Town of Weddington - ULI Charlotte

Transcription

A Technical Assistance Program Report
The Urban Land Institute – Charlotte District Council
Town of Weddington
July 2005
Town of Weddington Technical Assistance Program Report
TABLE OF CONTENTS
Introduction ...............................................................................................................page 3
ULI – The Urban Land Institute
ULI Charlotte
Client
Technical Assistance Program
Acknowledgements
Technical Assistance Program Report ........................................................................page 7
Background
Key Issues and Nature of the Assignment
Key Stakeholder Interviews
Panelists’ Comments and Recommendations
Next Steps................................................................................................................page 18
Appendix ..................................................................................................................page 19
Conceptual Plan of the Town Center
Town Center Overview...................................................................... 20
Enlarged Town of Weddington Map with Town Center Plan .................. 21
Master Transportation Plan ..................................................................... 22
Road Cross-Sections (Main Street and Rural Connector Street) .................. 23
ULI Charlotte
212 S. Tryon St., Ste. 1150
Charlotte, NC 28281
704.940.7388 (ph)
704.365.3678 (fx)
[email protected]
http://charlotte.uli.org
Page 2
INTRODUCTION
ULI - The Urban Land Institute
The Urban Land Institute (ULI) was established in 1936
and has over 26,000 members from more than 60
countries. It is one of America’s most respected sources of
information and knowledge on urban planning, growth and
development.
ULI is a nonprofit research and educational organization.
Our mission is to promote responsible leadership with the
use of land to enhance the total environment. In order to
encourage an open exchange of ideas and sharing of
experience, members of ULI come from a variety of
backgrounds and professions such as developers, builders,
property owners, investors, architects, public officials,
planners, brokers, appraisers, attorneys, engineers,
financiers, academics, students, and librarians.
ULI Charlotte
ULI Charlotte is a District Council of the Urban Land
Institute, offering ULI services and benefits at a regional
level. The mission of ULI Charlotte is to complete the ULI
experience at a local level through continuing education,
research and the exchange of ideas and experiences to
promote responsible leadership in the use of land for the
betterment of our community.
As one of the services of ULI Charlotte, we offer Technical
Assistance Programs (TAP). TAP panelists are volunteer
members who seek to further the objectives of ULI and
make authoritative information available to those seeking
knowledge regarding the long-term use of urban land.
Client
ULI Charlotte was engaged by the Town of Weddington to
provide a Technical Assistance Program on key land use
and transportation impacts on its community. The Town of
Weddington is located in Union County about 15 miles
southeast of downtown Charlotte and 14 miles northwest
of downtown Monroe, North Carolina. Weddington covers
approximately 15 square miles and includes mainly lowdensity single-family housing with a population of
approximately 7,000.
Page 3
Technical Assistance Program
Objective
The Technical Assistance Program (TAP) is offered by ULI
Charlotte to provide local municipalities and communitybased nonprofit organizations objective and responsible
advice on land use planning, development and
redevelopment issues.
Program Description
District Council TAP is a service offered as part of ULI’s
national Advisory Service Program. Since 1947, the
Advisory Service Program has been assisting communities
by bringing together real estate, planning and
development experts to provide unbiased, pragmatic
advice for addressing complex land use planning and
development issues.
The ULI Charlotte TAP provides similar services to local
government and community-based nonprofit organizations.
Once a project is designated as a TAP, ULI’s Charlotte
District Council assembles a panel of volunteers with
expertise in areas that are required to focus on the
sponsor’s particular problem or issues.
Because of the diverse expertise of the members of the
District Council, a broad array of issues can be evaluated.
Members’ expertise is available on commercial retail,
office, industrial, residential, and mixed land uses in a
multiplicity of urban forms.
Under ideal circumstances, a TAP panel will be focused on
issues surrounding a particular site. The scope of the
analysis is intended to be for the benefit of a specific site
in a neighborhood or community. Analysis will typically be
organized around defining site characteristics and
limitations, identifying and assessing community and
neighborhood goals, considering alternative land use
strategies in the context of preliminary feasibility analysis,
and making recommendations for next steps.
