OUR VOICES, OUR VISION

BUNCOMBE COUNTY 2043

COMPREHENSIVE PLAN

DECEMBER 2022 PUBLIC REVIEW DRAFT

 

 

ACKNOWLEDGMENTS

 

Acknowledging Our Past

 

Buncombe County acknowledges that the land our County occupies is the ancestral territory of many Indigenous peoples, acquired by European settlers through violence, oppression, and coercion, as well as legally and illegally executed treaties.

 

We acknowledge the many vibrant American Indian communities that continue to call this occupied land home. In Western North Carolina, this includes members of the Eastern Band of Cherokee Indians and many others who identify with and belong to other Indigenous cultures and groups. We also acknowledge that Western North Carolina was home to thousands of enslaved Black or African American laborers who suffered at the hands of an oppressive system that exploited their labor, their bodies, and their culture.

 

 

Plan Contributors

 

Buncombe County would like to extend our gratitude to all those who participated in or contributed to the Buncombe 2043 Comprehensive Plan. We would also like to thank everyone who provided a detailed and technical review of the Plan, including:

 

Buncombe County Commissioners

•       Brownie Newman, Chair

•       Terri Wells, Vice Chair

•       Jasmine Beach-Ferrara

•       Amanda Edwards

•       Martin Moore

•       Robert Pressley, Former Buncombe County Commissioner

•       Parker Sloan

•       Al Whitesides

 

Buncombe County Planning Board

•       Nancy Waldrop, Chair

•       Timothy Collins

•       Alan Coxie

•       Mike Fisher

•       Ken Kahn

•       John Noor

•       Eric Robinson

•       Billy Taylor

•       Cindy Visnich-Weeks

 

Steering Committee

•       Jennifer Caldwell Bilstrom

•       Kareen Boncales

•       Brandon Bryant

•       Kit Cramer

•       Ron Dumas

•       Kevan Frazier

•       Andrea Golden

•       Alan Hall

•       Damon Hearne

•       Iliana Hernandez

•       Chris Joyell

•       Karl Koon

•       Debbie Lane

•       Rich Lee

•       Christopher Link

•       Robin Merrell

•       Sara Nichols

•       Megan O’Connor Robinson

•       Bruce Snelson

•       Dorothy (Dede) Styles

•       Nancy Waldrop

•       Virginia Ward

•       Dee Williams

 

Buncombe County Staff

•       County Managers

•       Planning and Development Department

•       Communications and Public Engagement Department

•       Technical Advisory Committee

 

Consultant Teams

•       Clarion Associates

•       ESP Associates

•       Equinox

•       Fernleaf

•       RRC Associates

•       Traffic Planning and Design, Inc.

 

HOLD FOR TABLE OF CONTENTS

 

CHAPTER 01

INTRODUCTION

 

The Introduction chapter provides an overview of the Buncombe 2043 process and the purpose of the Plan, including the foundational efforts that led to this Plan. The seven Planning Topics that were identified early on in the process are described here, as well as Key Terms that were important from community feedback and other Buncombe County initiatives. This chapter also lays out the five Vision Themes and an overview of the seven chapters. This Plan was developed with a community-driven approach. The process and outcomes of the Plan’s extensive engagement efforts are included here as well.

 

 

COMPREHENSIVE OVERVIEW

 

About Buncombe 2043

 

“People to match our mountains.”

 

Buncombe County’s motto addresses our two greatest resources, our people and our awe-inspiring landscape. The county is home to picturesque landscapes, welcoming people, and a strong community of artists and creators, is an incubator for innovation, and is a growing region. Home to a national forest and sections of the iconic Blue Ridge Parkway, Buncombe County is beloved in North Carolina and nationally. It brings together the history and culture of Appalachia, rich farming communities, with growing opportunities for nature-based recreation and tourism, and vibrant urban and municipal centers.

 

This combination has served our current residents and attracted thousands of new residents each year for decades, making Buncombe County one of the fastest growing counties in a fast-growing state. Buncombe County experienced a 27% increase in population between 2000 and 2019. This growth has occurred both within the City of Asheville and the county’s other municipalities, as well as the unincorporated areas of the county.

 

Population projections suggest that this growth will continue, and the county may add an additional 55,000-83,000 residents by 2045.

 

The Plan explores the following questions about the current and future residents of Buncombe County:

 

• Where will these residents live?

• Where will they work?

• How will they get around?

• What services will they need?

 

These were all critical questions to be explored in the County’s first comprehensive planning process - Buncombe 2043: Our Voices, Our Vision. Launched by the Buncombe County Planning & Development team, the Buncombe 2043 Comprehensive Plan (hereafter referred to as “the Plan” or “Buncombe 2043”) was crafted with input from residents between fall 2021 through spring 2023.

 

Purpose of the Plan

 

Our Comprehensive Plan is a document created through a collaboration of residents, community stakeholders, government leaders, and staff. We set out to create a shared vision of the community over the next 20 years and define objectives to be achieved during that time. The Plan considers the relationships between land uses, infrastructure (roads, utilities, etc.), and community needs, and outlines policy guidance for addressing these objectives.

 

A Comprehensive Plan is a requirement by the state of North Carolina for local governments that use zoning regulations. The plan can be used as a broad tool to help elected officials and County staff identify how they want to prioritize resources and future planning efforts. The Plan can be used as a guide for the County when making budget and policy decisions, drafting regulations, and creating Strategic Plans. Adoption is not the end of the comprehensive planning process. Once adopted, Buncombe County will periodically update this Plan to address changing conditions and evaluate new opportunities.

 

THE PLANNING CYCLE

 

Community planning is a continuous cycle:

 

1.    It begins with identifying a long-range vision and developing policy guidance through the comprehensive plan.

2.    The community then identifies shorter-term priorities that support the long-range policy direction, often through the County’s Strategic Plan and departmental work plans.

3.    Using these plans, the County identifies funding priorities in order to create the County’s annual budget and capital improvement plan.

4.    The County implements capital projects and operational initiatives to enact the community’s vision and achieve its goals.

5.    The County assesses implementations to measure and evaluate our progress and identify where we are making headway and where we are falling short.

6.    And then, we will start the process over again to plan for the next 20 years.

 

 

COMMUNITY-DRIVEN PLAN APPROACH

 

Plan Process

 

The creation of a long-range Comprehensive Plan requires broad community engagement to be successful. The project included four phases from fall 2021 until spring 2023. Phase 1 launched the project in the fall of 2021. This included the kickoff with the Buncombe County staff and consultant team, website and branding development, and creation of the project management and engagement plans. The Project Team conducted County and stakeholder interviews as part of Phase 1 to gather foundational knowledge about the community.

 

Due to the COVID-19 pandemic, Phase 2 was extended from the original dates; it occurred from winter 2021 to spring 2022. Phase 2 focused on establishing the Vision Themes and Goals, including assessing existing conditions, identifying future planning influences, and developing the Plan Framework, Vision Themes, and Goals. Phase 2 included the first Public Input Window activities.

 

Phase 3 began in late spring 2022 and was finalized in fall 2022. During Phase 3, the Plan’s policies were developed. This included assessing future growth alternatives, developing the Growth, Equity, and Conservation Framework, and drafting the Policies and Actions. Phase 3 included the second Public Input Window, which asked for community feedback on the Vision Themes, Goals, Policies, and Actions, and helped set priorities for implementation.

 

During Phase 4, from fall 2022 until spring 2023, the Project Team will be focusing on adopting the plan. This requires updating the plan based on the final public input opportunity in the third Public Input Window and taking the Plan to public adoption meetings and hearings.

 

Prioritizing Public Input Access

 

Accessibility is key to gathering broad, high-quality public input. Staff were committed to addressing barriers to participation in their engagement plan. That included being mindful of barriers such as: transportation, technology, language, work schedules, making events family friendly and more. Here’s how the Project Team worked to address some of these limitations during the project:

 

Transportation

•        In-person meetings were held in urban and rural areas throughout the County

•        Drop-in style meetings made it easier for bus riders to come at convenient times.

•        Online options meant residents with internet access could provide input from home or work without having to travel.

•        Staff reached out to hundreds of local agencies, stakeholder groups, and service providers, offering to drop off paper activities

Technology

•      Paper activities were available at county libraries and other locations around town for people without internet access.

•      Paper activities were also handed out at community events, in food boxes, and by Steering Committee members.

Language

•      Online activities, paper activities, and flyers were available in English and Spanish.

•      Live Spanish language interpreters were available at a number of in-person and virtual meetings.

Family-Friendly

•      Children were invited to attend meetings, allowing caregivers more flexibility.

•      Child-friendly planning activities were provided, with staff available to assist. Activities allowed children to share their input about their communities.

•      Drop-in style meetings helped parents with younger children navigate the activities at their own pace, and leave when needed.

Scheduling

•      Meetings were scheduled for a range of weekdays, weekends, and evening times to accommodate different schedules.

•      Drop-in meetings provided greater flexibility, allowing residents to come any time during the meeting window, and stay as long as they wanted.

•      Online and self-paced activities meant residents could provide their input without having to attend a meeting.

 

Public Input Themes

•         Participants expressed that they wanted to protect the County’s environment, including: air, water, and soil.

•         Participants agreed that areas with access to sewer, city water, and broadband internet that are away from environmentally sensitive areas should be prioritized for growth.

•         Participants were concerned about cost of living and wanted to see affordable housing options.

•         The community desires more safe and affordable ways to travel to places, including biking, walking, and riding a bus or taking public transit.

•         14 total in-person, drop-in, or virtual meetings

•         36 intercept events at places such as schools or universities, festival, and community markets

•         2,907 people participated

•         132,000 different inputs were submitted

•         80% of participants said that what they like the most about Buncombe is the natural environment, such mountains, rivers, creeks, and wildlife

•         47% of participants in the first public input window have lived in Buncombe County for over 10 years

•         76% of participants expressed that housing is not affordable to many families and households (renter or owner-occupied)

•         50% of participants also identified losing natural areas and agricultural lands to new development as one of their biggest concerns for the future of Buncombe County

 

Community Perspectives

 

Public Input Window #1 Outcomes

 

During the first Public Input Window, Buncombe County experienced delays in the planning process due to COVID-19 shutdowns and limits on social gatherings. Despite those setbacks, staff was able to reach many residents through online meetings and public input activities. Once the shutdowns lifted, staff held in-person and intercept meetings all around the county in both urban and rural areas. This first round of public input reached many people from varying backgrounds, with five community meetings, five drop-in meetings, and four virtual meetings. A total of 1,243 people participated in the online activities. In addition, 347 people attended an in-person, virtual, or hybrid meeting.

 

The Word Cloud on the right summarizes themes from the first Public Input Window. Residents could share up to four words or short phrases to describe their desired vision for the future. A total of 1,321 people added their vision words to the Word Cloud, which were categorized into general themes to show the areas most mentioned by participants.

 

In this first round of input, many questions were asked across the seven planning topics. A few topics emerged that guided the Plan development process:

 

·         Participants greatly value the natural environment (mountains, rivers, creeks, wildlife, etc.) and the people in Buncombe County, expressing that they wanted both the environment and their communities to be protected.

·         Participants expressed concern about the rising cost of living such as housing, transportation, and food costs, and want to see more affordable housing options.

·         Participants desire safer and more affordable transportation options, including biking, walking, and riding a bus or taking public transit.

Public Input Window #2 Outcomes

 

During the second Public Input Window, staff endeavored to improve their outreach methods to connect with as many community members as possible. This involved a different approach to engagement, focusing less on the traditional meeting structure and involving more informal events. From June until September 2022, staff hosted information tables at 16 intercept events, six festivals, and 14 community markets. A total of 2,699 people participated in this public input opportunity; approximately 60% of this group were participating in the planning process for the first time.

 

The online activities for this phase built upon the foundation from previous public input activities. They provided more specific policy direction for the development of the Plan. The second Public Input Window demonstrated overwhelming public support for the Plan’s draft policy direction. Policy direction from this phase would evolve into the current planning topics and chapters and may be seen below:

 

·         Protect neighborhoods with existing affordable housing from redevelopment and protect rural and farmland areas from new development.

·         Locate future development in areas that are served by infrastructure (public water, sewer, and broadband)

·         and away from environmentally sensitive areas such as floodplains and steep slopes.

·         Develop a safer and more balanced transportation system, including walking and biking options, for the purposes of recreation, health, and/or commuting.

·         Extend transit service, expand trails, and develop sidewalks in areas with new development or redevelopment.

·         Remove barriers to entering the workforce and enable Buncombe County workers to earn higher wages, by partnering with regional institutions and providing support services like affordable and quality childcare, transit access, and training opportunities.

·         Expand or improve access to healthy and affordable foods, parks and recreation opportunities (trails, greenways, etc.), and healthcare services.

·         Expand energy efficiency in new construction and renewable energy resources across the County.

 

Steering Committee

 

Throughout the process, the Buncombe County 2043 Steering Committee guided the Plan’s development. The Steering Committee is made up of 23 Buncombe County residents

who applied to serve on the Committee and were appointed by the County Commissioners in 2021. As a representative group of Buncombe County residents, Steering Committee members provided perspective on the information gathered and submitted feedback on draft policies and implementation actions. Many Steering Committee members also advocated for the Plan in their neighborhoods and communities.

 

Youth Voices

 

Throughout the comprehensive planning process, Buncombe County created opportunities for kids and youth to participate and provide input. County leaders recognize that decisions made today will impact youth growing up in the community over the next two decades. Youth voices helped shape this plan in many different ways. For example, the Kids’ Postcard Project has been part of every phase of engagement in the Plan. Kids were asked, “What do you want the future to look like in your town or neighborhood?” Some of their amazing answers, in the form of drawings and written descriptions, are available on the next page.

 

Other activities directed at kids and youth included:

·         Elementary School Activity kit

·         Middle and High School Activity kit

·         Kids Poll: Answers were included in the overall poll data collected.

·         Kids Vision Boards: Answers were included in the County’s Comp Plan Word Cloud.

·         Kids Patch Project: Buncombe County residents under the age of 18 could complete an activity to earn a patch with the Buncombe 2043 Comprehensive Plan logo.

 

All in-person meetings provided an activity section for children and youth. Buncombe County staff also attended a series of youth-focused events. These events included:

·         Careers on Wheels (2021 and 2022)

·         Comprehensive Plan Presentation at Hanger Hall

·         Carolina Day 8th grade sustainability event

·         Hall Fletcher Elementary STEAM Tech Fair

·         United Way Youth Block Party

·         Career Day at Glenn Arden

 

For Further Reading

 

To see more detailed outcomes from the public input windows, please visit the Buncombe County Comprehensive Plan 2043 at this link: https://www.buncombecounty.org/comprehensive-plan-2043/

 

You can also view detailed reports from Phase 2 and Phase 3 at the links below:

Stakeholder Organizations Survey Final Report

Public Input Window #1 - Input Opportunity  Summary: Establish the Vision & Goals

Public Input Window #2

 

KEY THEMES & TERMS DEFINED

 

Key Themes

 

Public input was clear: the community envisions an equitable and sustainable future for Buncombe County that leverages its place in the region.

 

An equity lens was used to develop the Plan components. When the Buncombe County Board of Commissioners declared racism a public health and safety crisis in August of 2020, it signaled the confluence of meaningful community action and a legislative commitment to dismantling systemic racism within Buncombe County governmental operations. Building upon previous work like the Racial Equity Action Plan and Strategic Plan, the 2043 Comprehensive Plan is the next step of deliberate and intentional work by the County to achieve equity for everyone in our community.

 

Early in the process, the three planning themes - Equity, Sustainability, and Regionalism - were identified as key influences for developing the plan.

 

Key Terms

 

This Plan had a special focus on equity, sustainability, and regionalism both in engagement efforts and the development of the policies in the Plan. The key terms below are important foundations for the rest of the chapters that follow. This provides a clear and transparent standard for understanding how these concepts are used in the Plan. Additional terms that appear throughout the Plan are defined at the end of the document in the Glossary.

 

Ø  Equity is “the state of being just, impartial, and fair.” Buncombe County’s Racial Equity Plan envisions operationalizing “systems, policies, and practices that support equity for all people and an organizational culture that embraces diversity and inclusion.”

 

Ø  Historically disadvantaged communities are marginalized, underserved, and/or overburdened by pollution and social or societal inequities, including economic disadvantages, environmental injustices, and underinvestment in housing, transportation, water and wastewater infrastructure, and healthcare. The criteria used to identify these communities include environmental, climate, and socioeconomic indicators.

 

Ø  Sustainability is defined as “meeting the needs of the present without compromising the ability of future generations to meet their own needs.”

 

Ø  Regionalism examines the connection of a larger geographical area that encompasses multiple cities and counties. In this Plan, the context of Western North Carolina and the importance of Asheville and Buncombe County as regional hubs, are a prominent focus. In addition, the Plan identifies opportunities to plan in partnership with neighboring jurisdictions on topics of regional impact, such as land use, transportation, hazard mitigation, and the  provision of water and sewer infrastructure.

 

 

Equity in Decision-Making

 

The Plan prioritized equity in the decision-making processes and engagement activities. Understanding procedural, distributional, and structural equity is essential to the success of this Plan. The following guidance has been adapted from the Urban Sustainability Directors Network Guide* to guide how future engagement in Buncombe County should prioritize aspects of equity. These recommendations should be applied in practice to the community. This may include the actions provided in the Implementation chapter along with future planning efforts.

 

Procedural Equity

·         Create processes that are transparent, fair, and inclusive in developing and implementing any program, plan, or policy

·         Ensure that all people are treated openly and fairly

·         Increase the civic engagement opportunity of communities that are disproportionately impacted by climate change

·         Apply the Buncombe County Equity Analysis Tool in implementation of the Comprehensive Plan

 

Distributional Equity

·         Fairly distribute resources, benefits, and burdens

·         Prioritize resources for communities that experience the greatest inequities, disproportionate impacts, and have the greatest unmet needs

 

Structural Equity

·         Make a commitment and investment to correct past harms and prevent future unintended consequences

·         Address the underlying structural and institutional systems that are the root causes of social and racial inequities

 

Plan Framework

 

The Plan Framework is the collection of key Plan components: Vision Themes, Goals, Policies, and Actions. The chart below describes each of these components and where they can be found within this document. Each topic/chapter of the Plan document is organized to show the progression from the aspirational Vision Themes and Goals to the tangible Policies and Actions.

 

PLAN COMPONENT	DESCRIPTION of COMPONENT	LOCATION
Vision Themes	The highest level of the Plan Framework is intended to express the ideal aspirations of the plan. These articulate the priorities for the County and the critical outcomes the County is striving to achieve.	These Vision Themes are summarized on page XX. Look for the Vision Themes icons at the beginning of each chapter to learn how they apply to that chapter’s policy direction.
Goals	These express desired outcomes related to each planning topic included in the comprehensive plan. These are guided by the Vision Themes and articulate a more specific desired result to be achieved. Policies and actions are organized under these goals.	Goals are provided at the beginning of each chapter.
Policies	These are statements of commitment and direction toward achieving the plan goals. These describe positions to inform decision-making either by the County or directed toward a partner agency. Policies are written in short, concise statements with policy intent statements providing more detailed guidance for each policy.	Policies are organized by planning topic chapters, beginning on page XX.
Actions	These are specific implementation tasks that the County and its partners will take in the future to realize the vision themes, goals, and policy direction. Actions immediately follow Policies in this packet.	Actions are summarized at the end of each chapter and described in detail in the Implementation Chapter starting on page XXX.

 

 

 

 

VISION THEMES

 

Through input from our residents and the Steering Committee, Vision Themes were drafted to provide a overarching direction for the future of our county. Through our Buncombe County 2043 community vision, we will...

 

Strive to Achieve Equity

Buncombe County will strive to address social, economic, and environmental inequities by repairing and investing in historically disadvantaged communities and replacing inequitable land use and transportation policies and regulations.

 

Commit to Sustainability

Growth and change in the County will be sustainable and achieve resilience to hazards, conversion to renewable energy systems, protection of natural resources, and support a sustainable local economy in a manner that meets the needs of the present without compromising the ability of future generations to meet their own needs.

 

Achieve Livability and Affordability

Residents will have safe, accessible, and affordable housing and multi-modal transportation choices to create a more connected, walkable, healthy community that accommodates the diverse needs of residents. Buncombe County will attract quality jobs that support higher wages and enable livability and affordability.

 

Focus on Conservation

Natural resources, farms, and rural lands provide picturesque landscapes and water systems; local food systems; healthy water, air, and soil quality; and opportunities for nature and recreation-based economic development. The County will prioritize conservation efforts to protect these land, water, and air resources.

 

Root Efforts in Community

County decision-making will be rooted in the outcomes of engagement efforts with residents, landowners, and business owners. The County will support opportunities for community interaction and will steward public resources in a fiscally efficient and transparent manner.

 

The Plan includes numerous Actions that are located in the Implementation chapter. Each of these Actions address a specific aspect of community planning that was identified during the planning process. While all Actions play an important role in implementing the Plan, there are two new implementation tools that are important to recognize.

 

Growth, Equity, and Conservation Framework

This framework will serve as guidance for the types of development and land uses that meet the community’s vision for the County. At a high level, the framework is organized into 3 area types:

 

·         Growth Areas: areas that are deemed appropriate for new growth or redevelopment.

