TO: Mayor and Members of City Council
THRU: Jodi Phelps - Assistant City Manager
Gerald Newton - Development Services Director
FROM: Craig Harmon, Senior Planner
DATE: May 26, 2026
RE:Title
SUP26-01: Special Use Permit to allow Transitional Housing at 707 Murchison Road containing 3.62 acres owned by UNITED GOSPEL FELLOWSHIP COVENANT MINISTRIES.Title
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COUNCIL DISTRICT(S):
Council District(s)
2 - Davis
b
Relationship To Strategic Plan:
The proposed Special Use Permit request generally supports several goals and policy objectives contained within the City of Fayetteville’s Strategic Plan and adopted planning initiatives. The request involves reinvestment within the Murchison Road corridor, an area identified for neighborhood improvement, redevelopment, and economic revitalization.
The proposal supports strategic objectives related to:
• Encouraging reinvestment in underutilized and aging commercial properties;
• Promoting corridor revitalization and economic activity;
• Supporting compatible infill and redevelopment opportunities;
• Enhancing neighborhood stability and appearance; and
• Advancing long-term land use and redevelopment goals identified in the Fayetteville 2040 Comprehensive Plan.
Additionally, the reuse and continued occupancy of existing commercial properties may help reduce vacancy, encourage private investment, and support broader community development efforts within the Murchison Road corridor.
Executive Summary:
The applicant is requesting approval of a Special Use Permit (SUP) to allow the operation of a community-based nonprofit facility with transitional housing at 707 Murchison Road. The proposed use includes structured programming and supportive services designed to promote personal development, mentorship, workforce readiness, life-skills training, and community reintegration for adult men. The facility will include transitional housing accommodations for up to forty (40) residents and will operate in a supervised and professionally managed environment.
The subject property is located along the Murchison Road corridor, an established mixed-use corridor characterized by commercial, institutional, assembly, and community-serving land uses. The property has historically supported public and institutional type uses, including operation as an assisted living/nursing facility. Existing infrastructure, including roadway access, utilities, and on-site parking, supports the proposed use.
The proposed use is consistent with the intent of Section 30-4.C.2.b.6 of the City of Fayetteville Unified Development Ordinance (UDO), which establishes standards for Transitional Housing facilities. The applicant has indicated that the facility will comply with all applicable zoning, building, fire, occupancy, and operational standards, including maintaining a structured and supervised environment, limiting occupancy to no more than forty (40) residents, and operating in a manner compatible with surrounding properties.
Staff’s analysis indicates that the proposed use is compatible with the existing corridor development pattern and will function similarly to other institutional and community-oriented uses located within the Murchison Road area. The proposal does not involve heavy commercial or industrial activity, excessive traffic generation, outdoor operations, or activities likely to create nuisance conditions. The proposed use is intended to provide a community benefit through mentorship, workforce support, life-skills development, and transitional housing services.
Background:
Owner: Bishop Jerry Porter, United Gospel Fellowship Global Ministries
Applicant: Tullous Burrow, Men of Purpose Foundation
Requested Action: SUP - Transitional Housing
Property Address: 707 Murchison Road
Council District: 2 - Davis
Status of Property: OI - Former Assisted Living
Size: Approximately 3.62 acres
Adjoining Land Use & Zoning:
• North - CC: Floodway
• South - MR-5: Multi-family residential
• West - MR-5: Floodway and Park
• East - MR-5: Multi-family residential & Cemetery
Letters Mailed: 57
Land Use Plans:
Mostly PARKOS - Park & Open Space with a very small section of HDR - High Density Residential
Technical Review Committee (TRC): Issue centered around safety and access concerns regarding floodplain and floodway.
The subject property is located at 707 Murchison Road within the City of Fayetteville. The site is currently improved with an existing commercial/institutional structure situated along the Murchison Road corridor, a major arterial corridor characterized by a mixture of commercial, institutional, assembly, and community-serving land uses.
Historically, the property operated as an assisted living/nursing facility and has existing infrastructure suitable for public-serving uses, including roadway access, utilities, and on-site parking accommodations. The surrounding area reflects a corridor-style development pattern that supports a variety of commercial and institutional activities.
Adjacent properties generally consist of commercial, institutional, and service-oriented uses consistent with the character of the Murchison Road corridor. Properties across Murchison Road contain a combination of commercial establishments, corridor-oriented businesses, and institutional/community-based uses. Areas located to the rear of the property transition toward lower-intensity uses and residential development patterns typical of urban corridors.
The applicant proposes to utilize a portion of the property as a community-based nonprofit facility operated by the Men of Purpose Foundation. The facility will provide structured programming and transitional housing services for adult men in a supervised environment. Proposed services include mentorship and leadership development programs, life-skills training, workforce readiness and employment support, educational workshops, peer engagement activities, community outreach initiatives, and transitional housing accommodations for up to forty (40) residents.
The applicant states that all activities will occur in a structured and supervised setting managed by staff and/or trained volunteers. The facility is not proposed as an unsupervised operation, emergency shelter, or high-impact commercial activity.
