TO: Mayor and Members of City Council
THRU: Kelly Olivera - Assistant City Manager
Dr. Gerald Newton, AICP - Development Services Director
FROM: Will Deaton, AICP - Planning and Zoning Division Manager
Demetrios Moutos - Planner I
DATE: June 24, 2024
RE:
Title
P24-23. Rezoning of multiple properties from Single Family Residential 10 (SF-10) and Limited Commercial (LC) to Office and Institutional (OI), located on the north side of Village Drive between Roxie Avenue and Owen Drive, totaling 6.56 acres ± and being the properties of Cumberland County Hospital System Inc.
end
COUNCIL DISTRICT(S):
Council District(s)
5 - Lynne Greene
b
Relationship To Strategic Plan:
Strategic Operating Plan FY 2022
Goals 2027
• Goal II: Responsive City Government Supporting a Divers and Viable Economy
o Objective 2.1 - To ensure a diverse City tax base.
o Objective 2.4 - To sustain a favorable development climate to encourage business growth.
• Goal III: City invested in Today and Tomorrow
o Objective 3.2 - To manage the City’s future growth and strategic land use.
Executive Summary:
Over the past 25 years, the substantial expansion of Cape Fear Valley Medical Center and its services has necessitated a land use reassessment to support continued growth and integration with the surrounding community. The 2010 Hospital Area Plan and Overlay Ordinance addressed rapid regional growth, land use conflicts, and development quality around this medical hub. It identified traffic congestion and the need for higher-quality development as key concerns.
This report proposed rezoning properties from SF-10 and LC to OI to accommodate uses aligned with the area’s evolving role as a healthcare center. This aligns with the Cumberland County Hospital System’s goal of facilitating effective land use around major institutions, as evidenced by their acquisition of most properties in question.
The Zoning Commission unanimously recommended approval on May 14, 2024, but exempted properties not owned by the Cape Fear Valley Health System.
Background:
Owner: Cumberland County Hospital System Inc.
Applicant: City of Fayetteville
Requested Action: LC and SF-10 to OI
REID #s: 0416855119000, 0416855294000, 0416856279000, 0416951815000, 0416951690000, 0416957971000, 0426060010000, 0426062099000, 0416966493000, 0426065138000, 0426066230000, and 0426066239000
Council District: 5 - Lynne Greene
Status of Properties: Various businesses, vacant lots, single-family structures, parking lots, etc.
Size: 6.56 acres ±
Adjoining Land Use and Zoning:
• North: OI - Medical Center and Offices
• South: SF-10, OICZ, OI, and LC - Retail, Medical Offices, Single-family
• East: CC - Retail and Medical Offices
• West: SF-10 - Single-family, religious institution
Annual Average Daily Traffic 2022: Village Drive - 15,000
Postcards Mailed: 227
Land Use Maps and Plans:
The 2040 Comprehensive Plan, adopted on May 26, 2020, designates this area for Office/Institutional development, encompassing light industrial sites, offices, flex spaces, and large institutions. The Hospital Area Plan also supports this zoning to accommodate the area’s growth as a medical hub.
Issues/Analysis:
Cape Fear Valley Health System’s Growth:
A Fayetteville Observer story from January 2019 details the impressive growth of Cape Fear Valley Health System. Construction began on the 200-bed hospital in 1954, but initially, attracting doctors proved challenging due to its distance from downtown. Despite this early hurdle, the hospital opened in June 1956 and has since become the eighth-largest system in North Carolina, offering comprehensive healthcare services.
Transformation:
Aerial photographs from 1968 reveal a landscape of single-family homes between Conover Drive and Roxie Avenue. However, the area has undergone significant changes over the years:
• 1982-1995: Conover Drive and Owen Drive parcels became parking lots, and one structure was removed for a new hospital entrance.
• 2001-2008: Expansion of the hospital’s main campus required demolishing two buildings on the corner of Owen Drive and Village Drive.