·         Equity Opportunity Areas: areas that should be a focus for equity considerations (such as gentrification, displacement, and need for investment and support). These areas are not shown on the Growth, Equity, and Conservation Map. They are based on the Community Index Map (described on page 48)

·         Conservation Areas: areas that should be conserved.

The Growth Areas and Conservation Areas are divided into eight individual land use categories that describe the intention for how these areas should evolve or stay the same over time. The categories set out the following:

 

·         Intended pattern of development

·         Types of land uses appropriate for each area

·         Methods for water and wastewater service

·         Provide examples of places for each category

 

This framework can be leveraged in many ways: to evaluate the appropriateness of infrastructure expansion, to assist in identification of Equity Opportunity Areas, and to inform decision-making related to proposed development projects. This framework is intended to be used as policy guidance and does not have the same force of law as the County’s zoning ordinance. However, it can be used to help make changes to the existing land use ordinances. The map and categories are found on page XX.

 

Equity Analysis Tool

The Equity Analysis Tool is a product of the County’s Equity and Human Rights Office, designed for evaluating the equity impacts of all new policies and projects undertaken by the County. The tool has been adapted to the Comprehensive Plan to be used by County Planning Staff to

evaluate new proposed development projects and, specifically, the impact these projects may have on surrounding areas.

 

Identified as “Equity Opportunity Areas” some parts of the County have been historically disadvantaged through regulations, policies, investment decisions, and other means. County Staff can leverage the Equity Analysis Tool and the Community Index Map to identify which proposed projects will advance and which projects will hinder achievement of the County’s Vision Themes, Goals, and Policies directed at achieving equity. The tool and map are found starting on page XX.

 

Specific Actions to Implement the Plan – (found starting on page 48) fall under several key types of Actions:

 

·         Regulatory and Guideline Updates – These are Actions focused on updating specific legal rules for new development. An example of this is preparing updates to the County’s Zoning Ordinance.

 

·         Capital Investments and Funding Programs – These Actions focus on funding different operational initiatives and community investments, such as funding for conservation, environmental enhancements, and restoration projects.

 

·         Further Planning Efforts and Initiatives – These include more detailed planning efforts, some of which may be undertaken in partnership with neighboring jurisdictions, such as a small area plans.

 

·         Partnership Opportunities – The County does not have the full jurisdiction and funding required to implement many of the Actions in the Plan. Partnerships with neighboring jurisdictions, utility providers, regional transportation planning entities, economic development partners, and other types of partnerships are needed to fully implement the Plan.

 

Overview of Chapters

 

The Plan Framework and Components (Vision Themes, Goals, Policies, and Actions) are organized according to planning topic (or groups of topics). These planning topics each correspond with a chapter and are as follows:

 

1.    GROWTH, EQUITY, AND CONSERVATION provides the framework for guiding land use and development decisions within the County’s planning and zoning jurisdiction. This framework of policies is directly tied to the Community Index Map; the Growth, Equity, and Conservation Framework map; and the land use categories on page XX.

 

2.    TRANSPORTATION AND CONNECTIVITY establishes the County’s approach to transportation planning and includes important actions for enhancing the County’s multimodal transportation network.

 

3.    FARMS, FORESTS, AND ENVIRONMENTAL CONSERVATION focuses on the programs and initiatives that the County can undertake or partner on to protect its highly valued natural resources.

 

4.    ECONOMIC DEVELOPMENT, EDUCATION, AND JOBS includes policies and actions to support the career advancement and upward mobility of the County’s workforce as well as support for economic growth of existing businesses, small business development, and attracting new businesses to the community.

 

5.    HEALTH AND RECREATION can support the advancement of recreational opportunities and the improvement of health outcomes for Buncombe residents.

 

6.    HAZARDS AND RESILIENCE addresses future steps to safeguard the Buncombe County community from human-made and climate change-related hazards, including floods, landslides, and wildfires.

 

7.    INFRASTRUCTURE AND ENERGY can guide decisions related to public services and facilities, capital investments, and capital improvement planning. It also guides water and sewer infrastructure investments and extension of service areas that support the growth areas identified in the Growth, Equity, and Conservation Framework.

 

Each chapter:

 

ü  Begins with an associated Goal

ü  Describes how the planning topic relates to the Vision Themes

ü  Details Policies

ü  Summarizes specific Actions for achieving policy aims (Actions are more fully enumerated in the Implementation chapter)

 

REMOVED PLANNING TOPICS PAGE FOR REDUNDANCY WITH PREVIOUS + RELIANCE ON GRAPHIC

 

CHAPTER 02

GROWTH, EQUITY, & CONSERVATION

 

Goal: Growth will result in sustainable development patterns that expand affordable and middle-income housing options for residents and job opportunities for the local workforce, protect historically disadvantaged neighborhoods and businesses from displacement and gentrification, and create centers for shopping, dining, and recreating.

 

New development will maximize developable lands in key growth areas and transportation corridors through mixed-use and clustered development designs that lessen climate and environmental impacts and are more resilient to hazards. Growth will be directed away from priority conservation areas using a variety of public and private tools

 

 

CONNECTION TO VISION THEMES

 

Strive to Achieve Equity

The Growth, Protection, and Conservation Framework Map and Categories, established by the policies and actions in this chapter, aim to address social equity across all communities.

These are based on the concerns raised and priorities identified by the community. The policies will strive to achieve equity by protecting historically disadvantaged communities from displacement or gentrification and conserving agricultural and environmental lands from development.

 

Commit to Sustainability

Growth and change in the County will be sustainable in a manner that meets the needs of the present without compromising the ability of future generations to meet their own needs. New and existing developments provide an opportunity for generating more sustainable development patterns and designs and more resilient siting and green construction of buildings. Policies and actions in this chapter also promote the development of renewable energy generation and leverage local knowledge base of resilience firms in Buncombe.

 

Achieve Livability & Affordability

Policies and actions in this chapter support housing options, infrastructure, and services and amenities that residents need to improve affordability and livability.

The policies in this chapter support development in areas highly suited for residential and employment development to support the diverse needs of its different communities and residents.

 

Focus on Conservation

While Buncombe County has a large amount of land, parcels that are highly suitable for development are limited. This chapter’s policies support growth on suitable sites using sustainable development patterns and directing growth away from areas prioritized for environmental or agricultural protection.

 

Root Efforts in Community

During the community engagement windows, residents identified concerns about the rising cost of living (including housing, transportation, and food), losing natural areas and agricultural lands to new development, and tourism development changing the character of Buncombe County. The public identified their priorities for a successful and healthy life which included more safe and affordable ways to travel (including biking, walking, or using public transit), more affordable housing options, and improved access to jobs, healthcare, and social services.

 

 

POLICIES

 

POLICY 1: Guide land use decisions using the Growth, Equity, and Conservation Framework Map. Utilizing the Growth, Equity, and Conservation Framework map in land use and development decisions will help Buncombe to achieve its comprehensive plan goals.

 

Policy Intent

This policy is built upon Buncombe 2043 community engagement and technical analysis efforts that identified key growth areas and future land use categories for the county. The Growth, Equity, and Conservation Framework map and related categories identify:

 

o   Growth areas that include the most suitable lands for development and should be leveraged to maximize future growth for needed housing and employment development (such as in Complete Communities).

 

o   Rural and Conservation areas where development will be limited, agricultural and environmental lands that will be preserved, and rural character that will be maintained (such as the Conservation Working Lands and Rural Community categories); and

 

o   Equity Opportunity Areas where Buncombe will partner with historically disadvantaged communities and other neighborhoods at risk of displacement and gentrification to carefully manage change. These areas include places where there is naturally occurring affordable housing and where market changes could cause redevelopment that displaces residents and businesses.

 

 

POLICY 2: Promote the development and enhancement of communities in identified growth areas. Buncombe will direct development away from conservation areas and toward growth areas, where complete communities, walkable destination centers, employment

hubs, rural centers, and commercial areas will offer the services, amenities, and infrastructure to meet the needs of all residents.

 

Policy Intent

The intent of this policy is to enhance the livability of Buncombe County by promoting the development of housing, transportation, and other services in complete communities and other growth categories. Higher density development in some areas means that other lands can be safeguarded from development, preserving rural communities, and conserving agricultural and environmental lands. Some objectives of this policy are to:

 

o   Maximize new development in growth areas to mitigate growth pressures in the protection and conservation areas.

 

o   Increase density and mix of housing types in growth areas and utilize mixed-use and clustered development design.

o   Promote the development of complete communities where they are supported by infrastructure and utilities. Complete communities provide a mix of housing types, support walkability with sidewalks, small block sizes, and greenways; and provide a mix of land uses that support everyday life such as civic spaces, community facilities, and businesses or commercial uses.

 

 

POLICY 3: Identify and focus small area planning efforts on Equity Opportunity Areas. Buncombe will identify, protect, and support neighborhoods with naturally occurring affordable housing, places with historically disadvantaged groups of people that are at risk of gentrification or displacement, and communities at risk for loss of cultural identity.

 

Policy Intent

The intent of this policy is to set the stage for future small area planning work in partnership with neighborhood residents and landowners. Buncombe will focus small area planning efforts and technical assistance to the identified communities in need of protection. Some objectives of this policy are to:

 

o   Continue to identify Buncombe’s places with historically disadvantaged groups of people or businesses that are at risk for gentrification or displacement or neighborhoods at risk for loss of cultural identity.

 

o   Understand the community needs of Equity Opportunity Areas and coordinate planning efforts.

o   Provide technical assistance to neighborhood organizations when necessary.

o   Analyze market changes or development influences that can cause gentrification or displacement. Closely monitor and manage neighborhood change within Equity Opportunity Areas, while providing necessary community services and amenities. This could include exploring planning tools to protect neighborhoods, such as limiting allowed uses, setting maximum floor area ratios, and creating maximum lot sizes.

o   Identify ways to invest in the livability of these neighborhoods that create new community benefits for residents but do not increase the risk of displacement.

POLICY 4: Balance development needs with environmental conservation and rural preservation. Buncombe will conserve environmentally sensitive lands and preserve rural or agricultural lands from suburban-style development, directing more intensive development toward growth areas.

 

Policy Intent

The intent of this policy is to balance Buncombe’s development and growth pressures, its unique topography and conditions, and the need to lessen climate impacts and increase resilience to hazards. Some objectives of this policy are to:

 

o   Align development decisions with the policies and actions of the Farms, Forests, and Environmental Conservation chapter.

 

o   Conserve and maintain environmental lands for ecosystem services, community benefits, and the recreation opportunities they provide.

o   Preserve rural and agricultural lands for economic benefits, historic and cultural heritage, community benefits, and the unique landscape they provide.

POLICY 5: Promote sustainable and resilient development. Buncombe County will encourage the use of sustainable and resilient designs in all future development and retrofits for existing development, with a focus on areas that are at high risk for hazards.

 

Policy Intent

New and existing developments provide an opportunity for generating more sustainable development patterns and designs and more resilient siting and construction of buildings. Leveraging the local knowledge base of resilience firms in Buncombe, the county will support private developments in achieving these objectives. Some objectives of this policy are to:

 

o   Strongly encourage developments to be designed to use existing site conditions (such as topographical constraints, riparian areas, and high hazard areas) as a basis for creating more resilient and sustainable designs.

 

o   Promote the development of renewable energy generation and use within private developments through regulatory incentives or other tools. Promote the construction of all-electric, fossil fuel-free commercial, residential, and industrial buildings through regulations and incentives.

o   Align development decisions with the policies and actions of the Hazards and Resilience chapter, including green infrastructure and nature-based solutions.

o   Continue to limit development on steep slopes, high elevations and ridge lines in areas noted on the Growth, Equity, and Conservation map. Discourage development from occurring on steep slopes and ridge lines.

o   Explore green and resilient infrastructure specifications for new development, potentially aligning with North Carolina Department of Transportation standards for resilient transportation facilities.

 

 

POLICY 6: Promote multi-jurisdictional planning, collaboration, and information sharing. Buncombe will aim to coordinate planning efforts with its municipalities, MSD and other utility providers, and neighboring counties for joint efforts to direct and manage growth in areas of common interest at the edge of jurisdictional boundaries.

 

Policy Intent

The intent of this policy is to facilitate edge area coordination in the areas outside of municipalities and along the edges of the county boundary. Buncombe will accomplish this by coordinating policy direction and development values with the leadership of municipalities, adjacent counties, local agencies, and other stakeholders. Some objectives of this policy are to:

 

o   Identify common growth areas and develop shared small area land use plans for areas of common interest, such as those close to Fletcher, Mills Gap, Candler, along Highway 70 in Swannanoa, and north of Weaverville.

o   Facilitate information sharing for review of new developments proposed near the boundary of municipalities.

o   Align development with the Infrastructure and Energy chapter policy direction on the provision of utilities across jurisdictions.

o   Achieve environmental and agricultural conservation goals by protecting Conservation lands from development and maximizing growth elsewhere.

POLICY 7: Increase housing options and improve housing affordability for all residents. Buncombe will work to support the development of a variety of housing types that meet the needs of all households and families, prioritizing the affordability and accessibility of housing for the county’s local workforce.

 

Policy Intent

The intent of this policy is to create better housing options for current residents living in Buncombe and workers employed in the county that are currently unable to afford housing, with particular emphasis on addressing historical inequities related to housing needs. Some objectives of this policy are to:

 

o   Continue to explore funding and programs that support affordable housing initiatives such as community- oriented development and voluntary-based inclusionary zoning.

o   Enhance partnerships and bolster current efforts underway for affordable housing.

o   Maximize development density and housing types to increase the number of housing units available within growth areas.

o   Explore protections for existing affordable housing, with a particular emphasis on manufactured housing parks and supporting at-risk populations such as residents that are aging in place.

o   Consider partnerships with neighboring jurisdictions to support the development and protection of affordable housing, including a regional housing land trust model.

 

 

 

 

 

POLICY 8: Support development on infill, redevelopment, and adaptive reuse sites. Buncombe will support development on infill, redevelopment, and adaptive reuse sites in growth areas designed to acknowledge the surrounding context and conditions.

 

Policy Intent

The intent of this policy is to balance Buncombe’s development and growth pressures with its unique topography by directing growth to infill or redevelopment sites, maximizing growth in already-developed areas that are served by infrastructure. Some objectives of this policy are to:

 

o   Increase the return on public investments in infrastructure (e.g., water, sewer, roads, etc.) by focusing development in areas with existing service capacity.

o   Support infill and redevelopment projects that avoid conservation areas, minimize environmental impacts, and promote adaptive reuse.

o   Coordinate infill and redevelopment decisions with small area plans and other local plans prepared jointly with neighboring jurisdictions.

o   Create incentives and flexible development standards to promote sustainable and resilient development on infill, redevelopment, or adaptive reuse sites.

 

 

 

ACTIONS OVERVIEW

 

1.    Implement new development and re-development policies to promote desired land use patterns and designs and maximize the use of public infrastructure.

2.    Implement county-directed policies to support Equity Opportunity Areas.

3.    Implement  equity-oriented  housing  policies  that  address  historically  disadvantaged groups and other neighborhoods at-risk of gentrification and displacement.

4.    Expand and protect affordable and accessible housing choices.

5.    Implement regulatory actions to promote the Growth, Equity, and Conservation Goal.

6.    Support the protection of agricultural and forest lands, environmentally sensitive areas, and rural communities.

7.    Coordinate information sharing and joint decision-making with neighboring jurisdictions.

8.    Develop new tools to protect steep slopes.

9.    Inventory and encourage protection of cultural and historic resources.

 

 

 

 

COMMUNITY INDEX MAP

 

The Community Index Map is a reference map that is cited in many policies and included as part of the equity assessment identified on the Growth, Equity, and Conservation Framework map. This map helps to identify areas that are important opportunities for creating equity in Buncombe County. The Community Index Map is an index that evaluates the presence of several factors in U.S. Census block group areas. These factors include:

 

·         Presence of high poverty rates

 

·         Median household income for area

 

·         Households that are food insecure

 

·         Population without a high school diploma

 

·         Housing cost-burdened households

 

·         Households lacking health insurance

 

·         Residents identifying as non-white

This map, shown on the following page, will be updated over time and will serve as a factual guide when making equity- related policy decisions. The analysis to prepare this map was created by the Buncombe County Diversity, Equity, and Inclusion Working Group. Darker areas on the map identify areas with a higher Equity Opportunity score denoting areas where additional efforts are needed to support these communities, many of which have been historically disadvantaged.

 

[MAP]

 

GROWTH, EQUITY, & CONSERVATION FRAMEWORK

 

The Growth, Equity, and Conservation (GEC) Framework is comprised of four main categories:

 

1.    Growth –These are priority development areas where development currently exists today or is proposed for the future to accommodate projected population and business growth in the county. These are areas that have been selected due to the suitability to support new development and a generally lower risk factor for natural hazards.

2.    Equity – Equity Opportunity Areas (EOAs) represent existing areas that are at risk of gentrification and displacement. Some of these areas have higher percentages of historically disadvantaged populations. They are opportunities for small area planning to manage growth and change that reduces displacement, protects established cultural heritage, and maintains existing affordable housing. This will be accomplished by utilizing the Equity Analysis Tool as it applies to the Equity Opportunity Area as part of review of proposed development projects.

3.    Conservation – These are lands that are either currently protected through government ownership or private conservation easements, and lands that are intended for agricultural, forest, or rural land uses.

4.    Other Areas – In addition to the three main categories is the Other Areas category that includes the Biltmore Estate and Warren Wilson College.

The individual land use designations described on the following pages are organized from least intensive land uses in the Conservation category to the most intensive Growth category. Each land use designation includes a general intent and description of the category, provision of water and wastewater, general residential density, primary and secondary land uses, and photo examples of similar areas that represent the intended scale and pattern of land uses. The general residential density represents overall gross density for the land use category and does not represent the density anticipated on individually owned parcels of land.

 

The general residential category does not represent changes to zoning. Instead, the characteristics for each category are meant to guide decision-making for development proposals, such as rezoning requests, to better manage growth in alignment with the Growth, Equity, and Conservation Framework.

 

Please note that the mapped information for future extension of water and sewer utilities in Buncombe County that was used to guide development of the GEC map is not precise at the parcel scale. Care has been given to accommodate all future service areas included on the map to the best abilities given data limitations.

 

Future Updates to the GEC Framework

 

The Buncombe 2043 Comprehensive Plan represents a long- term vision for the future. It is meant to guide policy decisions for Buncombe County over the next 20 years. Buncombe County will likely experience much growth and change during this time period. The Comprehensive Plan should remain a relevant, living document that should continue to represent the priorities of the community. In order to accomplish this, the Plan should be continually updated and amended over time.

 

The Growth, Equity, and Conservation Framework can also evolve over time as the Plan is implemented and progress on its goals are evaluated. The Policies and Actions of this Plan have called out opportunities to identify joint planning areas with municipal and county neighbors as well as other agencies. These efforts should prioritize joint planning efforts with the City of Asheville and the Town of Weaverville, where significant growth pressure is occurring. The Land of Sky Regional Council is conducting an effort to support transit-oriented development in the region and within Buncombe County. Implementation of the GEC Framework should include coordination with this effort as well.

 

Finally, small area and corridor plans will be conducted as part of the implementation of this plan. Small area and corridor plans can be generated to provide more specific guidance for unique areas in the county that are high priorities for managing change. Examples may include the Emma neighborhood, the three Rural Centers identified on the GEC Map, the Beacon redevelopment site, the Swannanoa and US-70 corridor, the Candler and I-40 corridor, among others.

 

GEC Categories

 

Growth-Oriented Land Uses

§  Complete Community

§  Mixed Use Area I

§  Mixed Use Area II

§  Walkable Destination Center

 

Equity

§  Equity Opportunity Areas

§  Equity Analyis Toolkit

 

Conservation Land Uses

§  Protected Public Lands

§  Conservation Working Lands

§  Rural Community

§  Rural Center

 

[MAP]

 

EQUITY

 

Equity Opportunity Areas

 

General Character Description

The Equity Opportunity Areas (EOAs) are the only land use category that is not delineated on the Growth, Equity, and Conservation Map. EOAs offer an opportunity to examine equity throughout Buncombe County’s Planning and Zoning jurisdiction.

 

These are areas that score higher on the indicators evaluated in the Equity Opportunity Index, presented in the Community Index Map. Some of these areas may be home to higher BIPOC populations. BIPOC is defined per the Buncombe Racial Equity Action Plan as ‘Black, Indigenous, People of Color,’ and it is meant to unite all people of color in the work for liberation while intentionally acknowledging that not all people of color face the same levels of injustice. Many BIPOC have historically been disadvantaged, and/or bear a disproportionate burden due to the impact of racist policies, regulations, and financing programs.

 

These communities have a unique, established culture and offer a significant portion of the naturally occurring affordable housing available in the county. The intent is that change within these areas will be carefully managed to reduce the potential for gentrification and displacement of residents and businesses. These areas may be priorities for the development of future small area plans in partnership with neighborhood stakeholders to create a more fine-grained vision and implementation strategy for these areas. Prioritization of EOAs will change over time as the Equity Opportunity Index is updated.

 

Equity Analysis Tool

 

Buncombe County is committed to advancing equity for all those who live, work, play, and learn in Buncombe County. Through data-informed decision-making, program design, and careful consideration of the compounded effects of historical and systematic inequity, County departments and offices should craft policy, budgetary, and programmatic proposals and requests that align with the County’s values and meet departmental and shared goals. As Buncombe County continues to move forward in implementing equity goals that uplift our County values, the Buncombe County Office of Equity and Human Rights developed the Equity Analysis Tool.

