(PCC) Program on Chinese Cities – Thoughts on Overseas Travels Series
Authors: Wang Yu,
Director of Planning and Urban Design at Beijing IRENM Design Consulting Co., Ltd. ichbinwangyu@yahoo.com
Public participation, as an essential component of urban planning, to some extent reflects the needs and expectations of community members, enhancing the transparency and fairness of planning. This paper takes the Leigh Valley project in Durham, North Carolina, as a case study to analyze the role and impact of public participation in urban planning.
1. Project Background
1.1 Regional Development and Housing Demand in Durham
Since 2020, the Research Triangle Park (RTP) in North Carolina has entered a new phase of development (Figure 1). By 2050, the park’s population is expected to double to over 2.9 million. Currently, many areas surrounding the park face poor housing affordability and a severe shortage of affordable housing. According to the North Carolina Housing Coalition report, in the past five years, rental prices in the Durham area have increased by 55%, and average home prices have risen by 48%. Nearly one-third of households face heavy financial burdens, with over one-third of their income spent on rent, mortgage payments, and utilities. Addressing the housing affordability crisis has become one of the most critical challenges for local leaders.
The Leigh Valley project, a large-scale residential development along the Durham-Chapel Hill corridor, has become a focal point for the public, especially urban planners.
1.2 Overview of the Leigh Valley Project
The Leigh Valley project is located in a forested area northwest of the intersection of Interstate 40 (I-40) and North Carolina Highway 54 (NC-54) (Exit 273), covering a total area of 85.23 acres, with land ownership divided among a few landowners (Figure 2). The project allows for a maximum of 4,100 residential units, consisting of a mix of apartments and townhouses, excluding single-family homes.
According to the planning proposal, 9% of the apartments will be rented at affordable rates for 30 years, allocated to households earning 100%, 80%, and 60% of the area median income (AMI). Additionally, 3% of the for-sale townhouses will be sold with a 20-year deed restriction, limiting eligibility to households earning 80% of the area median income. The primary parking facilities will be structured parking garages, and wood-framed residential buildings will be up to five stories high.
The project also proposes the construction of mixed-use office and commercial buildings, along with two auxiliary greenways, with hopes of integrating the greenways into a future regional rapid transit route. The project developer has indicated that the land may be subdivided into 10-acre or 5-acre parcels for phased sales to real estate developers, with infrastructure also developed in stages.
Although the project aims to be incorporated into Durham’s urban land use in 2024, public participation and voting requirements may extend the timeline. Senior project developer Alexander Cahill stated that the Durham Planning Department is gathering relevant documents and has included the project on its agenda. The Planning Commission will first review the project before making recommendations to the City Council, which holds the final decision-making authority.
1.3 Milestones of the Leigh Valley Project
(1) January 31, 2024
Durham journalist Wes Platt reported that the Leigh Valley project, located on the outskirts of Durham, will include up to 340 townhouses, multifamily housing units, or apartment units, covering 28.57 acres along George King Road (Figure 3). Currently, the site is zoned as “Suburban Low-Density Residential.” If approved, it will be rezoned as “High-Density Residential.”
According to the rezoning map amendment report, 3% (approximately 10 units) of the 340 planned housing units will be designated as income-restricted affordable housing for households earning no more than 80% of the area median income for at least 20 years. The comprehensive planning report indicates that the project will provide at least 20% affordable housing and includes plans to build an elementary school, middle school, and high school.
A study on the I-40 and NC-54 intersection proposed multiple road and transportation improvements, including pedestrian and bicycle lanes, but no additional transportation services are planned within a 1/4-mile radius. The developer has committed to improving the surrounding environment by implementing two additional stormwater control measures to reduce site runoff and using only native species in buffer and tree replacement areas. Additionally, the developer pledged a one-time donation of $5,000 to Durham Public Schools. City staff encouraged the developer to incorporate transit-oriented design elements in the rezoning proposal, including additional office, residential, or commercial planning, with construction expected to be completed by 2026.
According to a traffic impact analysis, the Leigh Valley project will generate approximately 132 vehicle trips during morning peak hours and 171 vehicle trips during afternoon peak hours. A public hearing, including community discussions, is scheduled for February 13, 2024, at 5:30 PM in the City Hall first-floor chamber.
(2) March 30, 2024
Mary Helen Moore from The News & Observer reported that the original plan for Leigh Valley was tied to a station of the now-canceled Durham-Orange Light Rail Project (Figure 3). The plan aimed to create a compact, walkable community where thousands of residents could live, shop, or commute to Durham and Chapel Hill via high-speed rail (Figures 4, 5). Although the transit project was shelved in 2019, land developer Jed Harris and the team behind the proposed large-scale development continued to advocate for the necessity of housing in this area.
(3) October 2024
Dan Jewell, regional director of land development firm Thomas & Hutton, and Jed Harris submitted a consolidation and rezoning proposal to the Durham Planning Department for multiple parcels at the I-40 and NC-54 intersection. If fully developed, the Leigh Valley project would become the largest residential community in modern Durham history, potentially taking decades to complete. Senior Durham planner Andy Lester stated that the project could accommodate up to 4,100 residential units—far exceeding any other development under consideration in Durham. In an email, he noted, “In terms of proposed residential unit count, the next largest rezoning proposal is for 1,900 units.”
