Res Densities Final Amendment 6.6.24
Residential Density and Infill Draft Amendment
2016 Comprehensive Plan Amendment
Location in Plan
Appendix
Purpose
· To address the concerns of residents regarding the impacts of infill
developments
· To provide tools for staff, the Planning Board, and Board of Commissioners
to use in the review and evaluation of rezoning requests while the 2016
Comprehensive Plan is being updated.
· To articulate and clarify existing policy interpretations and
recommendations around residential density.
· To outline recommended transitional design elements between higher
intensity and density uses and existing neighborhoods.
Components
Residential Densities: This section reviews the current density ranges
recommended for each place type in the 2016 Comprehensive Plan
along with factors that should be evaluated to determine the appropriate
level of density for a proposed project. Appropriate densities are tied to
site specific constraints and community infrastructure and explained in
this portion. This component of the amendment includes:
· A graphic outlining site components to aid in identifying the
appropriate density along the scale outlined for a place type.
· A narrative outlining how and when the recommendations are
intended to be implied.
Recommended Transitional Elements: The demand for more density
coupled with the limited amount of developable land has placed more
focus on infill development in the County. This is when site design and
transitional elements become more important. When adjacent land uses
differ in form or function, design features called transitional elements
can be used between the adjacent parcels to provide a smooth transition
or soften edges between a new development and an existing
development. This component describes recommend transitional
elements and includes:
· A chart explaining transitional elements with graphics to assist in
identifying the needs and appropriateness for varying situations and how
they may be incorporated into infill design projects.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Residential Density & Infill Development Guidelines
Residential Density Development Guidelines
In recent years, New Hanover County has continued to see a growing
population. The increased need for more housing and housing options
within the County is posing many challenges for development in our
existing suburban communities. An increased demand for housing along
with rising construction costs have contributed to challenges with housing
affordability and desire for more density. As a result, the number of
rezonings over the past several years for higher densities has increased
and brought more concerns from neighboring residents. The purpose for
this amendment is to assist the Boards in evaluating projects for
compatibility with existing communities. The 2016 Comprehensive Plan
contains guidelines for residential density which have been summarized
in this amendment.
The 2016 Comprehensive Plan outlines a recommended range of
densities for each place type, and the purpose of this amendment is to
provide additional guidance on when densities within that range would
be appropriate since the entire spectrum of densities may not be
suitable for every property or project. Appropriate densities are tied to
specific site constraints and community infrastructure, as outlined in the
diagram below.
Much of New Hanover County’s existing development pattern is low
density and makes less efficient use of land resources, as it was
developed at a time when water and sewer utilities were not available.
The 2016 Comprehensive Plan envisions a more efficient development
pattern, which means that the density of new infill projects may be
different from the development pattern of the surrounding community. A
greater mix of uses is also encouraged in the 2016 Comprehensive Plan,
so higher intensity mixed-use and commercial developments that may
have longer hours or more noise may be located in closer proximity to
existing neighborhoods than may have been anticipated when those
communities were designed.
The chart on the right details the densities recommended for each place
type, as outlined in the 2016 Comprehensive Plan. However, as the
County experiences rapid growth and developable land becomes more
scarce, the density ranges recommended for each place type should be
evaluated. In some instances, the higher density for a specific place type
might be more appropriate or vice versa.
2016 Comprehensive
Plan Place Type Density
Recommendations
(units per acre)
Rural Residential:
All Residential – Up to 3
General Residential:
All Residential – Up to 8
Employment Center:
Single Family – Up to 8
Multi-Family – Up to 15
Community Mixed Use:
Single Family – +/- 8
Multi-Family – Up to 15
Urban Mixed Use:
No maximum
See Chapter 4: Visualizing the
Future for more information
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Factors that should be considered when evaluating a proposed project for density are outlined
below.
Public Water and Sewer Availability: While public water and sewer are being extended to many
areas of the unincorporated County, they are still not available in many places. Lower densities
should be in areas where water and sewer are unavailable and not in the vicinity of the
proposed development. Higher densities may be more appropriate if water and sewer is
available or if higher densities are required to ensure that water/sewer infrastructure is used
efficiently.
