TO: Mayor and Members of City Council
THRU: Kelly Strickland - Assistant City Manager
Dr. Gerald Newton, AICP - Development Services Director
FROM: Craig Harmon - Senior Planner
Demetrios Moutos - Planner I
DATE: August 11, 2025
RE:
Title
Approve P25-35. A rezoning request from MR-5 to OI at 815 Washington Drive (0437188863000) and 780 Blue Street (0437187555000), owned by Endowment Fund of Fayetteville State University and represented by Wesley Fountain of FSU.
end
COUNCIL DISTRICT(S):
Council District(s)
2 - Malik Davis
b
Relationship To Strategic Plan:
Goal II: Responsive City Government Supporting a Diverse and Viable Economy
• Objective 2.2: Invest in community places to ensure revitalization and increase quality of life
o The rezoning supports the long-term institutional development of Fayetteville State University (FSU), helping anchor investment and improve the area’s stability, image, and livability.
• Objective 2.3: Leverage partnerships for job creation and retention, with a focus on the local and regional workforce to increase per capita income
o University expansion directly impacts workforce development, higher education attainment, and employment opportunities, all of which are economic multipliers.
Goal III: City Investment in Today and Tomorrow
• Objective 3.2: Manage the City’s future growth and strategic land use
o The rezoning supports the City’s comprehensive planning priorities by enabling infill development that aligns with Fayetteville State University’s Master Plan and promotes logical, orderly growth.
• Objective 3.4: Revitalize neighborhoods with effective code enforcement and violations abatement
o Redevelopment of vacant parcels into institutional uses that serve residents and the broader community contributes to neighborhood stabilization and visual improvement.
Goal IV: Desirable Place to Live, Work, and Recreate
• Objective 4.5: Ensure a place for people to live in great neighborhoods
o The transition to OI zoning provides the framework for future institutional development that remains compatible with surrounding residential uses, helping reinforce neighborhood quality and access to services.
• Objective 4.6: Reduce poverty and homelessness
o Though indirectly, this rezoning supports educational attainment and access to opportunity through university expansion - critical upstream strategies for reducing systemic poverty in underserved areas.
Goal VI: Collaborative Citizen and Business Engagement
• Objective 6.1: Ensure collaborative relationships with the business community, local governments, military, and stakeholders
o The City’s support of institutional zoning for FSU exemplifies a collaborative planning approach with a major regional partner to further shared development goals.
These goals demonstrate that the proposed rezoning contributes to Fayetteville’s strategic vision of coordinated land use planning, equitable economic development, and neighborhood revitalization by enabling the university to grow in a way that complements surrounding communities and strengthens the city as a whole.
Executive Summary:
Fayetteville State University is requesting to rezone two vacant parcels totaling 5.94 acres at 815 Washington Drive and 780 Blue Street from MR-5 (Mixed Residential 5) to OI (Office and Institutional) to support long-term campus expansion. The proposed rezoning would enable future development of university-related facilities such as academic buildings, administrative offices, and student support services, in alignment with FSU’s recently adopted Master Plan. Surrounded by a mix of residential and commercial zoning districts, the site provides a strategic transition area for institutional growth that complements the surrounding neighborhood. The request aligns with several goals of the City’s Strategic Plan, including support for infill development, strategic land use, institutional partnerships, and neighborhood revitalization. Staff finds the request consistent with adopted policies and supportive of coordinated, community-minded growth.
Background:
Owner: Endowment Fund of Fayetteville State University
Applicant: Wesley Fountain of Fayetteville State University
Requested Action: MR-5 to OI
REID: 0437188863000 & 0437187555000
Status of Property: The site is currently vacant, fenced off with no active uses.