The sponsoring organization is responsible for gathering
the background information necessary to understand the
project, and to presenting it to the panel. TAP panel
members spend one day developing an understanding of
the problem, coming up with recommendations, and
presenting those findings and recommendations to the
sponsoring organization.
Page 4
Acknowledgements
TAP Panelists
Members of ULI were selected from various professions in
order to share a wide variety of experiences. The
panelists for the Town of Weddington TAP include:
Brian Jenest, RLA, Chair (planning)
ColeJenest & Stone, PA
David Creech, AIA (design)
Narmour Wright Associates
Jim Houser, Jr., CCIM (development)
Compass Rose Associates, Inc.
Alison Nichols, AICP (planning)
Jordan, Jones & Goulding
Susannah Smith, AICP (client liaison)
Former Weddington Town Planner & Zoning
Administrator (not shown)
Stephen Stansbery, AICP (transportation planning)
Kimley-Horn and Associates. Inc.
Stakeholder Interviewees
More than 20 individuals associated with the study area
were invited to provide input regarding their vision for the
Town of Weddington. Of those invited, 15 individuals met
with ULI panelists and included life-long residents, elected
officials, land owners, community leaders, and business
owners. The following individuals participated in the
interviews:
Jerry McKee (Trustee for Weddington United Methodist
Church)
Melinda Price (Resident)
Dave Arone (Resident)
Robert Gilmartin (Weddington Town Council)
Nancy Anderson (Mayor and Landowner)
Debra Korb (Tourism Specialist for Monroe Tourism
Board)
Janice Propst (Life-long Resident)
Sarah Lowe (Weddington Planning Board)
Sharon Cleveland (PTA President)
Brad Hudson (Life-long Resident)
Larry Almond (Owner of the Weddington Corners
Shopping Center)
Steve McLeod (Owner of the Weddington Corners
Shopping Center)
Page 5
Jerry Helms (Landowner)
Irene Titherington (Resident)
LA Smith (Weddington Planning Board)
Photos
Photos in this report were provided by the Town of
Weddington.
Page 6
TECHNICAL ASSISTANCE
PROGRAM REPORT
Background
Upon entering Weddington via Providence Road (Highway
16), the four-lane roads, shopping centers and business
parks of South Charlotte recede, and Highway 16 becomes
a two-lane road surrounded by dense woods. A local
produce stand (located at the corner of Hemby Road), The
Hunter Farm (located across from the Weddington Corners
Shopping Center) and Weddington United Methodist
Church are situated near the Providence Road/Weddington
Road intersection. This is considered the center of the
Weddington community. Although its northern boundary
is adjacent to Charlotte’s city limits, Weddington has
resisted the pressure to allow more intense uses within its
boundaries.
The Town of Weddington is unique, particularly when
viewed in the context of other small towns in the region.
In other areas, historic land uses have gradually given way
to the demand for new homes and employment
opportunities, losing some of the agrarian characteristics
once so prevalent in the southern Piedmont. For example,
in southern Mecklenburg County there has been expansion
to include major highways and large-scale residential,
commercial and retail development in areas that were,
until recently, relatively undeveloped.
With a commitment to large-lot residential zoning and
strict limits on commercial development, Weddington has
essentially maintained its rural character, even though
there are limited farming and agricultural businesses in the
area. Family members of the original settlers remain in
the area yet they are gradually selling and subdividing the
family farms. A growing number of new residents to the
community desire open spaces and a rural community yet
wish to be close to key amenities. A number of town
leaders and residents, both established and new, appear to
want Weddington to remain a small, rural community near
the urban amenities of Charlotte and Monroe.
Weddington is now facing change with the widening of
Providence Road (Highway 16) and Weddington Road
(Highway 84). What are now two two-lane roads with turn
lanes will become six-lane highways through the town with
a major intersection at Providence and Weddington Roads.