Issues/Analysis:
Use-Specific Standards and Ordinance Compliance
The applicant proposes a Transitional Housing use as regulated under Section 30-4.C.2.b.6 of the Fayetteville Unified Development Ordinance (UDO). Based on the information submitted, the proposed use appears capable of complying with the applicable use-specific standards and operational requirements established by the UDO.
The applicant has stated that occupancy will not exceed forty (40) residents and that the site will maintain required parking, circulation, and operational accommodations. The facility will comply with all applicable building, fire, occupancy, and life-safety regulations, and activities will occur in a structured, controlled, and supervised environment. The organization has also acknowledged that it will comply with any conditions imposed through the Special Use Permit (SUP) approval process and any subsequent site plan review requirements.
The proposed use is community-oriented and service-based in nature and does not involve industrial activity, hazardous operations, or high-intensity commercial uses typically associated with adverse land use impacts.
Compatibility with Surrounding Area
The Murchison Road corridor is characterized by a mixture of commercial, institutional, assembly, and community-serving uses. The proposed use is generally consistent with the broader development pattern of the corridor and is similar in operational character to other institutional and nonprofit service uses commonly located along major transportation corridors.
The applicant indicates that programming activities will primarily occur indoors during structured hours of operation, generally limited to daytime and early evening periods. The use is not anticipated to generate excessive noise, outdoor activity, or operational impacts inconsistent with surrounding properties.
Additionally, the property’s prior use as an assisted living/nursing facility demonstrates the site’s historical accommodation of residential and service-oriented activities involving supervised occupancy and public access. Existing infrastructure, including roadway access, utilities, and parking accommodations, supports community-serving uses of this nature.
Public Health and Safety
The proposed use will be required to comply with all applicable City, State, and Federal regulations, including building code, fire code, occupancy requirements, and life-safety standards. The applicant has stated that the facility will implement operational oversight measures, including a Security and Good Neighbor Plan, supervised access, and participant conduct standards.
Based on the information provided, the use is not expected to create material public safety concerns, hazardous conditions, or nuisance impacts beyond those typically associated with institutional or community-serving uses. Traffic associated with the proposed use is anticipated to be moderate and generally consistent with existing corridor activity levels.
However, a significant issue associated with the property is the presence of FEMA-designated flood hazard areas. The subject property is substantially impacted by both the FEMA-designated Floodway and the 100-year Floodplain, which represent major development and operational constraints for the site.
For purposes of FEMA floodplain management and local development review, a floodway is defined as the channel of a river or stream and the adjacent land areas that must remain unobstructed to convey the base flood (100-year or 1% annual chance flood event) without increasing flood elevations beyond allowable limits, typically one (1.0) foot. The floodway represents the most hazardous portion of the floodplain due to the depth, velocity, and volume of floodwaters conveyed during storm events.
FEMA Flood Insurance Rate Maps (FIRMs) identify floodways within Special Flood Hazard Areas, generally Zones AE and A. The floodway is typically mapped as a distinct shaded or striped area within the broader floodplain. Areas located outside the floodway but still within the 100-year floodplain are commonly referred to as the “flood fringe,” where limited development may be permitted subject to applicable floodplain management regulations.
The primary purpose of the floodway designation is to preserve the hydraulic capacity necessary to safely convey floodwaters downstream. Encroachments or obstructions within the floodway can increase flood elevations and water velocities, potentially resulting in adverse impacts to upstream and downstream properties and infrastructure.
As a result, development within FEMA-designated floodways is subject to stringent federal, state, and local regulations. Construction of new structures, placement of manufactured homes, fill activities, and substantial improvements to existing structures are generally prohibited unless the applicant provides a certified engineering “No-Rise Certification” demonstrating that the proposed development will not increase base flood elevations within the floodway. Additionally, the presence of the 100-year Floodplain across the majority of the site may require compliance with flood damage prevention standards, elevation requirements, and other applicable floodplain management regulations.
The subject property also has a documented history of flooding impacts. When the site previously operated as an assisted living facility, the property was reportedly evacuated on multiple occasions due to flooding events. This history further demonstrates the significant flood-related hazards associated with the site and reinforces concerns regarding the extent of the FEMA-designated Floodway and 100-year Floodplain on the property. The repeated flooding and prior evacuations indicate the site has experienced substantial operational and public safety challenges associated with flood events.
If the property were vacant and undeveloped today, approximately one-half of the site would likely be considered unsuitable for development due to the presence of the FEMA-designated Floodway and associated floodplain constraints.
Consistency with Adopted Plans and Policies
The proposed use generally aligns with adopted City objectives related to corridor reinvestment, neighborhood stabilization, community development, and the expansion of community-serving services. The Murchison Road corridor has historically served as a location for institutional, public-serving, and community-oriented uses.
The proposed facility is intended to provide workforce support, life-skills development, mentorship, and transitional housing services that promote personal stability and self-sufficiency. These services support broader public policy objectives related to economic opportunity, community reintegration, and neighborhood stabilization.
