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
DATE: December 8, 2025
RE:Title
Approve P25-53: A request to rezone Unaddressed property at the intersection of Gardner and Hulon St. (0428397224000), consisting of 1.4 acres and owned by CRYSTAL POINT INVESTMENT SOLUTIONS LLC, from Single Family Residential 6 (SF-6) to Mixed Residential 5 (MR-5).Title
end
end
COUNCIL DISTRICT(S):
Council District(s)
4 - D.J. Haire
b
Relationship To Strategic Plan:
The proposed reclassification from SF-6 (Single-Family Residential 6) to MR-5 (Mixed Residential 5) advances the City’s FY2025 Strategic Plan by enabling context-appropriate, infrastructure-efficient housing growth on a serviced infill tract. The MR-5 district’s allowance for diverse, moderate-density housing supports economic resilience, neighborhood reinvestment, and long-term fiscal health.
Goal II - Diverse & Viable Economy
• Broadens the tax base by enabling additional dwelling units and housing types on already-serviced land, improving taxable value per acre relative to detached-only development.
• Demonstrates regulatory predictability that can catalyze private reinvestment and support local construction and allied trades.
• Increases utilization of existing utilities and streets, enhancing the return on prior public infrastructure investments.
Goal III - Invested in Today & Tomorrow (Strategic Growth & Land Use)
• Directs growth to a location contiguous with existing neighborhoods and utilities, reducing greenfield pressure and reinforcing compact urban form.
• Aligns with Comprehensive Plan policies supporting moderate-density housing types-such as townhomes, duplexes, and small multifamily-where design and context transitions can be provided.
• Incorporates opportunities for open space, stormwater best-management practices, and multimodal connectivity through coordinated site design.
Goal IV - Live, Work, & Recreate (Neighborhood Revitalization & Housing Choice)
• Expands attainable housing options for starter, workforce, and multigenerational households without displacing existing low-density opportunities.
• Strengthens corridor vitality by adding nearby residents to support local retail, parks, and community services.
• Advances complete-neighborhood principles by locating homes near jobs, schools, and civic amenities.
Goal VI - Collaborative & Trusted Government
• Supports transparent, predictable governance through a legislative rezoning that applies uniform, citywide development standards.
• Facilitates interdepartmental coordination among Planning, Engineering, Stormwater, and utility providers to ensure adequate capacity, access, and safety at later design stages.
Performance Indicators
• Net new dwelling units and diversity of housing types delivered.
• Increase in taxable value per acre over a 5-10 year period.
• Proportion of housing growth on infill or serviced sites versus fringe locations.
• Multimodal access and connectivity metrics verified at site plan review.
Conclusion
The MR-5 classification advances the City’s FY2025 Strategic Plan by combining modest density with housing diversity on a serviced infill site, strengthening the tax base, enhancing neighborhood vitality, and leveraging existing public infrastructure in a fiscally responsible, sustainable manner.
Executive Summary:
The 1.4-acre subject property, identified as Paradise Park, Lot 68 (Plat Book 29, Page 63), is currently vacant and unimproved, with no existing structures or active uses according to county tax records. The property is located within the established Paradise Park subdivision, which is characterized primarily by single-family residential development on similarly sized lots. The immediate surroundings reflect a transitional pattern of land use-residential in character to the north and west, while commercially zoned parcels are located across Gardner Street to the east, including a self-storage facility and a small commercial building. This juxtaposition of residential and commercial uses creates a mixed-use edge condition that serves as a natural buffer and transition between neighborhood-scale housing and more intensive non-residential activity.
On November 12, the Zoning Commission held a legislative public hearing regarding this case. The Commission voted 5-0 to recommend approval.
Background:
Owner: Crystal Point Investment Solutions, LLC
Applicant: Kevin Cole
Requested Action: Rezone property from SF-6 (Single-Family Residential 6) to MR-5 (Mixed Residential 5)
Site Location: Unaddressed property located at the intersection of Gardner Street and Hulon Street
REID: 0428397224000
Parcel Size: ±1.4 acres
Current Status: Vacant and unimproved
Public Notification: Mailed notices were sent to 48 property owners within a 1,000-foot radius of the subject site, in accordance with City Council policy.
Existing Site Conditions
The 1.4-acre subject property (Paradise Park, Lot 68; Plat Book 29, Page 63) is currently vacant and undeveloped, with no existing structures or active uses identified per county tax records. The surrounding area is primarily residential in character, consisting of single-family homes within the recorded Paradise Park subdivision.