These road widenings will have major impacts on the
Town’s appearance and alter its character.
Page 7
In a Technical Assistance Program (TAP), conducted by
volunteers of ULI Charlotte, a panel was engaged to
address key issues and possible avenues through which
the Town may retain its strong sense of community in the
face of unprecedented change.
Page 8
Key Issues and Nature of the Assignment
In September 2004, the Mayor of Weddington participated
in the Urban Open Space Leadership Institute, sponsored
by Charlotte Community Design Studio. The group
recommended that Weddington take a proactive approach
and seek the assistance of professional planners and
designers. In that vein, the group engaged ULI Charlotte,
via a TAP, to assist in laying the groundwork to prepare
the community for the changes that are ahead.
During the initial discussions with the Town of
Weddington, ULI identified key issues that the TAP
panelists were asked to address. In a one-day study, five
panelists and a client liaison reviewed the approximately
11 acres located in the center of the Town of Weddington,
engaged in conversations with local stakeholders, and
developed plans and recommendations for the Town’s
major concerns. Below are the highlighted issues that the
ULI TAP panel was engaged to address:
Develop a Town Center Concept addressing
What the Town should consider for future
growth?
How potential land uses, roads and
infrastructure are integrated?
What are the Transportation Impacts, considering
How the community can minimize the negative
impacts of the Providence Road and
Weddington Road widenings?
How and where the Town can create safe
places to walk and ride bikes?
What the Town should consider regarding the
construction of new roads and improved street
connectivity?
What are the Recommended Uses for the
Helms property?
Weddington United Methodist Church property?
On May 25, 2005, ULI Charlotte conducted a session
addressing these issues. This report provides the
information collected throughout the preparation and
participation in this TAP, panelists’ input on the key issues,
and recommended next steps for the Town of Weddington
to consider. The report is intended to provide general
considerations which the client may wish to utilize in future
planning for the Town of Weddington.
Page 9
Key Stakeholder Interviews
Key community stakeholders were interviewed by the TAP
panelists, discussing the outlined issues and compiling
their visions for the Town of Weddington. The
stakeholders talked about their Town in six separate
interview sessions. The following input was provided with
many points consistent among the various groups:
Likes
Private and quiet; small rural community feel
Large residential lots
Open space, trees, relatively little asphalt, feeling
of nature
“Distance” from Charlotte - geographically and in
terms of identity
Minimal strip development
Dislikes
Traffic and congestion
Infrastructure cannot keep up with development
Rapid growth
No alternative transportation corridors for through
traffic
No shoulders on the roads placing bicyclists and
pedestrians in danger
No “sense of self” as there once was in the
community
“Zoning out” the older and younger people in the
community
Road widenings, but that is beyond the Town’s
control
What we do not want/need
Shopping centers
Growth
Large-scale commercial development
Bars or restaurants serving liquor near the Church
Retail/commercial beyond the Town Center (e.g.
Providence Road/Rea Road intersection)
What we do want/need
Managed growth
A place for people to gather
Parks, greenspace, and trees
Greenways/multi-use trails to connect the schools,
library and neighborhoods
Bike lanes or wide shoulders to accommodate
cyclists
A U.S. post office
Page 10
Restaurants, drug store, bookstore, and children’s
stores
More office space – medical, professional, artisans
New strategically-located local streets (possibly
operated under the Town’s jurisdiction)
Single-family attached housing or patio homes,
within the Town Center, for seniors, “empty
nesters,” and young adults
Good landscaping and streetscaping
Keep the historic and architectural integrity that
exists within the Town
Following the stakeholder discussions, the ULI TAP
panelists developed a Conceptual Plan for a Town Center
and a Transportation Master Plan. These plans are
intended to be a starting point for discussion among
Weddington’s leaders and residents. Stakeholders viewed
the possibility of growth and addition of amenities with
both enthusiasm and trepidation; however, the panelists
believe that with prudent and disciplined planning, the
Town can embrace limited types of commercial or office
uses while retaining the characteristics that are so
important to those living in the community.
