Town of Cary
North Carolina


Glenaire Expansion /17-REZ-31


Department:Planning & Development ServicesSponsors:

Speaker: Debra Grannan, Planning


Executive Summary: The applicant has requested the Town consider an amendment to the Town of Cary Official Zoning Map by rezoning approximately 11.97 acres located at the Southwest corner of the intersection of Kildaire Farm Road and West Cornwall Road.  The current zoning is General Commercial (GC), General Commercial Conditional Use (GC-CU), and Mixed Use District (MXD).  The applicant has proposed a zoning designation of Mixed Use District with a Preliminary Development Plan (PDP) that would facilitate development of a life care community with up to 192 independent living units, 40 assisted living units, and an adult day care facility that could serve residents and up to 25 non-residents.


Recommendation: That Council conduct a public hearing on the proposed rezoning request and forward to the Planning and Zoning Board. Staff will provide a recommendation on the rezoning request when the case is brought back to Council for action.


Planning and Zoning Board Recommendation: The recommendation will be provided to Town Council following the P&Z Board meeting.


NOTE: The purpose of the rezoning is to determine whether the land uses, and densities allowed in the proposed zoning district are appropriate for the site.  Technical design standards of the Land Development Ordinance are addressed during review of the site or subdivision plan.


Click on the map to see surrounding development activity.




Property Owner

County Parcel Numbers
(10-digit) (PIN)

Real Estate IDs (REID)



Glenaire Inc.

4000 Glenaire Circle

Cary, NC  27511







906 Kildaire Farm Rd

111 W. Cornwall Rd

W. Cornwall Rd (unaddressed)




Marsh Pottery LLC

3599 Andrew L. Tucker Rd.

Fort Mill, SC  29715



960 Kildaire Farm Rd


Total Area





Location of Subject Properties

Southwest corner of the intersection of Kildaire Farm Road and West Cornwall Rd



Town Council
Public Hearing

May 3, 2018

Planning & Zoning Board

Town Council

Existing Zoning Districts

General Commercial (GC); General Commercial Conditional Use (GC-CU); Mixed Use District (MXD); Mayfair Plaza Mixed Use Overlay District (MUOD); Watershed Protection Overlay District (Swift Creek Sub-area)

Existing Zoning Conditions

For GC-CU parcel: conditions are as indicated in rezoning case Z-618-91-1 which limited use to parking and specified parking requirements

The parcels currently zoned MXD are currently zoned (per case 12-REZ-28) to allow an age-restricted, multi-family residential development with up to 72 dwelling units.  The Preliminary Development Plan (PDP) associated with that rezoning case allowed for:

·         a streetscape reduction along Kildaire Farm Road from 50 to 30 feet and

·         a streetscape reduction along W. Cornwall Road from 30 to 20 feet.

Proposed Zoning District(s)

Mixed Use District (MXD).  No change to Mixed Use Overlay or Watershed Protection Overlay. 

Proposed Zoning Conditions

Preliminary Development Plan that would enable development of a life care community with up to 192 independent living units, 40 health care units, and an adult day care facility. 

Design standards are as specified in the PDP.

No reductions to streetscape buffers are proposed.

Town Limits


Staff Contact

Debra Grannan

(919) 460-4980


Tim Webster, Glenaire Inc. 

Applicant’s Contact

Glenda Toppe

Glenda S. Toppe & Associates

4139 Gardenlake Drive

Raleigh, NC  27612


Case overview and major findings


The subject property is both in and adjacent to the Mayfair Plaza Shopping Center, a mixture of in-line retail stores and out-parcels.  A Food Lion anchors the original tenant spaces which were constructed in 1968.  The Food Lion completed an approved façade renovation in 2002.   In 1981, a 73,000 square foot addition was added to the northern end of the in-line tenant spaces for a K-Mart. The Kmart was expanded by 14,500 square feet in 1993.   In 2005 a two-story, red brick bank building (operated by BB&T) was added to the center using Cary’s then new Community Appearance Manual (CAM) design standards.  Other than minor façade improvements, and approval of a stealth, communications tower behind the center in 2015, there has been no redevelopment of this area since then.



When the K-Mart store closed in 2011, that tenant space was vacant for over two years before the current Carolina Pottery store moved into the space in March of 2014.


The Glenaire Development is a Continuing Care Retirement Community (CCRC).  It has operated in Cary along West Cornwall and Kildaire Farm Roads for 25 years. 