Size: 5.94 acres
Adjoining Land Use & Zoning:
• North - MR-5
• South - CC
• East - MR-5
• West - MR-5 & CC
Letters Mailed: 88
Annual Average Daily Traffic (AADT):
• Bragg Blvd - 24,000
• Murchison Rd - 16,000
• Marin Luther King Jr. Fwy - 26,000
Land Use Plans:
With the adoption of the 2040 Comprehensive Plan: Future Land Use Map & Plan on May 26, 2020, all properties within the city limits-as well as those located within the Municipal Influence Area (MIA)-are subject to its guidance. According to the Plan, this area is designated for Commercial Strip Redevelopment (CSR), which envisions a mixed-use commercial corridor that incorporates higher-density residential development to attract private investment. The CSR designation targets clusters of underutilized strip commercial properties, aiming to transform them into more vibrant, economically productive spaces.
Issues/Analysis:
History:
The subject properties were conveyed to Fayetteville State University Foundation, Inc. by a Non-Warranty Deed recorded on February 20, 2014 (Book 9387, Pages 0422-0423, Cumberland County Registry). The deed transferred ownership of approximately 5.94 acres - consisting of Tract 2 and Tract 3 as shown on Plat Book 111, Page 69 - to the Foundation from The Board of Trustees of the Endowment Fund of Fayetteville State University. The purpose of the transfer was to support the university’s institutional growth and strategic land planning efforts. The deed includes standard legal exceptions for taxes, easements, and rights-of-way, as well as a noted trail easement dedication. Since acquisition, the site has remained vacant and is currently fenced, pending future development aligned with Fayetteville State University’s Master Plan.
Surrounding Area:
The surrounding area includes a combination of zoning districts - MR-5, SF-6, and CC - highlighting a diverse mix of residential and commercial uses. Changing the zoning to OI would provide a balanced transition between these existing districts and reinforce Fayetteville State University’s plans for intentional, community-focused development.
Rezoning Request:
Land within the City is generally classified by the Unified Development Ordinance (UDO) to be within one of many base zoning districts. Land may be reclassified to one of several comparable zoning districts in accordance with Section 30-2.C.
Straight Zoning:
The applicant is requesting a rezoning from Mixed Residential 5 (MR-5) to Office and Institutional (OI).
The Office and Institutional (OI) zoning district is intended to accommodate a mix of low-intensity, small-scale professional offices, institutional uses, limited personal services, and supporting retail. It also permits a range of residential uses, including single-family detached, single-family attached, and multi-family housing. The district is designed to promote compatibility among diverse uses through development and design standards outlined in Article 30-5 of the Unified Development Ordinance (UDO). OI districts are typically located near residential neighborhoods and often function as a transitional zone between residential and more intensive commercial areas. As many OI-zoned areas evolve from previously residential land, new development is expected to reflect the surrounding neighborhood’s scale, physical design, and character.
A rezoning to a general base zoning district such as OI - without conditions - permits all uses listed for that district in the UDO’s Use Table. The Zoning Commission is not authorized to impose limitations on allowable uses, use standards, development intensities, or other regulations that apply to the district.
Land Use Plan Analysis:
The subject properties are located within an area designated as Commercial Strip Redevelopment (CSR) on the City of Fayetteville’s 2040 Future Land Use Map (FLUM). The CSR character area is intended to promote mixed-use redevelopment of underutilized commercial corridors by encouraging higher-density residential uses alongside commercial activity. These areas are typically older strip commercial sites that the City has identified as having strategic potential for reinvestment and revitalization.
The requested rezoning from Mixed Residential 5 (MR-5) to Office and Institutional (OI) is consistent with the goals and intent of the CSR designation. The OI zoning district allows for medium-intensity nonresidential uses, including education institutions, professional offices, and supporting services - uses that can activate underused land and encourage reinvestment in line with the CSR framework. Additionally, the OI district permits certain residential uses, such as multifamily housing, when developed under appropriate standards, aligning with the CSR objective of incorporating higher-density residential components into mixed-use redevelopment.
Furthermore, the rezoning supports the City’s broader shift away from traditional, segregated land use categories toward a more flexible and integrated character-based planning model. As described in the FLUM narrative, Fayetteville’s new character areas emphasize appropriate mixtures of land uses and scales rather than rigid use separation. The subject parcels, currently vacant and university-owned, present an opportunity to implement this vision through institutional investment that blends with nearby residential and commercial zones.
