HomeMy WebLinkAboutMinutes CC - 05/12/2014 - MINS 05 12 14 WS (Migrated from Optiview)Work Session of the Milton City Council
Monday, May 12, 2014 at 6:00 pm
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This summary is provided as a convenience and service to the public, media, and staff. It is not the
intent to transcribe proceedings verbatim. Any reproduction of this summary must include this notice.
Public comments are noted and heard by Council, but not quoted. This document includes limited
presentation by Council and invited speakers in summary form . This is an official record of the Milton
City Council Meeting proceedings. Official Meetings are audio and video recorded.
The Work Session of the Mayor and Council of the City of Milton was held on May 12, 2014 at
6:00 PM.
Councilmembers Present: Councilmember Karen Thurman, Councilmember Matt Kunz,
Councilmember Bill Lusk, Council member Burt Hewitt, Councilmember Joe Longoria, and
Councilmember Rick Mohrig.
Mayor Joe Lockwood:
• Work Sessions are an informal setting to update Council on business items.
• No votes will be taken during these sessions.
• There are four (4) items on our Agenda tonight.
• Public comment is allowed that is germane to an Agenda Item.
• If you wish to speak you are required to fill out a comment card and tum it into the City Clerk
staff.
• Public comment will be allowed for a total of 10 minutes per agenda item and no more than 2
minutes per person.
• Public comment will be heard at the beginning of each Item.
• Once the item is called, no other comment cards will be accepted.
Chris Lagerbloom, City Manager
I would like to give you a status update on an issue that is not published on tonight's agenda but I have
to make a decision regarding it prior to our next meeting.
The issue deals with the Public Safety Radio System and the tower facility that is being contemplated by
Fulton County.
They want to put the tower on the property that has the Freemanville water tank on it.
The water tank is located at 150 feet.
Fulton County rejected the plan that we originally sent them because they cannot build the tower due to
the water lines that run under the ground.
Heavy equipment that is required to construct the tower would put pressure on the lines and possibly
cause damage.
So, in order to put the tower in that location, it would have to be put as close to Freemanville Road as
they could get it and as far north as possible.
We rejected that offer because of its proximity to the neighboring subdivision.
The map in front of you from Fulton County is the newly proposed location for the tower.
It is further to the south and away from the property line by 15 feet.
This plan is the current plan that is being discussed by Fulton County.
The only issue we can control at this point is the building code.
Work Session of the Milton City Council
Monday, May 12,2014 at 6:00 pm
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If Fulton County applies for a building pennit for this tower, we will review it against the building code
for compliance.
Our telecommunications ordinance does not apply to Fulton County building an asset on their property.
Agenda Item #1 was read.
1. Discussion of Arnold Mill Visioning Study.
(Andrew Smith, Atlanta Regional Commission)
Andrew Smith, Atlanta Regional Commission
The Atlanta Regional Commission's (ARC) Community Development Division leads a variety of
planning assistance teams each year as a service to communities in metro Atlanta. These activities are
designed to respond to targeted, local planning and visioning needs on an ad-hoc basis and are typically
outside the more fonnal context of some of the division's other functions and programs.
ARC's planning assistance projects typically focus on convening stakeholders, facilitating workshops
and charrettes, assembling input, and developing plans.
This report is part of ARC's Planning Assistance Team program and details a land use, transportation
and community vision for the Arnold Mill Road corridor in the City of Milton.
Background
In the spring of2013, staff from the City of Milton Community Development Department approached
ARC for planning assistance to conduct a visioning study for the Arnold Mill Road (SR 140) corridor
from the city limits just south of Green Road to the Cherokee County line at the Little River. Arnold
Mill Road is identified in Milton's 2030 Comprehensive Plan as a Character Area designated for future
master planning, and the City desired to take a first step in the planning process via this study.
City staff communicated several existing, emerging, and potential conditions that fonned the basis of
requesting assistance at this time. These factors included:
• The corridor's position as a gateway to and from the City of Milton, connecting the neighboring
communities of Alpharetta, Cherokee County, and Roswell;
• The corridor's residential and agricultural land uses, forested segments, and potentially historic
properties that give it a unique rural and semi rural character, especially in relation to other parts of
Milton and North Fulton County;
• The near-tenn potential for growth pressure in the corridor due to rebounding development activity in
North Fulton County and the City of Milton and to increasing interest from the development community
in this specific corridor;
• The possibility in the long tenn of expansions to water and sewer access and treatment capacity in this
part of North Fulton County, which would be undertaken by the Fulton County Department of Water
Resources and which -even if outside the City limits -could fuel new development in the
area;
• The significant volume of daily commuter traffic handled by the corridor in a two-lane configuration;
• The long-tenn prospect of widening or other large-scale capacity enhancements to Arnold Mill Road,
which is a state route (SR 140) managed by the Georgia Department of Transportation (GDOT); and
• The eventual closure of the large landfill at the northern end of the corridor, which is privately owned
and operated by Waste Management, Inc.
Many of these factors are part of the City's desire to "get ahead of," and plan for, potential growth and
development pressures in this corridor. Given the corridor's interplay with multiple neighboring
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Monday, May 12,2014 at 6 :00 pm
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jurisdictions, county and state agencies, and private entities, City of Milton staff felt that ARC could
offer a unique regional perspective to this local planning project. As part of its work, ARC worked
closely with City staff as a team to facilitate a multi-day workshop and other community meetings in
2013 to gather input from local residents, business owners, property owners, and others on their desires
for the future of the corridor. ARC also helped the City engage with Fulton County, GDOT, and Waste
Management to better understand their roles in Arnold Mill Road's future. This resulting report details:
• Existing conditions and plans in the corridor;
• Potential issues and opportunities; and
• A broad, community input-based vision for the future of the corridor in terms of land use, development
and design, transportation and infrastructure, the environment, and recreation.
Existing Conditions and Resources Reviewed
Location and Key Attributes
The Arnold Mill (SR 140) corridor is approximately three miles in length, from the Cherokee County
line at the Little River to the Milton city limits south of Green Road . Nearly 100 parcels directly adjoin
the corridor, totaling almost 520 acres in land area. The corridor spans much of the western edge of the
City of Milton, linking the city with Cherokee County to the north, Roswell to the west, and Alpharetta
to the south.
The corridor intersects with several thoroughfares, such as:
• Green Road
• New Providence Road
• Cox Road
• Ranchette Road
• Sweetapple Road
• Lackey Road
Arnold Mill Road is a heavily traveled commuter corridor. Some of the challenges facing the City
involve transportation, including balancing the management of daily vehicular traffic flow with the
preservation of the corridor's rural character and the goal of improving the travel options available
along this route. This study focuses more directly on transportation issues in a standalone section within
Proposed VisionlRecommendations.
Study Area Note
For the purposes of this project, the study area mirrors the boundaries of the Arnold Mill Road Master
Planning Area as detailed on the City'S Future.
Development Map, with the Arnold Mill Character Area forming the core of this study's scope. The
Arnold Mill Character Area is detailed in the map on the following page, as well as on pages 11-12
along with the Master Planning Area. The decision to use these areas -already defined by the City in
previous planning efforts -as the basis for this study, was intended as a way to maintain a high level of
consistency with the City of Milton's 2030 Comprehensive Plan.
It should not be construed to mean that:
• The study area boundaries are permanently set or cannot be modified in future iterations of this plan;
• Parcels close to the Arnold Mill corridor cannot be part of future iterations of this plan; or
• The study area boundaries presuppose any future or potential assembly or subdivision of land.
Existing Land Use
Current land uses along the Arnold Mill corridor vary widely, but the following uses predominate, as
shown on the City's Existing Land Use map, developed in 2010:
• Large-lot and low-density "open road" residential
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• AgriculturelEquestrian
• ForestedlUndeveloped
Other uses include:
• Industrial
• Community Facility
• Transportation/CommunicationJUtility
• Private Recreation/Golf Course
These land uses, combined with the corridor's two-lane configuration, give Arnold Mill Road rural and
semirural qualities that are distinct from the high-intensity retail uses and higher-density residential
subdivisions to the south and east. The images opposite offer a glimpse of this rural aesthetic.
Plans and Zoning
The City of Milton's 2030 Comprehensive Plan breaks the city into eight Character Areas in order
to plan appropriately and effectively for subareas of the city that feature unique conditions,
infrastructure, land uses, and development patterns . The Arnold Mill Road corridor represents one of
these Character Areas, with specific attributes and principles that guide its future development. The key
tenets of the plan's current vision for the Arnold Mill corridor are to:
• Respect the corridor's rural character
• Preserve open space
• Avoid strip commercial development
• Channel any non-residential or mixed-use growth into small nodes, separated by open
space
• Allow only relatively low-intensity uses, such as:
o Agriculture, Equestrian, and Estate
o Low/Medium-Density Residential
o Retail & Service
o Parks, Recreation & Conservation
• Apply design standards to new development to
align with rural preservation goals
• Preserve historic and environmental resources along the corridor.
