strategiesrewrite

1LUMOREWRITEPROJECTINITIATIONFINALREPORTProvidedbyTamaraOxley,ProjectInitiationConsultantandCoordinatorSeptember13,2017PROJECTINITIATIONPROCESSInApril2017,theChapelHillTownCounciladoptedaresolutiontorewritetheTown'sLandUseManagementOrdinance(LUMO)sothatusershaveabettertoolforplanning,managing,andexecutingthecommunity'svisionforgrowthanddevelopment(i.
e.
,"toprotectwhatthecommunityloves,andaddwhatitneeds").
Inresponsetothisresolution,theTownManager'sOfficelaunchedaprojectinitiationeffortfocusedongatheringperspectivesfromvariousstakeholdersinthecommunityonthekeyprioritiesandoutcomesthattheTownCouncilshouldusetoguidetheLUMOrewriteprocess.
Theprojectinitiationconsistedof:24in-personinterviewswithcommunitystakeholdersrepresentingTownadvisoryboards,UNCandUNCHealthCareplanningandfacilities,OrangeCountyplanningdepartment,developers,ChapelHill-CarrboroSchools,andadvocatesforresidents,commercialandsmallbusinesses,connectivity,renewableenergy,andaffordablehousing.
Interviewswith12Townstaffrepresentingplanning,codeenforcement,engineering,economicdevelopment,legal,communications,andhousing.
Anonlinesurveyframedtotestprioritiesandassumptionscollectedfromstakeholderinterviews;sharedwithselectgroupofstakeholders(128respondents).
StakeholderinterviewswereconductedfromJune14toAugust25,2017andfocusedonexperiencewiththecurrentLUMO,thoughtsonwhatasuccessfullyrewrittenLUMOwoulddelivertothecommunity,andcommunityvaluesthatneedtobepreservedorenhancedthroughdevelopmentinChapelHill.
TheonlinesurveywasopenfromAugust6toSeptember6,2017.
Adetailedlistofstakeholdersinterviewedandlinktothesurveyareprovidedintheappendixofthisreport.
OnlinesurveyrespondentswereofferedseveraloptionsforcharacterizingtheirrelationshipstotheTownofChapelHill(andwereabletochoosemultipleoptions)andself-identifiedinthefollowingways:Resident=87UNC/UNCHealthCareemployee=15Propertyowner=64UNCstudent=14TownAdvisoryBoardmember=24OrangeCountyemployee=4Localbusinessemployee=18Nonprofitemployee=4Localbusinessowner=16Localdeveloper=3LUMORewriteProjectInitiation2MAJORTHEMESEMERGINGFROMPROJECTINITIATIONFeedbackgatheredduringtheLUMORewriteprojectinitiationpointstoaneedforlanduserules,regulations,procedures,andguidelinesthatarepredictable,functional,andintentional.
Stakeholdersentiments,alongwithchallengesandopportunitiesthatemergedaroundthesemajorthemes,areoutlinedbelow.
PREDICTABILITY"Institutionalchange(intermsofstaffandboardturnover)isinevitable,sowhataretheguidelinesthatwillretainimportantproceduresandcontinuityofunderstanding""ContinuousmodificationtoexistingrulesbasicallydemonstratesthattheTowndoesn'thaverules.
"PrimarychallengesidentifiedbystakeholdersTheLUMO'sinflexiblestructureresultsincase-by-casemodificationsandspecialusepermitsthatdonotconsidervariationsinuseovertimeandarenoteasilyappliedtootherprojectsorrequests.
ThiscreatesasensethattheLUMOisreactiveandadhoc.
ExistingthresholdsrequireTownCounciltoreviewsmall-scaleandadministrativeapplicationswhichslowsdowndevelopmentapplicationprocessesandcontributestoasensethatdevelopmentdecisionsaresubjectiveratherthangovernedbyrulesdesignedtoguidetheTowntowarditsvision.
39%ofsurveyrespondentscharacterizeddevelopmentinChapelHillas"Random/unpredictable"versus13%whocharacterizeditas"Thoughtful/well-planned.
