The Baseline Scenario is a projection of future community, economic and physical development trends in Orange County to the year 2030. It has been developed on the premise that future economic, community and physical development in the County will occur at the same rate and pattern as it has during the past 30 years (or other past trends depending on data availability). |
To see a Powerpoint presentation on the baseline scenario click below
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Who developed the Baseline?
Staff from the Orange County Planning department and the Orange County Environment and Resource Conservation Department worked together to develop this baseline. Information in the baseline comes from a variety of sources and agencies both within and outside the County.
Why was it developed?
The baseline was developed for use by the Shaping Orange Countys Future (SOCF) Task Force in evaluating future development patterns and identifying trends they desire to retain and/or change. The Task Force is using the baseline, in conjunction with the Orange County Profile, committee reports, & adopted SOCF goals and values in crafting alternative scenarios that conform to SOCF goals and values.
What are its limitations?
Projections have been limited to those areas for which historical data exists. Data gaps have been filled through extrapolation or by reliance on qualitative estimations of past and present development patterns.
In keeping with a goal of projecting based on past trends, the baseline does not take into account future policy choices. Thus projections of population and dwelling unit growth for municipalities, particularly Mebane and Hillsborough, do not reflect changes in
policy that may stimulate development activity beyond past levels or into new urban areas.It is important to note that these limits do not reduce the value of the baseline as a tool. The baseline should be understood as one estimation of future development trends. Actual patterns of development may differ given policy or market forces, but the overall trends identified in the baseline reflect a possible picture of development activity over the next 30 years in Orange County.
What are the Findings?
Future community and physical development patterns in the County will be driven by population and employment growth. This section will begin by documenting the employment and demographic changes projected to occur during the next three decades, if present trends continue. It will conclude by detailing the impacts that these changes could have upon Orange County.
Economic and Demographic Change
Orange County population growth is related to the number of employment opportunities available in the County. As employment opportunities increase they attract new residents, thereby increasing the rate at which the population expands.
Employment projections, through 2020, were obtained from Woods and Poole Economics, Inc., a Washington D.C based economics consulting firm. These projections are based on the assumptions that: 1) employment opportunities in Orange County are impacted by shifts in the Triangle and national economy; and 2) Orange County employers will react to economic changes in a similar manner as they have in the past. To be consistent with the 30 year planning horizon (2000-2030) adopted by the SOCF Task Force, forecasts were extended until 2030. In extending Woods & Poole data staff assumed that County employers (public, private and non-profit) would experience the same average net growth in employment between 2021- 2030 as occurred from 2011-2020.
Employment
During the next 32 years approximately 33,623 jobs are projected to be added in Orange County. This is lower than the total number of jobs (46,176) added during the 28 years prior to 1997.
Figure 1: Employees Added
1969-1997 |
1998-2030 |
|
| Construction | 1,661 |
|
| Manufacturing | 2,262 |
1,459 |
| Transport, etc. | 1,291 |
1,465 |
| Wholesale | 1,136 |
1,346 |
| Retail | 8,064 |
6,044 |
| Finance, etc. | 4,083 |
4,555 |
| Service | 11,643 |
6,622 |
| State/Local Govt | 15,678 |
10,948 |
Total Employment |
46,176 |
33,623 |
The additional jobs will not substantially alter the make-up of the Countys employment base. State and Local Government, will remain the primary employer in the County, accounting for 36% of all County employees in 2030, compared to 38% in 1998. The service and retail sectors will employ the next largest percentage of workers, 21% and 17% respectively.
The Finance, Insurance, Real Estate, Transportation and Utilities sector, and Wholesale Trade will cumulatively account for the next largest percentage of workers in 2030 (15%) This is in contrast to 1998 when these sectors accounted for approximately 12% of all employees. Unlike other sectors of the economy, firms in these three sectors will add more workers over the next thirty-two years than they did in the past 28.
PopulationOrange Countys population (includes towns) will grow by an average of 1.45% annually between 1998 and 2030. While slower than the rate of growth experienced by the County between 1950- 1998 (2.50%), this growth will add an additional 65,850 persons or 25,566 households to the County. By 2030, the Countys total population is projected to number 178,740 persons, or 69,620 households.