On its Future Development Map, the Comprehensive Plan visually depicts the city's Character Areas,
including Arnold Mill. The Arnold Mill Character Area, like the others, is a parcel-based geography. It
includes all parcels within the City limits with frontage on Arnold Mill Road.
The Future Development Map also designates certain sections of the city for special planning attention.
Master Planning Area: The Arnold Mill Road Character Area is identified as a Master Planning Area for
additional focus because of its special position as a gateway into the city, and due to the city's desire to
preserve the corridor's scenic and rural qualities while providing controlled, small-scale outlets for
development pressure.
Gateways: The Comprehensive Plan indicates that gateways are important identifiers that distinguish the
community from others, not only for directional purposes but also for economic development and
marketing purposes. The plan designates the intersection of the Milton city limits with Arnold Mill Road
-both at the Fulton/Cherokee County line and at the city boundary south of Green Road -as gateway
areas into Milton. These areas are identified as locations for welcome signage and landscaping.
Rural Viewshed: Milton ' s Comprehensive Plan also emphasizes certain areas as Rural Viewsheds,
including Arnold Mill Road. These corridors typically wind past working farms, equestrian facilities,
grazing pastures, low density and rural residential uses, and relatively undeveloped or forested lands.
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Milton's plan emphasizes that these viewsheds, including Arnold Mill Road, should be protected
through tools such as:
• Applying context-sensitive design standards to new development;
• Designating viewsheds or portions thereof as "sending" areas in
Milton's Transfer of Development Rights (TDR) program to channel growth to other priority areas.
One final piece of Milton's 2030 Comprehensive Plan is its Future Land Use Map, which together with
the Future Development Map represents the City'S future development policy and is used to guide the
City in land use decisions during the current planning horizon. The Future Land Use Map is a specific,
parcel-based illustration of development policy, showing the desired, allowable land uses for each
parcel. Land uses are separated into standard categories, including Residential, Commercial, and
Industrial. This classification system, attached to every parcel of land in the city, supports future zoning
decisions. By far, the Agriculture, Equestrian, and Estate Residential (AEE) category figures most
prominently in this corridor. AEE consists of scattered single-family homes, each on at least one acre,
but typically on several acres. This land use promotes hobby farms, equestrian facilities, and large lot
residential estates, including minimum 3-acre lots on gravel roads. This category effectively
encompasses many of the activities for which the land in this corridor is currently used, as detailed in the
Existing Land Use section of this study -notably, large-lot and estate residential, and agriculture and
equestrian uses. The Retail and Service (RS) category can be seen in small nodes toward the
northern end of the corridor as well. This type of use is envisioned as a standalone structure or part of a
shopping center sized suitably to the site. Community Facilities (CF) are also found on the Future Land
Use Map in this corridor. This land use includes public uses such as community centers, senior
centers, health centers, fire and police stations, libraries, government facilities, schools, semi-pUblic uses
like churches and cemeteries, and institutional uses such as hospitals. Some of the key uses depicted are
the sites of the existing Crabapple Fire Station #41 at New Providence Road and Ebenezer
Methodist Church at Cox Road. The Private Recreation (PR) category represents privately owned
recreational facilities such as golf courses and common open spaces. The PR use included in
the Arnold Mill corridor is the site of the current Georgia Golf Center. Finally, the Parks, Recreation and
Conservation (PRC) land use category includes parks, open space and recreational facilities owned by
public entities. The map depicts the Chadwick Road Landfill, currently owned and operated by Waste
Management Inc. as a future PRC use.
Aligning with the AEE classification on Future Land Use Map, property in the Arnold Mill Road
corridor is zoned almost exclusively as AG-1 Agricultural, which primarily allows uses such as farming
of crops and livestock, equestrian facilities, and large lot single-family residential. The minimum lot size
for parcels with frontage on a paved road is one acre, while the minimum lot size for parcels with
frontage on an unpaved road is three acres. Building height is capped at 40 feet. Mirroring the RS
classification on the Future Land Use Map, a handful of properties in the corridor are zoned for
C-1 Community Business, which allows a wide variety of neighborhood-and community-oriented retail
and service activities as primary uses, as well as single-family, two-family and multifamily dwellings as
accessory uses. There is no minimum lot size for commercial uses, and building height is
capped at four stories or 60 feet. Contrasting with its AEE designation on the Future Land Use
Map, one area in the northern section of the corridor is zoned as R-2A Single-Family Residential, which
primarily allows single-family dwellings at a minimum lot size of just over half an acre, which is smaller
than that of AG-1. As with AG-1, however, buildings in this zoning district are capped at 40 feet in
height.
Work Session of the Milton City Council
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Historic Resources
The SR 140 corridor features a variety of long-time family farms, homesteads, and places of business
and worship, some constructed as early as the 1850s and many dating to the early 20th century. Many of
these properties and structures are potentially historic resources that should be preserved and enhanced
wherever possible, in keeping with the City'S goal of preserving this corridor's unique rural character
and heritage.
An appendix to this study contains historic resources surveys conducted in 1995-96 and 2000-01 by the
Historic Preservation Section (now Historic Preservation Division) of the Georgia Department of
Natural Resources that detail up to 15 properties and structures of potential historic value in the Arnold
Mill Road corridor.
Most ofthese historic resources cluster in the areas of Cox Road and Lackey Road, as well as the
historic Chadwick community, which is home to the old Chadwick Store, Amold-Chamblee-Chadwick
House, and the corridor's namesake -the Arnold Mill.
As some segments of the corridor straddle the border between Milton and Roswell, some of these
historic resources are in the City of Roswell and not subject to Milton's land use and other controls.
However, these resources are deserving of renewed surveying, study, preservation, and enhancement
along with any new development or change that comes to the area. Close coordination and collaboration
between Milton and Roswell regarding the preservation of these historic resources will be to the mutual
benefit of both cities.
Community Workshop
In June 2013, after initial research and consultation with City staff, the project team conducted a multi
day community workshop to gather input from residents,
property owners, business owners and other stakeholders on issues including:
• The corridor's greatest assets and challenges
• A vision for the character of the corridor, e.g., rural/suburban, agricultural/residential/retail, etc.
• Where future growth could go, what it could it could look like, and how it could function
• Areas that could serve as a model for the corridor's future
• The corridor's highest priority transportation issues
• Needs in the area of recreation, e.g., parks, trails, etc.
Kicking off the process was a community meeting held at Ebenezer United Methodist Church on June 4.
This was followed by two days of more informal, small group meetings convened at Porter Academy on
Cox Road and the community meeting room in the Kroger supermarket at Crabapple Shopping Center.
This phase of the process was geared toward property owners in the corridor, Milton Planning
Commission members, planning staff from neighboring jurisdictions, and other stakeholders who had
questions or felt more comfortable offering their input in a small group setting.
During each phase of the workshop, the project team presented and generated discussion regarding
existing conditions in the corridor, current plans, and the key issues and challenges described above.
Other Meetings
During 2013, the project team also met in person with representatives from GDOT, the Fulton County
Department of Water Resources, and Waste Management, Inc., in order to gather key information to
inform the study.
In November 2013, the project team returned to a public meeting format at Ebenezer Church to present
an overview of the input gathered to date, key findings from the June workshop, and information
gleaned from subsequent meetings with partner agencies and groups. The team used this forum to gather
additional feedback from the community on the direction of the study.
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Results
The input and feedback obtained through these meetings and discussions with members of the
community and other key agencies helped inform the project team's own analysis and guides the
Proposed VisionlRecommendations detailed later in this report.
Water and Sewer
One of the greatest impediments to development along Arnold Mill Road has been the area's lack of
municipal sewer access. Properties throughout the corridor, and in far north Fulton County as a whole,
rely on septic systems for the handling of sewage. Sewer service exists mostly south of a roughly east
west line below Cox Road. Sewage in served areas drains to the Little River Water Reclamation Facility,
located at the confluence of Rocky Creek and the Little River in nearby Cherokee County. Operated by
the Fulton County Department of Water Resources, this treatment plant serves part of Cherokee County,
the City of Mountain Park, and communities in north Fulton County -again, mostly south of Cox Road
where higher-density development has occurred. Much of the Arnold Mill Road area also relies on well
water rather than municipal water service. These factors, especially the lack of sewer, have kept at bay
higher intensity development prevalent father south and east in Roswell, Alpharetta, and other
parts of Milton. However, Fulton County has in its capital plans a significant upgrade to the Little River
plant, slated to begin later in 2014. By 2017 when the project is complete, the plant's capacity for
wastewater treatment will be double its current capacity.
No plans are in progress and no funds are available to the County to extend sewer line infrastructure or
create new access in the near future, despite the impending upgrade to the Little River plant. However,
similar to the potential in the long term for growth pressure induced by large-scale transportation
enhancements to SR 140, there exists the possibility that in the long term, the expanded, available
capacity to process sewage could induce the development community and local governments to begin
formulating ways to develop this area of north Fulton County.