Page 11
Panelist Comments and Recommendations
The Town Center
The Town leaders and residents have previously discussed
future growth issues, and the consensus has generally
been that Weddington should not consider higher or more
intense uses than the current zoning code allows.
However, recently there has been some interest in
allowing limited retail and commercial uses that will serve
the local community.
The ULI Conceptual Plan for the Town Center takes into
account the major transformation that will occur in this
area as the planned highway projects are completed.
Recommendations:
•
Location
During the work session, the panelists determined that
a new Town Center should not be located along
Providence Road. Given that planning for the road
widening is already in the advanced stages, when
construction is complete, the new highway will create a
major barrier between the east and west sides of
Providence Road and vehicular access will become
limited.
•
Boundaries
Weddington’s new Town Center should encompass the
area bound by Providence Road to the west and
Weddington-Matthews Road to the east. The southern
boundary would be a new road extending eastward
from Weddington Church Road (at Providence Road)
and to Weddington Road (at Weddington-Matthews
Road). A new road located north of the Weddington
Activity Center would become the Town Center’s
northern boundary beginning at Providence Road and
extending east to Weddington-Matthews Road.
Weddington Road and Weddington-Matthews Road will
become the “main streets.” If the proposed extension
of Rea Road becomes a reality, Weddington Road
should be designated for local traffic only, diverting
major traffic around the Town Center and decreasing
the need for a six-lane road section planned between
Providence and Weddington-Matthews Roads.
Additional streets would be constructed within the
Town Center to provide access to the existing
Weddington Corners Shopping Center and to
accommodate future development to the north and
east.
Page 12
•
Streets
The Town should assume design and maintenance
responsibilities for the new streets in the Town Center.
This will allow the Town to control their location,
appearance and use.
•
Municipal Center
The newly-defined Town Center will encompass the
parcel which contains the Weddington United
Methodist Church cemetery, its associated buildings,
and the parcel that adjoins it to the east. It is
recommended that these parcels be acquired and
combined for municipal uses. Currently the
undeveloped lot could support a new Town Hall, post
office, library and other office and civic uses. Parking
for the municipal complex would be along the sides
and back of the buildings. Traffic-calming devices,
such as speed tables, chicanes, and stop signs, should
be installed to create a pedestrian-friendly
environment. The center of this complex should
encompass a public green space, which would provide
a place for community events and gatherings.
If the acquisition of the above parcel is not possible, an
alternate location for the library could be at the
northeast corner of Weddington and WeddingtonMatthews Roads.
•
Commercial Uses
Small retail and office uses in the Town Center should
be located along a newly created street in the
Weddington Corners Shopping Center and along
Weddington-Matthews Road. TAP panelists suggested
that the following uses could be supported in the Town
Center:
• additional medical offices
• professional services such as attorneys or
financial planners
• drug store
• bookstore
• children’s shop
• ice cream shop
• bakery
• restaurants
Regardless of the specific type of business the
panelists believe that the Town would be best served
by encouraging boutique and locally-owned
businesses.
Page 13
Physically, buildings would be located along the street
with the majority of parking located behind the
structures. Wide pedestrian paths for strolling and
dining would be located between the buildings and
graveled parallel parking on the street.
•
Residential Uses
The panelists recommend a limited amount of
residential development in the Town Center, to include
town homes, condominiums, and patio homes. The
housing would be targeted toward older and younger
residents who may not wish to live in a large-lot,
single-family home, but want to live in Weddington.
Helms and Weddington United Methodist Church
Properties
The consideration of the Helms and Weddington United
Methodist Church (“The Church”) properties is important to
the future land use of the Town Center.