"ConsistentstakeholderfeedbackontheneedforpredictabilityintheTown'sLUMOandlanduseguidelinesledtothefollowingassumptionsbeingtestedandaffirmedthroughtheonlinesurvey:Apredictableframework:BuildtheLUMOsothatitallowsforupdatesbutmaintainspredictableprocedures.
84outof85agreeStep-by-stepguidance:Providestep-by-stepguidanceonprocessesrelatedtoproposals,requests,permitting,development,etc.
93outof95agreeClearcodeenforcement:Establishclearandpredictablecodeenforcementstrategiesfornewandolderdevelopments.
88outof92agreeImproveefficiency:EstablishguidelinesallowingTownstafftomanagesmall-scaleandadministrativerequests.
85outof93agreedLUMORewriteProjectInitiation3MAJORTHEMES,ContinuedFUNCTIONALITY"WritetheLUMOfromtheperspectivethatit'saresourceforthepublic.
""FilltheLUMOwithclearguidelinesandtoolsthattheCouncilapprovessothatstaffhavetheresourcesneededtomakedecisionsandprovideguidanceonrequests.
""Boardswithoutanyrealpoweraresimplyopportunitiesfordisruption.
"PrimarychallengesidentifiedbystakeholdersLanguageintheLUMOisambiguous,terminologyanddefinitionsareusedinconsistently,developmentprocessesarenotwelldocumented,andtheordinanceisnoteasytonavigate.
TheLUMO,asadocument,isdifficulttomanageandapprovedchangesandupdatestotheordinanceoftentakealotoftimetobeadded.
TheLUMO'sinflexiblestructureresultsincase-by-casemodificationsandspecialusepermitsthatdonotconsidervariationsinuseovertimeandarenoteasilyappliedtootherprojectsorrequests.
ThelackofspecificityintheLUMOleavesthetownvulnerabletochallengesandconflictinginterpretations.
BecausestakeholdersconsistentlyexpressedadesireforimprovedfunctionalityintheTown'sLUMO,thefollowingassumptionsweretestedandaffirmedthroughtheonlinesurvey:Writefortheenduser:Usesimplerlanguage,consistentformattinganddefinitions,andmaketheLUMOeasytosearch.
98outof99agreedImprovedefensibility:Clearlydocumentandclarifytheintentionsbehindrules,regulations,andstandards.
96out98agreedSimplifyrules:Simplifyrules;offerclarityonwhenandhowtheyapplytodifferenttypesofdevelopmentprocesses.
92outof94agreedIncorporategraphics:Incorporategraphicaldescriptionstomakerulesmoreunderstandableandeasiertoapply.
86outof93agreedLUMORewriteProjectInitiation4MAJORTHEMES,ContinuedINTENTIONALITY"TheTownneedsanaffirmativestrategy,ratherthanadefensiveposture.
""Development(inChapelHill)lacksacoherentlong-termvisionthatrepresentstheTown'scharacter,strengths,andvalues.
"PrimarychallengesidentifiedbystakeholdersThecomplexityoftheLUMOfavorsthosewiththetimeandresourcestointerpretorrequestmodificationstoregulations,whichcreatesabarriertoentryandasensethatthedevelopmentprocessinChapelHillisexclusiveandinhibitscreativeandprogressiveoptionsfordevelopmentandredevelopment.
SomeoftheprioritiesaspiredtointheTown'scomprehensiveplanandCouncilgoalsaren'tfeasibleundercurrentregulationssuchasvariationsinuse.
ThecurrentreviewprocesscontributestoasensethatdevelopmentdecisionsaresubjectiveratherthangovernedbyrulesdesignedtoguidetheTowntowarditsvision.
Consistentstakeholderinterestinlandusepoliciesandguidelinesthatareintentionalgeneratedthefollowingassumptionswhichweretestedandaffirmedthroughtheonlinesurvey:Consistentprocesses:Establishclearproceduresandzoningstandardsinordertorelylessoncase-by-caseboardreviews.
89outof96agreedBenefitstheTowndesires:Reviseregulationstoattractqualitiesvaluabletothetown(e.
g.