 

As Buncombe County implements the Policies and Actions presented in the Comprehensive Plan, decision-making will be informed by the Equity Analysis Tool. Specifically, planning staff will analyze development projects that are required to go through a legislative process for approval using the following questions.

 

o   What is being proposed and what does it seek to address?

o   Who does the project affect and to what degree? Are historically marginalized groups consulted and involved from the early stages of the development of this project?

o   Which plan goal(s) or policies does this project advance and how?

o   What are the anticipated positive outcomes of the project and how will success be measured?

o   What negative consequences would persist if this were not implemented?

o   Are there sufficient population-level data to understand whether this would positively address or create any disparities?

o   Are there other counties or jurisdictions that have reviewed similar development projects and created similar solutions? How do they address the issue? Were their actions made utilizing an equity lens?

 

Finally, all planning efforts will be underpinned by equity in decision-making procedures, distribution, and structure. For more information, please see page XX.

 

 

Protected Public Lands

 

General Character Description: These are lands where no development or extremely limited development is anticipated. This category includes lands owned by the federal, state, or county governments and is maintained in a natural state (e.g., Pisgah National Forest), as well as lands for which a publicly owned conservation easement applies that significantly restricts future development.

 

Approach for Wastewater: Private septic system

 

Approach to Potable Water: Private wells

 

General Residential Density: Some residential properties currently exist: no new residential development is anticipated.

 

Primary Land Uses: National forests, state parks, watershed protection areas

 

Secondary Land Uses: Conservation lands

 

 

Conservation Working Lands

 

General Character Description: These are lands that are currently working agricultural lands or agricultural homesteads in which extremely limited future development is anticipated, with a preference that the land remain dedicated to agricultural, forest, or other open space uses. These areas have been identified as Conservation Focus Areas by Buncombe County and can include small activity centers for rural-scale commercial uses surrounded by rural-scale residential development that is compatible with the surrounding agricultural uses. The Conservation Working Lands present an opportunity to support rural land owners by increasing opportunities for viable farms and rural businesses, while also providing opportunities for rural-scale subdivisions.

 

The Conservation Working Lands Category is a general policy direction to monitor growth. This policy will not directly change the current Open Use zoning district. The County could consider providing an agricultural use zoning district for willing landowners to protect the viability of agricultural uses through the limitation of future development opportunities. This category should also be a focus for public conservation efforts, which primarily includes purchasing conservation easements from willing landowners.

 

The lack of public water and sewer significantly limit the scale and type of development that can occur in the Conservation Working Lands. However, it should be noted that these limitations may not halt development entirely. Land use changes in Conservation Working Lands should be monitored over time to ensure that development in this area is meeting community vision and goals.

 

Approach for Wastewater: Private septic system

 

Approach to Potable Water: Private wells

 

General Residential Density: Very low density, 1 unit per 10 acres gross density for all areas within this category; densities on individual properties will vary based on site conditions

 

Primary Land Uses: Working farms, forests, agritourism uses

 

Secondary Land Uses: Small, rural activity centers and low-density, rural residential

 

 

Rural Community

 

General Character Description: These are lands with a mix of rural uses, including low-density residential, some agricultural and forested working lands, and limited commercial uses to support the rural community. Some areas may be developed as conservation

subdivisions, which provide for protection of a certain percentage of a tract of land (generally upwards of 30%; based on site conditions and open space/environmental value of land) in exchange for more residential units on smaller lots and a simpler approval process. A conservation subdivision can serve as a transition between suburban edge development near the municipalities and truly rural areas and can be an effective way to protect important natural lands and cultural spaces.

 

Approach for Wastewater: Private septic systems (conservation subdivisions may require community systems)

 

Approach to Potable Water: Private wells (conservation subdivisions may require community systems)

 

General Residential Density: Low density, 1 dwelling unit per 2 acres gross density for all areas within this category (unless using conservation subdivision approach which would allow for higher density in exchange for permanently protecting open spaces), densities on individual properties will vary based on site conditions

 

Primary Land Uses: Rural residential, conservation subdivisions, working farms and forests

 

Secondary Land Uses: Limited rural-scale commercial development, solar farms

 

 

Rural Center

 

General Character Description: These are lands in rural areas that are located in the crossroads of lower density rural development or along major rural roads that can or do serve as small activity centers for rural communities. These are opportunities for place- based economic development that creates rural-scale businesses that use development designs and support land uses that fit within the context of the rural community. Ideally, these uses are located in close proximity allowing for customers to park once and walk to adjacent businesses and community centers.

 

Approach for Wastewater: Private septic system

 

Approach to Potable Water: Private wells

 

General Residential Density: Very low density, 1 unit per 2 acres gross density for all areas within this category, densities on individual properties will vary based on site conditions

 

Primary Land Uses: Rural-scale commercial retail and offices and institutional uses such as community centers

 

Secondary Land Uses: Heavy commercial uses that support agricultural industries, rural residential

 

Complete Community

 

General Character Description: These are lands that include currently developed residential neighborhoods and new undeveloped areas intended for medium- to higher-density residential development within a traditional neighborhood layout. Existing neighborhoods provide infill and redevelopment opportunities to support additional housing development. In some cases, increased density may be achieved through parcel-specific renovations or the additions of middle housing, such as small-lot single family, cottage homes, accessory dwelling units (ADUs), townhomes, or duplexes. New higher-density units should be designed to be compatible with the surrounding neighborhood.

 

New neighborhoods should be developed to support walkability with sidewalks, small block sizes, and greenways and are opportunities for developing new affordable housing. These areas largely comprise the former Extraterritorial Jurisdiction of Asheville and Weaverville as well as growth areas on the edges of municipalities.

They provide opportunities to coordinate planning with the municipalities to support well-planned neighborhoods. Extensions of utilities are planned in coordination with the adjacent municipalities and MSD.

 

Complete Communities will be served by a mixture of wastewater and water approaches, including public sanitary sewer and wastewater, private wells, private septic, and community systems. Some areas in the GEC Map may not be served with public sanitary sewer and public potable water for some time depending on environmental, development, or other feasibility constraints. The intent is that these areas could support more intensive growth at some point in the future, including beyond the 2043 horizon of this Plan. Some areas will receive development pressure without public sanitary sewer and public potable water service and therefore will not be able to maximize density.

 

For areas that can support higher density, opportunities for vertical mixed use is supported and ideal. An example of vertical mixed land uses include residential units over office or commercial spaces. Vertical mixed use opportunities maximize the live, work, and play opportunities for residents in Buncombe County.

 

Approach for Wastewater: Mixture of service types (public sanitary sewer, private septic systems, and community systems)

 

Approach to Potable Water: Mixture of service types (public potable water, private wells, and community systems)

 

General Residential Density: 4 to 18 dwelling units per acre; up to 30 dwelling units per acre for projects that include a certain percentage or more of affordable housing units (to be determined as ordinance is updated to include this requirement)

 

Primary Land Uses: Single-family detached, cottage-style single family, middle housing (townhomes, duplex, triplex, quadplex), manufactured housing and manufactured home parks, and multi-family residential development (apartments and condominiums)

 

Secondary Land Uses: Neighborhood serving commercial, retail and office operations, as well as civic uses and public amenities

 

Mixed Use Area I

 

General Character Description: These lands exist along partially developed corridors that have an existing mix of residential and commercial or retail developments. They are intended to support further planned development and to facilitate providing the full range of services and amenities to the surrounding neighborhoods. Developments in this category are envisioned to be compact, walkable, and well-connected and include mixed land uses. Some design considerations in Mixed Use Area 1 development include:

·         Encouraging connectivity to adjacent properties

·         Developing pedestrian and bicycle connectivity

·         Incorporating design for transit access

·         Encouraging and activated storefronts

·         Improving flexibility around parking locations and implementing shared parking solutions to reduce impervious surface area

·         Encourage mixing of land uses

 

Approach for Wastewater: Public sewer systems

 

Approach to Potable Water: Public potable water

 

General Residential Density: 10 to 20 dwelling units per acre, up to 30 dwelling units per acre for projects that include a certain percentage or more of affordable housing units (to be determined as ordinance is updated to include this requirement)

 

Primary Land Uses: Community serving commercial, retail, and office operations; limited-intensity manufacturing uses with some flexibility for larger footprint business or industrial park uses.

 

Secondary Land Uses: Middle housing (cottage style single-family, townhomes, duplex, triplex, quadplex, and apartments and condominiums), civic and public uses, such as parks, schools, government service buildings, etc.

 

 

 

 

 

Mixed Use Area II

 

General Character Description: These are lands intended to serve large-scale and more intensive economic development such as industrial (manufacturing or warehousing) or office/industrial flex uses. Some flexibility for commercial and medium-density housing is also appropriate to support the employment uses and allow workers to live close to work. Development in these areas will focus on campus-style development that promotes internal connectivity and connectivity to adjacent properties. Developments in this category are envisioned to be compact, walkable, and well-connected and include mixed land uses.

 

Some design considerations in Mixed Use Area 2 development include:

 

·         Encouraging connectivity to adjacent properties

·         Developing pedestrian and bicycle connectivity

·         Incorporating design for transit access

·         Encouraging and activating storefronts

·         Improving flexibility around parking locations and implementing shared parking solutions to reduce impervious surface area

·         Encourage mixing of land uses

 

Approach for Wastewater: Public sanitary sewer

 

Approach to Potable Water: Public potable water

 

General Residential Density: 10 to 18 dwelling units per acre, up to 30 dwelling units per acre for projects that include a certain percentage or more of affordable housing units (to be determined as ordinance is updated to include this requirement)

 

Primary Land Uses: Industrial parks, large commercial or business campuses, and manufacturing centers

 

Secondary Land Uses: Multi-family residential, limited retail that supports surrounding employment and residential uses, recreational uses

 

Walkable Destination Center

 

General Character Description: These are lands intended to serve as higher intensity, mixed-use centers that serve areas of the County outside the immediate areas of the municipalities. They are located in areas with good road or transit access, land that is well-suited for development (flat, limited flooding issues), and can be served by proximate public infrastructure (public potable water and public sanitary sewer). This category accommodates medium- and higher-density residential uses, as well as a variety of commercial, office, and retail uses.

The Beacon redevelopment site could serve as a catalyst project or model for Walkable Destination Centers in the County. In the future, additional areas will be identified that are appropriate for Walkable Destination Centers.

 

Approach for Wastewater: Public sanitary sewer

 

Approach to Potable Water: Public potable water

 

General Residential Density: 16 to 24 dwelling units per acre, up to 40 dwelling units per acre for projects that include a certain percentage or more of affordable housing units (to be determined as ordinance is updated to include this requirement)

 

Primary Land Uses: Multi-family residential, office, retail, and commercial development

 

Secondary Land Uses: Civic, and public amenities such as parks, libraries, schools, etc.

 

 

 

RELEVANT SUPPORTING DOCUMENTS

 

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

Racial Equity Action Plan (2021)

Buncombe County Sustainability Plan  (2017)

Land of Sky Area Plan on Aging (2016)

Buncombe County Strategic Plan (2020)

Ferry Road Land Use Plan (2021)

 

 

CHAPTER 03

TRANSPORTATION & CONNECTIVITY

 

 

Goal: Sustainable growth patterns will be supported through expansion of equitable, affordable, and more varied transportation choices (walking, biking, taking transit, and driving) that prioritize safety for users, reduce climate and environmental impacts, and provide greater access to travel between live, work and play destinations, especially for those with limited vehicle access and who have historically been underserved by the transportation network.

 

Buncombe County will leverage regional partnerships to improve the transportation system and reduce single-passenger vehicle miles traveled through enhanced transit service, provide greater connectivity between current and future destinations, support non-motorized transportation options, and expand infrastructure for renewable fuel vehicles.

 

 

 

CONNECTION TO VISION THEMES

 

Strive to Achieve Equity

An equitable transportation system is one that ensures that Buncombe County residents, especially those who cannot or choose not to drive a car, have effective, efficient, and reliable mobility choices. Success lies in providing a balanced system with multiple modes of travel, including cars, transit, walking, and biking.

 

Commit to Sustainability

Shifting from single-occupancy vehicles to multi-modal options for transportation furthers sustainability goals, including reducing energy consumption and greenhouse gas emissions; reducing household costs; and increasing levels of physical activity.

 

Achieve Livability & Affordability

Having access to mobility options can provide opportunities for employment, education, food, and essential services. Additionally, multimodal transportation is a way to reduce household costs.

 

Focus on Conservation

Transportation and connectivity objectives include reducing congestion, managing growth, developing sustainable land use patterns, and addressing community connection.

 

Root Efforts in Community

Public engagement revealed that the community desires more safe and affordable ways to travel to places, including biking, walking, and riding a bus or taking public transit.

 

 

 

 

 

 

 

 

POLICIES

 

POLICY 1: Increase access to multimodal and emerging transportation options.

Buncombe will increase access to and support the development of infrastructure for multimodal and emerging transportation options, including walking, bicycling, micro-

mobility choices, transit, and electric or renewable fuel vehicles.

 

Policy Intent

The intent of this policy is to create a multimodal transportation system that prioritizes connectivity and transportation options. Community sentiment gathered during comprehensive plan development indicates a strong demand for increased multimodal and emerging transportation options that connect people who walk, bike, take transit, or use electric/

renewable fuel vehicles to access housing, jobs, services, and recreation.

 

Easily accessible multimodal and emerging transportation options can reduce dependence on single-occupancy vehicles (SOV) and have a variety of personal and community benefits, such as improved physical and mental health, reduced personal costs, and reduced congestion and emissions.

 

This policy aims to achieve this by promoting the following options:

 

·         Walking as a viable mode of transportation meets many Buncombe County goals, including health, sustainability, creating thriving commercial centers, reducing transportation costs, and equity. It serves as a viable mode of travel when communities have a pedestrian network that is connected, convenient, safe, and inviting.

 

·         Bicycling and micro-mobility options (bike share, scooters, etc.) are viable modes of transportation for short to medium trips within and between developed areas. Like pedestrian mobility, bicycling for transportation promotes health, sustainability, and equity, and has the potential to reduce the cost of living. Bicycling is a viable mode when the community contains a connected and safe bicycle network that prioritizes facilities designed for less-confident people who bike (e.g., buffered bike lanes, multiuse paths, greenways).

 

·         Transit is a key component of Buncombe’s transportation strategy to manage congestion, maintain the community’s character, reduce our environmental footprint, and decrease the cost of living. Transit is a viable mode choice when the transit system(s) provide reliable and frequent travel to the places people need to go.

 

 

POLICY 2: Enhance transportation planning capabilities to plan for and develop a balanced transportation network. Buncombe will develop the necessary capabilities to invest in a balanced transportation network for all residents, which will require increasing capacity to take action and growing established partnerships.

 

Policy Intent

A balanced transportation network requires projects that provide sidewalks, bike lanes, complete streets, connected roadway projects, and widespread electric vehicle charging stations. In order to deliver this balanced transportation network, Buncombe will need to build internal capacity.

 

Some objectives of this policy are to:

 

·         Increase staffing to build capacity.

 

·         Implement new policies (e.g., updated traffic impact analysis standards)

 

·         Strengthen relationships with external partners that have transportation project responsibilities (e.g., French Broad River MPO, NCDOT, other municipalities, the development community).

 

·         Advocate at the state level to improve existing and implement new transportation planning tools. Examples include changes related to bicycle and pedestrian investment; support for transportation planning policies, such as use of transportation impact fees; jurisdictional issues related to not owning or maintaining roads; road design standards; and other issues.

 

POLICY 3: Coordinate land development and transportation policies to manage the impacts of growth and congestion. Buncombe will guide development to manage the impacts of growth and

congestion by focusing on a sustainable approach, including prioritizing multimodal options.

 

Policy Intent

New growth in Buncombe County has the potential to increase congestion. Historically, efforts to address congestion have focused solely on adding capacity for motor vehicles through widening existing roads and building new roads. These types of projects are costly, can have negative impacts on the natural environment, change the community character along widened roadways, and often take years or even decades to complete, if they are ever undertaken at all. This approach to addressing congestion is not sustainable.

 

Buncombe County’s approach is one that coordinates land use and transportation policies to manage congestion through more sustainable methods. Some objectives of this policy are to:

 

·         Focus on a combination of smaller, more feasible roadway projects.

 

·         Shift trips away from single-occupancy vehicles (SOVs) to other modes (transit, walking, and biking)

 

·         Reduce trip demand by focusing housing near jobs, schools, services, and recreation.

 

 

 

 

ACTIONS OVERVIEW

 

1.    Complete the Buncombe County Multimodal Plan.

 

2.    Partner with other local, regional, and federal organizations and agencies to support a balanced transportation network.

 

3.    Develop Buncombe County’s internal capacity and policies that support a balanced transportation network.

 

4.    Coordinate land development and transportation policies to manage the impacts of growth and congestion.

 

5.    Enhance the County’s Traffic Impact Study Standards.

 

 

RELEVANT SUPPORTING DOCUMENTS

 

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

French Broad River Metropolitan  Transportation Plan (2020)

French Broad River Regional Transit  Feasibility Study (2021)*

Buncombe County Community Transportation Service Plan (2015)*

Regional Airport Master Plan (2013)*

NCDOT Highway Maintenance Improvement  Plans (HMIP) (Updated Annually)

NCDOT Crash Data and Maps (Continually  Updated)

 

*Denotes technical report reviewed for general information but most do not contain policy guidance.

CHAPTER 04

Farms, Forests, & Environmental Conservation

 

 

Goal: A minimum of 20% of the county’s open lands will be protected from development.

Priority natural environments that support clean water, provide habitat for wildlife, offer nature-based recreation, and provide picturesque rural views will be conserved. Priority farms, forests and other working lands will be maintained for the benefit of current and future generations.

 

 

CONNECTION TO VISION THEMES

 

 

Strive to Achieve Equity

These policies and actions contribute to the equity of all people by protecting the land, air, water, viewsheds, and productive soils and forests within the county, ensuring that locally sourced healthy food remains abundant and accessible to all residents regardless of their income or the location of their community.

 

Commit to Sustainability

Protecting natural resources and promoting a resilient agricultural economy will support Buncombe’s sustainability efforts.

 

Achieve Livability & Affordability

Protecting its watersheds and promoting forest management best practices on private and public lands shows the commitment of the County to support the health and safety of all residents.

 

Focus on Conservation

This plan recognizes the County’s accomplishments in protecting its farms, forests, and environmentally sensitive lands from development through its partnerships with private and public entities that share conservation goals. The County’s goal to conserve additional priority land will continue this vision and ensure that its natural assets will benefit all county residents in the future.

 

Root Efforts in Community

Agricultural and other working lands support the community roots and economy of Buncombe. The county’s rich natural heritage provides immeasurable services to all people through its natural assets and beauty, biodiversity, and recreational opportunities.

 

 

POLICIES

 

 

POLICY 1: Preserve Buncombe County’s working farms and forests. Buncombe will ensure that the county’s highest quality farmland and forestland will be conserved for the benefit of future generations. This will be achieved by ensuring that priority working lands are protected from development using the appropriate conservation tools. Working farms and forests should be prioritized for conservation using the best available data.

 

 

Policy Intent

The intent of this policy is to support the County’s vision of a focus on conservation and to achieve its goals related to farms and forests, environmental conservation, climate resilience, and health. In addition, the preservation of lands that provide fertile soils for productive farmland or healthy forests are important to the County’s economy, including its jobs, sense of community, human health, natural environment, water quality, and tourism industry.

 

Land use planning is important to maintain the county’s agricultural opportunities. In addition, proactive conservation projects that protect land in perpetuity from development or incompatible uses are essential. By safeguarding the existence of farmland within the county, residents have equitable access to locally sourced healthy options for food across both the rural and urban landscape.

 

Buncombe County is well-positioned to maintain and enhance its existing funding for farmland preservation. This can be accomplished through the continuance of its present-use value (PUV) taxation policies, identifying new public-revenue sources for the purchase of conservation easements, and leveraging funds from state, federal, and private foundation sources. Partnerships, both private-public and between public agencies, are very important in promoting this policy.

 

Some objectives of this policy are to:

 

·         Ensure Buncombe County has land available that can provide agriculture and forestry products to support the local economy through sustainably produced goods and agriculture and forestry-based jobs.

 

·         Expand landowner education programs that communicate the benefits of land, soil, and water conservation.

 

·         Strengthen partnerships with conservation organizations and other public entities such as federal agencies, municipalities, and other counties to achieve mutual conservation goals.

 

·         Preserve land for agriculture-based education.

 

·         Provide locally sourced healthy and accessible options for food for all residents.

 

·         Simultaneously achieve conservation, recreation, and health goals.

 

 

POLICY 2: Preserve Buncombe County’s natural heritage. Buncombe County will ensure the county’s highest quality connected natural environments will be conserved to the benefit of future generations to support clean water, provide habitat for wildlife, offer nature-based recreation, and provide picturesque rural views. This will be achieved by ensuring that priority natural lands are protected from development using the appropriate conservation tools. Environmentally sensitive tracts should be prioritized for conservation using the best available data.

