Durham City Council Meeting - December 15, 2025

The Durham City Council convened on December 15, 2025, to address ceremonial proclamations, public decorum protocols, and significant land use matters. The meeting opened with remarks by Mayor Williams establishing strict decorum rules based on state law to manage disruptions, followed by the reading of the Pledge of Allegiance and two ceremonial proclamations recognizing the Salvation Army's 2025 Holiday Impact Day and the 90th Anniversary of the Durham Committee on the Affairs of Black People. Throughout the council announcement and public comment periods, members addressed recent tragic shootings in Sydney and Providence, the winter homeless shelter "White Flag" nights, and the controversial trespassing of a resident following the December 1st swearing-in. The council unanimously approved a consent agenda containing various contracts, appointments, and annexations. Public hearings were held on the Consolidated Annual Performance and Evaluation Report (CAPER), the Downtown Durham Blueprint 2035, and two zoning amendments for 3306 Page Road, all of which received unanimous council approval. The meeting culminated in lengthy debates on the Hamlin Reserve and Lee Village Center annexations, resulting in the denial of the former and a continuance of the latter.

Consent Calendar

• Unanimously Approved: The consent agenda included items covering:
  • Appointments to the Participatory Budgeting Steering Committee and the Visit Durham committee.
  • A contract for rear loaders and a lease with the Durham Regional Association of Realtors.
  • Tennis court lighting purchase contracts for Whippoorwill Park and Rock Quarry Park.
  • Development updates for 505 West Chapel Hill and a redevelopment loan agreement for Tribute Rising.
  • An amendment to the Federal Transit Administration Section 5303 GPO.
  • Three residential annexations: 3306 Page Road, Hamblin Reserve (later reconsidered), and Lee Village Center.

Public Comments & Testimony

• Councilmember Cook: Expressed strong opposition to the trespassing of a resident who was asked to leave a city council meeting without warnings or threats of harm, stating it should be a last resort and that the city should "distance themselves from those tools" used to silence dissidents. She affirmed that the chamber is meant for public discourse and that discomfort should not be used to silence disagreement.
• Councilmember Burris: Expressed non-support for the decision to ban a resident from the chambers without full council discussion, arguing that the decision was made in a "silo" by the city manager, mayor, and attorney. She requested transparency and equal application of rules, noting other disruptive individuals were not trespassed.
• Dr. Haley Cunningham (HIV Provider): Expressed disappointment and concern regarding the allocation of HOPWA funding, citing a lack of transparency, mismanagement, and barriers for homeless individuals with HIV. She stated that the city and DSS would continue to serve as the only administrators despite a record of poor performance and plans to submit a formal complaint to HUD.
• Pablo Friedman: Argued that the Downtown Durham Blueprint should be managed directly by the city rather than Downtown Durham Incorporated (DDI), expressing that the bid tax paid by residents should not be transferred to a nonprofit for oversight of public goods.
• Hamlin Reserve Opponents (Penny Mays, Tina Motley Pearson, Natalie Pickett, Billy D, Yvonne Sanchez, Helena Craig, Wanda Allen, Donna Stanback, Tammy Sawaya, Pamela Andrews, Talmadge Layton, Melora McCall, Robin Barefoot, Katie Ross):
  • Expressed strong opposition to the annexation and rezoning, stating it violates the comprehensive plan by extending outside the recently established Urban Growth Boundary (UGB).
  • Cited the critical watershed location, lack of necessary infrastructure (roads, shoulders, sidewalks), and negative precedents for non-contiguous annexation.
  • Testified that community engagement was inadequate, citing zero attendance at a key neighborhood meeting due to lack of notification.
  • Raised concerns regarding the lack of Emergency Medical Services (EMS) analysis and the strain on rural infrastructure.
• Lee Village Center Opponents (John McGrath, Catherine Muttnick, James Richards, Ryan Stewart, Yuri Harvey, Cindy Long, TC Morphis, Linda Harden, Joan Stein's, Yan Song, Samantha Swan, Roby Swann, Petra Tamashunis, Chris Selby, Hallie Shin, Durant Long, Megan Soloway, Elizabeth Miller, Philip Post, Wendy Woodall):
  • Stated that the proposal is premature and irresponsible without a completed Traffic Impact Analysis (TIA), emphasizing the severe lack of infrastructure on narrow residential streets like George King Road.
  • Raised concerns about the safety of pedestrians, children, and wildlife, noting the loss of mature forest, habitat corridors, and ecological assets.
  • Argued that the project relies on a non-existent light rail system and that the proposed density is inappropriate for a non-transit-oriented corridor.
  • Questioned the legal clarity of the textual development plan and the binding nature of road commitments on private property.
• Lee Village Center Supporters (Andy Lowe):
  • Expressed support for the rezoning, stating it aligns with the 2005 and 2023 comprehensive plans and the goal of creating 15-minute cities.