With new development pressures or appeals from developers and local governments for the convenience
of municipal sewer service, Fulton County would be put in a position of responding to new demand and
new customers. Reacting to that demand, piecemeal sewer line extensions could begin creeping toward
Milton from neighboring jurisdictions such as Roswell, and the Arnold Mill Road corridor -in its
position on the western edge of Milton -could become surrounded by increasing demand for sewer
service. This would place Milton leaders in a difficult position. Allowing sewer access is purely a City
policy issue, but if new development and sewer access were to expand throughout this part of the
county, City leadership would be faced with heavy demands from many different groups to allow sewer
access.
Similar to development pressures induced by transportation improvements, water and sewer upgrades
can fuel growth pressures as well. Higher intensity development on Arnold Mill Road would hinge
heavily on expanded sewer access; while a long-term issue, it is one that the City needs to monitor and
begin to plan for. Throughout this study process, the project team engaged with Fulton County, which in
the meantime will monitor the results of this study and any resulting changes to Milton's development
regulations as a way to understand and plan for future sewer capacity and access scenarios.
Package Plants
In the near term, it can be assumed that any new development in this corridor would continue to use
septic, which limits density. The City should continue to explore the environmental and legal aspects of
the use of septic "package plants" to handle sewage. These plants effectively act as a large septic
system, collecting and treating wastewater from multiple properties or users within a development or
community. This allows structures to be grouped closer together and creates efficiencies because only
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one system must be maintained. This type of system is used at the Serenbe conservation subdivision in
south Fulton County. Milton staff should continue studying Serenbe as a model, to understand the
intricacies of package plants and their implementation, which could facilitate compatible development
discussed in the Proposed VisionlRecommendations section of this report.
Proposed VisionlRecommendations
Land Use, Development, and Design
Input gathered during the community workshop process guides the key recommendations of this section,
many of which closely mirror the concepts already found in the 2030 Comprehensive Plan's treatment
of Arnold Mill Road.
Development Pressure
Some attendees at the community workshop and throughout the study process have expressed concerns
with the corridor changing in any way, preferring to maintain the status quo and not address the issue of
planning for this area at this time. This is not an insignificant viewpoint. However, as mentioned in the
Introduction to this study, City staff is aware of significant near-term potential for growth and
development pressure in this corridor, and the City's goal is to "get ahead" of this pressure so that it can
be guided and crafted in ways that are supported by the community. Specifically, Milton has seen, and
continues to see, growing interest from the development community in the City as a whole and in this
corridor. Over the course of2012 and 2013, Community Development staff saw a steady rise in
the munber of communications, discussions, and requests for information from property owners,
brokers, and developers regarding rezoning, building, and land development in this area.
This potential development pressure can likely be attributed to increasing overall development activity
in North Fulton County and Milton in particular. As the economy continues to recover, so too does the
housing market, especially in this part of the region where most residents enjoy a high quality of life and
access to high-paying jobs. Strong, successful public schools in this part of Fulton County also represent
an attractor that continues to draw growth to this part of the region. As evidence of growth pressures
returning to the Milton's doorstep, City leaders in January 2014 passed an emergency moratorium on
rezoning applications, spanning mUltiple residential districts and relating to rezoning requests to specific
zoning classifications, including Community Unit Plan (CUP), Neighborhood Unit Plan (NUP),
Transitional Zone (TR), and Single-Family Dwelling (R-2 and R-2A). Residential developers are
looking to increase allowable building footprints and densities, lower costs, and maximize their returns
on investment by upzoning to higher intensity classifications.
Moratoria can help in the short term, but a long-term solution involves getting ahead of unchecked
development in order to balance economic growth and property tax revenues with community
preferences. Without careful planning in place, lands surrounding Arnold Mill Road could devolve
into piecemeal rezoning and redevelopment actions that likely cannot be denied indefinitely in a legally
defensible or cost-effective way. With some persistence, a handful of property owners could become
entitled to develop their land for new or higher intensity uses or at higher densities -or sell to a
developer to do so. This scenario could create a precedent for other land owners in the corridor to follow
for economic gain in the near term. Assemblage of key properties could also create very large parcels for
rezoning, which might not prove difficult, given the many large parcels in the corridor already. This
chain of events could transform Arnold Mill Road into a disjointed string of scattered subdivisions and
commercial development, with the corridor losing its unique, rural character in the process.
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Recommendations
With this concept of development pressure in mind, and keeping in view the resources reviewed and
community input gathered in this process, recommendations for the corridor in the area of Land Use,
Development, and Design include:
Preserve unique resources: Community preferences voiced during this study process stressed the
importance of preserving the unique aspects of this corridor as close as possible to present-day
conditions. Such resources include the corridor's rural character, scenic views, specimen trees, wetlands,
and historic properties and structures.
Avoid strip commercial and office development: Study participants strongly emphasized a desire for
Arnold Mill Road to remain a primarily residential and agricultural corridor, rather than moving toward
an intense commercial or office development pattern. Workshop attendees and Ci ty staff noted that a
wide variety of large-scale and chain retail options are available to area residents at the southern end of
the corridor near Crabapple Road and points farther south, and that there is no need to replicate those
development patterns along Arnold Mill Road. While most of that commercial development is located in
Alpharetta and Roswell, and while Milton's tax base would benefit from additional commercial
development, study participants felt strongly that the Arnold Mill corridor is an inappropriate location
for strip commercial development. Participants expressed a similar view of large-scale office
development. Examples of the kind of commercial and office development to steer away from include
much of the eastern section of Milton around SR 9 at Bethany Bend and SR 9 at
Windward Parkway, corresponding to zoning classifications such as Community Business (C-l and C
2) and Office and Institutional (0-1).
Avoid the standard subdivision "pod" model: Similar to strip commercial, community preferences in the
area of residential development indicate a desire to avoid the traditional suburban subdivision model
prevalent in much of the Atlanta region. This development pattern typically involves cul-de-sac
subdivisions that are disconnected from each other and furmel neighborhood traffic onto one nearby
major road (such as Arnold Mill) via one or two entry/exit points. Minimum lot sizes often range from
0.10 to 0.50 acres. This pattern also typically includes design features such as prominent, front-loaded
garages , and a lack of sidewalks. While much of Milton's residential development is tied to farmsteads
and/or is on very large lots, examples of standard subdivision development exist in the
eastern parts of the city, clustered roughly around Alpharetta Highway/SR 9 and Bethany Bend. These
subdivisions are typified by zoning classifications such as:
Single-Family Dwelling (R-2A, R-4A, R-S, and R-SA). Examples of other more standard subdivision
models to avoid are present at the southern edge of the
city off Providence Road and Hopewell Road. Zoning classifications associated with these areas include
Single-Family Dwelling (R-2A, R-3, R-3A, and R-4A).
A void dense townhome and apartment development: Study partici pants also viewed dense, large-scale
townhome and apartment development as inappropriate for the Arnold Mill corridor, given the desire to
maintain the route's rural character. Examples of dense residential development of this type predominate
in the eastern areas of Milton off Deerfield Parkway, Webb Road, and MorrislMcGinnis Ferry Road
corresponding to zoning classifications such as Medium Density Apartment (A) and Townhouse
Residential (TR). By the same token, input reflected that the density, intensity, and building heights in
the Crabapple area are incompatible with the community'S and the City'S lower-intensity vision for
future land use on Arnold Mill Road. This feedback suggests that certain aspects of zoning
classifications such as Mixed Use (MIX) do not fit the corridor either.
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Guide new development to one or two small nodes with a design-oriented zoning overlay, reserving the
rest of the corridor for rural , agricultural and low density residential use: As an alternative to strip
commercial, traditional cul-de-sac residential , and denser townhome style development, community
input suggests that any new development in the corridor should be directed to one or two small nodes ,
leaving the rest of the corridor rural and low-density in character.
This result could be achieved by:
• Designating certain nodes along the corridor as "receiving areas" in Milton 's Transfer of
Development Rights (TDR) program, while designating the rest of the corridor as a TDR "sending
area ."
• Implementing a Form-Based Code or overlay in the corridor to designate certain zones as rural, with
zones of increasing development intensity around one or two key nodes. This is similar to the tool used
in the Crabapple area, although community input gathered during this study suggests that the specific
Transect Zones used in Crabapple are not necessarily appropriate for this corridor -especially the
T -Zones at the center of Crabapple Crossroads. As such, a Form-Based Code or overlay on Arnold Mill
Road would need to be calibrated properly.
o For the rural segments of the corridor, the Crabapple T -2 Rural zone, or a new zone somewhere in
intensity between T-2 Rural and T-3 Suburban, would be appropriate.
o For the village nodes, a new zone somewhere in intensity between the Crabapple T-3 Suburban and T
4 General Urban zones would be appropriate .
• Reducing minimum lot sizes in new nodes while maintaining large minimum lot sizes in the rest of
the corridor.
