Durham City Council Meeting - April 7, 2025

The Durham City Council met on Monday, April 7, 2025, at 7 PM at 101 City Hall Plaza. The meeting included ceremonial proclamations, council announcements, approval of a consent agenda (with two items pulled for discussion), a public hearing on the proposed annexation and rezoning of Sheffield Farms (218.5 acres, 702 units), and a final vote that rejected the project 5-2. The council also unanimously approved the Vision Zero Action Plan and addressed other items.

Ceremonial Items

• National Poetry Month Proclamation (April 2025) – proclaimed by Mayor Williams, read by Councilmember Ruth.
• National Public Safety Telecommunicators Week Proclamation (April 13–19, 2025) – read by Councilmember Freeman; received by Marine Mitchell, shift supervisor, who noted the “gold carpet service” of dispatchers.
• Mike Woodard Day Proclamation (April 7, 2025) – honoring outgoing State Senator Mike Woodard for his decades of service; Woodard spoke of continued community engagement.

Announcements by Council

• Councilmember Cook reported on a fleet management tour, noted Durham was rated 5th best green fleet in North America, and highlighted a disaster preparedness meeting.
• Councilmember Baker noted the Joint City-County Planning Committee’s work on UDO rewrite and encouraged public engagement.
• Councilmember Caballero thanked attendees of the “Hands Off” rally (estimated 1,000 participants) and highlighted Durham Tech and Restorative Transitions.
• Councilmember Freeman congratulated UConn’s NCAA women’s championship and Sarah Strong’s record; thanked Haiti Rebòn Justice Movement for a community meeting.
• Councilmember Rist noted the rally, thanked Meals on Wheels, and congratulated the fire academy’s 29 new graduates.
• Mayor Pro Tem Middleton highlighted Southern League of Municipalities work and Western NC recovery.
• Mayor Williams announced “Move with the Mayor” park cleanups, thanked Durham Tech, Restorative Transitions, and noted the opening of the Black Farmers Market.

Consent Calendar

• Approved unanimously (7-0) with items 5 and 13 referred back, and items 14 and 16 pulled for discussion.
• Items included: reappointment of Ben Goldberg to Environmental Affairs Board; appointment of Stephenie A. Williams to Mayor’s Council for Women; Flexible Work Arrangements Performance Audit; FY 2025-26 Budget Development Guidelines; Revised Code of Ethics (referred back); Resolutions for Sandy Ridge Station ($22M bonds) and Sandy Ridge Villas ($11M bonds); SaaS license with TouchPhrase/Julota ($80,015); purchase contract for SCBA upgrades ($416,619.45); Stagville Memorial Public Art funding ($237,000); Solid Waste Management storage building contract ($337,092.20); condemnation for Parkwood sewer project (referred back); street and utility acceptances for multiple developments; Vision Zero Action Plan (pulled); contract amendments for Western Intake Partnership engineering ($14.687M and $4.056M); and Amendment 3 for biosolids handling (up to $8.5M over 5 years).
• Item 14 (Street and Utility Acceptances) – pulled by Chris Perosane (resident). He argued that accepting suburban streets (53.4 ft per home) while paying for his own alley (21.5 ft per home) subsidizes sprawl and asked the council to focus on high-injury network streets. After staff clarification (Robert Joyner, Public Works) that measurements were based on frontage, the item was approved 7-0.
• Item 16 (Vision Zero Action Plan) – pulled by Mayor Pro Tem Middleton. He expressed concern that the plan’s 2027 start date for comprehensive speed management might imply delays. Sean Egan (Transportation Director) clarified that case-by-case speed management is already underway, and the 2027 date reflects a comprehensive strategy with data collection. The plan was approved unanimously.

Public Comments & Testimony (Sheffield Farms Annexation)