 

Policy Intent

The intent of this policy is to support the County’s vision of a focus on conservation and to achieve its goals related to environmental conservation and climate resilience, health, and recreation. The County should work to maintain and restore connections between the various natural communities of the region, preserving a network of forests, streams, Appalachian balds, wetlands, agricultural areas, and other open spaces.

 

Buncombe County’s unique natural heritage, including biodiversity and wildlife habitat, provides numerous benefits and supports climate resilience and water quality protection. These lands are most valuable when they remain physically connected and allow wildlife migration. The primary threat to these connections today is the destruction of critical habitats by development. Buncombe County will remain proactive in its commitment to its natural environment by supporting smart conservation strategies. Partnerships, both private-public and between public agencies, are very important in promoting this policy. Some objectives of this policy are to:

 

·         Protect connections between natural landscapes and avoid fragmentation of large forest hubs in order to benefit wildlife migration.

·         Expand landowner education programs that communicate the benefits of land conservation and public access for the protection of biodiversity and wildlife habitats.

·         Strengthen partnerships with conservation organizations and other public entities such as federal agencies, municipalities, and other counties to achieve mutual conservation goals.

·         Preserve land for nature-based recreation.

·         Simultaneously achieve conservation, recreation, and health goals.

 

POLICY 3: Promote ecosystem enhancement and restoration projects across

public and private lands. Buncombe will manage, enhance, and restore its network of healthy natural systems at a countywide scale. This includes water resource management, and stream restoration and mitigation.

 

Policy Intent

The intent of this policy is to promote the county’s commitment to sustainability, which includes the protection of land and water resources and increased resilience to hazards such

as wildfires, landslides, and flooding. Degraded streams with significant erosion contribute to pollution of the waterways in Buncombe County. While state funds are sometimes available for enhancements, these funds can be limited and competitive. A countywide program and incentive for private landowners to restore damaged landscapes will have a positive benefit for the county.

 

Conservation easements and public ownership are tools that can be used to conserve forests and prevent poor management, but privately owned forested land that is managed for timber production should also be stewarded with best management practices to ensure a healthy and connected system of forests. Willing landowners should be educated about their options to enroll their land into designations that provide carbon services to county residents and improve public water quality.

 

Some objectives of this policy are to:

 

·         Encourage forest management solutions for healthy forests, carbon capture, and water quality.

 

o   Educate landowners on the importance of proper forest management and established riparian buffers.2

o   Explore opportunities to promote local carbon sequestration programs3 using non-profit partners.

 

·         Evaluate the potential to develop a countywide stormwater mitigation program that is funded by impacts to stormwater systems or when developers do not implement nature-based stormwater solutions.

o   This program could fund the installation of nature-based stormwater control measures for residential and commercial projects for water quality benefits.

o   A feasibility study can be developed to assess the structure, costs, and benefits of such a program.

·         Evaluate the potential to develop a countywide stream and wetland enhancement program to help landowners or land managers pay for ecological improvements on private and public land.

·         Continue protection of watersheds through conservation easements, watershed action plans, implementation of riparian buffers and stream improvements, and ordinances that regulate stormwater runoff and promote groundwater recharge.

o   Conduct an evaluation of failing septic systems and sewer discharge or overflows.

 

·         Promote the creation of and protection of pollinator habitats alongside transportation corridors and on residential properties throughout the County by coordinating with other County departments, homeowners, landowners, and NCDOT.

 

 

 

ACTIONS OVERVIEW

 

1.    Explore opportunities to increase funding for conservation, environmental enhancement, and restoration projects.

 

2.    Implement recommendations aligned with the Buncombe County Farmland Protection Plan.

 

3.    Continue efforts to meet the conservation of 20% of the county’s total acres by 2030.

 

 

 

RELEVANT SUPPORTING DOCUMENTS

Farmland Protection Plan (2020)

French Broad River Basin Restoration  Priorities (2009)

Grow Western North Carolina (GroWNC)  Regional Plan (2013)

Farms Under Threat 2040: Choosing an  Abundant Future (2022)*

*Denotes technical report reviewed for general information but most do not contain policy guidance.

CHAPTER 05

Economic Development, Education, & Jobs

 

 

Goal: Buncombe County will be home to a diverse and adaptable economy of living wage

industries that employ local workers, support equitable access to employment, and help meet quality of life needs of residents, such as access to childcare. It will strive to address inequities within the local workforce through collaboration with economic development partners; building capacity for entrepreneurship, business development, and worker-ownership/ESOPs (employee stock option plans) in historically disadvantaged communities; and promoting living wage or higher wage opportunities for residents.

 

The County will address any land use policy and regulatory barriers to business development. The County will partner with Buncombe County Schools, Asheville City Schools, and other educational partners like A-B Tech to support more sustainable and resilient school campuses. The County will also coordinate and support school districts in efforts to enhance academic achievement and reduce the racial achievement gap with a broad spectrum of abilities through new programs, such as vocational or living skills courses.

 

 

 

CONNECTION TO VISION THEMES

 

 

Strive to Achieve Equity

Buncombe’s economy will strive to address inequities in economic opportunities by establishing key partnerships and investing in historically disadvantaged communities.

 

Commit to Sustainability

Economic development efforts will plan for emerging and new manufacturing and industrial uses that minimize environmental impacts and support sustainability goals. Policies in this Plan encourage the development of sustainability-oriented businesses in Mixed-Use Areas and Walkable Destination Centers identified in the Growth, Equity, and Conservation Framework.

 

Achieve Livability & Affordability

Buncombe’s Vision Themes include the idea of an equitable community where all residents have better access to quality education and benefit from county-wide strategies that result in economic advancement and wealth creation.

 

Focus on Conservation

Buncombe’s future economic development must also support the protection of sensitive environmental lands and the conservation of agricultural lands.

 

Root Efforts in Community

Buncombe’s vision is for a robust, diverse, adaptable, and sustainable regional economy. Place-based economic development builds on homegrown industries, supports the development of local talent, and promotes living wage jobs.

 

 

POLICIES

 

 

POLICY 1: Build opportunities to provide more jobs and higher than average

wages. Buncombe County will recruit and expand industry opportunities while supporting workforce needs in order to create higher wages and career opportunities.

 

Policy Intent

The intent of this policy is to build a diverse workforce with career growth opportunities that pay more than the County’s average wage and support a high quality of living in Buncombe County. Some objectives of this policy are to:

 

·         Identify and preserve land for job creation and specifically higher-than-average wage employers in the region’s targeted industries (e.g., advanced manufacturing, life sciences, climate technology, outdoor products, professional offices, and information technology).

 

·         Provide job opportunities available to a wide range of educational levels and professional interests through recruitment and expansion of targeted industries.

 

·         Balance competing needs for housing, commercial, and recreation amenities, while securing important lands for economic development.

 

·         Build upon the region’s natural resources or environmentally centered job talents (such as climate- focused work and outdoor recreation) and expand in other higher-wage industries, such as advanced manufacturing and healthcare.

 

·         Create spaces for small-batch manufacturing businesses, aligned with redevelopment or infill goals of the Growth, Equity, and Conservation chapter.

 

·         Identify sites suitable for the expansion needs of workforce development partners (such as NCWorks, ABTech, and other organizations).

 

·         Provide support for employee-owned small businesses as an economic driver for our community and focus on supporting and expanding existing small businesses.

 

POLICY 2: Provide adequate housing options for all income levels to meet the needs of

economic development opportunities. In order to meet the housing needs of the current and future workforce, Buncombe County will prioritize housing access in alignment with economic development changes in target industries.

 

Policy Intent

The intent of this policy is to support development of housing choices and an adequate supply of housing units for employees working at local businesses so that they move and live closer to their employment locations and have affordable and safe living options.

 

Some objectives of this policy are to:

 

·         Offer a diversity of housing options to meet the needs of all income levels in Buncombe County.

 

·         Prioritize accessibility of housing closer to employment hubs for those who live and work in Buncombe County.

 

·         Forecast housing needs with large-scale economic development changes, such as manufacturing or industrial employment centers. Protect naturally occurring affordable housing in Equity Opportunity Areas to avoid displacement or gentrification stemming from economic changes.

 

 

POLICY 3: Address socioeconomic disparities and economic mobility through economic development. Buncombe will align economic development policies and actions with the Racial Equity Plan and other initiatives to promote equitable opportunities for all residents.

 

Policy Intent

The intent of this policy is to advance Buncombe’s equity vision in economic development through increasing annual incomes, providing a high quality of life for Buncombe residents, and addressing historical inequities. Some objectives of this policy are to:

 

·         Evaluate economic opportunities with an equity lens and build on other goals included in this plan.

 

·         Encourage economic development activities that result in housing and commercial developments that provide a full range of services and amenities to residents.

 

·         Identify neighborhoods or communities that could benefit from economic development projects and those that may be at risk of displacement through small area planning efforts and through assessment of Equity Opportunity Areas identified the Growth, Equity, and Conservation Framework map.

 

·         Support minority- and/or women-owned businesses (MBE/WBE) by setting standards for County procurement from these organizations.

 

POLICY 4: Promote place-based economic development. Place-based economic development focuses on the existing natural and social resources of a community and encourages economic community partnerships. Buncombe will explore  homegrown opportunities to help build a vibrant economy that is aligned with the Growth, Equity, and Conservation Framework map and land use categories.

 

Policy Intent

The intent of this policy is to balance Buncombe’s future economic development with its unique landscape and culture. Some objectives of this policy are to:

 

·         Capitalize on community assets to increase economic resilience and create economic opportunities. Community assets include Buncombe County’s local culture, history, agriculture, and natural resources and can include facilities like libraries.

 

·         Create connections between jurisdictions for economic development. An example would be the recreation-based economic activities like the Hellbender Trail that support and celebrate local resources.

 

·         Align economic development efforts with the interests of established communities, such as Leicester, Fairview, and Barnardsville. Where feasible, coordinate economic development efforts with small area plans to ensure commercial development is supporting the goals of each unique community.

 

·         Support development of Rural Centers as identified on the Growth, Equity, and Conservation Framework map to grow local rural commercial uses and support development of tourism uses (restaurants, local artisan shops, breweries, outdoor outfitters, etc.) that are scaled to fit the surrounding development context.

 

·         Support development of small businesses through the elimination of regulatory or land use barriers and for small scale manufacturing where appropriate.

 

Policy 5: Develop and implement strategies to maintain and strengthen the economic viability of agriculture and other components of the rural economy.

The preservation of lands that provide fertile soils for productive farmland or healthy forests are important to the County’s economy, including its tourism industry, jobs, sense of community, human health, natural environment, and water quality. Buncombe County will support economic development that is based on rural or agricultural opportunities.

 

Policy Intent

The intent of this policy is to capitalize on Buncombe County’s unique and abundant agricultural and rural community resources to contribute to its economic development goals. Some objectives of this policy are to:

 

·         Support and strengthen existing programs that are built to support local agricultural and rural resources.

 

·         Explore new opportunities, whether small scale or large scale, for economic development based on Buncombe County’s agricultural and rural resources.

 

·         Support farmers and other agricultural-dependent local businesses.

 

·         Align economic development projects or initiatives with the Growth, Equity, and Conservation Framework to conserve environmental lands and preserve rural communities and lands.

 

 

Policy 6: Plan for emerging and new manufacturing and industrial uses that minimize environmental impacts and support sustainability goals. Buncombe will prioritize economic development opportunities, especially those in the manufacturing and industrial sectors, which minimize harm to environmental systems and advance the County’s sustainability goals.

 

Policy Intent

Some objectives of this policy are to:

 

·         Encourage development of sustainability-oriented businesses in Mixed-Use Areas, and Walkable Destination Centers identified on the Growth, Equity, and Conservation Framework map.

 

·         Incentivize sustainability practices among new employers and businesses in the County.

 

·         Support re-purposing of existing structures for new manufacturing and industrial uses.

 

·         Discourage major polluting industries in order to support the health of residents.

 

Policy 7: Support high-quality educational opportunities. Buncombe will foster connections and establish partnerships to support high- quality education at all levels in the county.

 

Policy Intent

High levels of educational attainment that advance economic mobility and quality of education are priorities for the county. The intent of this policy is to align Comprehensive Plan Goals with education goals for Buncombe County. Some objectives of this policy are to:

 

·         Create opportunities for Buncombe County to work with Buncombe County Schools, Asheville City Schools, and A-B Tech to support sustainable and resilient school campuses over time.

 

·         Support school districts and their work to create equitable access to high-quality education and to address historic inequities.

 

·         Support capital needs that align with economic development goals like higher wages and diversification of industry through facilities that focus on STEM education, innovation, and advanced manufacturing. Accomplish this through partnerships with school districts, universities, and community or technical colleges.

 

·         Support statewide efforts to increase the number of high school seniors applying for postsecondary education through the “myFutureNC” program.

 

·         Support partner organizations such as A-B Tech and NCWorks Career Centers that provide job training and job readiness skills to support advancing economic mobility for historically disadvantaged populations.

 

·         Support efforts to advance early childhood education and support working parents, including pre- kindergarten and childcare services.

 

 

 

ACTIONS OVERVIEW

 

1.    Utilize the Growth, Equity, and Conservation Framework Map to guide land use decisions.

 

2.    Identify the available inventory of suitable sites and buildings within Buncombe for economic development.

 

3.    Implement place-based policies that make Buncombe’s economy more resilient and successful

 

4.    Support the economic advancement of historically disadvantaged communities

 

 

5.    Improve educational attainment and reduce education achievement gaps.

 

 

6.    Explore funding mechanisms to achieve economic development goals.

 

 

RELEVANT SUPPORTING DOCUMENTS

 

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

 

Land of Sky Comprehensive Economic  Development Strategy (2020)

Mountain Area Workforce Development  Local Area Plan*

Asheville Greater (2019)*

 

 

*Denotes technical report reviewed for general information but most do not contain policy guidance.

CHAPTER 06

Health & Recreation

 

 

Goal: Residents living within the County’s growth areas will have proximate access to natural recreation lands, greenways, trails, libraries, and/ or parks, and the County will prioritize access to historically disadvantaged communities.

 

Residents will have equitable access to services for mental health, substance abuse, and general healthcare that support improved health outcomes and the social determinants of health across the County. Buncombe County will promote development patterns that support aging in place and the health of all residents.

 

 

CONNECTION TO VISION THEMES

 

 

Strive to Achieve Equity

Buncombe County will also utilize physical planning mechanisms to promote the health and safety of all residents. Social determinants of health drive the majority of health outcomes and are influenced by environmental and socioeconomic factors. These policies aim to create more equitable conditions for all people at all stages of life in Buncombe County.

 

Commit to Sustainability

Many of this chapter’s policies are aligned with sustainability goals. For example, promoting more ways to walk and bikes to destinations in Buncombe County also contributes to reducing greenhouse gas emissions from car trips.

 

Achieve Livability & Affordability

The policies and actions described in this chapter will help Buncombe County achieve its goals of creating an equitable, livable, and community-oriented place. Access to recreation, the outdoors, and health-related facilities will promote livability and affordability in Buncombe.

 

Focus on Conservation

Buncombe County’s vision is to appreciate and celebrate its natural assets and natural beauty by providing public access to natural lands and top-quality recreation facilities.

 

Root Efforts in Community

Improved access to healthcare, social services, mental health services, and drug treatment care and services were high priorities identified during public engagement. Other health- related concerns were also identified, including opportunities to walk or bike close to home, access to recreation and the outdoors, and affordable housing options.

 

 

POLICIES

 

POLICY 1: Focus on improving recreational opportunities in underserved

areas. Buncombe County will focus on equitable recreation investments by filling geographic gaps in recreational opportunities for underserved areas of the county. This also includes improving opportunities for community connectivity in rural areas via greenways and trails.

 

Policy Intent

The intent of this policy is to recognize that residents in some areas of the county may not have the same level of public recreational services available to them as others, and some may have limited access or no access to public open space or green space. This may lead to health disparities between populations that can be measured and addressed.

 

Some objectives of this policy are to:

 

·         Address health disparities that may result from limited access to recreation facilities, services, or programming for residents that live furthest away from the City of Asheville and towns with existing facilities.

 

·         Maximize recreation investments by focusing on the highest need areas and places where targeted investments will yield significant benefits.

 

·         Use the Community Index Map to determine the areas of social need.

 

·         Additionally, the County should complete a level of service assessment to reveal which areas of the County are least served by public recreation facilities. The level of service assessment should be utilized to implement the location of new County facilities.

 

·         Strive to provide residents in established growth areas with access to natural recreation lands, greenways, trails, or parks within a 10-minute drive of their homes.

 

·         Explore options like pocket parks or splash pads to provide public open space or green space on a smaller scale in communities with the highest need.

 

·         Develop more recreational programs for youth from historically disadvantaged populations, specifically for outdoor recreation.

 

POLICY 2: Support equitable access to health services and healthy

lifestyle choices for residents. The County will improve the social determinants of health for all residents by evaluating inequities in the built environment that pose health challenges and identifying solutions that reverse health inequities.

 

Policy Intent

The intent of this policy is to recognize the importance of inequity and health disparities and to understand how the built and natural environment can improve these conditions. Access to health services, the ability to make healthy lifestyle choices, and rectifying environmental justice concerns are included in this policy.

 

Some objectives of this policy are to:

 

·         Provide equitable access to high-quality health services, including the transportation to reach these providers and their proximity to home and work locations.

 

·         Provide equitable access to safe and enjoyable forms of activity that improve mental and physical health, such as nature-based recreation.

 

·         Evaluate policies related to the built and natural environment that impact the social determinants of health.

·         Support local farms, other businesses that make up the local food system, and community gardens that offer healthy locally grown food choices to residents.

 

·         Develop an understanding of need: places that have been underserved in terms of health services, healthy lifestyle choices, and access to recreation, and communities that have faced environmental justice disparities. Take steps to improve the built and natural environment conditions in these communities.

 

·         Support policies and development that allow residents to age in place in Buncombe County.

 

POLICY 3: Merge recreational project goals with transportation and connectivity goals.

Ensure that expansion of the transportation system includes infrastructure for walking, biking, and other forms of non-motorized transportation to merge goals between recreation and transportation planning efforts.

 

Policy Intent

The intent of this policy is to realize the shared transportation, recreation, and health goals between County departments. The expansion and connectivity of greenways and trails throughout the county are a highly supported public priority revealed in the first public engagement period. These amenities can create connections across homes, recreation destinations, businesses, and communities and can also work towards meeting the County’s sustainability goals by reducing the number of trips taken in single-occupancy vehicles.

 

Some objectives of this policy are to:

 

·         Leverage County resources by merging planning efforts between departments for projects that can provide both transportation and active recreation options, such as the construction of connected greenways.

·         Work with NC DOT and the French Broad River Metropolitan Planning Organization (MPO) to determine opportunities to link these goals. This may include collaborating with the French Board River MPO to achieve the vision of the Hellbender Regional Trail.

 

·         Prioritize projects in areas that are high-ranking on the Community Index Map, to reveal areas with higher concentrations of households that do not have a vehicle to provide for non-motorized options.

 

·         Improve equity, sustainability, and livability in the county, and help to achieve health, recreation, transportation, and connectivity goals.

 

·         Coordinate recreational goals to transportation and connectivity plans of other municipalities.

 

POLICY 4: Explore expansion of accessibility for recreation facilities and programs.

Expand accessibility and inclusiveness in all existing recreation facilities and implement ADA standards where possible in future projects to reach more people and broaden facility-use demographics.

 

Policy Intent

The intent of this policy is to ensure that County recreation offerings are more inclusive, both for people with disabilities and for non-white populations who may have historically been excluded from programming. Federal lands surrounding the County such as Pisgah National Forest may provide popular passive recreation options for those who can access them. To increase their reach, the County can provide more equitable options which are welcoming to all and rooted in community needs.

 

Some objectives of this policy are to:

 

·         Make parks, greenways, and indoor recreation facilities more accessible, which will broaden the population of people who are able to use them and make the amenities provided by them more equitable.

 

·         Expand recreational programming to be more inclusive and welcoming of diverse populations, particularly youth from historically disadvantaged populations.

 

·         Increase the number of public recreation amenities that provide ADA-compliant features.

 

·         Improve the public perception and understanding of the accessibility of County recreation services through outreach and marketing.

 

POLICY 5: Utilize environmental protection and land conservation to expand passive nature-based recreation and promote health. The County should seek to create nature-based recreation opportunities (trails, greenways, blueways, etc.) as part of environmental protection and land conservation efforts. By providing nature-based recreation and protecting natural resources, the County will prioritize the health and well-being of residents.

 

Policy Intent

The intent of this policy is to conserve and celebrate the County’s unique natural assets while promoting recreation and health. The County’s focus on the conservation of its natural resources and water systems can be capitalized on to expand its recreational network with potentially large returns on small budget investments. Partnerships, both private-public and between public agencies, are very important in promoting this policy.

 

Some objectives of this policy are to:

 

·         Simultaneously achieve conservation, recreation, and health goals.

 

·         Utilize the County Land Conservation Advisory Board, which can recommend projects and conservation tools and provide funding, to achieve recreation goals.

·         Engage private conservation organizations such as land trusts to partner on conservation and nature and recreation-based projects. These partnerships could present low-cost options for the County. These organizations can leverage private funding for land conservation in the form of monetary donations and foundation grants that are unavailable to the County.

 

·         Expand landowner education programs that communicate the benefits, management considerations, legality, and process of land conservation and public access.