• Enhancing education efforts and engagement with property owners to increase the implementation of
Conservation Easements in the planned rural sections of the corridor.
• More on Small-Scale Nodes
Each node could also embody a hamlet or village character via building and site design standards that
would differentiate it from its surroundings and give it a sense of place. A hamlet or village node would
ideally feature:
o A small-scale street grid for internal circulation and connectivity, preventing unnecessary trips on
Arnold Mill Road.
o A focus on the "Complete Streets" concept -with accommodations for cars , bicycles, and pedestrian s
in a design that is sensitive to the rural context of the area.
o Building design standards that focus on form rather than use , emphasizing a rustic, vernacular
farmhouse design using wood, stone, brick -rather than a modem look of concrete and steel.
Also to be avoided are the more urban , all-brick townhouse design accents prevalent in Crabapple.
o A mix of uses on relatively small lots, including neighborhood serving retail , restaurant, and office;
live-work ; residential ; and educational-avoiding strip commercial , traditional subdivisions ,
and large-scale office that could generate heavy traffic volume and duplicate land uses already present at
the southern end of the corridor.
o Height limits of 1 to 1.5 (or potentially 2) stories , to reflect the village or hamlet aesthetic.
Community input reflects that heights of even 2 .5 to 3 stories, as implemented around Crabapple, are
too intense for this corridor 's character.
o Rear-loaded parking, which allows buildings to fully address the street and creates opportunities for
building users to interact with each other.
o Environmental design features that mitigate stormwater runoff and preservegroundwater quality.
These include items such as bioswales instead of traditional curb-and-gutter design, as well
as pervious pavers or gravel for parking areas . Possible locations for new hamlet/village nodes include
the area around
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Arnold Mill Road at Cox Road, and the area around old Chadwick community at the northern end of
the corridor. The recent Cox Road intersection improvements make it more able to handle additional
activity. The Chadwick community's location at the northern end of the corridor is far enough from Cox
Road and the SR 140/Crabapple Road retail uses that it can both handle more intensity and also add
unique value to Arnold Mill Road rather than competing with other activity along the
route. A node around the Chadwick community would also present a unique opportunity to serve as a
gateway to Milton from the north.
Both of these locations exhibit a historical precedent for clustering residential and non-residential uses
together in a village or hamlet setting. Creating new nodes for future development at these locations
would build off that historic precedent as well as the Comprehensive Plan and current
zoning, which have planned for and allow at least some level of clustering of mixed uses in these two
areas. Importantly, for the purposes of this study, the project team chose not
to outline potential development nodes on a parcel-by-parcel basis. This is intended so as not to
presume that any specific property owners will desire to be included in, or excluded from, any such
nodes. This study aims to very broadly document these locations as possible areas for new
hamlet/village development. Also of note is that in both potential node locations, the city limits of
Roswell are in very close proximity; in the Chadwick node, Cherokee County is in close proximity
as well. Nodal development envisioned by this study would take place in the portions of the nodes that
lie within the City of Milton. However, Milton staff and leadership should continue to coordinate closely
with Roswell and Cherokee County to ensure that any planned hamlet/village development nodes would
be compatible with planned uses in those adjacent jurisdictions. Coordination will likewise create the
opportunity to realize potential synergies between Milton's plans and those of its neighbors.
Lower Intensity Uses Between Nodes
Areas in between new development nodes would be set aside for the rural, agricultural, large lot and
low-density residential, parks and conservations uses -most of which are not only allowable but
predominant in the corridor today. Also possible in these areas would be Conservation Subdivisions,
which were discussed during the community workshop and received generally positive reactions.
Models for this kind of development include Big Canoe in Dawson and Pickens Counties, and
the lower-density portions ofSerenbe in the City of Chattahoochee Hills in south Fulton County.
In contrast to typical residential development, conservation subdivisions cluster homes on smaller lots
and reduce private yard setbacks and minimums, while setting aside large expanses of the overall
development for woodlands, trails, community gardens, and greenspace. This development pattern
produces subdivisions with less intensity than a village node but also a strong sense of place and natural
amenities that can be enjoyed by the community.
• Hybrid Approach for Node Development: Importantly, the City could explore planning for a hybrid
approach combining hamlet/village development and the conservation subdivision model within
each small-scale node, while preserving the rest of the corridor for truly rural, agricultural and very
large lot residential use. In the conceptual designs that follow on pages 27-28, a combination of these
two development options is put forward.
Transportation
The Arnold Mill (SR 140) corridor is approximately three miles in length, from the Cherokee County
line at the Little River to the Milton city limits south of Green Road. The corridor spans much of the
western edge of the City of Milton, linking the city with Cherokee County to the north, Roswell to the
west, and Alpharetta to the south.
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Configuration
The Arnold Mill corridor follows a rural, two-lane cross-section and intersects directly with several
thoroughfares:
• Green Road, which carries traffic to and from Crabapple Road and points east. The Green Road
intersection is un-signalized in all directions.
• New Providence Road, which offers access to and from Birmingham Highway (SR 372) and points
north and east. The New Providence Road intersection is currently un-signalized in all directions and
features geometry that creates hazardous turning movements. However, this intersection is in the process
of being improved to correct its skew angle , add dedicated tum lanes in all directions, and install a
traffic signal. Construction is underway and scheduled to be complete by summer 2014.
• Cox Road, which serves as an east-west connection to and from Roswell and points west, including SR
92. The Cox Road intersection is signalized and was improved in 2013 to add dedicated tum lanes in all
directions.
• Ranchette Road, which cuts through to and from New Providence Road. The Ranchette Road
intersection is un-signalized in all directions.
• Sweetapp1e Road, an unpaved road which runs east-west to and from Ebenezer Road. This intersection
is un-signalized in all directions. Sweetapple Road is a private road that has effectively become public
via a prescriptive use easement acquired over many years of public use.
• Lackey Road, which connects to and from residential neighborhoods in the City of Roswell and,
ultimately , Cox Road. This intersection is un-signalized in all directions. Lackey Road is a private road
that has effectively become public via a prescriptive use easement acquired over many years
of public use.
Volume
Arnold Mill Road is a heavily traveled state route used for daily automobile commuting. In 2011, two
way traffic counts measured near the center of the corridor, just north of Holly Road, stood at roughly
18,460 cars per day on average. That same year, two-way counts measured just south of Green Road
near the city limits stood at approximately 19,230 cars per day on average. The SR 140 corridor collects
morning peak hour trips originating in Cherokee County and points north and funnels them south/east
toward Alpharetta. Continuing south/east on SR 140 -which eventually becomes Holcomb
Bridge Road -or working their way east on major arterials such as Mansell Road, many of these drivers
eventually end up at SR 400 and continue their commutes to major regional job centers. In the evening
peak period, the reverse takes place. These conditions cause significant queuing during the morning
peak period, backing cars up from Crabapple Road to north of Cox Road. In the evenings,
most queuing takes place on Crabapple Road and Houze Road as drivers move west and north,
respectively, toward Arnold Mill Road and points north . Once traffic advances north of Crabapple and
Green Roads, it flows more freely. However, southbound traffic in the evening is also challenging, often
causing southbound queuing on SR 140 from Crabapple Road to north of Cox Road. This condition also
creates challenges for northbound drivers turning left from SR 140 onto Cox Road, although this
situation has improved recently due to the intersection improvements detailed above.
Speed
With freely flowing traffic, especially in the northern two-thirds of this corridor, come higher vehicle
speeds. As emphasized during the community workshop, many drivers feel unsafe each time they pull
onto Arnold Mill Road, regardless of the time of day. This condition exists when pulling out of
driveways, off local dead-end streets, and even off major through streets.
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GnOT Plans
As was evident during the 2013 community workshop and other meetings, there has been substantial
confusion among different groups about GDOT's future plans for SR 140. After research efforts,
consultation with ARC Transportation staff, and meetings with GDOT staff, it is clear that there have
been multiple GDOT planning efforts over the years that have changed over time along with changes in
population projections, funding levels, local and state leadership, and the expansion -and in Milton's
case, incorporation -of surrounding cities with local priorities. Milton is now in a better position to
understand GOOT's role in the future of this corridor and what role the City can playas well.
New Bridge over Little River
This is the only planned GDOT project currently proceeding nonnally toward construction. The project
involves replacing the current SR 140 bridge over the Little River with a new, two-lane bridge in
roughly the same location. This project is related to safety and the advanced age of the current bridge
and not a broader widening project on SR 140. The bridge replacement is scheduled to be authorized for
construction beginning in 2017 and completed in 2018.
SR 140 Four-Lane Widening
This is a planned project that raised considerable discussion during community meetings. However, the
project is confined to GDOT's long-range list -with construction planned for 2020 at the very earliest
and is presently "on pause" indefinitely.