2. Public Hearing Process
2.1 Preparation and Notification
- One week before the hearing: Durham City Government website published the meeting notice (Figure 6).
- Thursday before the hearing (August 29): Residents could reserve in-person attendance on the City Government website. A live-streaming link was also provided across platforms, including Facebook, Twitter, YouTube, and the government news portal.
- On the hearing day: The hearing was streamed live as scheduled.
2.2 Organization and Proceedings
On September 3, 2024, at 7:00 PM, the Durham City Council held a nearly two-hour public hearing, concluding with an overall vote by the mayor and council members (Figure 7).
The latter half of the hearing focused on the high-density residential development of the Leigh Valley area. As a visiting scholar in urban and regional planning at the University of North Carolina at Chapel Hill, I found this hearing particularly significant. Several other visiting scholars attended the meeting in person.
Participants included the Durham Mayor, five council members, a senior city planner, and multiple developer representatives from Green Hall Corporation. The hearing followed this structure:
- Public Hearing: The chair opened the floor for public comment.
- Developer Presentation: Covered project background, development plans, and proposed design changes.
- Planner Presentation: Addressed compliance, land use, rezoning, transportation, and public infrastructure.
- Council Feedback: Focused on the site’s potential as a transit opportunity area and concerns over the lack of non-residential uses.
- Council Vote: The Planning Commission recommended approval with a 5-1 vote.
- Final Decision: The chair announced unanimous approval for land consolidation.
The hearing illustrated the complexity of land use and rezoning decisions, highlighting the collaboration between the public, developers, planners, and the City Council. Developers responded to concerns by committing to sustainability measures and revising road plans, ultimately securing approval.
3. Perspectives from Various Stakeholders
The hearing agenda involved the consolidation and rezoning of multiple parcels within the Leigh Valley project area, transitioning the land use designation from low-density to high-density residential.
3.1 Developer’s Perspective
(1) Background Explanation
- Involved Parcels: The proposal included merging seven parcels into Durham’s city limits, with six major parcels totaling 28.57 acres and one smaller parcel covering 2.87 acres.
- Current Zoning: The parcels are currently zoned as “Residential Suburban 20” (RS-20).
- Zoning Change Proposal: The developer proposed changing six of the major parcels to “Residential Compact” zoning while maintaining the existing zoning for the remaining 2.87-acre parcel (Figure 8).
(2) Objectives of the Consolidation
- Increase Housing Density – The rezoning would enable higher residential density, thereby improving land-use efficiency.
- Manage and Maintain Public Infrastructure – Ensuring that service infrastructure, such as pumping stations, remains within city limits for easier maintenance.
(3) Development Plan
- Residential Units: The proposed rezoned land would accommodate 310–340 housing units.
- Income Restrictions: The developer extended the affordability period for designated units from 20 to 30 years, increasing the availability of affordable housing.
- Sustainability Commitments: The developer pledged to include sustainable features such as a 1,500-square-foot pollinator-friendly ecological garden and EV charging stations in every garage unit.
(4) Regional Planning and Zoning Adjustments
- Regional Planning: The proposal did not fully align with the existing “Transit Opportunity Area” (TOA) designation, which typically encourages high-intensity mixed-use development near public transit hubs. Although the light rail project was canceled, city officials still recommended considering mixed-use development.
- Land Use Designation Change: The developer suggested changing the area’s land-use classification from “Transit Opportunity Area” to “Apartment and Townhouse Neighborhood.”
(5) Road and Transportation Considerations
- Road Positioning: The developer collaborated with planning staff to realign an extension of Falconbridge Road to better integrate with the project.
- Transit Accessibility: Despite the area’s TOA designation, no specific transit services are currently planned.
3.2 Planner’s Perspective
Senior City Planner Andrew Lester confirmed that all hearing procedures followed state and local laws. He highlighted a land consolidation request involving five parcels totaling 3.7 acres. These parcels were not directly linked to corporate developments but rather to suburban or satellite-area connections.
- Zoning Consistency: The developer did not seek to alter the “Residential Suburban 20” zoning designation. Any future development on the consolidated land must comply with existing zoning regulations.
- Local Zoning Plans: Some parcels already fall within designated local zoning areas. The proposed zoning changes align with the “Residential Suburban 20” classification, and if approved, there would be no further modifications.
- Road Networks: Lester detailed road alignments and how the project would integrate with the existing road network.
- Public Infrastructure Impact: The planner discussed the project’s potential impact on public infrastructure and the measures required to ensure adequate support for new developments.
3.3 City Council’s Perspective
(1) Transportation Planning Concerns
- Emphasized the importance of walkability and requested detailed planning for pedestrian-friendly roads.
- Discussed internal road networks and pedestrian navigation, stressing the necessity of strong walkability connections in high-density areas.
- Highlighted that well-designed transportation planning is essential for reducing reliance on private vehicles, minimizing traffic congestion, and enhancing environmental sustainability.