 

 

 

ACTIONS OVERVIEW

 

 

1.    Develop a County Parks and Recreation Master Plan.

 

2.    Update the Buncombe County Greenways and Trails Master Plan.

 

3.    Promote larger County parks as community hubs, especially in rural areas of the county that are lacking community gathering areas.

 

4.    Expand County recreation programming and events.

 

5.    Plan for and conduct adequate maintenance and upkeep of existing and new

 

6.    Develop a plan to proactively work with landowners to implement County recreational goals and expand private-public partnerships.

 

7.    Develop a plan to provide equitable access to health services and healthy

 

8.    Increase accessibility of healthy food sources to communities in need

 

 

 

 

RELEVANT SUPPORTING DOCUMENTS

 

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

 

Racial Equity Action Plan (2021)

Buncombe County Sustainability Plan  (2017)

Land of Sky Area Plan on Aging (2016) Buncombe County Strategic Plan (2020)

Buncombe County Greenways & Trails  Master Plan (2012)

 

CHAPTER 07

HAZARDS & RESILIENCE

 

 

Goal: In partnership with private landowners, Buncombe will protect important resources and assets (food, housing, businesses, energy systems) from the impacts of natural and human-made hazards. The County will manage existing and future environmental impacts by implementing green infrastructure and nature-based solutions.

 

Development will be limited in high hazard areas prone to floods, wildfires, and landslides. The County will be ready to respond to future events through enhanced emergency preparedness efforts and reduced response times of first responders.

 

 

CONNECTION TO VISION THEMES

 

 

Strive to Achieve Equity

Successful resilience and hazard mitigation actions also address inequities in the community, such affordable housing and the legacy of environmental injustice. Incorporating an equity lens into this process is an opportunity to identify priority projects that can both improve resilience and hazard mitigation with special attention on highly vulnerable populations.

 

Commit to Sustainability

Policies aimed at resilience also support sustainability, including improving access to renewable energy, and designing neighborhoods sustainably during new development, infill projects, and redevelopment.

 

Achieve Livability & Affordability

When considering growth and land use in the county, the risk of hazards will be considered in coordination with identifying developable areas. A more resilient Buncombe also means a livable and affordable place.

 

Focus on Conservation

Buncombe will also support conservation goals through addressing hazards and resilience, by protecting natural resources.

 

Root Efforts in Community

Buncombe residents are concerned about the increasing risk of hazards, such as flooding, landslides, and drought. The use of partnerships in capacity building can improve community resilience and preparedness and will also support Buncombe County’s vision for resilience efforts rooted in community.

 

 

POLICIES

 

POLICY 1: Manage existing and future environmental impacts by implementing green

infrastructure and nature-based solutions. Buncombe County will implement green infrastructure and nature- based projects that build resilience to multiple hazards, including flooding, wildfire, and landslides.

 

Policy Intent

The intent of this policy is to manage environmental impacts by implementing as much green infrastructure as feasible. Older engineered infrastructure can be retrofitted to include green infrastructure. This is not limited to stormwater infrastructure but also considers other climate-, development-, and growth- related impacts, such as green infrastructure solutions to urban heat islands. Some objectives of this policy are:

 

·         Instead of relying solely on “gray” engineered infrastructure options, Buncombe County can implement both green infrastructure and nature-based solutions as standalone solutions or in combination with gray infrastructure. These actions also have multiple benefits to both human and natural communities throughout the County and region.

 

·         The very young (younger than 5) and elderly (older than 65) populations are shown to have higher vulnerability to environmental impacts, such as heat waves. Areas within the County that score highly in this theme can be prioritized to address this vulnerability.

 

·         Green infrastructure and nature-based solutions can also perpetuate and/or exacerbate equity issues. For example, increased green space can result in neighborhood gentrification. Decision-making under this policy should be done carefully and guided by the community’s vision, aligned with the Policies and Actions of the Growth, Equity, and Conservation chapter.

 

·         Build staff capacity to adequately implement the hazard and resilience policies and actions in this plan.

 

 

POLICY 2: Align emergency response with the Regional Hazard Mitigation Plan and Hazard Vulnerability Assessment. Buncombe will leverage existing plans and assessments in the region to improve overall emergency response and target highly vulnerable areas to increase response capacity.

 

Policy Intent

The intent of this policy is to use available information to inform response planning efforts throughout the County that consider individual hazards and combined hazards. This policy should be coordinated with efforts to support the long-range sustainability of public services (see the Infrastructure and Energy chapter).

Some objectives of this policy are:

 

Address geographic-based disparities.

 

·         Understand where the most vulnerable populations are located and, therefore, should be considered a higher priority within response efforts.

 

·         Measure emergency response time for fire, EMT, and Paramedic at the department level and at the County level. This will increase the visibility of communities with disproportionate levels of service.

 

POLICY 3: Use the Hazards Vulnerability Assessment to guide future growth and land use decisions. Buncombe County will use existing hazard maps and the hazard vulnerability assessment to understand limits to growth and land use in specific areas. Buncombe will consider the influence that land use changes have on existing hazards and new challenges they will create, such as stress on transportation systems, water quality, and socioeconomic challenges.

 

Policy Intent

The intent of this policy is to recognize the interplay between the need for growth and conservation within the County. Some objectives of this policy are:

 

·         Recognize the need for integrating hazard assessments into County and regional planning.

 

·         Consider the crucial impacts of growth and land use changes on vulnerable populations, whether by the increased or altered hazard potential and additional socioeconomic burden of hazards.

 

·         Encourage maximizing development investments in low-risk hazard areas.

 

·         Evaluate geographic areas with higher scores on the Community Index Map that may coincide with both potentially developable areas and hazards within the County.

 

POLICY 4: Employ design standards to increase adaptive capacity and reduce exposure to hazards. Buncombe County will identify opportunities to revise and strengthen design standards—including building codes and the use of low-impact development and infrastructure improvements—to increase adaptive capacity to current and future hazards. This includes floodplain development ordinances, fuel management for wildfire, and the County’s Steep Slope High Elevation Overlay and Protected Ridge Overlay within the Buncombe County Zoning Ordinance.

 

Policy Intent

The intent of this policy is to recognize the need for strengthened ordinances and standards that better match the existing hazard vulnerabilities within the County and consider other goals of the Comprehensive Plan, such as the Growth, Equity, and Conservation chapter. The strengthening of design standards and ordinances is intended to increase the adaptive capacity of structures and reduce the exposure of individuals and communities to hazards.

 

Some objectives of this policy are to:

 

·         Identify types of structures that may typically be considered highly susceptible to hazards such as multi- family homes and manufactured homes.

 

·         Evaluate climate risks to buildings, structures, and support services, and develop defensible estimates of increased risks associated with changes in climate patterns for infrastructure in the floodplain.

 

·         Address the location and design of buildings and development. Using the Hazard Vulnerability Assessment, the locations of these types of properties and their vulnerability to hazards can be better understood and prioritized for action.

 

·         Collaborate with the State to identify appropriate methods to update local building codes to create more resilient developments.

 

 

POLICY 5: Invest in building capacity to ensure long-term community resilience and preparedness. Buncombe County will invest in growing the capacity to identify, assess, and implement actions for adaptation and building resilience. Buncombe County will implement policies to ensure people are prepared when disruptions and minimal disruptions occur to core services. Socially vulnerable populations and communities are most affected by disruptions caused by hazards; therefore, outreach and engagement are important aspects of preparedness.

 

Policy Intent

The intent of this policy is to recognize the need for partnerships and collaboration within County departments and between the County and other stakeholders to build capacity.

 

Some objectives of this policy are to:

 

·         Focus efforts on building capacity within neighborhoods where the overall Equity Opportunity score is high and hazard vulnerability is also high.

 

·         Address the need for resilient infrastructure that builds capacity, such as microgrids and emergency cell tower coverage for emergency services.

 

·         Build upon existing and create new partnerships with communities in Buncombe County already working on resilience hubs, including rural, low-income, and immigrant and historically disadvantaged communities.

 

·         Assess and learn about the threats to resilience on a community level to identify top priorities and encourage engagement in the creation of solutions

 

 

ACTIONS OVERVIEW

 

 

·         Implement green infrastructure & nature-based solutions.

 

·         Employ design standards to increase adaptive capacity and reduce exposure to hazards.

 

·         Build capacity for community resilience and preparedness.

 

·         Align emergency response with the Regional Hazard Mitigation Plan and Hazard Vulnerability Assessment.

 

·         Use Hazards Vulnerability Assessment to guide future growth and land use decisions.

 

 

 

RELEVANT SUPPORTING DOCUMENTS

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

 

Buncombe Madison Regional Hazard  Mitigation Plan (2021)

Mountain and Steep Slope Protection  Strategies (2008)*

 

*Denotes technical report reviewed for general information but most do not contain policy guidance.

 

CHAPTER 08

INFRASTRUCTURE & ENERGY

 

 

Goal: Buncombe County has committed to converting its internal operations (by 2030) and energy use of the entire Buncombe community (by 2042) to 100% renewable energy. Infrastructure will be expanded across the County to support renewable fuel vehicles, broadband access, and renewable energy use.

 

Rebuilding of aging infrastructure and decarbonizing utility structures to support these renewable energy targets will be prioritized. The County will coordinate with partner utilities to encourage development in growth areas and away from priority conservation areas and important water resources. Long range public facilities and services planning will ensure appropriate levels of service to support future growth and promote public safety.

 

 

CONNECTION TO VISION THEMES

 

 

Strive to Achieve Equity

All infrastructure and energy policies are designed with an equity lens. Critical services like broadband and cellular service can improve equity in access to education, jobs, and healthcare. Equity in public utility provision is also considered by encouraging consistent levels of service within suburban and rural areas.

 

Commit to Sustainability

Infrastructure and sustainability will be supported by advancing renewable energy goals for both County operations and for private sector developments.

 

Achieve Livability & Affordability

Improving infrastructure and energy systems are the foundation for enhancing livability and affordability for those who live and work in Buncombe. These natural and built systems include potable water and wastewater systems; telecommunications and broadband infrastructure; and energy systems fueled by natural gas/oil, nuclear, solar, hydropower, and other sources.

 

Focus on Conservation

Guiding development toward areas with adequate infrastructure and development potential will support the needs of communities and promote conservation in areas prioritized for environmental or agricultural protection.

 

Root Efforts in Community

Public input showed that Buncombe residents are interested in locating future development in areas that are served by infrastructure (public water, sewer, and broadband) and away from environmentally sensitive areas such as floodplains and steep slopes. Residents are also passionate about expanding energy efficiency in new construction and renewable energy resources across the County.

 

 

 

POLICIES

 

POLICY 1: Coordinate public water and wastewater services with plans for growth.

Buncombe County will incentivize and guide development toward areas with adequate infrastructure and development potential. To achieve this goal, the county will coordinate infrastructure planning with municipal and utility partners and utilize the Growth, Equity, and Conservation Framework as a guide.

 

Policy Intent

The intent of this policy is to collaborate with utility providers like Metropolitan Sewerage District (MSD), City of Asheville Water, and other municipal water providers (including utilities provided by Hendersonville) to prioritize water and wastewater investments toward desired growth areas and away from areas identified for conservation.

 

Some objectives of this policy are to:

 

·         Consider where water and sewer provision are feasible and supported by county and municipal growth plans. This high-level coordination will allow the county to balance sustainable development, health, and safety objectives with existing infrastructure and expansion plans.

 

·         Coordinate infrastructure improvements with the Policies and Actions of the Growth, Equity, and Conservation Framework to avoid accelerating displacement or having unintended negative consequences.

 

·         Coordinate joint planning in areas of common interest on the edges of municipalities.

 

POLICY 2: Plan for the long-term sustainability of public services. In order to provide for the health and safety of those who work and live in Buncombe County today and in the future, the county will measure, manage, and plan for the long-term sustainability of public services.

 

Policy Intent

Buncombe County provides public services to support the health and safety of all those who work, live, or visit the county. County- funded and county-managed public services encompass public safety, emergency services, stormwater management, and solid waste. Buncombe County provides public safety services from the Sheriff’s Office and emergency services such as emergency communications (911 call center), paramedic Emergency Medical Services (EMS), fire and life safety from the Fire Marshal’s Office, and disaster coordination in the Emergency Management Division. Solid waste services require overseeing landfill capacity and recycling and compost operations.

 

As the county continues to develop and change, it will need to provide exemplary and timely services in a manner that balances needs with available fiscal resources. As growth occurs, services like fire, EMS, and solid waste will encounter challenges in response and capacity.

 

Some objectives of this policy are to:

 

·         Coordinate services with planned growth to allow for the appropriate resources, personnel, and facilities to be established across the county. For example, an area that experiences a population increase will result in a higher emergency call volume, necessitating more ambulance bays and vehicles to respond.

 

·         Buncombe County’s solid waste landfill, located in Alexander, will reach capacity in approximately 20- 25 years. Solid waste expansion requirements will need to be considered, and sustainability efforts like composting and recycling could reduce solid waste outflows. Landfills rank as the third-largest source of methane emissions in the United States; promoting sustainable development practices and scaling up recycling and composting operations could divert more waste from landfills.

 

·         Supporting public services while managing growth will allow for a sustainable provision of health and safety in the county. Levels of service should align with the needs of the community based on population density. This will result in higher levels of service in the urban/ suburban areas, and a lower level of service in rural areas where residents and businesses are more dispersed. Criteria for these levels of service can provide parameters that trigger the need for public service expansions or improvements, such as building a new fire station when a certain area experiences population growth.

 

 

POLICY 3: Expand and support broadband access and cell phone service coverage for all residents of Buncombe County. The County will support the maintenance and expansion of broadband (high-speed internet access) and cell phone service coverage to enrich the livelihoods of all residents and businesses in Buncombe.

 

Policy Intent

Digital connectivity, including broadband access, internet, and cell phone service coverage, are vital for improving the quality of education in schools, supporting social and civic connections in communities, and providing high-quality and reliable health services. Improving connectivity is also important for addressing inequities in unserved or underserved communities.

 

While Buncombe County does not govern broadband access, there are opportunities for partnerships or funding that can be leveraged to expand access. The Land of Sky Regional Council’s “Buncombe County Broadband Community Profile” has identified concerns with broadband issues, specifically highlighting the digital inclusion or homework gap for students, public safety communications for emergency management teams, promoting technology-driven economic development, and providing high-quality and accessible healthcare and telehealth options.5 Buncombe County’s current ordinances can be changed to better facilitate cell service expansion. The County will seek to address these service needs for residents and businesses.

 

POLICY 4: Advance sustainability and decarbonization goals. The County will direct funding toward and implement decarbonization, energy efficiency, and renewable energy generation policies that support Buncombe County’s sustainability goals.

 

Policy Intent

Advancing decarbonization, energy efficiency, and sustainability in Buncombe County will support the public’s interests in building resilience and reducing its carbon footprint. Buncombe County has passed a resolution that sets a goal of reaching 100% renewable energy within County operations by 2030, and 100% use of renewable energy for the entire community by 2042.

 

The County, with the City of Asheville and other partners, is implementing measures to integrate solar power into municipal- owned facilities. The County is also working with the community to increase energy efficiency and build partnerships to increase renewable energy use. Incentivizing and supporting the development of other forms of sustainable energy sources (such as wind and solar) will allow for additional progress in this area. Investing in renewable energy infrastructure, such as green buildings and construction, electric vehicle charging, renewable fuels, and home and business energy retrofits can also support this policy. This policy should be coordinated with electric vehicle and renewable fuel actions detailed in the Transportation and Connectivity chapter.

 

 

ACTIONS OVERVIEW

 

 

1.    Partner with utility providers to coordinate growth and infrastructure plans.

 

2.    Implement policies around new development and re-development that advance decarbonization and sustainability goals.

 

3.    Develop a long-term planning process for solid waste operations that prioritizes sustainability.

 

4.    Develop an equitable capital improvement planning (CIP) process to manage and prepare for growth and maintenance of public facilities and infrastructure.

 

5.    Explore partnerships and identify barriers to address broadband access.

 

 

 

RELEVANT SUPPORTING DOCUMENTS

 

 

The plans and other documents listed below were used as reference and guidance in developing the policies and actions in this chapter.

 

Buncombe County Sustainability Plan  (2017)

 

Buncombe County Broadband Community  Profile (2019)*

 

Moving to 100 Percent: Renewable Energy  Transition Pathways Analysis for Buncombe County and the City of Asheville (2019)*

 

*Denotes technical report reviewed for general information but most do not contain policy guidance.

 

CHAPTER 09

IMPLEMENTATION

 

 

The true value of planning lies ultimately in the implementation of community-supported ideas. This chapter establishes the relationship between the Comprehensive Plan and the County’s other planning efforts, such as the Strategic Plan, that are instrumental in achieving Plan implementation. This chapter also sets out the specific Actions organized by chapter to fully implement the guidance of this Plan. It includes detailed information on the approaches for implementation to achieve the vision and goals of the community.

 

 

IMPLEMENTATION INTRODUCTION

 

This chapter establishes the relationship between the Comprehensive Plan and other County planning efforts, such as the Strategic Plan, that are instrumental in achieving Plan implementation. It details the Actions the County will take to implement the Plan’s Policies and achieve the Plan’s Vision Themes and Goals. Actions are organized by planning topic and their respective chapter.

 

 

Guided by Public Input

 

A concerted effort was made during the Buncombe 2043 planning process to continuously reflect on and incorporate input from community members of Buncombe County into the Plan. Throughout all four phases of the planning process, the Steering Committee, Planning Board, Board of Commissioners, and Project team carefully considered cumulative feedback from the community when making decisions about the Vision Themes, Goals, Policies, and Actions in this Plan. This chapter identifies priorities for implementation identified from public input and how the Actions can be coordinated with other Buncombe County efforts.

 

Linkage to the Strategic Plan

 

The Buncombe County Strategic Plan guides County operations and sets a course for implementing policies and actions through operations and budget decisions. The currently adopted Strategic Plan was developed in 2019 and adopted in May of 2020. The Strategic Plan 2025 vision is, “A caring community in harmony with its environment where residents succeed, thrive, and realize their potential” and the Strategic Plan Focus Areas include:

 

·         Educated and Capable Community

·         Environmental and Energy Stewardship

·         Resident Well Being

·         Vibrant Economy

 

To view departmental dashboards for the Strategic Plan or to read more about the planning process, visit: https://www.buncombecounty.org/governing/commissioners/ strategic-plan/default.aspx

 

The Buncombe County Strategic Plan 2020-2025 acknowledged the need for comprehensive planning and initiated the process for Buncombe 2043. The Strategic Plan is updated every five years and can support the implementation of the Buncombe 2043 Comprehensive Plan through several key implementation efforts: regulatory updates, capital investments, operational initiatives, and budget decisions.

 

Actions

 

The implementation matrices and corresponding actions are organized by Plan chapter.

 

The actions within these chapters are then organized by five categories of implementation, which are identified below:

 

1.    REGULATORY: Regulatory & Guideline Updates

 

2.    FUNDING: Capital Investments & Funding Programs

 

3.    PLANNING: Planning Efforts & Initiatives

 

4.    PARTNERSHIP: Partnership Opportunities

 

5.    DEVELOPMENT: Guidance for Development Approvals & Enforcement

 

 

 

UPDATING & AMENDING

 

The Buncombe 2043 Comprehensive Plan represents a long-term vision for the future. It is meant to guide policy decisions for Buncombe County over the next 20 years. The

Comprehensive Plan should remain a relevant, living document that continues to represent the priorities of the community over time. In order to accomplish this, the Plan should be regularly updated and amended.

 

In North Carolina, the municipal and county planning and zoning enabling statute (G.S. 160D) requires that local governments adopt a comprehensive plan or land use plan if they have an adopted zoning ordinance. Per the statute, these plans “set goals, policies, and programs intended to guide the present and future physical, social, and economic development of the jurisdiction” and these plans are to be “reasonably maintained” with occasional updates.

 

This statute also requires that zoning be “in accordance with a comprehensive plan” and that local governments make

statements of consistency when making rezoning decisions on a development application. If a local government approves a rezoning request that is not consistent with the comprehensive plan resulting in a zoning map amendment being adopted, and the action was deemed inconsistent with the adopted plan, the zoning amendment shall have the effect of also amending any future land-use map (e.g., the Growth, Equity, and Conservation Map) in the approved plan, and no additional request or application for a plan amendment shall be required per the statute.

 

The Buncombe County Commissioners and the Planning Board are responsible for adopting the Plan. Following adoption, it is good planning practice to review the Plan approximately every five years. Regular reviews can include monitoring changes to the Growth, Equity, and Conservation Map and prioritizing the recommended implementation actions from Buncombe 2043 with other processes, such as the Strategic Plan updates and capital improvement plans.

 

The GEC map should also be monitored to identify trends that may justify changes to the Plan’s policy direction and map guidance. It is recommended that Buncombe County establish specified pre-determined intervals (such as on an annual basis) for plan amendments to be presented to the Commissioners, resulting in the formal amendment of all inconsistencies that have been created through the rezoning process.

 

Who are the Buncombe County Commissioners?

The seven-member Board of County Commissioners is the governing body of Buncombe County. The Buncombe County Board of Commissioners serve staggered four-year terms through partisan elections. Commissioner Meetings take place on the first and third Tuesdays of each month.