Adjoining Land Use & Zoning
|
Direction |
Zoning |
Existing Land Use |
|
North |
SF-6 |
Vacant land and Mobile Home Park; Single-family residential |
|
South |
SF-6 |
Single-family residential and vacant parcels |
|
East |
SF-6 |
Vacant land; Single-family residential |
|
West |
SF-6 |
Vacant land; Single-family residential |
Across Gardner Street, the area transitions to commercially zoned parcels, including a self-storage facility and a commercial building, creating a mixed residential-commercial edge that frames the southern entrance to the Paradise Park neighborhood.
Land Use Policy Context
The 2040 Comprehensive Plan: Future Land Use Map and Plan (adopted May 26, 2020) provides policy guidance for properties located within both the City of Fayetteville and its Municipal Influence Area (MIA). According to the Future Land Use Map, the subject property is designated as NIR - Neighborhood Improvement.
The Neighborhood Improvement (NIR) designation encourages higher-density redevelopment and the introduction of “Missing Middle” housing types-such as duplexes, triplexes, townhomes, and small-scale multifamily structures-to promote private reinvestment and neighborhood revitalization. Target areas typically include clusters of vacant or underutilized parcels where strategic redevelopment can strengthen neighborhood character, enhance housing diversity, and support reinvestment in existing infrastructure. The overarching policy focus for NIR areas emphasizes neighborhood stabilization, improvement, and reinvestment through both public and private initiatives.
Issues/Analysis:
The proposed amendment from SF-6 (Single-Family Residential 6) to MR-5 (Mixed Residential 5) is substantially consistent with the City’s Comprehensive Plan (Future Land Use Map and Policy Framework) and long-range objectives for infill housing, infrastructure efficiency, and neighborhood reinvestment.
Planning Rationale and Consistency
Infill & Infrastructure Efficiency
Located within the urban service area and already served by public utilities, the site’s redevelopment as moderate-density housing leverages existing streets, water, and sewer-supporting fiscally responsible, compact growth and reducing greenfield pressure.
Housing Choice & “Missing Middle” Goals
Fee-simple townhomes fill a gap between detached homes and multifamily apartments, advancing City goals for diverse housing types and attainable ownership opportunities at a neighborhood scale.
Context Compatibility
MR-5 provides an appropriate step up from nearby single-family homes while buffering transitions to commercial uses across Gardner Street. Courtyard layouts, rear-load garages, and edge landscaping ensure compatibility with adjoining properties.
Corridor-Adjacent, Compact Pattern
The site’s proximity to Gardner Street services supports a complete-neighborhood pattern-shorter trips, walkability, and compact infill development consistent with corridor-oriented policy direction.
Phased & Managed Growth
A three-phase buildout allows coordinated infrastructure delivery, stormwater management, and fire access while minimizing disruption. Expected traffic generation is modest and will be verified through staff review.
Mobility & Site Design
Internal sidewalks, courtyard orientation, and rear-loaded parking promote pedestrian mobility and maintain a residential street character. Design elements will comply with fire code and connectivity standards.
Environmental Stewardship
Stormwater detention and low-impact development (LID) measures will meet City and NCDEQ standards, advancing watershed and environmental quality goals.
Straight Rezoning Context
This is a conventional (“straight”) rezoning under UDO §30-2.C. Approval would apply all citywide MR-5 standards-covering dimensional, access, landscaping, buffering, lighting, environmental, and review requirements-without case-specific conditions.
Public services (water, sewer, fire, police, and solid waste) are available, with connections and capacities verified through Technical Review Committee review. Floodway and buffer protections, compensatory storage, and tree canopy standards will guide site layout.
Future Land Use Map Alignment
The Neighborhood Improvement (NIR) designation supports higher-density infill and “missing middle” housing (e.g., townhomes, duplexes, small multifamily) to promote reinvestment and strengthen neighborhood character through reuse of vacant parcels and efficient infrastructure use.
Supporting Conditions & Justification
1. Housing Demand: Meets market need for attainable, ownership-oriented townhomes not feasible under SF-6.
2. Policy Evolution: Aligns with the City’s 2040 goals for infill, housing diversity, and efficient serviced growth.
3. Context Transition: Provides a logical residential-to-commercial buffer along Gardner Street.
4. Community Need: Expands entry-level and move-up housing options for small families and professionals.
5. Infrastructure Readiness: Uses existing utilities and street network for fiscally responsible infill.
6. Phased Delivery: Enables orderly buildout and infrastructure coordination.
7. Design Compatibility: Employs buffering, rear-load garages, and HOA-maintained open space.
8. Environmental Compliance: Incorporates SCMs, riparian buffer protection, and erosion controls.
Conclusion
Rezoning to MR-5 represents a logical and policy-consistent evolution of the area’s land-use pattern. It advances the City’s priorities for infill redevelopment, housing diversity, and efficient service delivery, while maintaining compatibility and neighborhood character through established UDO standards.