,greendesign,sustainability,inclusionaryhousing).
90outof98agreedTargetdevelopment:IdentifyareastotargetforspecifictypesofdevelopmentintheLUMO.
87outof94agreedAligntoCompPlan:TiepoliciesintheLUMOtogoalsandintendedoutcomessetintheComprehensivePlan.
80outof88agreedLUMORewriteProjectInitiation5POLICYPRIORITYAREASEMERGINGFROMPROJECTINITIATIONBasedonconversationswithstakeholders,severalpotentialcommunitybenefitsofdevelopmentinChapelHillwereidentifiedandtestedintheonlinesurvey.
Benefitsweredefinedas:Affordablehousing:Avarietyofaffordableandinclusionaryhousingoptionsavailabletocurrentandfutureresidents.
Healthycommunity:Safeneighborhoodsandampleaccesstoparks,greenways,andrecreationalspaces.
Jobopportunities:Opportunityandspaceforcommercialandretailbusinessesthatcreatejobsintown.
Environmentalstewardship:Protectionfornaturalhabitats,sensitivelands,andgreeninfrastructure.
Connectivity:Ampleroads,parking,bikeandpedestrianpathways,andclearsignageandwayfindingaroundtown.
Publictransit:RobustandreliablepublictransportationservicesforChapelHillresidentsandvisitors.
Artsandculture:Avarietyofhigh-qualitypublicartsandculturalspacesandeventsthatfostercommunityinteraction.
Entrepreneurship:Co-workingandincubatorspacetosupportnewandentrepreneurialenterprises.
FINDINGSLUMORewriteProjectInitiation6POLICYPRIORITYAREAS,ContinuedKeytakeawayOfthebenefitstested,stakeholdersweremostlikelytorankaffordablehousingasatoppriority,followedbyhealthycommunity,jobopportunities,andenvironmentalstewardship.
Stakeholdercomments:"ChapelHillisbecomingalocationwherefolkswhosupportcityinfrastructurecannolongeraffordtolive.
Thiscreatesahave/have-notsocietaldividewhichisultimatelyunsustainable.
""Iwouldadvocateforpoliciesthatcreatehousingforawiderangeofincomestocreateacommunitythatisappealingtoawiderrangeofdemographicsthanwecurrentlyattract.
""JobopportunitiesandEntrepreneurshipareintrinsicallythesamething.
Supportinggrowthofbusinessstartedinthecommunityandeffortstobringnew,complimentarybusinesstothecommunityshouldnotbesiloedofffromeachother.
""Environmentalstewardshipgoeswithoutsayingalways.
Nohealthwithoutit,nomatterhowmanyhealthresourceswebuild.
""Notethatmostofthenewdevelopmentinrecentyears(i.
e.
,luxuryapartments)deliversfewifanyofthebenefitsonthislist.
"LUMORewriteProjectInitiation7RECOMMENDATIONSStakeholdersdidnotsay,"GivemewhatIwant,"theysaid,"TellmewhatIneedtoknow.
"ThisunambiguousfeedbackprovidesasolidpathforwardfortheLUMOrewriteeffort.
TheLUMOandallassociatedmaps,guides,documents,andprocessesareopportunitiesfortheTowntobetterservestakeholders–whetherasconcernedcitizens,developers,orstaffmembers–sotheyknowwhattoexpectwhenitcomestolanduseinChapelHillandwhatthereasonablerationalesarebehindrulesgoverningdevelopmentandlanduseprocesses.
ProjectchargeCreateaprojectchargefocusedoncreatingalandusemapandlanduseordinancethatdeliverspredictable,functionalandintentionalrulesandexpectationsfordevelopmentinChapelHill.
IncorporateintotheprojectchargetheopportunitiesandconfirmedassumptionslaidoutaboveaboutwhatarewrittenLUMOshoulddelivertothecommunity.
ProjectdesignRegularlyassessandclarifytherolesandexpectationsofmembersofthecurrentprojectteam,andthoseofprojectcommitteemembersshouldonebeestablished.