 

To learn more about the Commissioners, visit the Buncombe County website: https://www.buncombecounty.org/commissioners

 

 

 

MONITORING & REPORTING

 

 

Monitoring and reporting on the Plan should be an ongoing process that includes status reports on Plan implementation to the public at regular intervals. It is good planning practice to report on implementation every two years and it is the intent that an implementation report will be delivered on a regular schedule to the Buncombe County Commissioners. This report will measure progress toward achieving the Plan’s goals and track performance metrics over time.

 

 

Performance Metrics

 

Performance metrics, shown in the table on the next page, are an important method of tracking the implementation of the priorities set out in the Buncombe 2043 Plan. Evaluating these performance metrics will provide a measurable way to understand how effectively the Plan is achieving the community’s desired outcomes.

 

The metrics were developed by Buncombe County staff with an emphasis on alignment with current County goal tracking, other initiatives, and strategic planning efforts. Asterisks denote the performance metrics that are already being tracked by Buncombe County, whether by Planning & Development, another department, or through a County-wide process.

 

PLANNING TOPIC	PERFORMANCE METRIC
GROWTH, EQUITY, AND CONSERVATION	Increase the number of ownership units and rental units affordable to households earning less than 80% Average Median Income (AMI).**
TRANSPORTATION AND CONNECTIVITY	Increase the number of linear feet of sidewalks, bike paths, and greenways.
FARMS, FORESTS, AND ENVIRONMENTAL PROTECTION	Increase the number of acres in permanent conservation status.*
ECONOMIC DEVELOPMENT, EDUCATION, AND JOBS	Increase the number of new jobs with earnings above $50,000.***
HEALTH AND RECREATION	Increase the percentage of the Buncombe County population that lives within three miles of recreation, greenways, trails, or parks.
HAZARDS AND RESILIENCE	Decrease allowable impervious surfaces on all newly developed lots.
INFRASTRUCTURE AND ENERGY	Increase in the number of renewable energy projects built in Buncombe County.
*Currently tracked by Buncombe County Planning & Development **Adopted metric for the Buncombe County Community Development Department ***Currently tracked by the Chamber of Commerce data

 

 

GROWTH, EQUITY, & CONSERVATION ACTIONS

 

 

ACTION 1

REGULATORY

Implement new development and re-development policies to promote desired land use patterns and designs and maximize the use of public infrastructure.

 

·         Confirm that the zoning ordinance allows for walkable, mixed-use, and higher-density development to occur in growth areas as defined by the Growth, Equity, and Conservation Map.

 

·         Evaluate regulatory barriers to infill, redevelopment, and adaptive reuse sites including parking, dimensional requirements, density, and access circulation standards. Consider providing flexibility for achieving these standards to support the redevelopment of underutilized sites.

 

·         Continue to develop standards and programs that incentivize affordable housing, cluster development, and green building techniques.

 

·         Assess underutilized properties for infill and redevelopment potential or County acquisition for public use of other goals, such as recreation.

 

·         Conduct an analysis of publicly owned parcels or parcels owned by nonprofits/ nongovernmental organizations to identify partners for collaborating on infill and redevelopment projects that are focused on providing affordable housing.

 

ACTION 2

FUNDING ~ PLANNING ~ PARTNERSHIP

Implement county-directed policies to support Equity Opportunity Areas.

 

·         Partner with residents and property owners in identified Equity Opportunity Areas to develop small area plans that identify specific threats that may lead to displacement and gentrification, community benefits that are needed to support the neighborhood, and solutions to support managed change that improves the quality of life for residents and businesses without displacing them.

 

·         As part of small area plans, consider the use of zoning tools to minimize the impacts of market changes or development. An example may include a manufactured housing overlay to protect existing affordable housing assets.

 

·         For Equity Opportunity Areas that are not formally organized, provide technical assistance to support capacity and leadership building. Partner with non-governmental organizations to support these efforts.

 

·         Explore financial and other governmental tools, such as land acquisition or land trust partnerships, to protect areas from displacement. Other tools may include cooperatives, operational incentives to landlords for maintaining affordable units, or deed restrictions to protect naturally occurring affordable housing.

 

·         Monitor change in Equity Opportunity Areas by developing metrics that signify change, such as property ownership changes or baseline changes resulting from updates to the Community Index Map.

 

·         When a development project requires a public hearing for a land use decision, explore a requirement for community meetings, particularly for Equity Opportunity Areas impacted by the development project.

 

ACTION 3

PLANNING

Implement equity-oriented housing policies that address historically disadvantaged groups and other neighborhoods at- risk of gentrification and displacement.

 

·         Review the County’s affordable housing strategy in light of changing housing needs to address household needs across all age groups, types of abilities, race/ethnicity, nationality or citizenship status, and income levels.

 

·         Provide historically disadvantaged populations with improved access to the following programs: Affordable Housing Services Program, affordable home repair, energy efficiency services, and property tax relief for low-income homeowners.

 

·         Consider the creation of strategies that address gaps in service when meeting the needs of the chronically homeless and those experiencing mental health conditions and potentially partnering with the City of Asheville to accomplish this.

 

ACTION 4

FUNDING ~ PLANNING ~ PARTNERSHIP

Expand and protect affordable and accessible housing choices.

 

·         Support a mix of housing types within growth areas to accommodate the projected demand for long-term rental and owner-occupied housing for Buncombe County and the expected continuation of demand for smaller housing units identified in the 2021 Bowen National Research’s Housing Needs Assessment.

 

·         Request the Affordable Housing Committee to review the recommendations of the Ad Hoc Reappraisal Committee and Reparations Commission to analyze housing affordability and accessibility options. This may also include coordination with economic development initiatives to understand middle-income housing needs of targeted industries.

 

·         Consider opportunities for regional coordination and partnership for the development of affordable housing. This can include a housing land trust model and other affordable housing partners.

 

·         Evaluate and implement strategies to protect and enhance manufactured housing parks that function as naturally occurring affordable housing, including a zoning overlay that protects these units.

 

·         Research and evaluate other funding models and incentives to support the construction or maintenance of affordable housing.

 

·         Consider evaluating County-owned lands for the development of affordable housing. Asheville is one model for this approach.

 

 

·         Consider other zoning tools, such as voluntary inclusionary zoning, which incentivize a developer to generate permanently affordable housing units by allowing for higher density development and a higher dwelling unit yield than allowed under the base zoning.

 

·         Consider allowing every residential lot in every zoning district to have at least two homes provided the lot or parcel has adequate infrastructure.

 

·         Consider incentivizing the development of affordable housing units as part of commercial developments through reductions or waivers of development standards or fees. This could come in the form of live/work units or apartments built on top of ground floor commercial uses.

 

ACTION 5

REGULATORY

Implement regulatory actions to promote the Growth, Equity, and Conservation Goal.

 

·         Where water and sewer utilities are available or feasible to implement, evaluate and change zoning ordinances to encourage a variety of housing types and the highest density units per acre as appropriate within each growth area category identified on the Growth, Equity, and Conservation Framework map.

 

·         Consider the development and adoption of conditional zoning that can result in development approaches tailored to support site conditions, site context, and the goals and policies of the Comprehensive Plan, the County’s Strategic Plan, and future small area plans.

 

·         In tandem with consideration to implement a Conditional Zoning option, the County should formalize an exactions table/matrix in order to mitigate development impacts as well as to assure that County goals are fulfilled if applicable.

 

·         Improve the existing Community-Oriented Development option in the Zoning Ordinance to incentivize sustainable, resilient, and affordable housing developments. The point system could be improved to support increases in density, waiving of certain fees, or a reduction of development standards in trade for the development earning points through specific design concepts discussed below. Ongoing management of these systems would need to be defined

·         for each project. In addition to these being voluntary, the County could consider requiring some or all of the following provisions. Additional components could include:

o   Electric vehicle infrastructure;

o   Creation of needed community benefits as identified in small area plans;

o   Water and energy efficient features and designs; and

o   Other sustainable development approaches.

 

·         It is recommended to maintain the following categories currently in the ordinance:

o   Community: Affordable housing, workforce housing, period of affordability, accessibility, and Safe Routes to School

o   Environment/Transit: Conserve riparian buffers and wetlands, conserve open space, promote low impact development (LID), utilize best management practices and the exclusion of development inside special flood hazard areas and steep slopes greater than 25%, encourage participation in Energystar program, alternative energy sources, rainwater and greywater collection, proximity to public transit routes, and construction of roads built to NCDOT standards and dedicated to NCDOT

o   Economy: Mixed use housing, mixed use development (residential and non-residential), preservation of active farmland, and community building

o   Added Amenities: Provision of community facilities, non-motorized passive recreation, street trees, sidewalks, and greenway connections.

 

·         Evaluate and implement available tools to halt the loss of year-round housing to short-term rentals, including defining short- term rentals as a distinct and specific use in the ordinance; restricting short-term rentals to certain zoning districts; and establishing use-specific standards for parking, limits on large events, trash management standards, insurance requirements, safety requirements, and other standards supported by the State Statute. The County could also consider requiring the registration of units with prior violations that meet the criteria of G.S. 160D-1207.8

 

·         Implement development regulations that are a disincentive to development in the floodplain or on steep slopes, in accordance with the Hazards and Resilience chapter.

 

·         Conduct an audit of development regulations to determine changes that would support sustainable growth patterns in growth areas, partnering with local agencies and organizations as needed.

 

·         Encourage small-scale density by crafting a cottage development option to allow for denser residential development on infill lots as a use by right.

 

·         Support the development of affordable housing through the following development code adjustments for projects that construct a certain threshold of deed-restricted affordable housing units:

o   Reduced parking requirements

o   Reduced lot sizes (reduction of side yard setbacks for flexibility for smaller lots)

o   Increased density through community-oriented development process

o   By-right zoning for missing middle housing (duplexes/townhomes/tri/quadplexes) reducing the need for the conditional zoning process for these unit types

 

·         Update development regulations to remove any regulatory barriers to uses such as urban agriculture and community gardens.

 

·         Review the county’s zoning definitions for “family” and “household” to ensure the code allows for a wide range of living arrangements.

 

·         Consider process changes to make development review more transparent, clear, and efficient, such as procedural changes to timeline requirements to ensure decision-makers have adequate time to review all development proposal documents submitted.

 

·         Create partnerships with developers and other organizations to educate county stakeholders and develop a clear understanding and transparency of the development process. The Charlotte Citizens Academy is one model to consider.

 

ACTION 6

FUNDING ~ PLANNING

Support the protection of agricultural and forest lands, environmentally sensitive areas, and rural communities.

 

·         Determine a goal for the maximum decrease in acreage available for farmland and track viable farmland properties over time.

 

·         Continue to utilize Buncombe County’s Farmland Preservation Ordinance. Explore ways to update and enhance the ordinance, which was originally adopted in 1989.

 

·         Promote and increase the use of zoning provisions that encourage responsible development and conservation of environmentally sensitive land, including the Community Oriented Development program, Conservation Subdivisions, and Alternative Path Hillside Development.

 

·         Explore enhancing land conservation programs including funding of private conservation easements to protect rural and agricultural lands.

 

·         Explore ways to increase the success of Buncombe County’s conservation development subdivision option, including new incentives for developers to work with the County to increase density and conserve more land within developable tracts.

 

ACTION 7

PARTNERSHIP ~ PLANNING

Coordinate information sharing and joint decision-making with neighboring jurisdictions.

 

·         Establish an Assembly of Governments or utilize the Land of Sky/Southwest Commission to convene neighboring jurisdictions. Organize quarterly meetings for the purpose of coordinating planning efforts of common interest, such as the development of schools, development proposals on the edges of jurisdictional boundaries, and coordinating utility expansion plans.

 

·         In accordance with the Infrastructure and Energy chapter policies, develop an agreement with MSD to identify the boundary of its future sewer service area.

 

·         In the long term, work to establish jointly developed and adopted small area plans by coordinating with jurisdictions and local authorities, such as MSD, especially in the identified growth areas denoted on the Growth, Equity, and Conservation Framework map.

 

·         Establish Courtesy Review and Information Sharing protocols in growth areas surrounding the municipalities to support inter-jurisdictional coordination for development projects of common interest.

 

ACTION 8

PARTNERSHIP ~ DEVELOPMENT ~ REGULATORY

Develop new tools to protect steep slopes.

 

·         Utilize new and updated tools or technology to make evidence-based decisions, such as the NC Geological Survey Landslide Hazard Mapping program.

 

·         Collaborate and coordinate with the National Park Service to evaluate historic viewshed protection opportunities along the section of Blue Ridge Parkway that passes through Buncombe County. (See also the Farms, Forests, and Environmental Conservation chapter.)

 

·         Analyze and evaluate expansion of the Steep Slope/High Elevation Overlay to provide greater protection for steep slopes and elevation areas.

 

·         Enhance current slope and soil evaluation requirements for lots containing steep slopes, to limit slope disturbance and encourage avoidance of landslide-prone soils.

 

·         Create illustrations to support and clarify the zoning ordinances for the Steep Slope/High Elevation and Protected Ridge Overlay.

 

·         Create and carry out continuing education regarding the steep slope/high elevation and protected ridge overlay for the development community.

 

·         Consider development standards that are more stringent to reduce ridgetop development in Buncombe County.

 

·         Evaluate the height, disturbance, and impervious surface limitations within the Protected Ridge Overlay and Steep Slope/High Elevation Overlay and enhance standards as feasible.

 

·         Develop minimum standards for geotechnical reporting including global stability analysis for Protected Ridges and for Steep/High Elevation Slopes. A standard of care should be developed for geotechnical reports to ensure consistency among all professionals, developers, and Buncombe County.

 

·         Revise, reorganize and consolidate the steep slope regulations and add other metrics beyond elevation and slope, such as reducing density, land disturbance, and further limiting tree removal.

 

 

 

ACTION 9

PLANNING

Inventory and encourage protection of cultural and historic resources.

 

·         Inventory and document culturally significant and historic properties and structures within unincorporated Buncombe County. Provide technical assistance to private landowners to support the preservation efforts of these special sites and buildings.

 

 

 

FARMS, FORESTS, & ENVIRONMENTAL CONSERVATION ACTIONS

 

 

ACTION 1

FUNDING

Explore opportunities to increase funding for conservation, environmental enhancement, and restoration projects.

 

·         Maintain the current County budget for conservation projects and evaluate the increase of the county budget for conservation easements. There are a considerable number of landowners interested in purchased easements, but there is a lack of funding to implement the County’s conservation goals.

 

·         Explore ways for the County to leverage conservation investment using private funding by partnering with local land trusts, which can accept monetary and land donations and cover closing costs for some projects.

 

·         Increase incentives to increase donation of easements versus purchased easements, which would greatly increase the speed at which land is conserved.

 

·         Explore mechanisms to accept private funding for conservation.

 

·         Utilize the U.S. Department of Agriculture (USDA) and North Carolina Department of Agriculture & Consumer Services (NCDA&CS) grant funding programs for conservation projects and explore other grant opportunities.

 

·         Evaluate and implement stream restoration projects to improve water quality of impaired streams. This may require coordination with other County departments, securing external grant funding, and the implementation of pilot projects.

 

ACTION 2

REGULATORY ~ FUNDING ~ PARTNERSHIP

Implement recommendations aligned with the Buncombe County Farmland Protection Plan.

 

·         Continue to support farmland protection through existing policies including present-use value (PUV) taxation, voluntary agriculture districts (VAD), and enhanced voluntary agriculture districts (EVAD).

 

·         Promote and implement outreach and education on land taxation, estate planning, farm-transition planning, conservation easements, and development planning.

 

·         Bolster funding for conservation easements.

o   Increase county-level funding to support transaction costs for the purchase of conservation easements.

o   Leverage county funding for conservation easements and other projects in partnership with state, federal, and private resources.

 

·         Design and implement outreach programs, such as the Farm Heritage Trail to educate and inform visitors, new residents, and residents living in urban areas of the importance of farmland to the region’s culture, identity, and quality of life.

 

·         Support marketing and production training and facilitate greater diversity in agricultural enterprises.

 

·         Continue promotion of best management practices for conservation of land and natural resources.

 

·         Strengthen support for agricultural economic development and supporting programs.

 

·         Promote Buncombe County’s working lands for their value to tourism and the local economy. Explore partnership opportunities with the County Tourism Development Authority (TDA).

 

ACTION 3

PLANNING ~ FUNDING

Continue efforts to meet the conservation of 20% of the county’s total acres by 2030.

 

·         To prioritize regions and communities for farmland preservation, use the criteria established by Buncombe County Soil and Water Conservation District staff to identify priority communities and regions within the county:

 

o   Proximity to protected lands

o   Soil Classification – prioritize prime agricultural soils

o   Parcel size

o   Proximity to Voluntary Ag Districts (VAD) and Enhanced VAD (EVAD)

o   Present-use value (PUV) taxation status

o   Watershed protection

 

·         Focus available conservation funding on the highest priority lands first.

 

·         Establish and augment conservation easements.

 

o   Partner with private conservation organizations such as local land trusts for landowner outreach and establish conservation agreements that have mutual benefits to the County and the organization.

 

o   Partner with other public agencies such as the National Forest Service, National Park Service (Blue Ridge Parkway), the U.S. Department of Agriculture (USDA), and the municipalities within the county for landowner outreach and establish conservation agreements that have mutual benefits to the public entities.

 

·         Work with the National Park to develop guidelines for Buncombe County to assess and protect the viewshed along the Blue Ridge Parkway in Buncombe County. Some examples of this could include:

 

o   A County zoning overlay that limits development within the established Parkway viewshed. Impacts to potential economic development sites should be considered and evaluated when using this strategy.

o   Design guidelines that avoid or minimize impacts to the viewshed, such as roof material and color selection, building height limits, and vegetative screening standards.

 

·         Prioritize environmental conservation of other natural lands (such as intact forest lands, wetlands, and other unique habitats) to protect and increase the capacity to sustain the county’s existing biodiversity.

 

o   Utilize existing data to inform priorities, such as NC Natural Heritage data, and planning efforts, such as the Land of Sky Regional Council’s Linking Lands and Communities Project, which identify intact landscapes with the highest ecological value.

 

·         Prioritize the conservation of physical connections between natural landscapes to avoid fragmentation of large forest blocks in order to benefit wildlife migration.

 

·         Utilize the County Land Conservation Advisory Board and Agriculture Advisory Board to make informed decisions on how funding and conservation tools should be allocated for projects.

 

·         Maintain a County-managed database of all permanently conserved lands within the county; make this data available to local conservation organizations and the public, where appropriate.

 

 

 

TRANSPORTATION & CONNECTIVITY ACTIONS

 

 

Action 1

PLANNING

Complete the Buncombe County Multimodal Plan.

 

Complete actions related to the road network.

 

·         Develop a Buncombe County Complete Streets Policy to promote complete street development in appropriate locations throughout the county. Rural roadways on the edges of the county may not be priorities for complete street designs.

 

·         Develop a standards and specifications manual to improve roadway development throughout the county that includes improved pedestrian, bicycle, transit, and other access standards.

 

·         Evaluate future capacity of the road network and identify needed projects to support mobility and connectivity.

 

·         Develop a priority evaluation process to identify and advocate for priority multimodal capacity projects. Prioritize and incentivize transportation projects that advance opportunity, such as economic development expansion, improved access to education, jobs, and services, or greater accessibility for people with disabilities, the aging population, children, or others who cannot or choose not to drive.

 

·         Develop modern street cross-sections that support the character of different areas of the county as guided by the Growth, Equity, and Conservation Framework Map.

 

·         Facilitate the cultural shift from single-occupancy vehicles to multimodal transportation through outreach and education campaigns that share the benefits of mode shift, such as personal cost savings, market preference for walkable/bikeable communities, the link between transportation and climate change, and between health and transportation.

 

Complete actions related to bicycling and micro-mobility.

 

·         Work with partners, such as NCDOT, the development community, and other municipalities to identify opportunities to build a continuous bicycling network that promotes safe and comfortable bicycle travel.

 

·         Incorporate bicycle parking requirements and standards into Buncombe County’s Zoning Ordinance.

 

·         Strengthen support for bicycle safety and education programs in collaboration with community partners such as the French Broad River Metropolitan Planning Organization’s (FBRMPO) Transportation Demand Management programming, Asheville on Bikes, or the Blue Ridge Bike Club.

 

·         Allow for and encourage the use of micro-mobility options in growth areas of the County.

 

·         Continue to advocate for changes in state policy which could include more investment in bicycling, micro-mobility, transit, and pedestrian investments.

 

Complete actions related to transit.

 

·         Support transit-oriented development in Buncombe’s edge areas near municipalities as identified on the Growth, Equity, and Conservation Framework map.

 

·         Continue to support transit service in Buncombe County by supporting Mountain Mobility’s varying services, including the Trailblazer lines that serve the urban areas of the County.

 

·         Continue to identify and evaluate strategies to expand Mountain Mobility’s capacity to provide frequent and reliable service for rural residents. Target specific eligible participants and geographically proximate service areas for Mountain Mobility.

 

·         Lead regional transit discussions to identify transit opportunities that link neighboring counties. Based on data provided in the French Broad River MPO’s Regional Transit Feasibility Study, focus initially on coordination with Henderson, Madison, and Haywood counties.

 

·         Explore the feasibility of linking the City of Asheville bus system with other transit opportunities in Buncombe County.