Approval would enable a compact, ownership-oriented townhome community that strengthens neighborhood vitality and supports long-range goals for smart, inclusive, and sustainable growth.
Budget Impact:
Rezoning the property from SF-6 to MR-5 does not, by itself, appropriate funds or commit the City to new spending; fiscal effects arise only if and when a project is approved and built. Given the site’s infill context and proximity to existing services, the near- to mid-term budget outlook is expected to be neutral to modestly positive for the General Fund, with most growth-related infrastructure funded by the developer and supported by enterprise fund participation where applicable. Over time, MR-5’s higher potential unit yield should increase taxable value per acre relative to a detached-only program, producing additional ad valorem revenue. Incremental population and household formation may also marginally elevate shared revenues such as local options sales/use and vehicle taxes. Stormwater utility billing would rise with impervious area (measured in ERUs), though on-site best-management practices required at permitting will mitigate public system burdens.
One-time revenues would include plan review, subdivision, and building permit fees at the development stages. Water and sewer system development charges and connection fees - collected by the utility - are not General Fund revenues but help defray capacity and extension costs, reducing pressure on public capital outlays. On the expenditure side, public safety, parks/recreation, code compliance, and similar operating costs scale with actual buildout and call volumes; MR-5’s moderate densities generally support efficient service delivery on existing networks. Transportation impacts are address through standard access management, frontage improvements, and any warranted turn lanes or multimodal upgrades at the driveway-permitting and engineering phases, with costs ordinarily borne by the developer and reviewed by the City and, as applicable, NCDOT. If any public streets or facilities are ultimately accepted, the City would assume routine maintenance thereafter; stormwater costs would be limited to public conveyances brought into the system and any downstream facilities already maintained.
No immediate City capital project is triggered by the map amendment. Capacity checks, easements, and any off-site improvements attributable to the development program are resolved through the Technical Review Committee and permitting processes. Administrative costs already incurred - such as mailed notice to 48 properties and required advertising - are minor and absorbed within existing departmental appropriations.
Taken together, the fiscal profile of the rezoning is neutral in the near term (prior to construction) and, absent unforeseen off-site obligations, is expected to become modestly positive as certificates of occupancy are issued, the tax roll grows, and utility and fee revenues materialize while ongoing service costs remain comparatively low on serviced infill land.
Options:
1. Approve to MR-5 (as requested) - Recommended
Adopt a written statement finding the map amendment consistent with the 2040 Future Land Use Map (Neighborhood Improvement) and reasonable and in the public interest because it enables context-appropriate housing diversity on serviced infill land, provides code-based tools to transition to adjacent SF-6 areas, and preserves any environmentally sensitive areas through existing UDO standards.
2. Approve to a More Restrictive District
If the Commission concludes a lower-intensity classification is warranted, identify the alternative district on the record and adopt a revised statement of consistency and reasonableness explaining why the alternative better addresses adjacency, access constraints, or environmental sensitivities while remaining aligned with the Future Land Use Map.
3. Deny
Adopt a written statement finding the request inconsistent with the Future land Use Map and/or not reasonable and not in the public interest, citing specific facts such as incompatibility with adjacent SF-6 patterns, unresolved transportation or infrastructure constraints, or inadequate protections of environmental resources.
Recommended Action::Recommended Action
• The Zoning Commission and Professional Planning Staff recommends that the City Council approve the straight rezoning from SF-6 to MR-5. The request is consistent with the Future Land Use Plan’s Neighborhood Improvement designation, and MR-5 provides the appropriate toolkit to implement that policy by allowing small-lot detached, duplex/townhome, and low-rise multifamily while preserving environmentally constrained areas through open-space and buffer requirements. The range of MR-5 uses, and associated development standards is suitable for this corridor given the surrounding mix of single-family neighborhoods, civic uses, and nearby multifamily, and compatibility will be addressed through the UDO’s citywide requirements for setbacks, height, landscaping/buffering, lighting, access, and stormwater. Transportation access, utility connections, and public-safety considerations will be reviewed and conditioned at the subdivision and site-plan stages. No evidence indicates factors that would substantially harm public health, safety, morals, or general welfare.
end
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