianoriented, mixed-use community, will have any adverse impact in the adjacent area, City or County. Rather, it is expected that the development as proposed will be of greater benefit to the adjacent area, City and County in that it will provide for better connectivity and flow throughout the immediate environs, both east west and north south; provide significant water and sewer extensions proffered at the cost of the developer; provide for significant thoroughfare and collector street improvements including pedestrian and bicycle amenities as delineated in regional plans; and provide for a significant increase in employment opportunities; all at greater levels than development under the current land use designations would allow. D. Whether the subject parcel is of adequate shape and size to accommodate the proposed change. Response: The subject assemblage, at approximately 405 acres in size, is sufficient to accommodate the proposed change. This proposal supports the following Vision elements of the Comprehensive Plan: Promote the creation and enhancement of a livable, safe and beautiful community for all Durham citizens;

9 Page 9 Response: Approval of the proposed amendment will allow the construction of an integrated mix of uses within a community setting, allowing for a more livable environment in proximity to the Research Triangle Park, major thoroughfares, future collector streets and proposed transit corridors. Regarding safety, approval of the proposed amendment will allow for infrastructure construction that will facilitate the proposed realignment of two key intersections in proximity to the subject assemblage: the Globe Road/Page Road intersection to the north of the site and the Chin Page Road/Page Road/Pleasant Grove Church Road intersection on the site s southeastern boundary. Realignment of these difficult intersections will improve safety conditions for citizens traveling through this transitioning area of the County. Additionally, a well integrated infrastructure network offering pedestrian, bicycle and transit options will provide a safe and harmonious flow through the area and provide alternative connections to onsite and nearby employment centers. In regard to visual appeal, the proposed mixed-use development will provide for a network of streets featuring attractive landscaped yards and streetscape viewsheds, as well as offer an opportunity for visual architectural diversity throughout the site versus separation and concealment of uses set off from the existing thoroughfare network that would likely occur under the current land use designations. Promote a range of choices in transportation, education, housing and economic opportunities to effectively serve a diverse community; Response: If approved, the proposed development of the subject assemblage will effectively serve a more diverse community than development under the current Land Use designations in that it will provide for greater employment opportunities throughout the proposed office campus, retail element and service support of the residential element. The quantity, quality and variety of housing proposed will take the current trend of residential use integrated with industrial use to the next appropriate level, i.e. combining uses throughout an infrastructure network providing a greater number of alternative transportation options for residents of not only the proposed development, but within the context of the greater Stirrup Iron Creek/Triangle Regional Center area. If developed under the current land use designations, the scope of opportunity would be more limited. Protect our historic heritage, open spaces and natural resources; and Response: The proposed development will protect natural areas throughout and in proximity of the site through the application of required buffers and stormwater controls. The proposed development will also provide for better distribution of open space areas for use by employees, internal residents and residents of adjacent properties, throughout the subject assemblage. Development of the individual properties under the currently designated land use pattern will limit opportunities to provide access to these areas at the level that the proposed development will proffer. Provide opportunities for high quality growth and development. Response: In comparison to the current trend of leap-frogging uses along Chin Page, Page, T. W. Alexander and S. Miami Boulevard, the proposed inter-connected, pedestrian-oriented, mixed-use development will achieve greater quality growth and development levels for this regionally significant southeast portion of the County in that it will provide will provide for

10 Page 10 economic development and a variety of employment opportunities at a level greater than segregated industrial, commercial, and residential uses would provide; a recognizably attractive and marketable destination for a variety of homesites; would be more marketable to corporate development clients in that it provides a greater amenities package, and will provide for a greater provision of interior and exterior infrastructure improvements. Conclusion Crosland Investments is excited about the potential of this key Triangle location and proud to work with the County, the Chamber of Commerce, Triangle J COG, and other regional planning bodies toward the realization of the benefits the proposed community will provide the County and greater region. Approval of the proposed amendments will allow a master-planned development of the property rather than a piecemeal approach, and will enable the master developer to provide for comprehensive infrastructure improvements and will speed quality improvements in general for this Suburban Transit Area/Node location and its perimeter. Realization of goals related to sustainability, interconnectivity and economic impact are deemed to be a high priority for any county. Past and favorable development experience with Durham County and its Commissioners evidences that Durham County is no exception.