Property Value and Public Necessity
The applicant states that the property will be professionally managed and maintained and that operations will occur in a structured and supervised environment. The proposed use does not include outdoor storage, industrial activity, or other operational characteristics typically associated with adverse impacts on adjoining properties.
The facility also serves a recognized public purpose by providing transitional housing, mentorship, workforce development, and supportive programming designed to assist individuals transitioning toward greater personal and economic stability.
Regulatory Compliance
The applicant has acknowledged that all required permits, inspections, and approvals will be obtained prior to operation, and that the organization will maintain ongoing compliance with all applicable City, State, and Federal regulations, including applicable nonprofit operational requirements, building and fire codes, floodplain management regulations, and zoning standards.
Budget Impact:
The proposed Special Use Permit is not anticipated to create a significant direct fiscal impact on the City of Fayetteville beyond normal administrative, permitting, inspection, and public safety service obligations associated with similar community-serving and institutional uses. The proposed use will utilize an existing structure with existing public infrastructure and utility access, thereby minimizing the need for additional public capital expenditures. Any future operational impacts on City services, including police, fire, inspections, or code enforcement, are expected to be consistent with comparable transitional housing and nonprofit service facilities operating within the City.
Options:
City Council may consider the following options regarding the proposed Special Use Permit request:
1. Approve the Special Use Permit as Submitted
Approve the request based on the findings that the proposed use complies with the applicable provisions of the Unified Development Ordinance and satisfies the required findings for approval.
2. Approve the Special Use Permit with Conditions
Approve the request subject to additional conditions intended to address operational, safety, site management, security, parking, floodplain compliance, or neighborhood compatibility concerns. Potential conditions could include, but are not limited to:
o Limiting occupancy to a maximum of forty (40) residents;
o Compliance with all applicable floodplain management regulations;
o Submission and maintenance of a Security and Good Neighbor Plan;
o Compliance with all applicable building, fire, and life-safety codes;
o Limiting outdoor activities or hours of operation;
o Maintaining on-site staffing and supervision during operational hours.
3. Deny the Special Use Permit
Deny the request if City Council determines the application does not satisfy one or more of the required findings for approval under the Unified Development Ordinance, including concerns related to public safety, flood hazards, compatibility with surrounding properties, or other site-specific impacts.
4. Continue the Public Hearing
Continue the public hearing to a future meeting date in order to allow additional review, submission of supplemental information, revisions to the proposal, or further evaluation of floodplain, operational, or neighborhood compatibility issues.
Recommended Action::Recommended Action
Staff recommends that City Council hold an Evidentiary Hearing and base their decision on the evidence and testimony provided.
Motion to Approve: I move to APPROVE the Special Use Permit to allow Transitional Housing on residentially zoned property conforming to the current Unified Development Ordinance standards using the existing structure, as presented by staff, based on the standards of the City's development code and the evidence presented during this hearing. And that the application is consistent with applicable plans because: (1) the development is located in a Office and Institutional (OI) zoning district and (2) that this use complies with the findings listed below and (3) the proposed permit is in the public interest because the proposed SUP does fit with the character of the area.
[If approved, this Special Use Permit shall become effective with the approval of the Order of Findings by the City Council. The SUP shall expire one year from its effective date if a building permit is not issued within that time.]
*For a motion to approve, all six findings below must be met:
1. The special use complies with all applicable standards, conditions, and specifications in this Ordinance, including in Section 30-4.C, Use-Specific Standards;
2. The special use will be in harmony with the area in which it is located;
3. The special use will not materially endanger the public health or safety if located where proposed and developed according to the plan as submitted and approved;
4. The special use is in general conformity with the City's adopted land use plans and policies;
5. The special use will not substantially injure the value of the abutting land, or the special use is a public necessity; and
6. The special use complies with all other relevant City, State, and Federal laws and regulations.
OPTION 2
Motion to Disapprove: I move to DISAPPROVE the Special Use Permit (SUP) Permit to allow Transitional Housing on residentially zoned property, as presented by staff, based on the standards of the City's development code and the evidence presented during this hearing. And that the application does not meet the finding(s) of fact listed below. More specifically finding(s) #_____.]
* For a motion to deny only one of the findings shown below needs to not apply.
1. The special use complies with all applicable standards, conditions, and specifications in this Ordinance, including in Section 30-4.C, Use-Specific Standards;
2. The special use will be in harmony with the area in which it is located;
3. The special use will not materially endanger the public health or safety if located where proposed and developed according to the plan as submitted and approved;
4. The special use is in general conformity with the City's adopted land use plans and policies;
5. The special use will not substantially injure the value of the abutting land, or the special use is a public necessity; and
6. The special use complies with all other relevant City, State, and Federal laws and regulations.
[Applicable to Motion to Deny] If denied this action shall become effective upon the approval of the Order of Findings by the City Council.]
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Attachments:
1. Application
2. Aerial Map
3. Zoning Map
4. Land Use Plan Map
5. Subject Properties
6. Surrounding Properties
7. Sketch Plan
8. PowerPoint