Overall, the proposed OI rezoning aligns with the Future Land Use Map’s intent for the area and advances the City’s long-term planning goals by encouraging infill, adaptive reuse, and coordinated redevelopment in a designated CSR zone.
Consistency with Future Land Use Goals and Policies:
The proposed rezoning from Mixed Residential 5 (MR-5) to Office and Institutional (OI) aligns with several goals and policy recommendations outlined in the City’s Future Land Use Plan. Situated within city limits and already served by public infrastructure, the subject parcels are located near Fayetteville State University (FSU), a key institutional anchor. The rezoning supports Goal 1 by facilitating infill development near established infrastructure, and advances Goal 2 through the promotion of institutional expansion that contributes to local economic growth. The site lies within a Commercial Strip Redevelopment (CSR) area, reinforcing Goal 3 by enabling reinvestment in underutilized land along a key corridor. The proposal also supports Goal 4 by enhancing neighborhood stability through thoughtful institutional uses and supports Goal 6 by leveraging the strategic value of education institutions.
The request is consistent with Policy LU-1.1, as the site is well-served by infrastructure and urban services, and with LU-1.2, which encourages greater land use intensity within reinvestment focus areas like CSR corridors. The site is located in the city limits (and consequently within the City’s MIA - LU-1.4) and will comply with applicable zoning and development standards. Adequate infrastructure exists to support future development, meeting the intent of LU-1.6, and the proposal discourages leapfrog development by promoting central-city infill (LU-1.7).
The proposed OI district is listed as a priority economic development area (LU-2.1) and complements broader regional workforce and institutional development efforts consistent with LU-2.3 and LU-2.5. As an underutilized site within a designated CSR area, the rezoning directly supports LU-3.1, LU-3.2, and LU-3.3 by removing regulatory barriers to reinvestment and creating synergy between city revitalization priorities and university expansion plans.
While no specific development is proposed at this time, the OI district is subject to robust site design standards outlined in the UDO, aligning with LU-4.1 and LU-4.2 regarding pedestrian connectivity, landscaping, and neighborhood compatibility. The rezoning enables future redevelopment that may trigger visual and functional enhancements along Murchison Road, consistent with LU-5.1 and LU-5.2, and supports Complete Streets objectives through likely improvements to the pedestrian realm.
The OI district also provides a strong foundation for high-quality urban design (LU-6.1) and passive crime prevention through environment design principles (LU-6.2). While primarily non-residential, OI zoning allows for certain multi-family or campus housing uses, supporting goals related to housing diversity, neighborhood stability, and workforce proximity (LU-7.1-LU-7.4).
If developed in accordance with zoning standards, future institutional uses could integrate open space, stormwater management, and natural feature preservation, aligning with LU-8.1-LU-8.3. Additionally, future site design could facilitate greenway access (LU-9.1, LU-9.2) and low-impact development practices (LU-10.1-LU-10.3), particularly given the site’s proximity to wooded or riparian features. Should any portion of the site fall within a flood hazard area, the OI district allows for appropriate mitigation in accordance with LU-10.4.
The rezoning does not conflict with LU-11 policies regarding compatibility with military operations. Moreover, OI zoning supports long-term collaboration and shared service potential with Fort Bragg and other public institutions, consistent with LU-12.1-LU-12.5.
Finally, the proposal directly supports LU-13.1 and LU-13.3, encouraging development that complements FSU’s mission and long-range plans. By facilitating land use flexibility and institutional reinvestment, the rezoning positions the area for coordinated, sustainable growth in partnership with Fayetteville’s education community.