(2) Alignment with the Comprehensive Plan
- Discussed how the project fits into the city’s comprehensive plan and the importance of mixed-use development.
- Stressed the need for a deeper understanding of project details to ensure consistency with broader urban and transportation planning goals.
- Ensuring alignment with the comprehensive plan helps promote balanced regional development, economic stability, and overall urban sustainability.
(3) Pedestrian Pathways
- Discussed the layout of pedestrian pathways and strategies for ensuring pedestrian safety.
- Explored ways to create a walkable environment within and around the high-density residential area.
- Prioritizing pedestrian pathways fosters an active community, improves public health, enhances security, and strengthens community engagement.
Council members also emphasized coordination with nearby projects and how shared infrastructure could improve efficiency. They questioned why the area remained classified as a “Transit Opportunity Area” despite the lack of transit plans. The discussions underscored the importance of ensuring that developments not only meet current demands but also consider future growth and challenges.
By addressing transportation, planning, and pedestrian facilities, the project aims to create a more livable, accessible, and sustainable community. The council members’ recommendations were crucial for ensuring the project’s successful integration into the city’s planning framework. Their insights helped guide the development towards a high-density residential community that aligns with urban sustainability goals, benefits residents, and supports the city’s long-term development vision.
Although no individual residents from the project area attended the hearing, council members appeared to fairly and transparently represent the interests of local residents.
4. Hearing Outcomes
The hearing resulted in the approval of several key proposals related to the high-density residential development of the Leigh Valley area (Table 1).
These approvals confirmed that the Durham City Council supports the Leigh Valley project, paving the way for further progress and implementation. Although some council members voiced concerns over specific aspects, the project was ultimately deemed consistent with Durham’s urban development strategy, with improvements made in certain areas.
5. Significance of the Hearing
Public hearings play a crucial role in urban planning in the United States, reflecting principles of transparency, public participation, and democratic decision-making. The Leigh Valley hearing provides an opportunity to examine the significance of hearings in urban planning (Table 2).
6. Reflections on the Hearing
After attending this hearing, I have three key reflections:
(1) Considering Different Perspectives
During the discussion on road adjustments, I resonated with the mayor and council members’ considerations. Having previously worked in planning and development firms, I understand the challenges of balancing multiple interests in complex projects. The hearing reinforced the importance of analyzing projects from multiple perspectives. Decision-making in urban development requires a comprehensive understanding of various impacts, and this multidimensional analysis is not exclusive to planners or developers—it should be embraced by all stakeholders.
(2) Developer Presentations and Areas for Improvement
While reviewing the developer’s road adjustment plans, I recognized the significant effort involved but also saw room for improvement. If developers were given more time to refine designs and present more detailed 3D renderings at the hearing, it could provide stakeholders with a clearer vision of the project’s future and alleviate concerns about its long-term impact.
(3) Integration with the Comprehensive Plan
The mayor’s remarks on integrating the project with the city’s comprehensive plan highlighted that while high-density development is widely accepted, challenges remain, including commercial infrastructure, greenway construction, and transportation pressure. This hearing facilitated project revisions while also setting a precedent for future urban development decisions.
After the hearing, I recalled two landmark urban development cases discussed at the University of North Carolina—Kelo v. City of New London and the Foxconn Wisconsin Project. In the former, private homes were expropriated, but Pfizer never established its planned facility. In the latter, a high-end residential area was displaced for a tech park, forcing residents to relocate. While public participation did not yield ideal outcomes in those cases, the hearings demonstrated that attendees sought acknowledgment and discussion of their concerns rather than mere approval of their proposals.
Public hearings offer a transparent and open platform where stakeholders can express their concerns, justify their positions, and discuss their worries. While final decisions matter, the nearly two-hour debate on the evening of September 3 was what truly engaged professionals from all fields.
Conclusion
Public hearings are indispensable in U.S. urban planning, ensuring public participation, transparency, and fairness while refining and innovating planning strategies. The Leigh Valley hearing enabled developers to present their vision for high-density residential development, while planners gathered input on housing needs, transportation, and environmental impacts.
Public participation remains a key factor in ensuring scientific and reasonable urban planning. As cities continue to evolve, public engagement should play an increasingly active role in shaping the urban planning process.
References
[1] 达勒姆市政府网站. City Government Guide[R/OL]. (2024-09-03)[2024-09-06]. https://www.durhamnc.gov/1328/City-Government-Guide.
[2] 达勒姆市政府网站. Calendar[R/OL]. (2024-09-03)[2024-09-06]. https://www.durhamnc.gov/Calendar.aspx?EID=9277.
[3] Southpoint Access. George King Leigh Valley[R/OL]. (2024-01-31)[2024-09-06]. https://southpointaccess.news/2024/01/31/george-king-leigh-valley/.
[4] News & Observer. Real Estate News[N/OL]. https://www.newsobserver.com/news/business/real-estate-news/article282942618.html#storylink=cpy
[5] Leigh village TOD guidebook[R/OL]. (2017-07-01)[2024-09-06].
https://gotriangle.org/tod/guidebook.