Recommendations:
Owners of the Helms property, which is located on the
west side of Providence Road between The Hunter
Farm and The Church, desire to sell their six-acre
parcel for its highest and best use, which they believe
to be commercial. However, developing this property
commercially poses challenges that include access and
compatibility with the adjacent land uses. If the
property were developed as commercial, a traffic light
would be a necessity, as northbound Providence Road
traffic would have no way to make a left-hand turn into
or out of the development. A light at this location
would require a median cut, which is not in NCDOT’s
widening plans. Further, commercial development on
this tract could suggest uses that would be
incompatible with The Church and The Hunter Farms.
During the stakeholders’ interviews, the panelists
learned that The Church would like to acquire the
Helms property.
This acquisition is recommended because it would
prevent more intense development on that parcel and
would permit Church ownership of contiguous
properties. However, apparently The Church cannot
afford the commercial price at which the property is
currently listed.
The property located at the northeast quadrant at
Weddington and Weddington Matthews Roads, on
Page 14
which The Church parsonage and the Hemby House
are located, is currently zoned R-40. The Church has
expressed a willingness to sell these properties, as they
are physically separated from the remaining Church
land holdings. In the proposed Town Center plan, this
tract is designated as an area of commercial and retail
development. It is suggested that if the Helms family
and The Church could come to an agreement on selling
or trading their respective properties, The Church could
expand to the adjacent property, and the Helms family
could sell the parsonage/Hemby House property for
commercial development, pending approval of the
Town Center.
Transportation Impact
The Providence Road improvements proposed by the North
Carolina Department of Transportation (NCDOT) (TIP# U2510) will result in the creation of an automobiledominated corridor. A clear separation between the east
and west sides of the road further separate The Church
complex and The Hunter Farm from Weddington Corners,
the Town Hall and the proposed library. Even though
sidewalks have been included in the project, the overall
scale of the proposed roadway and lack of appropriate
crosswalks will result in the creation of a physical barrier
within the community.
The Town, The Church, property owners and other
stakeholders are encouraged to work with NCDOT on a
more context sensitive design that seeks to balance
access, mobility, and pedestrian safety so that community
goals are not overshadowed by the traffic operations in the
corridor. Although the Weddington Road improvements
will not separate the Town Hall, the proposed library and
Weddington Corners from any existing public uses or
attractions, the additional lanes and the new intersection
will create a major barrier to the cemetery and any future
development on the south side of Weddington Road.
In addition to the improvements for Providence and
Weddington Roads, NCDOT is planning to extend Rea
Road from its current terminus on Highway 16 eastward to
Highway 84. This road, which would terminate in the area
of the Weddington school facilities, would create a
“southern bypass” around the Town and would almost
certainly reduce traffic between the new eastern terminus
and the Providence Road/Weddington Road intersection.
The question then becomes, will the proposed six-lane
widening of Weddington Road be necessary if the southern
Page 15
bypass is constructed? Plans and funding are already in
place for the Weddington Road and Providence Road
improvements, but the southern bypass is still in the very
early planning stages and is designated in the State’s
2006-2013 Transportation Improvement Plan (TIP) for
funding in “post years.”
Recommendations:
Clearly, the area that now functions as the center of
the community will be significantly transformed when
these projects are complete. Should the Town decide
to make changes to its zoning and land use plan in
response to these future highway projects, it should be
done soon in order to take advantage of the choices
still available, as some opportunities will be lost as
NCDOT’s plans progress. Further, the Town may
decide that, in the interest of local control, the time is
right for creating new roads for local traffic and
accepting responsibility for some roads within its
boundaries. All of these issues must be discussed
among the Town’s leaders and residents. If the Town
decides to consider new development options within its
limits or to create a pedestrian-friendly Town Center,
the leaders should then approach NCDOT to discuss
ways in which future road plans may be structured to
allow the types of development desired by the Town.