Conclusion:
The proposed rezoning from Mixed Residential 5 (MR-5) to Office and Institutional (OI) is a logical and well-supported step toward implementing the City of Fayetteville’s long-range land use vision. The subject properties, owned by the Fayetteville State University Foundation and strategically positioned within a Commercial Strip Redevelopment (CSR) area, offer a prime opportunity for infill and institutional development in alignment with both the City’s Future Land Use Plan and the university’s campus planning efforts. Surrounded by a mix of residential and commercial zoning districts, the OI designation would provide an appropriate transitional buffer while enabling low- to medium-intensity institutional and residential uses consistent with neighborhood scale. The rezoning is in harmony with numerous land use policies that promote infill, adaptive reuse, multimodal connectivity, environmental stewardship, and intergovernmental coordination - particularly those supporting the growth of educational institutions and the revitalization of key corridors. Given the site’s existing infrastructure, its proximity to Fayetteville State University, and its alignment with adopted planning goals, the request is a responsible and forward-looking land use decision. Staff recommends approval.
Budget Impact:
The proposed rezoning is expected to have minimal immediate impact on the City’s budget, as no development is currently proposed and the site is already served by public infrastructure. However, the long-term fiscal outlook is likely positive. While future university-related development may include tax-exempt uses, it could still lead to increased land values, ancillary taxable development, and economic activity that supports local businesses and job creation. The OI designation also encourages low-intensity uses that place less strain on city services compared to higher-density zoning districts. As Fayetteville State University continues to implement its Master Plan, the City may benefit indirectly through strengthened institutional partnerships, workforce expansion, and potential public-private collaboration on infrastructure improvements. Overall, the rezoning aligns with fiscally responsible land use planning by facilitating coordinated infill development, encouraging reinvestment in a designated revitalization area, and leveraging the presence of a major education anchor to promote long-term economic and community growth.
Options:
1. Deny the Application
a. The City Council may deny the request if it determines that the proposed rezoning is inconsistent with the City’s adopted plans, would have negative impacts on surrounding neighborhoods, or does not promote a pattern of development that is reasonable or in the public interest. A statement would need to explain the inconsistency with the Future Land Use Map (FLUM) or goals and why maintaining MR-5 better serves the public.
2. Approve to a More Restricted Zoning District
a. If the City Council believes the OI district would allow uses that are too intense for the area or out of character with adjacent development, it may recommend rezoning to a more restricted district that better aligns with the surrounding land uses while still supporting some institutional expansion. The accompanying statement must explain how the alternative zoning better satisfies the City’s plans and protects neighborhood character.
3. Approve with a Reduction in Area Included
a. The City Council may recommend approval of only a portion of the requested area if it finds that only part of the site is appropriate for OI zoning due to adjacent land use conflicts, environmental constraints, or infrastructure limitations. The recommendation should identify the reduced boundaries and explain how the modified scope maintains consistency with City plans and serves the public interest.
4. Approve the Application as Submitted
a. The City Council may fully approve of the rezoning request as submitted, finding it consistent with the City’s Future Land Use Map and long-term planning goals. A written statement should affirm the requests alignment with the Commercial Strip Redevelopment (CSR) character area, highlight its support for Fayetteville State University’s growth and investment, and explain how the OI district facilitates a reasonable, coordinated, and context sensitive development pattern that serves the broader public interest.
Recommended Action:
The Zoning Commission and Professional Planning Staff recommend that the City Council move to APPROVE the map amendment to Office and Institutional (OI) based on the following:
• The proposed zoning map amendment is consistent with the policies adopted in the Future Land Use Plan (FLUP), particularly within the Commercial Strip Redevelopment (CSR) character area, and aligns with the development goals and intent of the Unified Development Ordinance (UDO).
• The uses permitted by the proposed OI zoning classification and the standards that apply to those uses are appropriate in the immediate area, given the proximity to Fayetteville State University and the surrounding mix of residential, institutional, and commercial zoning districts.
• The rezoning supports coordinated, intentional growth, and institutional reinvestment in a way that promotes public health, safety, and general welfare, with no adverse impacts anticipated.
Attachments:
1. Plan Application
2. Aerial Notification Map
3. Zoning Map
4. Land Use Plan Map
5. Subject Property
6. Surrounding Property Photos
7. Consistency and Reasonableness Statement