• Nil Ghosh (Attorney for M.I. Homes) – Supported the project. Noted the property is within the urban growth boundary (UGB) and future growth area. Highlighted $10 million in public sewer infrastructure, a 3-mile force main, 5% affordable units at 80% AMI for 30 years (for-sale), preservation of two historic structures (circa 1850 farmhouse and slave dwelling) via Preservation Durham, and commitment to 13 of 16 traffic improvements. Disputed natural heritage area claims, stating the property has an active timbering plan and no rare species were found. Argued that the 751/Stagecoach intersection improvement was not committed due to Army Corps of Engineers uncertainty, and that the 751 South project (approved 2023) was excused from the same improvement.
• Andrea Quinn (Nunn family member) – Supported the project. Described her family’s 100-year history on the land, including the Klan burning down their mill. Stated that without sewer, her 4.5-acre lot can only support one house due to septic requirements. She asked for water and sewer to allow her family to prosper.
• Dana Young (Resident) – Opposed. Cited non-UDO compliance, 90+ public comments, two Planning Commission denials, environmental harms, traffic on two-lane roads, and infrastructure strain. Stated the development is “illogical” for the remote, ecologically sensitive area.
• Melora McCall (Resident) – Opposed. Argued that ignoring planning staff and NCDOT feedback sets a bad precedent. Stated the city must maintain fidelity to the UDO and comprehensive plan.
• Dr. Donald Lauria (Engineer) – Opposed. Called the project a “crapshoot” due to lack of detailed engineering studies on water and sewage. Said the developer’s proposal is vague and leaves details to others.
• Josh Talman (Resident, VP of Montclair at Barbie Chapel HOA) – Opposed. Highlighted that all off-site improvements are on Army Corps land, and the Little Creek Bridge (built 1979) is deteriorating and cannot handle construction traffic.
• Linda Costagliola (Resident) – Opposed. Questioned feasibility of road widening due to steep drop-offs and Army Corps constraints. Noted photos showing 10-16 foot drop-offs.
• Holt Farley (Resident, engineer) – Opposed. Called the TIA “fundamentally flawed” – used outdated COVID counts, no validation, and ignored existing approved developments. Stated that with realistic traffic, intersections would fail (F level of service).
• Betsy Buchanan (Resident) – Opposed. Noted traffic has increased markedly since the 1980s, and Farrington Mill Road is now a bypass for Chapel Hill commuters.
• Marlena Haim (Student, Jordan High School) – Opposed. Reported Jordan High School at 121.5% capacity, with 36 students in one class and insufficient desks. Stated the developer’s $65,500 contribution is inadequate for the estimated 14 new students.
• Whitney Harris (Resident) – Opposed. Cited failed promises from 751 South development (no wider roads, no new school, no sidewalks). Noted $7M DPS budget deficit, transportation cuts, and lack of fire/EMS substations. Said this is “not the right project, not the right way, not the right time.”
• Julie McClintock (Resident, retired EPA specialist) – Opposed. Stated the property is in a protected water supply watershed (Jordan Lake, nutrient-sensitive). Noted the Planning Commission twice rejected the application.
• Joan Reim (Resident) – Opposed. Raised risk of sewer main leaks near Jordan Lake, citing a 2013 break that spilled 500,000 gallons of raw sewage into Sandy Creek. Called the sewer main a liability.
• Barry Saunders (Resident) – Opposed. Highlighted stormwater runoff threats from impervious surfaces, nutrient pollution, and erosion. Stated the developer’s plan lacks a tree buffer along steep slopes.
• Eleanor Saunders (Resident) – Opposed. Cited ecological value of mature forests and ghost forests downstream. Noted the developer shows little ecological awareness.
• Bibby Moore (Chair, Durham Open Space and Trails Commission) – Opposed. Stated the natural heritage area (90 acres) is of maximum statewide ecological significance. Recommended denial unless the developer commits to protecting that area as undisturbed open space.
• Katie Haim (Board-certified toxicologist) – Opposed. Showed maps of wildlife corridors and high-priority habitat. Said the proposed wildlife corridor is insufficient and connects to non-habitat.
• Andy Hyde (Student, NC State) – Opposed. Cited climate change, increased roadkill, and traffic congestion. Stated the area’s biodiversity (otters, tigers, salamanders) is at risk.
• John Cowan (Farmer, Blue Sun Farm) – Opposed. Owns 112-acre farm adjoining the site. Said the 1,000-unit jump in density would destroy natural resources. Advocated for conservation or low-density development.
• Naomi Eckhouse (Resident) – Opposed. Cited the failed Durham-Orange Light Rail project as a lesson: infrastructure is essential. Noted the Army Corps is careful about Jordan Lake permits.
• Richard Const (Resident) – Opposed. Proposed the “Downs model” – 48 forested lots on 2-6 acres, preserving natural forest. Said the developer should consider similar low-density subdivision.
• Kathy Rexroad (Resident, RN) – Opposed. Noted that 5% affordable at 80% AMI is insufficient; median home prices in the area are $425,000-$730,000. Said affordable townhomes are typically not accessible for older adults or disabled.
• Margaret Lospinuso (Resident) – Opposed. Asked “How are the children?” – stressed that the project would harm schools, roads, and drinking water.
• Pam Andrews (Resident) – Opposed. Raised concerns about blasting, citing a recent incident where a blasting company was fined and issued a stop work order. Noted floodplains and sediment runoff.
• Sammy Sawa (Resident) – Opposed. Cited Central Pines data showing Durham has already built 32,401 units since 2020, exceeding projected need of 17,890 units through 2030. Said the city has enough housing, but needs affordable housing.
• Astrid Cookdale (Resident, Ward 3) – Opposed. Called the project suburban sprawl. Cited the NCNHP designation as a significant natural area (Morgan Creek floodplain forest, rare alluvial terrace woodlands).
• Maureen Quinlan (Chair, DOST) – Opposed. Stated the rezoning violates Comprehensive Plan policies 78-83. Recommended rejection unless the developer commits to protecting the 90-acre natural heritage area.
• Julianne Patterson (Executive Director, Preservation Durham) – Spoke in favor of the preservation component. Stated Preservation Durham is prepared to accept a donated parcel with the two historic structures and place a preservation easement. Did not take a position on the overall development.