Discussion Items

• Decorum and Trespassing Protocol: Mayor Williams read state statutes (NCGS 143-318.17) and outlined a zero-tolerance protocol for disruptions, including warnings, removal, and police arrest if necessary. He stated his intent to be lenient but to enforce order to ensure the council can conduct business. Councilmember Baker stated that while he respects freedom of speech, egregious behavior that disrupts democracy must be held accountable, and he expressed support for the mayor's enforcement of the rules.
• CAPER and HOPWA Funding: Staff reported on the fiscal year 2024-2025 CAPER. Councilmember Cook asked about the timeline for a resource identification RFP. Staff responded that a strategic plan and needs assessment are planned for the coming calendar year, though specific timelines require further investigation due to staffing changes.
• Downtown Durham Blueprint 2035: DDI President Nicole Thompson presented the plan, which includes seven goals for downtown growth. Councilmember Rist commented that while the city often outsources to nonprofits, DDI has strong oversight, but Councilmember Baker stated that the city must own the outcomes of plans like this. The council voted unanimously to adopt the blueprint.
• Zoning Amendments (3306 Page Road): The applicant stated the amendment is necessary to extend Oak Mill Drive for a 15-townhome project. The council voted unanimously to approve the zoning change and annexation.
• Hamlin Reserve Annexation (2503 & 2523 Hamlin Road):
  • Opponents argued the proposal falls outside the Urban Growth Boundary (UGB), creates "donut holes" (non-contiguous annexation), and strains critical watersheds and emergency services.
  • Applicants stated they are offering conservation subdivision proffers, including a $75,000 contribution to schools and housing funds, and claimed the development would be more affordable ($350k vs $600k for county septic/well options).
  • Councilmember Baker voted no, stating the UGB was recently established and the project is inconsistent with the comprehensive plan and infrastructure realities. Councilmember Cook stated that while the project has merits, it is "not the right time" as it violates the city's commitment to the UGB and sets a bad precedent.
  • Outcome: The motion to annex failed unanimously.
• Lee Village Center Annexation (East of George King Rd):
  • Applicants stated the 81-acre site is designated as a "Transit Opportunity Area" in the 2023 comprehensive plan and proffered income-restricted housing, no drive-thrus, a 30-foot buffer, and a 200-foot stream buffer. They argued a full TIA is not feasible at the rezoning stage due to the 10-20 year build-out timeline and committed to TIA requirements at the site plan stage.
  • Councilmember Cook moved to send the item back to the planning department, stating the UDO requires a TIA at the zoning stage (using the word "shall"), and she could not vote in good faith without it. Councilmember Baker expressed concern about the lack of parkland priority and mix of uses, suggesting a continuance to gather more clarity from the Department of Parks and Recreation (DPR) and regarding transit planning.
  • Councilmember Kopak stated he appreciates the applicant's proffers and the project's alignment with the comprehensive plan but requested clarity on park priorities and mix of uses.
  • Discussion: The council debated whether a formal TIA is required now or can be deferred to site plans. The City Attorney and Planning Director maintained that the Planning Director has discretion under the UDO to require TIAs at the site plan stage for this specific form-based zoning case, though the Planning Commission had previously discussed the issue. Councilmember Baker proposed a continuance to address the TIA ambiguity and park priorities without needing to re-advertise.
  • Applicant stated they are willing to continue if the motion passes.

Key Outcomes

• Consent Agenda: Approved unanimously, including appointments for the Participatory Budgeting Steering Committee, Visit Durham, and various contracts and annexations.
• HOPWA Funding: Council received the CAPER report; Councilmember Cook raised concerns about allocation and transparency. No action taken on the report itself as a directive.
• Downtown Durham Blueprint 2035: Motion to adopt resolution amending the Durham comprehensive plan passed unanimously.
• Zoning Change (3404 Page Road): Motion to amend the UDO for the 3404 Page Road annexation and rezoning passed unanimously.
• Annexation (3306 Page Road): Motion to annex and approve initial zoning passed unanimously.
• Annexation (Hamlin Reserve): Motion to annex 2503 and 2523 Hamlin Road failed unanimously (10-0 against). The council determined the proposal does not meet the criteria for changing the Urban Growth Boundary.
• Annexation (Lee Village Center): Motion to continue the public hearing to February 16, 2026, passed 6-1 (Councilmember Cook voted no). The council sought additional clarity on the Traffic Impact Analysis (TIA) requirements, parkland priorities from DPR, and transit potential before a final vote.
• Public Comments: The White Flag Night activation was announced for residents without shelter.