The project as planned involves widening SR 140 from two to four lanes in three phases, from East
Cherokee Drive in Cherokee County to Mansell Road in Roswell. GOOT has been working with the
Federal Highway Administration (FHW A) since 2007 to study and finalize "logical tennini," i.e.,
beginning and ending points, for this project. GDOT cannot move forward with environmental
studies or other activities without FHW A approval. Ultimately, the ability for GDOT to obtain FHW A
approval and access federal funding for this project requires agreement on the logical tennini issue
between all of the local jurisdictions along this route, including Cherokee County, Milton, and Roswell.
To date, no agreement has been reached, and none is likely. Meanwhile, no substantial injection of local
funds appears imminent either. The 2012 Regional Transportation Referendum, if passed, would have
provided a significant source of local funding to move forward with at least some phases of this project,
but that referendum failed. Additionally, even if logical tennini were not an issue and funding was
available for a four-lane widening, GDOT would not be able to widen the existing Little River bridge
because of historic structures and resources located along the bridge's approaches. Instead, the agency
would have to move the road away from its existing alignment as it approaches the Little River, and
construct a four-lane bridge in an area not impacting historic resources. This complex administrative and
financial situation has given GOOT more reason to move forward with a near-tenn, two-lane
replacement as described in the previous project above. Finally, GDOT will also need to perfonn
additional studies related to an endangered bat recently found in North Georgia, and this has caused
a general delay in this and other GOOT projects. GOOT has fonned a Citizens Advisory Committee
(CAC) to review this project. In summary, any major widening projects on SR 140 will likely remain
confined to GOOT's long-range list, be delayed beyond 2020, or be scaled back or changed
significantly.
Recommendations
To address the wide variety of transportation challenges in the Arnold Mill corridor, the project team
developed recommendations designed to ease issues of outdated intersection geometry, traffic volume,
speed, while enhancing the corridor. Recommendations center on pursuing smaller fixes in the near
tenn, instead of waiting on -or working to block - a widening. Alleviating current volumes and
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bottleneck conditions via a widening on SR 140 would likely be fruitless without additional widenings
on other area roads that connect to Arnold Mill, such as Rucker Road through Roswell and Alpharetta,
and Houze Road (SR 140) through Roswell. Coordination, timing, and funding of such projects could be
difficult and slow to develop. Any widening of Arnold Mill Road could also induce new traffic . More
area drivers might choose the route for their daily commute or other trips. A widening could also fuel
new development in Milton, Roswell or Cherokee County. Both of these situations could induce heavier
traffic volumes than are already present and create worse bottleneck conditions at the southern end of
the corridor.
Instead, alternatives include:
• Use local funds and/or enhanced coordination with GDOT - a realistic proposition in view of the
complexities associated with widening project described above -to improve key intersections along the
corridor. These could include a range of improvements such as dedicated tum lanes, signage, stoplights,
and caution lights:
o Green Road
o Enhanced approach signage on SR 140 to alert drivers to upcoming intersection
o Caution light on SR 140 -and/or full signalization, only if approved by GDOT given the
intersection's proximity given to the SR 140/Crabapple Road intersection to the south -to assist in safer
turning movements
o Ranchette Road
o Enhanced approach signage on SR 140 to alert drivers to upcoming intersection
o Caution light on SR 140 to assist in safer turning movements -could be part of enhanced roadside
slgnage
o Dedicated tum lanes to prevent excessing queuing behind vehicles making left turns
o Sweetapple Road and Lackey Road
o Enhanced approach signage on SR 140 to alert drivers to upcoming intersection
o Caution light on SR 140 to assist in safer turning movements -could be part of enhanced roadside
slgnage
o Enhanced speed limit signage and/or monitoring at the entrances to these roads to allow them to be
more effectively used -as they already are -as connections that reduce congestion on Arnold Mill
Road, while minimizing the impacts of dust and excessive speed on the rural character of the residential
and agricultural surroundings.
o In line with the city's priority on maintaining its rural character, these roads should remain
gravel/unpaved.
• Pursue a rural parkway aesthetic in tandem with any new development in the corridor. This could
include:
o Implementing access management principles such as limiting new curb cuts
o Implementing lower speed limits in new development nodes or village centers, while allowing current
speeds in between
• Explore using local funds to extend specific roads from SR 140 to New Providence Road. These new
roads could better connect the east and west sides of the area and prevent "zig-zagging" local traffic that
is forced to travel on Arnold Mill for brief periods before accessing points east and west. Examples
include:
o Extending Cox Road through to New Providence Road. This would prevent cars from being forced to
use Arnold Mill as a connection between these two roads, which adds to volume, queuing, and
hazardous turning movements.
o Extending a new road near the existing power line easement (in between Sweetapple and Old Holly
Roads) to connect Arnold Mill with New Providence Road. This would prevent excessive cut-through
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volume on Ranchette Road and allow vehicles to cut through well north of the most congested part of
the corridor, thus reducing UlUlecessary volume and bottlenecking at the southern end.
Recreation
Overview
One final, key aspect of the future of Arnold Mill Road is recreation. Study participants and City staff
repeatedly emphasized a need for expanded public parks and recreation options on the west side of
Milton. Ideas for the City to explore include:
• Multi-use paths (bike and pedestrian)
• Equestrian opportunities
• Active and passive park space
One of the greatest potential opportunities to expand recreation options in this corridor is the eventual
closure of the Chadwick Road Landfill and its conversion to a park or recreation space.
Landfill Background
This solid waste facility is located on the east side of Arnold Mill Road at the northern end of the
corridor. Privately operated by Waste Management, Inc., the landfill has operated for many decades
under different owners. Some of its key attributes are as follows:
• Accepts Construction & Demolition ("C&D") debris
o Wood, concrete, bricks, shingles, metals, glass, etc.
• Total land area of approximately 1 00 acres
• Bordered by:
o Little River, Cooper Sandy Creek -north, northeast
o Mill Springs Academy -northeast
o Providence Lake subdivision -southeast
o Wooded homestead properties -south, west
o Historic resources
o Arnold-Chamblee-Chadwick House (1850s)
o 900 Old Arnold Mill Rd. (1890s)
• Challenging terrain
o Steep slopes down to Little River and Cooper Sandy Creek on
northern part of site
o Steep slopes up to top level of landfill mound in center of site
o Flattest terrain at base of landfill mound on south side of site, as well as on existing gravel road that
surrounds perimeter of landfill mound
Future Closure
The Chadwick Road Landfill is slated to close within the next ten years. This is an estimate, as the exact
time of closure depends on the facility's fill rate and remaining space rather than a fixed date in time.
Waste Management adjusts the landfill's projected closure date annually. The recession beginning in
2007-2008 significantly limited construction and demolition in the Atlanta region, leading to lower
volumes of waste being received by the Chadwick Road facility. As such, the projected closure date
has been pushed out more than once . The most recent projection, based on the 2013 fill rate -higher
than the 2012 rate -estimates that the landfill will be closed in five to eight years.
After closure, the landfill will be capped with a clay barrier and covered with vegetated earthen material
to:
• Prevent exposure to waste
• Prevent ponding and water infiltration
• Prevent erosion
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The site will also be fitted with pipes and other infrastructure for venting, which is relatively minimal for
C&D landfills. Following these projects, the site will be sold or leased for use by another party, typically
a local government such as Milton. Waste Management would help financially and in other ways
to repurpose the site for a new use, and monitor the site for 30 years for safety and compliance in terms
of groundwater quality and gas levels.
Potential New Uses
The project team reviewed other landfill conversions throughout the U.S. as possible models for
conversion; some conversion projects involved Waste Management, which operates this facility in
Milton. Information on those models is contained in Appendix 2 to this report.
Given input from community meetings and consultation with Waste Management and City staff, the
project team also developed a list of potential new uses for the Chadwick Road Landfill as follows
below. Most uses are limited in intensity so as not to disturb, or allow water infiltration into, the
man-made cap that will ultimately cover the site. Those activities in bold below received the most
positive responses during community engagement activities, and a final park plan could combine an
assortment of uses, including both active and passive.
Possible Uses:
• Walking, hiking and biking trails around perimeter and to top of
landfill mound
o Potential interchange point for future area-wide trail network
o Potential connection to Mill Springs Academy for shared use
o Potential connection to Cherokee County via bike/pedestrian
bridge over Little River
o Scenic viewing area at top of landfill mound
• Nature preserve/wildlife habitat
o May be limited to areas around perimeter of landfill mound so as
not to disturb cap
o Potential replanting area for declining native tree species
o Potential connection to activities ofUGA Cooperative Extension
program in environmental education and natural resources
conservation
• Botanical garden
o May be limited to areas around perimeter of landfill mound so as
not to disturb cap
• Working community garden
o May be limited to areas around perimeter of landfill mound so as
not to disturb cap
o Potential connection to activities ofUGA Cooperative Extension
program through Georgia Master Gardener volunteer program
• Dog park
• Access to Little River and Cooper Sandy Creek for fishing/recreation
• Athletic fields on level areas
o Most realistic at base of landfill mound on south side of site
• Seasonal sledding on landfill mound
• Zip line facility
• Local event and festival space
• Sculpture garden
• Solar array
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Conclusions
While municipal finances almost certainly will not allow Milton to purchase the site after its closure,
many other landfill conversions have been highly successful through leasing. The City should study the
feasibility of a leasing arrangement in an in-depth manner as part of its continued planning efforts for
the SR 140 corridor.