Vehicular Access: The roadway network within the county has limited connectivity due to natural
barriers and how it has developed over time since counties don’t have the authority to own or
build roads. In these areas, densities in the lower end of the range allocated for the place type
may be more appropriate, though the size of the parcel may impact the number of trips that
result from the project. Higher densities in the place type range would be appropriate for
projects located in areas with more roadway capacity or connectivity, and those that improve
connectivity for the community.
Proximity to Public Transit: Mixed-use place types place an emphasis on transit and multimodal
transportation through the requirement of sidewalks on all non-local streets, crosswalks at all
intersections, dedicated bicycle lanes or wide outside lanes, and bus access. Features, such as
those described, may support densities at the higher end of the range recommended for a place
type but would not necessarily override the other considerations.
· Water & Sewer unavailable or
not planned
· Limited Vehicular Access
· Flood Plain Hazards in close
proximity
· Sensitive Environmental Features
Present
· Affordability – up to 120% of
AMI, minimum of 20%
· Proximity to Commercial Centers
· Proximity to Public Transit
· Proximity to Public Spaces
· New or Planned Water or Sewer
· New or Planned Roadway
Improvements
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Proximity to Public Spaces: Lower densities along the outlined range would be recommended for
areas that lack public space, such as parks, trails, or pathways that connect to or through adjacent
properties. Projects may provide open space beyond minimum requirements to support higher
densities.
Proximity to Commercial Features: Parcels that abut or are connected to commercial centers
through sidewalks, etc. could support densities on the higher end of the range. There may be
places where future commercial is planned, like Sidbury Rd., where moderate to higher densities
could be appropriate because of the future commercial services envisioned for the area.
Flood Plain Hazards: When a parcel is located in a flood zone, less density is recommended,
whereas when flood risks are located nearby, moderate density development is recommended. A
density on the higher range is recommended for parcels with no flood risk. The county’s Unified
Development Ordinance restricts the density in certain zoning districts within flood zones to 2.5
dwelling units per acre; however, current Comprehensive Plan guidance is less clear for parcels
completely in the flood zone that are classified as a place type supporting higher densities.
Sensitive Environmental Features: Developments should avoid impacts to features such as wetlands,
identified natural heritage areas, and stands of old growth trees. Higher density in close
proximity to these features may be less appropriate unless the project includes site design
features that would limit the impact on the identified features.
Affordability: Higher densities, even given other considerations regarding density, could be
appropriate given the lack of housing supply affordable to the workforce in the county. Projects
would need at least the 20% affordable of up to 120 AMI, but projects with additional
affordability or for people 80% AMI and below would be given additional consideration. It
should be noted that the infill development guidelines would still be expected to guide
development of affordable projects.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Infill Development Guidelines
Infill development occurs when a parcel of land is surrounded, either by adjacent properties or
nearby parcels, of already developed land. When infill development is proposed, site design of
projects becomes more important and transitional elements should be included to ensure
compatibility with the character of the existing community. This also includes cases where higher
densities are recommended or necessary to achieve the plan’s goals for housing affordability and
clustering of development to reduce the impact on sensitive natural resources. Some common
options for transitional elements are outlined in the charts on the following pages and are
recommended to be incorporated into site design when higher density and intensity uses are
proposed in close proximity to existing lower density and intensity development patterns. Some
elements are suggested or recommended for every project, and some are preferred based on
individual projects and existing conditions.
Sample Transitional Elements
Land Use
While adjacent land uses may not always be similar
in form or function, transitions in land use are
recommended for projects with a mix of uses or
housing forms. The intent of this is to locate higher
intensity uses closer to existing higher intensity areas,
such as major roadway corridors, and locate lower
intensity uses closer to existing lower density and
intensity development. Land use types similar to
existing adjacent land use types are encouraged in
instances where no change in adjacent land use is
anticipated.
In areas where development patterns are changing
and redevelopment of nearby land is expected to
occur, the anticipated intensity of future neighboring
development should be considered. When new
development is occurring in an area of anticipated
redevelopment, the intensity of use may not match the
existing intensity of use on adjacent parcels.