Figure 2: Orange County Population

Population growth over the next 32 years will noticeably change the demographic characteristics of the County. Most noticeable are increases in the Countys child, senior, minority and Hispanic population
Figure 3: Population Increase
# 1998 |
# 2030 |
% change |
|
Children |
22,912 |
45,851 |
100% |
Seniors |
13,398 |
33,302 |
148% |
Minority |
23,392 |
36,600 |
56% |
O.C. Hispanic |
% of OC pop |
|||
1998 |
2030 |
1998 |
2030 |
|
Hispanic |
3,063 |
16,770 |
3% |
9% |
The following sections outline population increase within these cohorts.
Minority Population
Minority refers to persons classified as either African American, Asian or Pacific American, Native American. Between 1998 and 2030, approximately 13,629 persons of minority status are projected to reside in Orange County.
This is a slight increase over the last 28 years, which saw 12,407 persons of minority status persons as Orange County residents. Consistent with today, the majority of the Countys non-white population is expected to be of African descent.
Hispanic Population
Hispanic or Latino is a broad term referring to people of Spanish speaking origin. It is an ethnic classification and not a racial class, therefore persons of Hispanic ethnicity can classify themselves as white or non-white. It is not known what percentage of the Countys Hispanic population classifies themselves as white or non-white.
During the next 32 years it is projected that 13,707 new Hispanic residents will call Orange County home. This will increase Orange Countys Hispanic population from an estimated 3,063 in 1998 to 16,770 in 2030. Given this increase, by 2030, 9% of all County residents will be Hispanic, this contrasts with the present, where 3% of the all residents are Hispanic.
Detailed demographic characteristics of the Countys Hispanic population are not currently known. At best, one can presume that the make-up of the Countys Hispanic population does not differ considerably from that of the make-up of the larger North Carolina Hispanic population. Based on anecdotal evidence from various new stories, the Hispanic community in North Carolina is extremely diverse, as noted in by the following comments attributed to Julio Cordoba of the North Carolina Hispanic Chamber of Commerce, in the 9/4/98 edition of the News & Observer.
"...a distinguishing factor of North Carolinas Latino community is its diversity. Laborers work on farms in the country and at construction sites in the city, while the states universities and large companies such as IBM, Glaxo Wellcome, and Northern Telecom draw future and current engineers, chemists and computer designers. There is also a healthy ethnic mix of people from every country in Latin America and from Puerto Rico."
SeniorsSince 1970, the 60+ population has increased by 148%, so that as of today (1998) there are 13,398 persons age sixty or older. The future shows continuation of this trend. By 2030, the Countys senior population
will number an estimated 33,302, ironically another 148% increase between 1998 and 2030. The demographics of the senior population in 2030 will not look substantively different than todays senior population. Despite a projected 134% increase in the number of non-white males over 60 (approximately 1,338 new persons), the majority of seniors will continue to be female and white.Children
By 2030, Orange Countys child population will number 45,851 children (persons aged 0-17 years). This represents a doubling of the current (1997) childrens population figure of 22,912.
As the figure below shows the percent increase in the number of children is greater during the next three decades than during the previous 28 years.
Figure 4: Increases in Orange County Child Population
| Ages | 1970 |
1997 |
2030 |
% Change |
||
70-97 |
97-30 |
|||||
| 0-4 | 4,370 |
6,430 |
12,670 |
47% |
97% |
|
| 5-10 | 5,380 |
7,930 |
14,810 |
47% |
87% |
|
| 11-13 | 2,720 |
3,530 |
6,500 |
30% |
84% |
|
| 14-17 | 3,400 |
4,600 |
7,590 |
35% |
65% |
|
| Total | 15,870 |
22,912 |
45,851 |
44% |
100% |
|
One of the unfortunate consequences of projected increases in the child population is parallel growth in the incidence of children in poverty. Assuming continuation of the ten year trend, (1980 and 1990), by 2030 6.9% of children in the County will be living in poverty. This percentage is down from 1980 and 1990 (11.4% and 10.3%, respectively), but the actual number of children living in poverty will have increased from approximately 1,800 in 1980 and 1990, to over 2,850 in 2030.