Anticipateinvisibleandprojectlife-cycleneedsandcostssothatresourcesdonothavetobepulledfromotherprojectsordepartmentsunexpectedly.
Incorporatelong-termassessment,stewardship,andtechnicalmanagementoftherewrittenLUMOintotheprojectdesign.
PrioritizefunctionalimprovementstothestructureandorganizationoftheLUMOthatwillprovideclaritytousersandstakeholders.
CommunicationsplanEstablishaplanforcommunicationsthatcreateandmanageexpectationsforthisprojecteffort.
ConsidertheopportunitytobettermanagethenarrativeoftheTown'shistoricvisionandhowlandusepoliciescontributetoanongoingvisionforhowthetownwillevolve.
UseproactivecommunicationastheprimaryvehicleforcustomerservicethatanticipatesanddeliversrelevantandtimelyinformationtothepublicabouttheLUMOrewriteeffort.
PublicinputFocuspublicdiscussionsandinputonthehigh-levelpriorities,goals,andthetradeoffsinherenttodevelopmentandchange.
Identifythetargetaudiencestobereachedandsetreasonableengagementgoalsthatwillallowforproductiveandrelevantfeedback.
Closethelooponpublicfeedbackbycommunicatingbacktothepublicwhattheysaid("hereiswhatweheard")andhowthatinputwillbeused("hereishowwe'reusingwhatweheard").
LUMORewriteProjectInitiation8AppendixStakeholderdetailsStakeholdertypesRepresentingIndividualsUniversityAdministrationFacilities/operations/energymanagementAnnaWu,AssociateViceChancellorforFacilityServicesEvanYassky,ExecutiveDirectorofFacilitiesPlanningandDesignMedicalCenterKarenMcCall,CCMORayLaFrenaye,VP,FacilityPlanningUniversitystudentsGraduateandundergraduatestudentgovernments(sentMetroQuestsurvey)ChapelHill-CarrboroCitySchoolsToddLoFrese,AssistantSuperintendentNonprofitandAdvocacyGroupsAffordableHousingRobertDowling,CommunityHomeTrustSolar/renewablesRobPinder,FounderofNextClimateLocalBusinessChamberofCommerceAaronNelson,PresidentDowntownPartnershipsMegMcGurk,ExecutiveDirectorBobbyFunk,AssistantDirectorRealEstateKatherineKoppDevelopmentProfessionalsGeneralcontractors/builders(commercialandresidential)DBBryanHomeBuildersAssocofDurham,Orange&ChathamCountiesHollyFraccaro,CEOResidentsHOAleadership/neighborhoodassociations(sentMetroQuestsurvey)NeighborhoodadvocacygroupsJulieMcClintockFaithCommunityInterfaithCouncilJackieJenks,ExecutiveDirectorKristinLavergne,CommunityServicesDirectorLocalclergy(esp.
thosewhoreachunderrepresentedpopulations)(sentMetroQuestsurvey)CountyAgencies/UtilitiesOWASARuthRouse,PlanningandDevelopmentManagerOrangeCountyPlanningDepartmentPerditaHoltz,PlannerDevelopmentAdvisoryBoards(allmembersofthesePlanningCommissionAmyRyan,ChairHousingAdvisoryBoardBoardofAdjustmentPhillipLyons,ChairCommunityDesignCommissionDixonPitt,ChairLUMORewriteProjectInitiation9boardsweresentMetroQuestsurvey)EnvironmentalStewardshipAdvisoryBoardJohnWallace,ChairStormwaterManagementUtilityAdvisoryBoardTransportationandConnectivityAdvisoryBoardPaulNeebe,ChairFormerboardmembersRosemaryWaldorfTownstaffPlanningJudyJohnsonEricFeldKayPearlsteinPhilMasonJayHeikesFire/safety/codeenforcementTiffanieSneedEngineeringChrisJensenChrisRobertsEconomicdevelopmentDwightBassetLegalRalphKarpinosCommunications/publicaffairsAmyHarveyHousingandCommunityFaithThompsonMetroQuestonlinesurveylink:https://lumo-visioning-demo.
metroquest.
com/