• 2011: Some homes, including 3526 Village Drive, were converted into medical offices. Additionally, 3410, Village Drive was rezoned for Office/Institutional use and received a permit to operate within 100 feet of a residence.
• 2021 and Beyond: Continued removal and conversion of homes have left only a few single-family residences remaining.
Current Landscape:
Today, the Cumberland County Hospital System owns nearly all the land on the north side of Village Drive between Owen Drive and Roxie Avenue, with just three parcels remaining in private ownership.
Surrounding Area:
The area surrounding the hospital is a mix of medical facilities, businesses, and residential neighborhoods.
• Hospital Overlay Area: Here, you’ll find various medical offices, retail establishments, the Cape Fear Valley Medical Center, and some single-family homes on the edges. The Bordeaux Shopping Center sits across Village Drive at the corner of Owen Drive.
• 3401 Village Drive: A new building erected between 2017-2021 replaced a daycare and now houses Breakthrough Physical Therapy and an NC Department of Revenue office. Single-family homes line the rest of this block, zoned for Office/Institutional use.
• 3505 Village Drive: Redeveloped between 2010-2013 with conditional zoning (OI/CZ) to allow coordinated development with the hospital, considering noise concerns. The project included significant landscaping, shared access points, and an urban building design to create a buffer between the neighborhood and the busy corridor.
• South Side of Village Drive: Single-family homes (zoned SF-10) dominate this area, extending west into the Welmar Heights subdivision (also SF-10). Further west on Village Drive, you’ll find Cape Fear Church of Christ, Bordeaux Public Library, and Mary McArthur Elementary School.
• North of the Subject Properties: The Cape Fear Valley Medical Center’s main campus borders the area
Rezoning Request:
The City of Fayetteville wants to change the zoning for fourteen parcels of land from Single-Family Residential 10 (SF-10) and Limited Commercial (LC) to Office and Institutional (OI). Here’s what that means:
• Office and Institutional (OI): This zoning allows for small professional offices, institutions, and some limited retail stores. Single-family homes and apartments are also permitted, but they must follow specific design guidelines to fit in with the surrounding area.
• Buffer Zone: OI zoning often creates a transition zone between residential neighborhoods and busier commercial areas.
What the Zoning Change Allows:
This is a “straight rezoning,” meaning the new zoning allows all the uses permitted in the OI district as listed in the City’s regulations. In no event shall a Map Amendment (Rezoning) application be converted into an application for a Conditional Rezoning, nor shall an application for a Conditional Rezoning be converted into an application for a Map Amendment (Rezoning). Such conversions shall require withdrawal and re-submittal of a new application (30-2.C.1.d.2). The City Council cannot add restrictions on what type of businesses or buildings can be built in this area.
Land Use Plan Analysis:
Hospital Area Plan Supports Rezoning:
The area falls within a special zone called the “Hospital Area Overlay.” Overlay zoning districts, like this one, are layered on top of existing zoning to address specific local needs. In this case, the Hospital Area Overlay aims to:
• Protect residents from noise and traffic from the hospital.
• Encourage well-designed buildings with attractive landscaping.
• Gradually transition the area from homes to offices.
The plan, adopted in 2010, identified a conflict between the hospital and nearby homes due to increased traffic and noise from the relocated emergency entrance. It recommended:
• Rezoning both sides of Village Drive for office use to create a buffer for homes.
• Encouraging larger lots for better development.
• Building two-story offices with buffers to reduce noise.
• Creating attractive buildings to improve the area’s look.
Rezoning Aligns with the Plan:
The current rezoning request only applies to the north side of Village Drive, most of which is already owned by the hospital and used for medical offices or parking. Rezoning to OI aligns with the plan’s recommendations.
Traffic Concerns Remain:
• Village Drive is a busy road with speeding issues despite the 35 mph limit.
• Crossing the street is difficult for pedestrians, including hospital staff and residents going to the shopping center.
• The wide lanes and lack of pedestrian-friendly features make it a “stroad,” a problematic design that prioritizes cars over people.