Impacts
Impacts refer to anticipated increases in residential and non residential acreage, housing and public services resulting from projected population and employment growth.
Dwelling Units
In order to house projected population, a total of 25,656 dwelling units will need to be constructed between 1998 and 2030. The number of dwelling units required by township and municipality is highlighted in the figure below.
It is important to note that this distribution does not take into account land availability. Also, in keeping with a goal of projecting based on past trends, these numbers do not take into account future policy choices. Thus figures for municipalities, particularly, Mebane and Hillsborough, do not reflect changes in policy that may stimulate development activity beyond past levels. Additionally, this distribution is based on the assumption that future dwelling units would be located in the same proportion as units constructed between April 1990 and June 1998.Figure 5: Required Dwelling Units
Township |
Existing |
Added |
Projected |
| Little River | 1,201 |
1,300 |
2,501 |
| Cedar Grove | 1,930 |
1,573 |
3,503 |
| Cheeks | 2,748 |
2,001 |
4,749 |
| Mebane | 255 |
148 |
402 |
| Rural Cheeks | 2,493 |
1,853 |
4,347 |
| Hillsborough | 4,587 |
1,745 |
6,332 |
| Hillsborough | 1,895 |
378 |
2,273 |
| Rural Hboro | 2,692 |
1,367 |
4,059 |
| Eno | 2,773 |
2,051 |
4,824 |
| Bingham | 2,906 |
2,007 |
4,913 |
| Chapel Hill | 30,156 |
14,980 |
45,136 |
| Chapel Hill | 16,402 |
7,178 |
23,580 |
| Carrboro | 7,305 |
4,029 |
11,334 |
| Rural CH | 6,449 |
3,772 |
10,222 |
| TOTAL | 46,301 |
25,656 |
71,958 |
As evidenced in the above figure, if current residential development patterns continue 58% of all new housing units will built in Chapel Hill township, as compared to 65% of the housing stock in existence today. Rural portions will encounter greater residential development, than in the past. The highest annual increases would occur in Bingham, Little River and Cedar Grove townships, which could grow by
2.70%, 2.32% and 1.88%, annually. Some of the growth within Cheeks, Hillsborough and Eno townships might be captured inside the expanded town limits of Mebane, Hillsborough and Durham.Residential Acreage
To accommodate projected residential development, in the same fashion as today, approximately 47,733 acres of land would need to be developed in the County during the next 32 years. A
breakdown of acreage required, is detailed in the figure below. Notable findings associated with future land demand include:Figure 6: Required Acreage, 1998-2030
Township |
Developed Land |
Available Land 1998 |
Projected Need |
| Little River | 8,162 |
14,895 |
3,770 |
| Cedar Grove | 11,728 |
30,333 |
4,152 |
| Cheeks | 7,863 |
17,790 |
5,994 |
| Hillsborough | 4,483 |
8,112 |
3,650 |
| Eno | 6,442 |
10,703 |
4,738 |
| Bingham | 12,037 |
29,239 |
6,623 |
| Chapel Hill | 19,420 |
21,972 |
18,806 |
| TOTAL | 70,135 |
169,023 | 47,733 |
In the above figure, acreage for Cheeks, Chapel Hill, and Hillsborough townships include municipal areas inside the townships. Also,
by 2030 Hillsboroughs municipal boundaries could extend into Eno and Cheeks townships. Durhams municipal boundaries may extend into Eno township as well.It is important to note again that the amount of land estimated to be developed was based on past trends. Impending new development in the Hillsborough area is not taken into account. The amount of land estimated to be currently developed was determined by the following method. Outside of municipal planning jurisdictions, developed land is defined as parcels 10 acres or less having a structure on them, plus a 10 acre developed envelope for each parcel greater than 10 acres having a structure on it. Within municipal planning jurisdictions a 2 acre, rather than 10 acre, cutoff was used.
Estimated acres needed for projected growth were calculated by multiplying the number of projected dwelling units by the average lot size for each area. For rural portions of the County average lot sizes were calculated using 1987-1994 permit data for major and minor subdivision activity. In municipal areas the average lot size was provided by town planning departments.