Additionally, City planning staff should continue to engage with the community, citizen committees
such as Milton Grows Green, and elected officials, to pursue the most appropriate mix of the above
potential new uses for the Chadwick Road facility.
Based on the above-described review of its capacity for financial commitment and more in-depth
community engagement, the City should continue to work closely with Waste Management staff to
develop a reuse plan that is feasible in terms of the site's terrain and ability to handle certain activities
versus others. This reuse plan should be in place within the next three to five years as the landfill facility
nears a more realistic and accurate closure date.
PUBLIC COMMENT
Brad Sanderson, 265 Five Acre Road, Milton, Georgia 30004
My wife and I live on the corner of Five Acre Road and Highway 9. I would like to congratulate
Andrew Smith, Kathy Field, and Michele McIntosh-Ross for taking a fairly emotional topic and making
the discussion run as smoothly as possible. Growth is inevitable and I hope everyone chooses to
embrace that. After many meetings with community input, and mitigation, a consensus was reached
regarding the use of the eight acres fronting Highway 9 which is designated as Special Area 2. I live on
approximately 2 acres of the previously mentioned 8 acres and as an outcome of the community
meetings permitted use, non-permitted use, restrictions and buffers governing the use of these 8 acres
were established and agreed upon by the participants at this meeting. Therefore, my wife and I strongly
feel that these guidelines, uses and restrictions should not become more restrictive because more
restrictions would continue to erode even more the viability and variability of the use of our property
directly affecting the marketable value of our property.
Judy Sanderson, 265 Five Acre Road, Milton, Georgia 30004
My husband and I live at the corner of Five Acre Road and Highway 9. I attended all of the meetings.
At first, the process seemed like it would be easy. We thought that our property would be rezoned and
that we would be able to do what we wanted to with our land. I have lived on my property for 40 years
and I knew that one day we would eventually have to move because we are next to a state road. The
process was easy, at first, and at times very emotional. We continued to whittle away at all the
permitted and non-permitted uses, form based codes, setbacks, buffers, etc. This property is being
referred to as 8 acres but my husband and I are only responsible for 2 of the 8 acres. I really thought we
would not be left with anything to sell when the process ended. We eventually had to compromise some
of our property and our property rights. I thought a good use of the property would be a gas station,
however, the intense lighting of a gas station would not be good for our neighbors. Throughout the
compromising, our property was compromised. I have come to peace with the decisions that have been
made, however, any more restrictions placed on our property would not be good.
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Billy Carman, 340 Five Acre Road, Milton, Georgia 30004
I moved into the Five Acre Estates subdivision in 1983. At that time, it was a residential subdivision
zoned R2 Conditional. We thought we would be protected from development since it was zoned
residential. We have watched the development go up Highway 9. We have been involved with the
landfill which is now Crooked Creek. We have been involved with a dispute about Lake Laurel
Subdivision. Due to these interactions , I have a really bad taste in my mouth about land brokers. They
came to my house and showed me a subdivision plan of Lake Laurel. We agreed on the plan. However,
what actually was developed substantially deviated from that plan.
Agenda Item #2 was read.
2. Discussion of State Route 9 Plan.
(Mich ele McInt osh-Ross, Principal Plann er)
Michele Mcintosh-Ross, Principal Planner
The State Route 9 North Vision Plan reports on the collective conclusions of the community visioning
process. The process involved interviews with property owners, and a series of community presentations
and interactive workshops as a forum to build consensus among the community. Through these
meetings, the planning team was able to work with the community to capture a vision framework for the
area. The visioning process revealed an overall vision with two distinct special treatment sub-areas.
The goals of the State Route 9 North Vision Plan are to:
• Create a vision for the corridor considering market potential and community input.
• Identify the issues and opportunities along the corridor
• Build a consensus about a cohesive future land-use plan and form of development for
the area.
• Offer recommendations to improve local zoning regulations and other land use control
tools such as form based codes.
This Plan is divided into four main sections: Inventory and Assessment, Visioning Process; Proposed
Concept Plan ; and Action Plan . The Inventory and Assessment section focuses on the existing land use ,
transportation, and market conditions within the study area . The second section , the Visioning Process,
describes the process and steps used to gather the public vision. The third section, the Concept Plan,
focuses on the land use framework plan , priority transportation projects, design standards, and other
elements which help detail the vision for the area. This section discusses the three key areas: the general
overall area and the two special treatment areas. The final section, the Action Plan, outlines
implementation strategies to guide the community through successful implementation of the plan ' s key
projects and elements.
The Hwy 9 areal of Milton has experienced development resulting from three main factors: its
proximity and easy access to the GA 400 state highway , its bordering position with higher densit y and
commercially zoned properties in Forsyth County and the City of Alpharetta, and the availability of
Fulton County sewer. Since the 1980 ' s and 1990's, and especially between 2000 and 2005 , development
advanced into north Fulton and south Forsyth counties as part of the growth of Metropolitan Atlanta.
Rapid growth in the early 2000's created a dramatic change to the character of the Hwy 9 area. Milton
was incorporated in 2006, and adopted its first Comprehensive Land Use Plan in 2011. As a community,
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the residents expressed that the Hwy 9 area needed a master plan to guide development and maintain
some character. The Comprehensive Land Use Plan identified the Hwy 9 area as a "future development
area" and recommended the development of a master plan. In 2011-2012 Milton used a Livable Centers
Initiative (LCI)2 grant to study and create a master plan for the Hwy 9 and Deerfield areas. The LCI
grant however, did not cover the entire Hwy 9 area as recommended in the Comprehensive Land Use
Plan. After the adoption of the Hwy9/GA 400 Master Plan LCI in 2012, the city launched a visioning
study to gather the community's vision for the remaining corridor: specifically that the area north ofthe
LCI boundaries to the city limits. The results of the visioning study will provide a master plan for this
remaining area. The report documents the results of the SR 9 North Visioning Study. The study area for
the State Route 9 North Vision Plan includes parcels/properties just north of Bethany Bend and adjacent
to the LCI study area as well as those parcels along State Route 9 that are vacant, underutilized, or have
redevelopment potential. The above map shows the resulting study area. It contains approximately fifty
five acres that front State Route 9 and nine acres that front Bethany Bend. The study area includes the
rights of way for State Route 9 and Bethany Bend, and the roadway intersection of Bethany Bend and
Cogburn Road.
The State Route 9 North study area is distinguishable from the original LCI area, south of Bethany
Bend, by being more residential-based, with low intensity, local-serving, activity centers. Within this
general description of the area however, there are two special treatment sub-areas that have additional
character details: Special Treatment Area 1: Nine acres along Bethany Bend; and, Special Treatment
Area 2: Eight acres along Hwy 9 at Five Acres Road.
Existing Transportation Conditions
The road network within the study area includes State Route 9 (Hwy 9 or Cwnming Hwy) and
Bethany Bend on the west side of State Route 9 to Cogburn Road. Currently State Route 9 has
two travel lanes, one left turn lane and a right turn lane, wherever required, for access
management. Bethany Bend has two travel lanes; also a left turning lane at the entrance to the
Cambridge High School, at Cogburn Road and at State Route 9. There are right turning lanes at
State Road 9 and at the entrance to Cambridge High School. No right turn lane exists at
Cogburn Road. Road quality is good.
There are sidewalks along most of Bethany Bend and State Route 9 on at least one side of the
road. The missing sections of sidewalk will be installed as the parcel is developed. Bethany Bend
has sections of the Milton Trail Plan that have been installed in front of Cambridge High School.
This is a 10 foot wide multi-use trail that serves pedestrians and bike traffic. There are sections
of State Route 9 that have marked bike lanes on the road, but there are missing sections.
Traffic signals are located at Cogburn and Bethany Bend and at Bethany Bend and State Route 9. There
is no public transit.