In recent years, NCDOT has become more proactive in
avoiding or mitigating the negative impacts that
roadway projects often create in established
communities. The agency is generally willing to
discuss with the community local concerns and issues;
however, this community input must take place as
early as possible in the construction planning process.
Most of the arterials in Weddington serve a single
function: the movement of cars. Their design is
actually more characteristic of many “farm to market”
roads in North Carolina, with narrow lanes, limited
shoulders, and ditch sections as opposed to the major
thoroughfares that most envision as the workhorse
streets of a community. These are the streets that
connect to adjacent communities and other larger
order streets such as I-485. Historically, these roads
have had low traffic volumes which safely
accommodated automobiles, children on bicycles,
pedestrians and the occasional piece of farm
machinery. As traffic volumes and speeds have
continued to increase, many of these secondary roads
have become congested during peak commuting
periods and speeding has become a problem.
Page 16
The lack of connectivity and the sole reliance on
arterials within Weddington will likely result in the need
for widening additional roadways over time. Just as
with Providence Road, each widening has the potential
to impact community character and result in barriers
between neighborhoods and to other community
destinations. The additional traffic will be a
combination of through movements of commuters as
well as trips associated with the continued residential
growth of Weddington. As improvements are
contemplated to these facilities, roadway design
alternatives can play an important role in preserving
the small town character. Pedestrian accommodations
may be accomplished via sidewalks or multiuse paths
reminiscent of more rural areas. In addition, wide
outside lanes or increased shoulders can be added to
provide a safe area for bicyclists.
Yet another way to maintain community mobility is
through improved street connectivity. The
establishment of an interconnected system of streets
will enhance and provide longevity to the existing
transportation network. Improved connectivity
between neighborhoods and a comprehensive system
of collector streets as well as pedestrian facilities and
greenways will likely be necessary to preserve the
small town character that the Town has enjoyed for
years.
Some of the local subdivisions have sidewalks or
walking/biking trails, but most do not, and there is
almost no connectivity between neighborhoods. In
fact, a number of gated private roads exist within the
community. As subdivisions are developed within the
Town, the new roads constructed typically serve only
those residents within each individual subdivision. The
Town has heretofore seen no need to accede
responsibility from NCDOT for the existing local roads,
although this responsibility would give the Town more
influence over the appearance, design, and location of
roads, enhancing its ability to coordinate access
between adjacent properties. The continuation of the
development pattern will likely have unintended
consequences. If left unchecked, Weddington may
become a small town with big roads, a match which
seldom translates to community satisfaction.
Page 17
NEXT STEPS
It appears that the residents, while very satisfied with their small community and large-lot homes, still
want a defined “town”; a place for purchasing a needed item or service, having lunch or coffee with a
friend, or taking the children to meet others and play in the local park – all within a short walk or drive
of their homes.
As illustrated in the Conceptual Plan, the Town Center should be designed and constructed in a way
that respects the wishes of the community while providing small town character with a central core of
commercial and municipal uses, surrounded by homes and open land.
Action Items
• Create a detailed land plan for a new Town Center and amend the Weddington Zoning
Ordinance as necessary.
•
Engage a Transportation Consultant to prepare a Circulation Master Plan for the Town.
•
Engage a Transportation Consultant to discuss with NCDOT the Rea Road extension and its
impact on the Weddington Road widening. The consultant should also review the Providence
Road widening to determine if there are any ways to calm the traffic and mitigate the negative
impacts the widening will have on the Town.
•
Investigate taking over the design and maintenance of existing and future streets in the Town.
•
Investigate the purchase of the tract of land south of the Weddington/Weddington Matthews
Road intersection for a future municipal complex.
Page 18
APPENDIX
Conceptual Plan of the Town Center
Town Center Overview.............................................................................. page
Enlarged Town of Weddington Map with Town Center Plan .......................... page
Master Transportation Plan ............................................................................. page
Road Cross-Sections (Main Street and Rural Connector Street) .......................... page
Page 19
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Town of Weddington - ULI Charlotte

Transcription

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