Safer, More Walkable Area Needed:
Given the traffic and pedestrian safety concerns, Village Drive is not ideas for single-family homes. The rezoning to OI could create a buffer zone for the remaining homes and encourage the development of a more walkable area.
This Proposal Aligns with the City’s Long-Term Vision:
The 2040 Future Land Use Plan aims to create a city with:
• Strong infrastructure and services in key areas.
• A mix of businesses and housing options in designated growth zones.
• Safe and attractive neighborhoods.
• Development that supports universities, hospitals, and military bases.
How this Proposal Meets the Plan’s Goals:
• Spreading Investment (Goal #1): By prioritizing development near existing utilities, roads, and services, this proposal leverages the City’s prior investments and avoids duplicating infrastructure costs.
• Smart Business Growth (Goal #2): By directing businesses to areas zoned for commercial use, with existing infrastructure and potentially aligned with development plans, the proposal promotes a more organized and efficient approach to commercial growth.
• Strong Neighborhoods (Goal #4): By requiring development to include essential utilities, support walkability, and potentially contribute to community amenities, this proposal fosters a well-rounded infrastructure that sustains a high quality of life in surrounding neighborhoods.
• Capitalizing on Assets (Goal #6): By concentrating on medical facilities and supporting services near the hospital, this proposal strengthens the City’s medical sector by fostering collaboration, improving efficiency, and potentially attracting skilled healthcare professionals.
Specific Plan Policies this Proposal Aligns with:
• Growth near Infrastructure (LU-1): The proposal focuses on developing areas with existing strong infrastructure to ensure efficient, cost-effective, and sustainable growth.
• Mixed-Use Development (LU-1.2): The proposal promotes diverse businesses and housing options in designated areas to create vibrant, inclusive, and sustainable communities.
• Infrastructure Planning (LU-1.6): New development requires adequate infrastructure for approval to ensure sustainability and integration.
• Strategic Economic Development (LU-2.1): The proposal aims to foster business growth by creating a supportive environment for commercial activities.
• Walkable Communities (LU-4): The proposal promotes well-designed development with sidewalks, attractive buildings, and enhanced pedestrian connections to create vibrant, walkable neighborhoods.
• Stormwater Management (LU-10): Future development will incorporate measures to mitigate flooding risks, enhancing community resilience and safety.
• Collaboration with Institutions (LU-13): The proposal supports the hospital’s growth, enhancing surrounding businesses and neighborhoods for a win-win situation.
Overall, this proposal aligns with the City’s vision for a well-planned, vibrant future.
Budget Impact:
While there won’t be an immediate change to the budget, ongoing redevelopment is projected to boost tax revenue in the long run.
Options:
1. The City Council moves to approve the map amendment to OI as presented. Based on the evidence submitted, the Council finds the rezoning consistent with the Future Land Use Plan, as demonstrated by the attached consistency and reasonableness statement (recommended);
2. The City Council moves to approve a map amendment to a more restrictive zoning district. Based on the evidence submitted, the Council finds the amendment generally consistent with the Future Land Use Plan, requiring an amended consistency statement;
3. The City Council moves to deny the map amendment request. Based on the evidence submitted, the Council finds the amendment inconsistent with the Future Land Use Plan.
Recommended Action:
The Zoning Commission and Professional Planning Staff recommend approval of the map amendment to OI for the following reasons:
• The proposed amendment aligns with the policies established in both the Future Land Use Plan (FLUP) and the Unified Development Ordinance (UDO). Specifically, the FLUP designates the subject properties for development as Office/Institutional (OI).
• The permitted uses and standards within the proposed OI Zoning District are compatible with the existing zoning and uses near the properties.
• The proposed amendment is not expected to significantly impact public health, safety, morals, or general welfare.
Attachments:
1. Plan Application
2. Aerial Notification Map
3. Zoning Map
4. Land Use Plan Map
5. Subject Properties
6. Surrounding Properties
7. Consistency and Reasonableness Statement
8. City Council PowerPoint