Housing Cost
Aside from land consumption one of the more significant impacts, over the next 32 years, of population growth and demand for housing will be the continued rise in the cost of housing.
Estimations of future housing cost were developed based on best available data. It is important to note that these are provided as a point of reference. These projections have not taken into account future land availability or any policy or market changes that may alter the cost of housing. They are based on the assumption that future increases in County-wide housing cost will occur at the same annual rate of growth that occurred in the Chapel Hill housing market between 1988 and 1998. The decision to base projections the Chapel Hill market was dictated by the fact that figures documenting the character of the Orange county housing market do not presently exist.
Between 1988 and 1998 the price of owner occupied homes in Chapel Hill grew by an annual average of 2.07% . The cost of rental properties grew by a yearly average of 3.01%.
The average market value, in 2030, for an owner occupied home and rental property is outlined in the following figure.
Figure 7: Market Value of Orange County Housing , 1998 and 2030
Rental |
|
|
| 1 bdrm | $497.95 |
$1285.38 |
| 2 bdrm | $603.75 |
$1558.48 |
| 3 bdrm | $709.55 |
$1831.59 |
| 4 bdrm | $721.05 |
$1861.27 |
| 5 bdrm | $1,121.25 |
$2894.32 |
Owned |
||
New |
$265,000 |
$510.466 |
Existing |
$186,000 |
$358,289 |
If housing cost continues to increase at the rates identified above, it will remain cost prohibitive for residents and families earning at or below the mean per capita income to live here. The projected average per capita income for a resident in 2030 will be $41,068 (1998 dollars). This is in contrast to the estimated per capita income in 1998 of $28,223 (1998 dollars). If this resident chose to purchase an existing home for themselves and their family in Orange County in 2030, they would find that they would have to spend approximately 8 times their annual income. To purchase a new home the same resident would have to spend 12.4 times their annual income. US Housing and Urban Development Department guidelines define affordable housing as selling at 2.5 times annual income. Given the cost of a single family home, this resident may consider renting. Applying US HUD guidelines for affordable rental housing (30% of monthly income) a resident earning the average per capita income in 2030, could afford a to rent a property at $1026.59 per month.
If present trends continue rental properties will not be that inexpensive. In 2030, rental properties will be rented at 37% to 84% of the average monthly per capita income ($3442.31). For single or two person householders, spending more than 30% of their monthly income on housing may be acceptable, given that they do not have other significant expenses (child care, health, college loans, etc.). For households with such additional expenses, particularly those with children, spending more than 1/3 of their monthly income is certainly less desirable.
Non-Residential Acreage
Limited data dictated that projections of future commercial acreage be calculated for Chapel Hill/Carrboro, Hillsborough and Mebane/Efland only. Projections were based on the assumption that future commercial land demand could be projected given knowledge of based on the ratio of current dwelling units to current square feet of commercial space, and future dwelling unit demand.
Given this assumption it is projected that approximately 3,077,218 square feet of new commercial/industrial space, or 1,569 acres will be constructed by 2030. It is important to note that this acreage does not account for commercial/industrial space that could be developed in the future as part of reuse or infill projects or changes in the ratio of non-residential to residential development. Required commercial/industrial space for Chapel Hill/Carrboro, Hillsborough and Mebane/Efland are listed in the figure below.
Figure 8: Required Commercial/Industrial Space, 1998-2030
Commercial/Industrial Space |
Acres Added |
||
1998 |
2030 |
98-30 |
|
CH/Carr |
3,423,155 |
4,695,316 |
649 |
Hills. |
230,700 |
318,464 |
45 |
Mebane |
1,562,380 |
3,279,673 |
876 |
Conserved Natural Areas
Resource limitations have precluded a quantitative assessment of the impact that proposed development will have on the quantity of natural areas that will be preserved in response to development pressure. In its place we offer a qualitative assessment of impacts, based on conversation with prominent conservation organizations and review of their plans.
The Countys three largest landholders of preserved open space: Duke Forest (4,739 acres), OWASA (3,017 acres), and the Eno River State Park (1,648) will likely see some changes in acreage preserved.