Market Analysis
An in depth market analysis was done in 2012 for the Hwy 9 area as part of the Hwy 9/GA 400 Master
Plan LCI. This analysis is incorporated and by reference is made part of this State Route 9 North Vision
Plan (see appendix). In swnmary, since the national economic downturn in 2008, Milton started to show
signs of recovery by 2011 particularly in the residential markets. Milton represents a family market,
more so than neighboring cities. The demographic data from the 2010 census delineates a population of
32,664, consisting of 11,659 households with an average of2.8 people per household. Milton's
households are slightly older than Alpharetta's and it is anticipated that the households aged 65-74 will
have the greatest growth. Incomes are also greater in Milton. A look at the employment data shows that
95% of Milton residents work outside the city. This study suggested that in the LCI study area, Milton
can support some mixed-use development and attract industries such as finance, insurance and real
estate. This can create an economic engine for the city while continuing to support the residential and
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equestrian character of other parts of Milton. It is anticipated that the Plan study area can capitalize on
the findings of this market analysis, but within a lower scale of intensity.
Visioning Process Overview
The State Route 9 North Vision Plan was developed through a community based public participation
process over a ten month period. The objective of the public meetings was to collect community input
with respect to intensity and types of land use that they would like to see developed in the study area.
The property owners along State Route 9 were contacted and invited to meet with the City plmming staff
to discuss their impressions of the study area as well as any redevelopment options they thought to be
appropriate. This information was compiled to use as the first step towards identifying a vision for the
area.
Community Meetings
The first meeting consisted of a group of key stakeholders which included Hwy 9 property owners and
other interested people and served as a preview presentation of the initial findings; and to discuss the
goals and purpose of the visioning study before the official kick-off presentation to the general public.
The second meeting was the official Public kick-off held on February 13,2013. Taking into
consideration the feedback from previous meetings, particular activities were incorporated to better
understand the character of the neighborhood that people would want to maintain. One of the foremost
concerns of the community was the desire to retain consistency of neighborhood. Accordingly, a visual
preference survey was used to determine the desired appearance of developments along the State Route
9 North . Residential, offices, retail, and mixed use buildings of various designs were presented and
people rated each image from 1 to 5, 1 being the least preferred.
Subsequently, a mapping exercise was conducted, to allow the community to place their preferred
images at specific locations along the study area. This helped the planning team understand and
visualize a future layout as suggested by the community.
A third, follow-up meeting, presented the results ofthe preference survey. The images rated best and
worst showed the overall notion about future vision for this community. Land use types and building
styles approved by the community were reaffirmed followed by a discussion about two specific
neighborhoods not being able to achieve consensus with the overall vision plan. These two areas were
identified for separate meetings to build a consensus about desired future development. Lastly, a plan for
gateway design at the entrance to Milton on State Route 9 was showcased.
The meeting concluded with a review of a list of land use types and forms of development that the
community had exhibited agreement. The exercise showed preferences for office, mixed use, residential
or retail development. The general consensus was established for a limited amount of mixed uses with
buildings up to two stories in height and of traditional architectural style . The public was informed about
the possibility of adopting the form-based zoning codes to control the form of development occurring in
the study area.
A final meeting was held on November 6, 2013 at City Hall. All groups were invited to hear the findings
from the special treatment areas as well as confirm the general vision for the study area. The public was
given another chance to voice their concerns about the proposed plan and overall visions. Some of the
concerns heard at the meeting were related to building mass (people disliked big-box buildings), flat
rooflines (people strongly preferred sloping roofs), and the prospect of high-density residential on
Bethany Bend.
At this meeting, next steps for the proposed plan were announced. Residents were notified that they
would have the opportunity to make comments during each step of the review and approval process .
People were also made aware of the upcoming public hearings for the rezoning of the Bethany
Bend/Cogburn Rd project. Staff also addressed questions about the Form Based Code development
process.
Work Session of the Milton City Council
Monday, May 12,2014 at 6:00 pm
Page 21 of28
Issues and Opportunities
Initial Community Feedback from Stakeholder Interviews
Assets:
• Rural! residential character
• Convenience to shopping, major transportation routes
• Walkable to shops and between neighborhoods
• Police presence
Challenges:
• Traffic volume and queuing for the school and from McFarland Road
• Difficulty turning left on SR 9
• Bethany Bend Intersection
• Current zoning is not realistic
• Single parcels of land -owners or neighbors may not want the infilUchange to
office or commercial
Improvements:
• Sidewalks would be helpful, Some in favor of bike lanes
• Bethany Bend Intersection
• Reduce miles per hour speed limit on SR 9
Housing:
• No need for additional residential other than in mixed use
• Some still feel there is a place for single family residential
• High density residential will burden the infrastructure
Office:
• Yes -dental, medical, law, other services
Retail:
• Yes, but less than the Deerfield area. No to the development of strip centers
Restaurant:
• Yes
Park options:
• No need for additional parks in the area -agreements with Alpharetta and Forsyth
would be more efficient
• Link with the Greenway
Shopping options:
• There is a Walmart within 5 miles in either direction.
• Most options are available except for an upscale Health Food store e.g. Whole
Foods
Style:
• Traditional architecture -nothing too modem
• Mix of colonial and contemporary design
• Suwannee or Woodstock style architecture
• Stone, brick, columns
• Two to three stories from grade -stories are less important than the height appearance
from the street
• No glass box buildings
• Needs more distinctive architectural style guidelines than original LCI area -Bethany
character area vs Deerfield
• More trees and plantings, as part of the aesthetics, than the Deerfield area
Work Session of the Milton City Council
Monday, May 12 , 2014 at 6:00 pm
Page 22 of28
• Continue the horse fencing theme
• Gateway to Milton from Forsyth
The land use framework shows that within the study area, there are two sub-areas that have a
slightly different character and vision from the rest of the State Route 9 North study area. The
two sub-areas (as shown on the map above) are referred to as: Special Treatment Area 1:
Bethany Bend/Cogburn, and Special Treatment Area 2: Five Acres. Their distinction in vision will
be discussed later in the chapter.
The community 's overall vision for the State Route 9 North study area is one of a mix oflow to
medium scale residential development, with low scale neighborhood-serving office and retail,
with particular attention to architectural character and walkability. It was found that the
foremost demand of the community was to preserve the less intense neighborhood
characteristic that exists north of Bethany Bend .
The desired neighborhood signature can be achieved by defining the acceptable land-uses and
building forms for new development, as well as setting the landscaping, streetscape, buffers,
and setbacks that contribute to the functional relationship between the buildings and the street
and the various uses. One of the objectives of the public partici pation process was to establish
the acceptable and unacceptable land-uses for future development.
Special Treatment Area 1: Bethany/Cogburn is a group nine parcels located along Bethany Bend
and Cogburn Road just north of Cambridge High School and the north boundary of the LCI area.
Early in the visioning process, the property owners for the nine parcels brought an application
for rezoning to the City for a proposed development of residential, office and an assisted living
facility. This proposal was not supported by the community's vision for the area. A special group
was formed to discuss and reach an acceptable compromise for the development of this site.
The meetings concluded with a concept design for 28 single family homes with open space along
Cogburn Road. The property owners took the concept through the rezoning process and the City Council
subsequently approved the application conditional to the site plan with a reduction to 27
homes and other conditions on December 16,2013. (Zoning Case # RZ13-l6NC13-06).
Special Treatment Area 2: Five Acres Road , consists of four parcels along Hwy 9. They are
approximately each 2 acres in size, with two parcels being vacant and wooded, and the other
two parcels each containing an occupied , single-family residential unit. Unlike Special
Treatment Area I, all four parcels are individually owned and are not represented by a
developer. These parcels required special treatment because the group exercises for
determining their development vision , resulted in a lack of consensus. Accordingly , a group of
owners and neighboring residents met over several meetings to discuss the future
development potential and options for the area. It was agreed that given that the parcels
fronting State Route 9 are exposed to increasingly heavy traffic volume and noise, residential
uses directly on the highway would be less desirable. However, some light-commercial, office
and retail buildings would be appropriate if they were designed to fit into the residential
character of the community in terms of scale, building materials, design aesthetic, buffers and
landscaping. The design of the entrance to Five Acres Estates was determined to be especially
important since it creates the look and feel for the entire subdivision, including all the residents who live
within. Also, it was felt that the entrance, especially because it is on State Route 9, had
to transition appropriately to a quiet residential use.
Based on the meeting discussions it was concluded that some limited non-residential uses
would be acceptable if the scale and architectural appearance complemented the Five Acres
subdivision.
In addition, it was agreed that a landscaped buffer will be maintained to block views of the
Work Session of the Milton City Council
Monday, May 12 , 2014 at 6:00 pm
Page 23 of28
redeveloped properties from Five Acres Road. A 20 foot landscape strip will be planted with
dense plantings , including evergreens , so that non-residential properties are not visible from
Five Acres Road . The overlay should stipulate landscaping buffer standards so as to block views
in all four seasons and that deciduous trees would be included for aesthetics. The existing trees within
the buffer will need to be removed in order to enable this more densely planted
landscape to be created and the entire buffer will be fronted by horse fencing as described in
the Hwy 9 Design Guidelines.
Natural landscaped buffers will also be preserved between lots located on State Route 9 and
their residential neighbors to the rear and side.