 

·         Develop context-appropriate requirements and design standards for transit stops in the County.

 

·         Increase ridership through community outreach campaigns and marketing.

 

·         Evaluate demand or feasibility of other options, like Park and Ride stations and metro or light rail, in the future.

 

·         Evaluate options for decreasing the cost and increasing the implementation of bus shelters and covered stops, especially in underserved or rural areas.

 

 

ACTION 2

PARTNERSHIP

Partner with other local, regional, and federal organizations and agencies to support a balanced transportation network.

 

Increase coordination efforts.

 

·         Engage in deliberate collaboration with the French Broad River MPO and NCDOT to incorporate Buncombe County’s comprehensive plan vision in transportation project planning, scoping, design, funding, and construction. This includes identifying strategies that integrate Buncombe County’s preferred land development pattern in NCDOT’s long- and short-range projects.

 

·         Form a Buncombe County Transportation Coordinating Committee as a working group with representatives from Buncombe County Planning, other departments, FBRMPO, NCDOT, the City of Asheville, and other municipalities. For example, Henderson County has a local Transportation Coordinating Committee (TCC) to collaborate on Henderson County’s transportation concerns.

 

·         Engage in early communication with NCDOT to identify opportunities for pedestrian improvements that can be incorporated with planned resurfacing projects.

 

·         Collaborate with NCDOT to meet infrastructure and energy goals by providing greenhouse gas (GHG) analyses to the County Commission on NCDOT projects. The GHG analysis should demonstrate the travel impacts of their transportation plans using travel demand models, with a subsequent GHG analysis of these plans through EPA’s Motor Vehicle Emission Simulator.

 

Increase coordination on planned projects.

 

·         Monitor NCDOT’s Highway Maintenance Improvement Program (HMIP) to work with NCDOT to consider and incorporate roadway improvements for all modes at the time of roadway resurfacing. Form a Buncombe County Transportation Coordinating Committee as a working group with representatives from Buncombe County Planning, other departments, FBRMPO, NCDOT, the City of Asheville, and other municipalities. For example, Henderson County has a local Transportation Coordinating Committee (TCC) to collaborate on Henderson County’s transportation concerns.

 

·         Work with NCDOT to encourage the repair, maintenance, and improvement of existing roads over the construction of new, and widening of, existing roads in growth areas defined by the Growth, Equity, and Conservation Framework map. For example, focus on spot improvements and intersection modifications to manage congestion prior to considering corridor-long, multi- lane widening projects.

 

Coordinate to increase roadway safety for all users.

 

·         Work with NCDOT to implement suitable traffic calming measures on streets in Buncombe County’s urban and suburban areas. “Traffic calming” is an important strategy to slow down traffic to the desired speed on selected streets. A variety of traffic calming treatments can be used to reduce speeds and encourage mode shifts.

 

·         Work with NCDOT and others to identify and audit safety issues for all types of users, and prioritize safety improvements near schools, parks, and areas/corridors where crashes are prevalent.

 

·         Work with NCDOT to improve pedestrian crossings on NCDOT-maintained roads through planned roadway projects and identify opportunities to improve crossings during land development projects.

 

Begin to incorporate Travel Demand Management (TDM) strategies.

 

·         Actively support and participate in the French Broad River MPO’S TDM efforts.

 

·         Create partnerships and/or incentives to encourage employers to support travel demand management systems or provide transportation to employers.

 

ACTION 3

FUNDING ~ PLANNING

Develop Buncombe County’s internal capacity and policies that support a balanced transportation network.

 

·         Consider establishing a Capital Projects Division to establish the capacity to accept, construct, and maintain sidewalks, trails, and greenways.

 

·         Fund transportation improvements through a locally dedicated source and identify and actively seek non-County revenue sources (Federal, State, and private) to supplement County funding of the transportation network.

 

·         Revise and strengthen the County’s sidewalk/greenway acceptance policies to ensure that only high-quality sidewalks/greenways are accepted.

 

·         Conduct outreach and education campaigns to share Buncombe’s multimodal transportation network focus with the development community.

 

·         Evaluate and revise the County’s development ordinance standards to maximize network connectivity in private development projects (e.g., standards to address cross-parcel connectivity).

 

·         Evaluate and plan for the connection of existing sidewalk segments, especially in former ETJs and in areas targeted for small area planning.

 

·         Market trail and greenway projects as commuting options.

 

ACTION 4

PLANNING ~ REGULATORY

Coordinate land development and transportation policies to manage the impacts of growth and congestion.

 

·         Audit the County’s development ordinance standards and develop policies to further promote development/redevelopment in areas supported by the Growth, Equity, and Conservation Framework map that:

 

o   Have access to utility and transportation infrastructure.

o   Support higher-density residential development near job centers and amenities.

o   Result in development patterns where new homes are within walking distance of parks, schools, jobs, and services.

o   Create quality pedestrian facilities that are ADA compliant to the maximum extent feasible and follow the most current national standards and guidelines.

o   Support the development of walkable communities by requiring the development of sidewalks or other pedestrian facilities as part of new developments.

 

·         Use future small area plans as an opportunity to create detailed planning of roadway, transit, bike, and pedestrian facilities, and transportation needs to support community stabilization and protection in areas where gentrification and displacement are a concern, particularly for Equity Opportunity Areas identified on the Growth, Equity, and Conservation Framework map.

 

·         Establish transportation facility design standards for different land use contexts (e.g., mixed- use developments, suburban neighborhoods, rural centers, conservation areas) as designated in the Growth, Equity, and Conservation Framework map and future small area plans. These facility design standards should consider the intended character of the area, safety, system preservation, opportunities for multimodal travel, economic development/community access, congestion management, stormwater management needs, environmental and cultural impacts, and other factors.

 

·         Consider implementing a Buncombe County Government Transportation Demand Management Pilot Program for Buncombe County workers who live/work in areas served by transit or in areas where walking and biking to work is feasible. Consider staggered work hours, free bus passes, and incentives to encourage commuting by modes other than SOVs.

 

·         Focus pedestrian investments in the following areas: near schools and parks, areas where pedestrian investment supports vibrant, walkable community centers with essential services (such as grocery stores and other uses that provide daily service needs), and locations with a history of attention to safety concerns.

 

·         Consider existing and expected future development patterns when assigning facilities for people who walk and bike. For example, in low-speed, low-volume areas, cars, bikes, and pedestrians may be able to share the road. In other areas, such as municipal edges, a higher level of pedestrian infrastructure is needed for greater pedestrian safety.

 

Action 5

REGULATORY

Enhance the County’s Traffic Impact Study Standards.

 

·         Strengthen overall Traffic Impact Study standards and criteria and require that transportation impact analysis reports and other traffic studies address a project’s potential to encourage mode shift.

 

 

 

ECONOMIC DEVELOPMENT, EDUCATION, & JOBS ACTIONS

 

 

ACTION 1

PLANNING ~ REGULATORY ~ DEVELOPMENT

Utilize the Growth, Equity, and Conservation Framework Map to guide land use decisions.

 

Coordinate economic development activities with the development of

communities that provide a full range of services and amenities to residents.

 

·         Use the Community Index Map to identify areas that could benefit from economic development projects while protecting neighborhoods from change or displacement, in accordance with the policies of the Growth, Equity, and Conservation chapter.

 

·         Encourage businesses to be accessible by walking, biking, or supporting access to public transit in accordance with the policies of the Transportation and Connectivity chapter.

 

·         Adopt land use regulations to allow for the development of larger economic development projects over several years and update the development regulations to allow for the use of development agreements.

 

·         Consider raising thresholds for Planned Unit Developments (PUDs) in commercial and manufacturing areas.

 

·         Create a “floating zone” that allows for flexibility in siting and sizes of major facilities while retaining important development standards. Floating zones are not defined on the County’s Zoning Map but instead are zoning districts that development applicants can request through rezoning to apply to their parcel.

 

·         Allow Planning staff to approve minor modifications, as allowed by statute, for any project. Adjust the development procedures in the County’s ordinances to set these thresholds for administrative approvals.

 

·         In tandem with consideration to implement a Conditional Zoning option, the County should formalize an exactions table/matrix in order to mitigate development impacts as well as to assure that County goals are fulfilled if applicable.

 

ACTION 2

PARTNERSHIP ~ PLANNING

Identify the available inventory of suitable sites and buildings within Buncombe for economic development.

 

The AVL 5X5 Plan recommends the following actions:

 

·         Build a real-time inventory of all land suitable for future economic development in alignment with the goals of the comprehensive plan and the Growth, Equity, and Conservation Framework map.

 

·         Partner with stakeholders to undertake a comprehensive study of lands in the county and identify the top 10 most promising sites for future industrial development and/or commerce parks to attract employers of targeted industries.

 

·         Partner with stakeholders of Buncombe County and Asheville to undertake a study of urban and riverfront lands and identify the top five most promising sites for infill, redevelopment, or new development necessary to attract employers.

 

·         Using the Guidance of the Growth, Equity, and Conservation Framework map, work with private development partners to bring new sites to market that have promising transportation access, proximity to current and future economic corridors, have a robust utility service, labor draw, community synergies, etc.

 

ACTION 3

PLANNING ~ PARTNERSHIP

Implement place-based policies that make Buncombe’s economy more resilient and successful.

 

·         Create an inventory that identifies Buncombe’s cultural, historic, community, and environmental assets.

 

·         Create partnerships with local organizations, community members, and business owners to understand current risks in the local economy.

 

·         Educate local business owners on pre-disaster preparedness and post-disaster recovery plans to make their businesses more resilient.

 

·         Establish permanent farmer’s market locations to promote food access and support agricultural businesses year-round.

 

·         Establish training programs that build the capacity of farm businesses through market development like the Blue Ridge Food Ventures through A-B Tech.

 

·         Establish liquor-by-the-drink for unincorporated Buncombe County to help small businesses located there to compete.

 

·         Support the creation of place-based community gathering destinations at Walkable Destination Centers, Mixed Use Areas, and Rural Centers identified on the Growth, Equity, and Conservation Framework map.

 

·         Educate local business owners on pre-disaster preparedness and post-disaster recovery plans to make their businesses more resilient.

 

ACTION 4

PARTNERSHIP

Support the economic advancement of historically disadvantaged communities.

 

·         Implement economic development policies and establish partnerships that integrate the recommendations from the Racial Equity Action Plan or other equity plans as developed. Examples from the Racial Equity Action Plan include:

 

o   Expand Black business ownership in the community.

o   Support workforce development initiatives that address the earnings and wealth gap.

o   Strengthen educational partnerships to reduce college and career readiness gaps.

 

·         Improve economic advancement by fostering partnerships between Buncombe County departments and organizations whose goals include education, job training or workforce development improvement initiatives, in accordance with the AVL 5X5 plan. Examples from the AVL 5X5 Plan include:

 

o   Develop programs for registered apprenticeships and youth apprenticeships.

o   Strengthen and expand work-based learning opportunities for high school, community college and regional university students for exposure to sustainable local employment.

o   Establish a robust re-skilling system for middle-skill jobs that leverage the customized training capabilities of the North Carolina Community College System and others.

o   Implement strategic investment in curriculum and certifications responding to the State of our Workforce Study (2018) and Target Cluster Gap Analysis (2019) developed by Riverbird Research.

o   Establish a purpose-built community pilot program to increase workforce participation of housing authority residents.

 

·         Work/invest in the capacity-building of non-governmental organizations (NGO’s) led by historically disadvantaged populations to build economic opportunity through business development, technical assistance, apprenticeship and job training, and affordable housing.

 

·         Support local businesses owned by historically disadvantaged populations through the following:

 

o   Create a “Buy Local” program to support MBE/WBE businesses to create resilience and sustainability of local supply chains.

o   Create a working data base which can track financial expenditures with MBE/WBE firms by Buncombe County.

o   Expand scale/capabilities of businesses owned by historically disadvantaged populations by contracting with competent, outcomes-based NGO’s which provide technical assistance and training to local MBE firms. Track these non-profits which compete for County tax dollars and provide technical assistance to firms which are owned/operated by MBE firms.

o   Work with Asheville and large local/regional anchor institutions to create a Minority Supplier Development Council for WNC to develop the scale and capacity of MBE firms. Use Carolinas/Virginia Supplier Development Council as model.

o   Explore the use of “community benefits agreements” to fund investments in historically disadvantaged communities. Investments could include early childhood development, home repair, weatherization, and affordable housing.

 

ACTION 5

PARTNERSHIP

Improve educational attainment and reduce education achievement gaps.

 

·         Support the school districts in creating developmental programs that increase graduation rates.

 

·         Expand enrollment opportunities and participation in early childhood education. Explore public/private partnerships to build centers to expand early childhood education enrollment opportunities.

 

o   Partner with Buncombe County Schools and Asheville City Schools to determine if there are facilities needed to address historic inequities in education.

 

ACTION 6

FUNDING

Explore funding mechanisms to achieve economic development goals.

 

·         Explore tools (like special assessments) to fund improvements or expansion of utility infrastructure, transportation (roads, sidewalks), community institutions (early childhood daycare centers), and infrastructure related to affordable housing.

 

·         Dedicate funding based on the evaluation of these tools.

 

HEALTH & RECREATION ACTIONS

 

 

ACTION 1

PLANNING ~ PARTNERSHIP

Develop a County Parks and Recreation Master Plan.

 

·         Explore opportunities for new types of County recreational programs and facilities, such as facilities for sports or active group activities and/or passive recreation previously not offered in the county, by analyzing national trends and creating implementation goals. This may include evaluating underutilized sports facilities for adaptation to other recreational uses.

 

·         Analyze geographic and programming gaps throughout the county.

 

·         Utilize the Community Index Map, as well as existing County assessments, to determine locations with the greatest social need for new recreation facilities. This should focus on recreational opportunities for youth from historically disadvantaged populations to improve health and wellness outcomes.

 

·         Invest in the access to and management of natural open space.

 

·         Audit and assess the condition of existing County recreation facilities using the Parks and Recreation Assessment to determine opportunities to expand offerings and improve safety and accessibility.

 

·         Assess unused County-owned land to determine its suitability to create recreation projects that will provide more equitable offerings in underserved areas.

 

·         Plan for and implement the construction of a County-managed indoor recreation facility.

 

·         Ensure that any recommended implementation steps are both equitable and achievable.

 

·         Align the County Parks and Recreation Master Plan with local community interests by coordinating with Comprehensive Plan implementation efforts, such as small area plans.

 

·         Coordinate development and implementation of this plan with the park and recreation plans of other municipalities, such as the City of Asheville.

 

ACTION 2

PLANNING

Update the Buncombe County Greenways and Trails Master Plan.

 

·         Coordinate County greenway and trail plans with existing plans and ongoing planning efforts by the City of Asheville and the towns, such as the Asheville Close the GAP Plan, the Black Mountain Recreation and Parks Master Plan, and the Woodfin Greenway and Blueway Plan.

 

·         Support the development of regional trails, such as the Fonta Flora State Trail and the Hellbender Regional Trail, which connect Asheville and the towns to rural communities, regional parks, and destinations outside of the county borders.

 

·         Continue to support and expand the French Broad Blueway, especially where County river park facilities are seeing overuse during the peak boating season.

 

·         Ensure that priority greenway alignments are clearly mapped to assist in the acquisition of easements and coordinate with the Buncombe County Planning Department to identify opportunities for partnerships with private developers.

 

·         Align the Buncombe County Greenways and Trails Master Plan with local community interests by coordinating with Comprehensive Plan implementation efforts, such as small area plans.

 

ACTION 3

PLANNING

Promote larger County parks as community hubs, especially in rural areas of the county that are lacking community gathering areas.

 

·         Educate residents about the public services provided through County parks and their benefits to the community. Collaborate with the library systems in these efforts.

 

·         Hold events in County parks that promote a sense of community, sense of place, and community pride.

 

·         Use County parks to create new rural hamlets in communities where centralized hubs are not currently established.

 

·         Collaborate with school systems to establish joint use agreements for recreation facilities in underserved areas that can also serve as community hubs.

 

ACTION 4

FUNDING

Expand County recreation programming and events.

 

·         Increase staffing to offer daily programming and explore opportunities for additional recreational events.

 

·         Offer programming that reaches new demographics that have historically participated less than others.

 

·         Expand youth sports programs and identify land where new youth sports fields can be constructed.

 

·         Hire dedicated staff to facilitate the Special Olympics as an ongoing County program.

 

·         Ensure programming is equitable and accessible to all who want to participate.

 

 

ACTION 5

FUNDING

Plan for and conduct adequate maintenance and upkeep of existing and new facilities.

 

·         Evaluate the condition of existing parks and recreational facilities (including greenways) and identify any maintenance needs.

 

·         Through Capital Improvement Planning, create a funding strategy for addressing maintenance needs over time. (See Infrastructure and Energy chapter.)

 

·         Evaluate staffing capacity to support all parks and recreation needs, including maintenance and safety of facilities. Develop strategies to augment staffing in areas that are underserved.

 

ACTION 6

PARTNERSHIP ~ REGULATORY

Develop a plan to proactively work with landowners to implement County recreational goals and expand private-public partnerships.

 

·         Enhance incentives and explore requirements for private developers to provide more public recreation facilities within community developments.

 

·         Consider conditional zoning as an approach to work with landowners to acquire greenway easements, develop recreation facilities within new developments, and encourage public- private partnerships for recreation projects. Long-term administration and maintenance of these facilities will need to be determined.

 

ACTION 7

PLANNING

Develop a plan to provide equitable access to health services and healthy lifestyle choices.

 

·         Collaborate with community partners to identify ways in which health can be improved for people living and working in Buncombe County. This may include:

 

o   Conduct health impact assessments for major development projects to minimize community impacts.

o   Conduct health-oriented needs assessments and environmental justice evaluations in conjunction with small area plans.

o   Identify environmental justice projects for key issues that disproportionally affect historically disadvantaged communities, such as urban heat island effects, flooding, and asthma.

 

·         Identify and utilize a vulnerability index that integrates multiple dimensions, such as racial or disability equity and the Community Index Map.

 

o   Equity considerations can also utilize tools like redlining maps of Asheville or other municipalities and EPA’s Environmental Justice Screening Tool.

o   Prioritize projects that improve air, water, and land quality for areas or populations identified with the vulnerability index.

 

·         Integrate equity considerations into projects that improve air, water, and land quality by utilizing tools including redlining maps of Asheville and other municipalities and EPA’s Environmental Justice Screening Tool.

 

·         A new Community Health Assessment (CHA) is in progress for Buncombe County. Integrate health priorities and other information from the latest CHA into future updates of the Comprehensive Plan and any changes to zoning or development regulations.

 

·         Evaluate the accessibility of community health resources, such as accessibility between neighborhoods and health providers, county and municipal health departments, food sources, and other health-related services. Take steps to address accessibility needs, consider as part of small area plans, and collaborate with other County departments. Focus on the highest ranked equity opportunity areas.

 

·         Continue to prioritize the protection of clean air, water resources, and other environmental resources, in coordination with the policies of the Farms, Forests, and Environmental Protection chapter.

 

·         Consider reviewing county and municipal ordinances with the aim of identifying opportunities to enhance clean air and water resources.

 

ACTION 8

PARTNERSHIP

Increase accessibility of healthy food sources to communities in need.

 

·         Support the development of community gardens in rural areas and in equity opportunity areas that are more than a mile from a local grocery store. This should include the development of ongoing administration and management plans that support the identification of program manager(s) that oversee community gardens. Consider partnering with non-profit organizations to develop these assets.

 

·         Encourage development of local grocery stores and purveyors of healthy food options in equity opportunity areas that don’t have proximate access to healthy food. Consider providing incentives through reduced parking, development standards, or fee waivers to develop groceries or other healthy food retailers in these areas.

 

 

 

HAZARDS & RESILIENCE ACTIONS

 

 

ACTION 1

PLANNING ~ FUNDING ~ PARTNERSHIP

Implement green infrastructure & nature-based solutions.

 

·         Increase public education and awareness around green infrastructure; promote outreach around the implementation of green infrastructure and nature-based solutions.

 

·         Build partnerships and opportunities for increasing green infrastructure projects and/ or voluntary incentives. In particular, leverage public projects for green infrastructure implementation.

 

·         When gray infrastructure solutions are required, increase implementation of bridges/multiple culvert/floodplain culverts instead of single culverts, when possible, to increase the flow rate and enhance riparian areas.

 

·         Install solar on emergency service stations and emergency response shelters with battery backup and/or emergency power inverters to provide at least minimal electrical power in the event of a long-term outage (similar to resilience hubs).

 

·         Explore providing additional services to improve stormwater and air quality management, such as providing curbside leaf and brush collection to help minimize debris and air pollution. Use the collected leaf and brush debris as mulch for other sustainable solutions.

 

ACTION 2

DEVELOPMENT ~ REGULATORY

Employ design standards to increase adaptive capacity and reduce exposure to hazards.

 

·         Align the County’s design standards and decision-making with the recommendations from the North Carolina Climate Risk Assessment and Resilience Plan.

 

·         Utilize hazard mitigation design requirements that exceed minimum standards for critical facilities and/or require that any new critical facility be built outside of high-hazard areas.

 

·         Increase freeboard requirements above Base Flood Elevation to one foot above current regulations for all new and substantially improved structures to address future flood impacts resulting from climate change. The North Carolina Climate Risk Assessment and Resilience Plan recommends that “the Department of Insurance’s Building Code Council should reestablish the two-foot freeboard requirement for new or substantially improved buildings within the regulatory floodplain.”