Transitions between these intensities of land use will
look different as opposed to when development
patterns are not expected to change.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Building Height
Height must be considered when new structures are
placed adjacent to existing residential development
given that new residential and commercial
construction is likely to be taller than historic
development in the unincorporated county due to
market demands, more efficient use of land, and
advances in building techniques.
Currently, the County’s Unified Development
Ordinance requires transitional buffers when new
attached and commercial development is located
next to existing residential properties. Additional
buffering or retention of existing, taller trees should
be used in situations where new structures are taller
than what is possible on the adjacent residential
properties or when adjacent structures are smaller in
scale to reduce impacts on the adjacent properties.
Additionally, transitional elements such as
landscaping and retention of existing tree buffers
are recommended, especially on the border between
place types with different recommendations for
building height.
Trees can provide a scaled approach to soften the
additional height of a new development. This is less
of a consideration when the same heights are
possible on the abutting properties. While
transitional buffers are required when new, attached,
and commercial development is located next to
existing residential properties, additional buffering
or retention of existing, taller trees should be used in
situations where new structures are taller than what is
possible on the adjacent residential properties or
when adjacent structures are smaller in scale to
reduce impacts on the adjacent properties.
Housing diversity is recommended to add visual
interest and a scaled approach to incorporating a
new development into an existing development.
Housing types within surrounding residential
developments should be evaluated for
characteristics such as height, orientation, setbacks,
and scale.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Connectivity
Multi-modal connectivity between common open
space both provides a transition between higher
intensity and lower intensity areas, and allows for
larger contiguous and connected green spaces which
serve as an environmental benefit. Street connectivity
is required if a connection is available and the streets
are public or of the same HOA, by the Unified
Development Ordinance, while cul-de-sacs and
gated communities that impede connectivity and
emergency response are discouraged. It is
recommended that if at all possible, the design
include additional connections beyond required
street connections. An example would be an added
connection to an adjacent park or trail to the park.
Pathways that enhance the pedestrian experience by
providing interconnectivity between different land
uses are recommended. The scale, location, and
spatial relationship should be evaluated for aesthetic
appeal and functionality.
Stormwater and Green
Infrastructure Features
Stormwater ponds are recommended as a
transitional buffer between different land uses,
adding visual interest and the opportunity for passive
recreation if a trail or walkway is also incorporated
in the design. The Unified Development Ordinance
considers stormwater ponds as open space if passive
recreation is included in the design. Stormwater
features would only be considered transitional if
these amenities were provided or if the features
supported environmental aspects of the property
such as wildlife habitat or incorporated native plants.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Roadways and Private Drives
The layout and design of roadways adjacent to a
proposed development should be considered as a
transition piece particularly when a more intense use
is proposed adjacent to an existing, less intense
land use. Service drives, for example, would not be
recommended to be located close to an adjacent
property owner’s backyard. It would be suggested
the service drive was located where any potential
noise impact would be reduced. A roadway could
be used as a transition between different uses
within the infill development.
Pedestrian and bicycle circulation is encouraged to
be considered when roadways and private drives
are designed.
Accessory Landscape Elements
The County’s Unified Development Ordinance
includes provisions for minimum standards for
landscaping of parking lots, around buildings, and
in the area along the road right-of-way, the
streetyard, along with minimum buffering standards.
However, there are not minimum standards in place
for accessory landscape elements that can assist in
ensuring new development is consistent with existing
community character.
Benches, lighting, and other accessory landscape
elements are recommended to provide a pedestrian
oriented scale in a transitional space that might
occur between a building and roadway or between
buildings.
Comprehensive Plan Amendment – Residential Density & Infill Guidelines – 2024-06 Planning
Board Public Hearing Draft
Landscaping
Landscaping features that are inviting and provide
visual interest to pedestrians or soften corridors along
roads and buildings should be in place. Additional
landscaping components are recommended and can
assist with providing a pedestrian-oriented scale
along roadways and between buildings. For projects
of greater intensity than other development in the
area, landscaping elements, such as additional
canopy trees, native species, etc. should be provided
to ensure the overall project’s compatibility with the
character of the surrounding area.
Hard Barriers
Barriers, such as fencing or walls, are encouraged in
cases when higher intensity uses abut lower intensity
uses without a spatial buffer or transitional space.
The scale of existing versus proposed development
should be considered.