Entrances and egress to the lots will be from Hwy 9. There will be no access to Five Acres Road
from these parcels . Further, each pair of properties on either side of Five Acres Road , will share
a single entrance and egress to State Route 9, where the access to the parcels will be shared
between the adjoining property owners .
Five Acres Road will be designed for its role as the entrance to Five Acres Subdivision where no
use other than single family housing will have an entrance onto Five Acres Road. A landscape
buffer will be maintained to block views of the redeveloped properties from Five Acres Road ,
An entrance to the subdivision at the start of Five Acres Road will be designed and constructed .
All four properties within this special treatment area will maintain a 50 foot buffer along their
property lines with residentially zoned neighbors. In the rear , the buffer will be primarily
undisturbed forest, with more dense vegetation and/or fencing along the interior edge of the
buffer if the natural vegetation is insufficient to block sightlines to the potential development
from existing residential properties.
• Development will be capped at 10,000 square feet per acre of land
• Buildings will be one or two stories tall
• Buildings will be designed to fit well with the residential character of the area.
• Design elements such as peaked roofs , massing, windows , doors , and building materials
will be used to enhance building styles appropriate to the area.
• Building Accessories : Detention ponds (if used) and dumpsters will be hidden from view
• Landscaping elements will be included around parking lots and buildings.
Milton Gateway signs
As part of the City'S branding efforts, several gateway locations have been identified around
Milton, one of which is the location on State Route 9 at the Forsyth County line. This location is
Milton's major entry point from Forsyth County. The City is working through the regulation
procedures to allow for the installation of the sign and plantings at this location .
Highway 9 widening
Georgia Department of Transportation (GDOT) is working on plans to widen State Route 9 from
Alpharetta to Cumming. Currently, the project section, Windward Parkway to Fulton / Forsyth
County line, is in the conceptual design phase. The City of Milton is coordinating with GDOT to
design the Milton segment in a way that complements the neighborhood character along the
route. Access control along State Route 9 would also be evaluated during the project. Meetings
are planned for earl y 2014 to present and discuss the concept with the communi ty.
As part of the community input from this visioning process, it was suggested that a traffic signal
be placed at the entrance to the Crooked Creek subdivision.
Bethany Bend Intersection Improvements
The intersection of Bethany Bend and State Route 9 was identified in the LCI Study in 2012 as
needing improvements. Similar comments were echoed during the State Route 9 North
Visioning process as well. As a result of the LCI, the City was later able to ascertain funding for a
Work Session of the Milton City Council
Monday, May 12,2014 at 6:00 pm
Page 24 of28
project to study the intersection. The Bethany Bend intersection study is currently in the
Concept Design planning phase after which, the public information open house phase will be
scheduled in early 2014.
Agenda Item #3 was read.
3. Discussion of Retirement Plan for New Employees.
(Sam Trager, Human Resources Director)
Sam Trager, Human Resources Director
We are here tonight to discuss the Pension Plan, specifically changes to the Defined Contribution Plan,
especially for new employees.
Our current plan offers a Social Security Replacement plan in which the city pays 3.75% of salary. The
employee also pays 3.75%.
We also have the Defined Contribution Plan in which the city pays 9%, however, we are only required
to pay 5.8%. We contribute at this higher level because we were hoping to level the expenses over time.
We also have a Deferred Compensation Plan, referred to as a 457 Plan , in which the city will match an
employee's contribution up to 1 % if they contribute 2%.
With the total cost of all of these plans, the city currently pays 13.75% into pension plans and the
employee pays a minimum of 6.75%.
During the March 17, 2014 meeting, the city council asked that we explore making changes to the
Defined Contribution Plan for employees hired after July 1,2014.
All current full-time employees would remain in the existing plan.
We asked an actuary to review our current plan.
We also researched the pension plans of other cities to look for comparable plans and establish where
we are competitively in the marketplace.
We asked three main questions of our actuaries as we went through this process.
• By freezing the current Defined Contribution Plan to new employees, what will that do to our
long term funding?
• What would the minimum Defined Contribution Plan design be that would provide a comparable
benefit to new employees that our current employees have under the current Defined
Contribution Plan?
• What would an actuarial table look like if we reduced the early retirement benefit from 50% to
30%?
That means that under our current plan, normal retirement age is 65.
Employees can retire at age 55 with ten years of service and they will get a 50% reduction in the plan
benefit.
We wanted to look at what a 30% reduction would look like if it was phased in over a 10 year period at
3% per year rather than 5%.
In regards to the first question about freezing the current plan and the impact it would have on our long
term funding, if we left the current plan alone, the plan would be funded around 6% for the next 30
years.
The second plan option is the 9% contribution which is our current funding level.
The projected funding of the current plan over the next 30 years, if we freeze it to existing full-time
employees, will ultimately lead to a 16% funding requirement in 2035.
--------
Work Session of the Milton City Council
Monday, May 12,2014 at 6:00 pm
Page 25 of28
Our plan remains well funded . We are currently at 85% funding level which is very good. Over the
next 10 years we will be at 100% and remain fully funded for the next 20 years after that.
The following chart shows long-term funding for the plan once it is closed to new participants:
18.00%
16.00%
14 .000/.
12 .00%
~
1':1a: 10.000/.
c
Q
8.00%~
'1:
~
Q 6.00%
U
4.00%
2.00%
City of MUton
Projected Contribution Rate
t--
••••••••••••••• ••
~Ongoing Plan -Closed Plan as a Percent ofTotal Payroll -a-Closed Plan as a Percent of Participating Payroll
------
Work Session of the Milton City Council
Monday, May 12 , 2014 at 6:00 pm
Page 26 of28
The following chart shows Projected Plan Funding:
City of Milton
Projected Funded 0/0
105 .00% .,
100 .00% -------:-J"'O.-'-"'-."-~~' ~:: GaG c -... ..... u-.,..._"..,or-_1-1---------=-..... -!"..·r-'I~,...,.r"..
95 .00%
90.00% t
~
]85 .00%
80 .00% t--
I
7 ~ .00%
70.00% 1-
___Ongoing Plan Closed Plan as a Percent of Total Payroll
Work Session of the Milton City Council
Monday, May 12 , 2014 at 6:00 pm
Page 27 of28
The following chart was used to determine a comparable plan :
Total Salary Replacement Percentage
90% 83%
80%
7rJ'1o
6rJ'1o
50%
4rJ'1o
3rJ'1o
2rJ'1o
1rJ'1o
0% T
35 40
Hire Age
_ DC Plan -10% -DC Plan -15% _ DC Plan -20% -DC Plan -25%
45
~Current Plan
We looked at other cities in our competitive market such as Sandy Springs, Johns Creek, Roswell,
Dunwoody , Brookhaven and Alpharetta. The actuary recommended that we fund the plan at 25%
which seems to be in line with these cities.
In order to attract and retain employees qualified to serve Milton, we make the following
recommendation:
• City contributes 6.2% as SS replacement.
• Employee contributes mandatory 6.2% as SS replacement.
• City matches up to 12% (2 dollars for 1 dollar)
• Employee contributes (an additional) 6% -City contributes 12%
• Total City Cost: up to 18.2%
• Reduce the DB actuarial table for early retirement from 50% to 30%.
Work Session of the Milton City Council
Monday, May 12,2014 at6:00 pm
Page 28 of28
Public Safety is very interested in this change.
• Cost: .86% per year ($57,288)
• In order to decrease the volatility of the DB plan, an alternate funding agreement was
approved in 2012.
• This level of funding covers this plan change.
• Would encourage earlier retirements allowing more movement toward the DC plan.
We recommend that we support the proposed design of the DC pension plan for new employees and
the reduction of the early retirement actuarial table change.
Agenda Item #4 was read.
4. Discussion of Community Development Block Grant 2015 Cooperative Agreement.
(Michele McIntosh-Ross, Principal Planner)
Michele McIntosh-Ross, Principal Planner
Fulton County applies for the CDBG funding.
A portion of Fulton County's award is distributed to the participating municipalities as well as non
profits and other entities that submit an application.
In the past, Fulton County has awarded 33% to the participating municipalities.
Fulton County is asking for each participating municipality to sign a cooperative agreement stating that
we agree to their terms of participation.
We will give this agreement to our legal counsel to review and then bring it back to the council on June
16 th for a final decision.
Based on calculations from previous years, our portion of the 33% will probably be about $160,000 total
over a 3 year period (2015, 2016, and 2017).
We will also be able to receive funding from 2013 and 2014 which we have not used yet which is about
106,000.
We thought we could use the funding to construct an ADA accessible sidewalk from the parking lot to
the Hopewell House.
We can also fund a covered area for bus pick-up and drop-off at the Senior Center.
We can also use these funds for sidewalks at some of our parks or at the Hopewell House.
The funds have to be tied to ADA accessibility projects.
After no further discussion, the Work Session adjourned at 7:39 p.m.
Date Approved: June 2, 2014.
Sudie AM ordon, CIty Clerk