 

·         Revise the County’s Flood Damage Prevention Ordinance to prohibit the use of fill within the Special Flood Hazard Area (SFHA). To the extent possible, evaluate flood risk beyond the measure of the 100-year floodplain to address flash flooding outside of the mapped SFHA.

 

·         Promote greater utilization of development processes that allow for the conservation of steeply sloping land and the clustering of home sites. Retain existing processes, but reorganize, consolidate, and expand conservation and cluster development options across the Zoning and Subdivision ordinances.

 

·         Evaluate best practice changes to the Stormwater Ordinance water quantity requirements for stormwater controls to reduce downstream impacts.

 

·         Establish design standards and incentives to assist vulnerable populations in reducing risks from environmental hazards through design. This may include elevated homes in flood areas, fire retardant materials in fire areas, and stormwater mitigation solutions like rain gardens, water management solutions, rain barrels, etc.

 

·         Harden energy infrastructure systems against damage from flooding, landslides, wildfire, and extreme heat and expand redundancy in the energy network.

 

·         Establish Buncombe County as a participating member of the National Flood Insurance Program’s (NFIP) Community Rating System (CRS).

 

·         Modify current floodplain development procedures and standards to limit the size and/or density of new developments within the floodplain and require more extensive engineering analysis for new developments in flood-prone areas. This will ensure that fill and other modifications to the floodplain do not elevate the risk of loss of life and property damage to nearby properties.

 

ACTION 3

PARTNERSHIP

Build capacity for community resilience and preparedness.

 

·         Collaborate with community-based organizations to develop or expand urban and suburban tree planting, sustainable agriculture programs, fuel management, weatherization programs for highly vulnerable populations, and hazard awareness.

 

·         Grow partnerships between the public, private, and nonprofit sectors to provide critical services to vulnerable populations in times of crisis. For example:

 

o   Expand partnership agreements with rideshare and transit systems to pick up residents from vulnerable areas.

o   Develop resilience hubs (using alternative energy sources) in high-risk neighborhoods that can be managed by community members and retrofitted to withstand and stay online during any emergency event, support emergency response efforts, and enhance long-term community resilience.

o   Establish cooling centers in the most vulnerable areas of the County; work with Asheville and other municipalities to add splash pads to community parks or neighborhoods. An example could be retrofitting an existing fire station to be a cooling center during high heat temperature events.

o   Partner with Land of Sky Regional Council and/or FEMA to reduce flood and drought risk through integrated watershed management and to share hazard information with the community.

o   Improve coordination between regional fire station locations to serve key areas outside of reasonable response time.

 

·         Increase County staff capacity to recognize the need for resilience planning, preparedness efforts, and community-based recovery. For example:

 

o   Hire sufficient staff members that are responsible for implementing resilience solutions centered around floodplain management, training, stormwater and erosion control, community partnerships, etc.

o   Expand employer and worker training in industries with outdoor work, including assurance of adequate water, shade, rest breaks, protection from poor air quality, and training on heat impacts.

o   Increase capability for remote working during flooding and other measures that make economic activity and critical services less vulnerable to disruption by flooding.

 

·         Leverage opportunities for public outreach and communication activities that contribute to increased capacity and address procedural inequities. For example:

 

o   Encourage the involvement of residents in the planning process and ensure coordination between communities and jurisdictions to reconcile conflicts. Address procedural inequities by working with underserved neighborhoods to understand concerns and needs regarding hazards.

o   Host regional public meetings about climate threats that are easily accessible to vulnerable populations:

§  (a) Physically accessible (near public transit)

§  (b) Safe for all members

§  (c) Located in places that the community values as gathering spaces (e.g., community centers and cultural centers)

§  (d) Led in, or translated into, the primary language(s) of the community

§  (e) Scheduled at various times to accommodate different schedules.

o   Include water efficient strategies (i.e., efficient landscapes, sprinkler systems, xeriscape, cooling tower systems) in public awareness campaigns.

o   Hold events where residents can interact with local experts to develop an emergency preparedness kit to take home.

o   Expand opportunities for Firewise USA learning opportunities for residents to reduce wildfire risk in residential development areas.

o   Implement a network of community groups to proactively reach out to vulnerable people before and during extreme weather. Create a network with redundancies so that communications can continue while networks are challenged during storm events and emergencies.

o   Reframe the resilience conversation with specific stakeholders in a way in which they may be more receptive (e.g., Community Rating System, avoided losses, and recreational benefits).

 

 

 

 

 

 

ACTION 4

PARTNERSHIP

Align emergency response with the Regional Hazard Mitigation Plan and Hazard Vulnerability Assessment.

 

·         Investigate the use of backup water supply sources (e.g., well versus surface water) in areas outside municipal water supply.

 

·         Based on the success of the early warning system in the Upper Swannanoa, develop “flood early warning systems” in other parts of the county that have gauges in strategic locations to monitor water levels at culverts and provide alerts when roads may be flooding to let people know when to evacuate. Develop a plan to target vulnerable populations in early warning systems.

 

·         Reduce response time and increase capacity (person power) to respond to areas where there are shared mutual aid agreements by increasing staffed hours required in fire stations in key areas.

 

·         Establish partnerships between community fire departments, NC Forest Service, and US Forest Service, and private landowners to apply prescribed burns in priority areas and manage forests at an ecologically meaningful scale. A local example of this coordination is the prescribed burn in the North Fork Watershed, where the County, City, Water Authority, and NC Forest Service partnered on this effort.

 

·         Develop a notification system for natural hazards that is responsive to community needs.

 

·         Require that developments that exceed a defined set of thresholds (square feet of commercial space, number of dwellings, or similar), provide more than one point of access.

 

·         To the extent possible, require that larger residential developments include at least one primary street that is designed and constructed to North Carolina Department of Transportation (NCDOT) standards and dedicated to NCDOT as a public street.

 

·         When possible, encourage that a minimum number of streets within new developments, including a public street as referenced above, be designed to connect to adjacent properties for which future development potential is high, and/or adjacent to, existing developments.

 

·         As plan updates are made, integrate relevant new elements of the Buncombe-Madison Regional Hazard Mitigation Plan into the Comprehensive Plan and vice versa.

 

·         To the extent possible, support updates to the NC Geodetic Survey for landslide mapping in western North Carolina to use in hazard mitigation efforts.

 

 

 

 

 

 

ACTION 5

PLANNING

Use Hazards Vulnerability Assessment to guide future growth and land use decisions.

 

·         Protect land for specific values (i.e., agriculture and local food, transportation, affordable housing, alternative energy sites, etc.) in accordance with the Growth, Equity, and Conservation Framework map. For example:

 

o   Accommodate changes in types of agricultural activities to allow for shifts in agriculturally viable areas.

o   Evaluate land use and zoning codes to mitigate development patterns that concentrate poverty.

 

·         Decrease existing exposure to hazards and limit the creation of new exposure resulting from growth and land use changes. For example:

 

o   Consider relocation of facilities that provide critical public services. Critical facilities should be considered for relocation to unexposed areas over time, in line with their expansion/refurbishment cycles.

o   Consult with the agricultural sector to determine cross-sector objectives for drought planning. Share information about the current and projected future state of water supply (to inform priority development). Support incorporation of adaptation — to increase resilience and minimize impacts — in drought planning (not just drought response).

o   Facilitate managed retreat from, or upgrade of, the most at-risk areas identified through the ongoing Land of Sky Regional Council Resilience Planning effort. This project maps all high-risk areas for flooding, landslides, and wildfire (located in the Plan Factbook). As climate and non-climate stressors take their toll on the landscape, some areas of the County may be repeatedly impacted and one solution to this may be facilitating a form of managed retreat within the County.

 

 

INFRASTRUCTURE & ENERGY ACTIONS

 

 

ACTION 1

PARTNERSHIP ~ PLANNING

Partner with utility providers to coordinate growth and infrastructure plans.

 

·         Conduct an assessment to evaluate current and projected long-range, county-wide service capacity for water and wastewater services.

 

·         Encourage partner utility providers to develop long-range infrastructure maintenance plans. Connect these plans to current resilience-related ordinances; see Hazards and Resilience Policies for more information.

 

·         Develop inter-jurisdictional agreements between municipal, county, and partner utility providers to determine potable water service areas that align with the county’s growth areas. Define service areas through maps with service area boundaries.

 

·         Develop definitions for suburban and rural levels of service for fire, sheriff, EMS, stormwater, and other public services to measure service function and expansion needs over time.

 

·         Engage with MSD and water providers to evaluate policy changes to expand utilities in growth areas ripe for infrastructure expansion.

 

ACTION 2

REGULATORY ~ PLANNING ~ FUNDING ~ PARTNERSHIP

Implement policies around new development and re-development that advance decarbonization and sustainability goals.

 

·         Support efforts to expand electric vehicle charging infrastructure and renewable fuels for the County’s vehicle fleet.

 

·         Incorporate electric vehicle charging station standards in the zoning ordinance, including standards that incentivize building solar panels over parking lots. See also the Hazards and Resilience chapter, as this provides protection from the elements.

 

·         Work with local and regional partners (including tourism partners) to support the expansion of electric vehicle charging station infrastructure at strategically accessible locations along highways and other major thoroughfares.

 

·         Consider changes to development regulations that provide incentives for renewable energy investments during development, such as infrastructure for electric vehicles and solar panel installation.

 

·         Consider developing a policy to require solar installation on all new County-led construction or retrofits located within the City or County.

 

·         Consider developing a policy to incentivize solar installation on all new construction or retrofits located within the County.

 

·         Continue to support bulk purchasing programs for renewable energy, which would involve working with many different community partners to procure solar equipment.

 

·         Consider establishing a revolving investment fund for renewable energy projects.

 

·         Continue to advocate for changes in state policy, which could include:

 

o   new renewable energy mandates,

o   an allowance for power purchase agreements—or energy sold from nonutility partners,

o   an increase in the renewable energy portfolio standard,

o   implementing a “state green bank,” and

o   enabling community-shared solar.

 

·         Work with funding partners to develop a mechanism for low-cost financing for energy efficiency and renewable energy projects for homes and businesses.

ACTION 3

FUNDING ~ PLANNING

Develop a long-term planning process for solid waste operations that prioritizes sustainability.

 

·         Conduct an assessment to understand solid waste needs and solutions (for example, more land needs to be acquired for a landfill, purchasing agreements for waste services, and level of service (LOS) maintenance).

 

·         Conduct an evaluation of current operations and solid waste services to identify further opportunities to reduce waste.

 

·         Consider funding the expansion of solid waste sites to accommodate landfill capacity needs, which may require land acquisition.

 

·         Build partnerships with other public or private entities that could implement large-scale recycling and composting operations.

 

·         Update the county’s development ordinances to include sustainable development provisions regarding the permittable size, location, and scale of composting operations.

 

·         Implement a division rate ordinance, which requires construction and/or demolition projects to divert a minimum percentage of total waste from landfills.

 

·         Provide curbside collection of compostable waste and sell the resulting compost to the public for use in landscaping, gardening, and farming.

 

ACTION 4

FUNDING

Develop an equitable capital improvement planning (CIP) process to manage and prepare for growth and maintenance of public facilities and infrastructure.

 

·         Develop a regularly occurring county planning process to identify future county infrastructure expansion and maintenance needs, and plan for the financing of those investments over time.

 

·         Consider the development of a 6-year or 10-year CIP interval updated annually or every two years to plan ahead for future needs.

 

·         Develop a long-range facilities master plan for all county facilities and infrastructure and leverage this master plan in the CIP process. Coordinate among County departments and services, such as the public library system, to achieve this.

 

·         Complete an updated Disparity Study to set legally defensible goals for minority business enterprises to be awarded county contracts for capital projects. The study and goals should comply with state and federal law, including known constitutional limits based on court cases.

 

·         All infrastructure improvements should be coordinated with the Policies and Actions of the Growth, Equity, and Conservation Framework; infrastructure improvements should be coordinated with housing stability for vulnerable residents to avoid accelerating displacement or having unintended negative consequences.

 

·         Evaluate capital improvements as they relate to election infrastructure. This could include planning for improvements to existing community centers or building new community centers that meet voting place requirements in order to meet early voting volume/demand. This evaluation could include other County-owned locations such as libraries or parks and recreation facilities or sites.

 

ACTION 5

PARTNERSHIP ~ REGULATORY

Explore partnerships and identify barriers to address broadband access and cell service expansion.

 

·         Evaluate current ordinances and development requirements. Identify improvements that will modernize the ordinance to allow cell service expansion. Evaluate what type and locations where cell towers can be permitted.

 

·         Explore opportunities for partnerships or funding to expand broadband access and improve internet connectivity.

 

CHAPTER 10

APPENDIX

 

 

This appendix includes:

 

·         Glossary of Planning Terms

·         Summary of Public Engagement Meetings and Events

 

GLOSSARY OF PLANNING TERMS

 

Adaptive Capacity: the ability of a person, asset, or system to adjust to a hazard, take advantage of new opportunities, or cope with change.1

 

Conditional zoning: A legislative zoning map amendment with site-specific conditions incorporated into the zoning map amendment.2 Conditional zoning is a voluntary development regulation tool authorized by state zoning statutes (160D-703). Conditional zoning districts can include standards specific to property that address concerns of neighbors or government.

Conditions must be agreed to in writing by landowner/applicant and the local government. Approval is a legislative decision which, unlike a special use permit, is enacted by the County Commission and can include the full range of public input.3

 

Concentrated poverty: census tracts where the federal poverty rate is 40% or more. These neighborhoods lack the resources to provide quality schools, job opportunities, safe streets, and access to quality healthcare.4

 

Drought planning: A process that typically involves a vulnerability assessment, identification of steps that can be taken to mitigate drought risk, and public education about the local water supply and drought vulnerability. Local governments can also monitor for drought and develop an early warning system that identifies actions that should be taken at the onset of drought.5

 

Equity Analysis Tool: The Buncombe County Office of Equity and Human Rights developed the Equity Analysis Tool to move forward in implementing equity goals that uplift our County values. The Equity Analysis Tool will inform decision-making as Buncombe County implements the Policies and Actions presented in the Comprehensive Plan. Specifically, planning staff will analyze development projects that are required to go through a legislative process for approval using a series of questions. The Equity Analysis Tool emphasizes data-informed decision-making, program design, and careful consideration of the compounded effects of historical and systematic inequity. For more information, see page 55.

 

Equity Opportunity Areas: The Equity Opportunity Areas (EOAs) are the only land use category that is not delineated on the Growth, Equity, and Conservation Map. EOAs offer an opportunity to examine equity throughout Buncombe County’s Planning and Zoning jurisdiction. Equity Opportunity Areas score higher on the indicators evaluated in the Equity Opportunity Index, presented in the Community Index map. For more information, see page 54.

 

Exclusionary zoning: a legal practice that can, and often does, result in concentrated poverty. It typically looks like minimum lot size requirements, single residence per lot requirements, or minimum square footage requirements.6

 

Green infrastructure: Used to refer to the value and role of open space and ecosystem services broadly but is now often used in a narrower sense focusing on nature-based approaches to stormwater management.7

 

Micromobility: Small, lightweight devices operating at speeds typically below 15 miles/hour that are ideal for trips up to six miles, including bicycles, E-bikes, electric scooters, electric skateboards, shared bicycles and electric pedal assisted bicycles.8

 

Multimodal: Transportation that involves different “modes” or types of transportation, including aviation, ferries, ports, highways, trains, public transit, bicycles and pedestrians.9

 

Nature-based solutions: Actions to protect, sustainably manage and restore natural and modified ecosystems in ways that address societal challenges effectively and adaptively, to provide both human well-being and biodiversity benefits.10

 

Resilience hubs: Community centers in high-hazard risk neighborhoods that use alternative energy sources retrofitted to withstand and stay online during any emergency event, support emergency response efforts, and enhance long-term community resilience. These hubs are managed by community members.11

 

Transit-oriented development: Development that maximizes the amount of residential, business and leisure space within walking distance of public transportation.12

 

[REFERENCES]

 

 

SUMMARY OF PUBLIC ENGAGEMENT & EVENTS

 

 

Phase 1: Launch Project

 

Board of Commissioners meeting

RFP Pre-Submittal Conference

Leadership Asheville #1

BC Judicial Bar

CIBO

Creation of Steering Committee

Connect Buncombe #1

Board of Commissioners

Planning Board Meeting #1

MSD Planning Committee

Roadshows – Transportation

Board of Commissioners

Roadshows - Environmental Health

Creation of Plan website

Roadshows - Parks & Recreation

Rotary Club

Steering Committee meeting

Launch weekly e-newsletter

Leadership Asheville #2

Roadshows - Ag. & Land Resources

LOTS Association of Realtors

Roadshows - Elections & Tax

Roadshows - HHS & Justice Dept.

Careers on Wheels - ABTech

Intercept event - BC Fall Festival

Intercept event - BC Sports Park

Roadshows - Library & General Svcs.

Kickoff week events

Kids’ Postcard Activity

Planning Board meeting #2

Roadshows - Strategic Partnerships

Steering Committee meeting

Roadshows - Emergency Mgmt.

Legacy Neighborhoods Coalition #1

Roadshows - Register of Deeds

Explore Asheville

Roadshows - Strategy & Innovation

Tourism Development Authority

Asheville Holiday Parade

Mailing of Comp. Plan tax inserts

Launch of Vision Word Cloud

“What is a Comp Plan” video

Roadshows - Solid Waste

Roadshows - Air Quality, Sustainability

Friends of Fonta Flora Trail

Faith Leaders #1

NC Farm Bureau

 

Phase 2: Identify Vision & Goals

 

Stakeholder interviews

Student Activity Kits

Planning Board Meeting #3

Board of Commissioners

Duke NC Leadership

Leadership Asheville #3

Friends of Fonta Flora Trail

Launch of Awareness Kit

Launch of Stakeholder Survey

Phase 1 Activity Report

Board of Adjustment meeting

WRES Radio spot #1

Connect Buncombe #2

Virtual public meeting

Planning Board meeting #4

Virtual public meeting

Community Transport. Board

Steering Committee meeting

AVL Rgnl. Housing Consortium

Virtual public meeting

Fire Chiefs meeting

Planning Board meeting #5

DHS Board

Leadership Asheville #4

Virtual public meeting – Youth

Fairview Business Association

Air Quality Board

Virtual public meeting

Givens Estate

Emma PODER meeting

Enka Middle School meeting

Weaverville Community Ctr.

Fairview Community Ctr.

Skyland Library meeting

Erwin High School meeting

East Asheville Library meeting

Leicester Community Ctr.

Sandy Mush Community Ctr.

Black Mountain Library meeting

Warren Wilson College Intercept

Steering Committee meeting

Carolina Day School event

Glenn Arden Career Day

Hall Fletcher STEAM event

 

Phase 3: Develop Policies & Actions

 

Steering Committee meeting

Planning Board meeting #6

Community Markets - Asheville Middle School

Community Markets - Aston Park Towers

Community Markets - Bartlett Arms

Community Markets - Deaverview

Community Markets - Klondyke Apartments

Community Markets - Maple Crest

Community Markets - Pisgah View Apartments

Community Markets - Senior Opportunity Center

Community Markets - Shiloh

Community Markets - Big Ivy Community Center

Community Markets - Woodfin Community Center

Community Markets - ABCCM Enka

Community Markets - Enka Middle School

Community Markets - Erwin Middle School

Staff review of draft Vision & Goals

East Asheville Library Festival

BC Public Engagement Alliance

Asheville Buncombe Black Elders Committee

Village Roundtable

Phase 2 Activity Report

Intercept event - HOLA Carolinas

Steering Committee meeting

MSD & Emergency Services Meeting

Ukrainian Community Outreach

Elder Abuse Prevention Event

Black Professionals Luncheon

Juneteenth Festival

Hispanic Restaurants Outreach

BC Lake Julian Campout

Wellington Park Outreach

Creation of the draft 2022 Factbook

Intercept event - My Daddy Taught Me That

BC Public Engagement Alliance

Enka Candler Library meeting

Weaverville Farmers Market

Legacy Neighborhoods Coalition #2

Virtual public meeting

Stumptown Neighborhood Assoc. Meeting

Intercept event - Enka Farmers Market

Emma Community Association

Shiloh Neighborhood Assoc. meeting

Comp. Plan tax inserts mailed #2

East Asheville Library meeting

Leicester Farmers Market

LatinX Health Fair

Intercept event - Asheville City Market

Steering Committee meeting

East End Valley Neighborhood Assoc. Meeting

Asheville Buncombe Black Elders Committee

County Employee Input Events

Planning Board meeting #7

Mt. Zion CWA Teen meeting

Burton Street Neighborhood Assoc. meeting

Faith Leaders #2

United Way Youth Block Party

Intercept event - Downtown After Five

BC Public Engagement Alliance

Virtual public meeting

Steering Committee meeting

Ledgewood Back to School event

WRES Radio spot #2

Maple Crest Community Neighborhood Fair

UNCA Student Union

Iglesia Soplo del Espiritu Santo

Western Carolina University

Warren Wilson College Community Day

Goombay Festival

Steering Committee meeting

Staff review of draft Plan

East End Valley St. Neighborhood Assoc. #2