Duke Forest will likely sell off several of its parcels considered not to be of research or preservation value, and may purchase a few new properties especially where the potential exists for linking areas of the forest. The former are generally smaller and more isolated, totaling approximately 303 acres. However, one 162 acre parcel (the Korstian Division land just north of Chapel Hill) could have significance due to its location in the rural Buffer adjacent to a new Triangle Land Conservancy land preserve.
OWASA has plans to purchase another 1200 to 1300 acres in the Cane Creek watershed for water supply protection purposes.
The Eno River State Park is interested in expanding and acquiring more land adjacent to the Fews Ford portion of the park, though there are currently no definitive plans. The Town of Hillsborough has received grant funding to preserve a corridor linking Eno River State Park to Occoneechee Mountain Park.
It is expected that the Triangle Land Conservancy will acquire ownership or easements protecting more open space in the County, though it is impossible to tell how many acres will be preserved by TLC in the year 2030. And Orange County will be implementing a Resource Acquisition Program that will have prioritized natural areas for preservation and will be actively pursuing voluntary acquisition of lands and/or development rights.
Recreation and Parks
To meet the needs of the projected 178,740 persons of Orange County in 2030, national standards indicate that the four local governments should have at a minimum 1,300 acres of land devoted to residents recreational needs.
Currently, there are 560 acres countywide in 1998 (Chapel Hill - 400 acres, Carrboro 70 acres, Orange County 60 acres and Hillsborough 30 acres). In particular, hiking trails and additional parks would be needed based on current standards.
In terms of funding, Orange County and Carrboro have accumulated $425,000 and $473,000 respectively through "payments-in-lieu" through the development process. Questions have been raised, however, whether the current system of land acquisition is sufficient to meet needs. Part of the problem is that, some recreational facilities are developed privately, and are not open to the public. Also, small parcels of land that are donated for public use often end up being of use neither to the public nor to the development itself, since their size or location makes them difficult to use. Updates to this approach would be needed to provide any substantial funding mechanism for future needs.
Schools
Based on the expected population growth by the year 2030, school enrollment will increase by:
If current trends hold true (same ratio of students in public schools, same public school structure, continuation of current trends, student population and capacity standards), the above increase in enrollment would translate into the following new schools needed by 2030.
Figure 9: Required Schools, 1998-2030
| School Type | Number Needed | Cost Range |
| Elementary | 10 or 11 | $130 - $155 million |
| Middle | 4 | $74 - $90 million |
| High | 2-3 | $68 - $90 million |
| TOTAL | 16-18 schools | $272 - $355 million |
Note: Current capacity not factored in, but most existing schools are over or near capacity in 1999.
Senior Facilities
According to the Orange County Department on Aging, the elderly can be classified into three functional classifications: Well, Disabled, or Institutionalized. As of today the overwhelming majority (79%) are well, 16% are disabled and 5% are institutionalized.
Assuming that these proportions stay the same in the future, it is projected that the majority of tomorrows senior population will demand preventative, rather than supportive or protective, services. As the name suggests, preventative services prevent the early breakdown of functional capacity, whereas supportive and protective services provide direct care services for the elderly (for a list of services classified under each functional type see Profile pg. 33).
Based on current standards 17 care facilities (including adult day care, assisted living facilities and family care homes) will need to be developed. This is particularly critical for seniors living on fixed incomes and/or those that need supportive or protective services. Based on this population increase 28,662 sq. feet of new space will need to be devoted for one or multiple senior centers, if current standards are to be maintained. This is equivalent to approximately 2 spaces the size of Chapel Hill Senior Center, 1 space the size of Efland-Cheeks Community Center and 1 space the size of the Northern Orange Community Center.
Child Services
At present there is approximately 1 licensed day care facility in Orange County for every 94 children. Given an additional 6223 children, 66 facilities would need to be built during the next 31 years to provide child care services at the current ratio.
In addition to the increased demand for child care services, the issue of affordability will become increasingly important. Data is not available as to the cost of child care in the future but given continuation of shortages of facilities, economics would suggest that the cost of child care will continue to rise.
The increased number of children living in poverty between today and 2030, speaks to the fact that children, particularly those in single parent households will find themselves in the same economic predicament in the future as they do today. Generally speaking, in the future, children in poverty will find that the wage earner in their home is often working in the lowest paying economic sectors, retail or service. The childs enrollment in childcare is being subsidized by the public sector, as/if funds are available. Because of their families financial predicament, they are living in lower quality housing, receiving lower quality health care, and may be living in family situations where their mental and/or physical health is more threatened.