Discussion Items (Sheffield Farms)

• Councilmember Cook – Asked detailed questions about sewer risk, feasibility of road improvements, and the Army Corps’ role. Sean Egan (Transportation Director) confirmed that the TIA-recommended improvements (except 751/Stagecoach) were found feasible. The developer’s engineer stated the sewer line would be within NCDOT right-of-way, not through wetlands. Cook expressed concern about capacity of Jordan High School and the lack of commitment to the 751/Stagecoach intersection.
• Councilmember Baker – Asked about the proposed parkland; staff noted Parks and Rec declined the 2.5-acre site due to its location (back of development, would feel like a private amenity). Baker noted the city has a land acceptance policy.
• Councilmember Caballero – Questioned water/sewer access; confirmed that water exists but sewer does not. Noted the developer is building a new pump station to the South Durham water reclamation facility. Expressed leaning toward “no,” citing need for fidelity to the plan and concerns about transportation and sewer infrastructure. However, later acknowledged the complexity and the need for more housing.
• Councilmember Rist – Opposed. Stated the comprehensive plan designates part of the site as recreation/open space, and he wants to stick with that fidelity. Also concerned about infrastructure readiness. Leaning no.
• Mayor Pro Tem Middleton – Supported. Argued the property is within the UGB, and rejecting it would set a precedent for arguments against future UGB expansions. Praised the $10M infrastructure investment, housing mix (apartments, townhomes, single-family), historic preservation, and the Nunn family’s benefit. Committed to adding a proffer to not disturb steep slopes, increasing open space from 16% to 21%. Called the project “great” and urged support.
• Councilmember Freeman – Opposed. Said the project is “good” but not “great.” Cited the existing value of the forest and wildlife, and the need for stronger consistency with the comprehensive plan. Could not support as proposed.
• Mayor Williams – Supported. Expressed empathy for the Nunn family’s situation, noting their failing septic systems. Criticized technical arguments that he felt could be used to exclude. Argued that the project meets the UGB, provides infrastructure, and raises the bar for future developments. Voted yes.

Key Outcomes

• Vision Zero Action Plan – Approved unanimously (7-0). The plan aims for zero traffic deaths, with a comprehensive speed management strategy beginning in 2027, but case-by-case speed management already underway.
• Sheffield Farms Annexation and Rezoning – Motion failed (5-2). Mayor Williams and Mayor Pro Tem Middleton voted yes; Councilmembers Cook, Baker, Caballero, Rist, and Freeman voted no. The project would have annexed 218.5 acres and rezoned to Planned Development Residential 3.241 for up to 702 units, with a $10M sewer line, 5% affordable units (80% AMI, 30 years), historic preservation, and 21% open space (after proffer). Opposition cited non-UDO compliance (751/Stagecoach intersection), environmental concerns (Jordan Lake watershed, natural heritage area), traffic impacts, school capacity, and infrastructure readiness.
• Other items – Consent agenda approved with two items pulled; items 5 (Revised Code of Ethics) and 13 (Condemnation) referred back to staff.
• Excused absence – Councilmember Freeman’s absence for April 24, 2025, approved unanimously.