Police Protection
As of 1996, there were 246 full time officers serving Orange County. Between today and 2030 an additional 152 officers will be needed to maintain 1996 service levels. Commensurate with this increase in officers is the need for a joint training facility for all Orange County officers. Such a facility would need to contain a firing range, classroom and driver training area.
Health Services
Developing projections of the number of persons impacted by disability or illness is difficult, without a clear understanding of possible advancements in health treatment and technology. At best we are able to provide a qualitative assessment of how population growth may impact upon the provision of health and related services.
Increases in the Hispanic and senior population, along with the growth of areas outside of Chapel Hill and Carrboro will shape the delivery of health services in the coming thirty years. The disparity between Hispanic residents and non-Hispanic residents in terms of health coverage and the graying of the population, will ultimately increase the need for health services. At present Orange County, ranks second statewide in the number of beds and health care workers, but most of these services are concentrated within Chapel Hill township. As the population moves outward to other portions of the County, health services, will need to follow. This may require the construction of facilities, and/or the development of an affordable and accessible transportation system that enables those with mobility or economic restrictions access to health services.
Disability Services
In addition to increasing accessibility to health care, one of the chief tasks facing County residents will be to provide support services for the Countys disabled. The lack of job training, educational opportunities, and job opportunities for the disabled is one of the reasons why the unemployment rate for the disabled (8.7%), in Orange County is more than double, the county-wide unemployment rate (3.6%). The most recent and available unemployment numbers for the disabled is from the 1990 census. Since 1990, the Orange County unemployment rate has fallen to approximately 2%. According to the 1990 census, 3497 County residents were not in the labor force because of their disabilities.
Solid Waste
Given the projected population Orange County residents would produce 2,824,616 tons of municipal solid waste if the Countys waste reduction and diversion goals are met. If these goals are not met 3,850,337 tons of municipal solid waste will be produced during the next 30 years. The total tonnage estimates translates to a per person per day waste total of 1.9 to 3 pounds.
If reduction or diversion strategies are implemented, waste generated in the next 30 years would require a landfill .9 times the size of the Orange Regional Landfill, which has a capacity of 4.75 million cubic yards. If goals are not met then a landfill 1.2 times larger than the Orange Regional Landfill would be needed.
Transportation
Extrapolation of the 10 year trend in daily vehicle miles traveled (VMT) between 1987-1997, reveals that Orange County daily VMT will increase from 3,113,800 in 1997 to 7,867,650 in 2030. This translates to an increase in daily Orange County VMT from 35 miles per driver per day in 1997 to 45 miles per driver per day, by 2030.
These projected increases in daily VMT will occur given population increase and continuation of: 1) low gas prices; 2) regional land use patterns; 3) the commuting patterns of county drivers and 4) transportation infrastructure provision.
Low gas prices provide an incentive for drivers to make multiple, short trips that they would not ordinarily make, but do so given the reduced fuel costs. In general larger distances between residential development and commercial/office space increases auto dependency. As Orange County residents live further and further from shopping and work they will rely on automobiles for transportation, in the absence of other travel choices. One result of the spatial mismatch between residential and commercial/office development, is that drivers are encouraged to drive for longer distances with fewer passengers.
The current transportation infrastructure provides few options, other than driving, for persons who commute long distances (>15 miles from point of origin). Chapel Hill Transit provides and will continue to service the needs of Chapel Hill and Carrboro residents and UNC students within these towns. The Triangle Transit Authority provides limited bus service between Chapel Hill, Raleigh and Durham. TTA is conducting preliminary analysis for a regional rail station to be developed in Chapel Hill. Bicycle commuting is and will continue to be a viable alternative for in-town commuting. Bicycle commuting between towns and/or suburbs will be difficult unless current thoroughfares are equipped with proper measures to facilitate bicycle traffic.
Diversification of the Countys transportation network will be needed to serve seniors, the disabled and low income residents whose physical, and or economic limitations prevent them from driving.
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