The applicant is seeking to expand the multi-family residential component of the facility on to vacant property they currently own at the corner of Kildaire Farm Road and W. Cornwall Road adjacent to the Mayfair Plaza Shopping Center, which includes the current location of the Carolina Pottery.




Below is a close-up of the subject property with the proposed development area highlighted in yellow.   The request includes land where an existing cell tower is located.  No change is proposed to the tower site. The proposal does not include two of the outparcels in the shopping center where a bank and restaurant are currently located.

The 7.79-acre Carolina Pottery and cell towner site is owned by March Property, LLC.  The remaining portion of the in-line shops (not included as part of this rezoning application) is owned by Mayfair Plaza, LLC.  That property is managed by Commercial Properties of Raleigh, who have indicated that they have long-term leases on several of the tenant spaces, including a 20-year lease with Food Lion, and are therefore not pursuing any redevelopment of their portion of the site at this time.


Glenaire Expansion Preliminary Development Plan


The subject property is located within a Mixed Use Overlay District, and is therefore eligible, through the Mixed Use District rezoning and PDP process, for the applicant to propose modifications and standards unique to the subject property.


The applicant has proposed a rezoning to Mixed Use District (MXD) and submitted a Preliminary Development Plan which illustrates nine buildings, a circulation route, buffers, and open space for the proposed multi-family use on the site. a Preliminary Development Plan in a mixed use overlay district allows flexibility for applicants to request different standards.  (A color rendering of the plan is included in this report, and a more detailed version of the PDP is attached.)


Plan Summary:

§         Nine buildings with proposed maximum heights ranging from three to seven stories with a maximum height of 90 feet (No minimum building heights are proposed.)

§         192 Independent Dwelling Units

§         40 Health Care Units

§         Adult Day Care facility for residents and for up to 25 non-residents

§         A combination of surface and ground-level parking below buildings is proposed

§         No reductions to LDO standards for streetscapes or perimeter buffers are proposed.






The applicant has provided a rendering to illustrate the building scale in relation to adjacent structures:


Proposed Modifications to LDO Standards



LDO Standard


Building Height

35 feet

80 feet maximum


Required on both sides of street

To provide 8-foot sidewalk on one side of street “R002”



Pedestrian connection only to Rose Street




sUMMARY OF Process and Actions to Date


Notice of the public hearing on the proposed rezoning was mailed to property owners within 800 feet of the subject property, published on the Town’s website and posted on the subject property.


Neighborhood Meeting

A neighborhood meeting for the proposed rezoning was facilitated by Planning staff at Cary Town Hall on January 9, 2018. According to the sign-in sheet provided by the applicant, approximately 25 citizens attended the meeting. Several attendees spoke in support of the proposal, but there were specific questions and concerns expressed regarding traffic and parking impacts and building heights.  There were also general questions regarding Cary’s development standards regarding landscaping, stormwater management, and timing of the project. These concerns are summarized in the attached meeting minutes submitted by the applicant.


Attached are the applicant’s responses to the justification questions contained in the application form. Please note that these statements are that of the applicant and do not necessarily represent the views or opinions of the Town of Cary.


site characteristics and context


Adjacent Zoning

Locations of Potential Stream Buffers Shown

with Blue Shading


cary community plan conformance and analysis


Attached is a complete listing of each policy statement in the 2040 Imagine Cary Community Plan. Based on staff review and analysis of the descriptions and detailed intent of all the Plan’s policies, the following section identifies policies applicable to this case and provides an analysis of the extent to which the proposed rezoning conforms to those policies and plan recommendations.  We begin with placing the site in the context of the Future Growth Framework, and then move to discussions of the key policy considerations. 



The Future Growth Framework (Cary Community Plan, Chapter 6)

As can be seen in the map below, the subject site is located within a Commercial Mixed Use Center on the Future Growth Framework Map, and areas immediately north and west of the site, including the existing Glenaire facility are designated as Heritage Neighborhoods. 


The Community Plan defines the Commercial Center Mixed Use development category as mixed use centers that include an integrated mix of commercial (shopping, services), office, and residential uses arranged in a walkable pattern with an active pedestrian realm where buildings front streets.  The center “may include both vertically (within multi-story buildings) and horizontally mixed (adjacent sites) uses, however a substantial portion of buildings should be vertically-mixed, with ground floor retail and offices and housing on upper floors.” 

In terms of the desired character, the plan recommends that streets should be framed with multi-story buildings and active public spaces.  Buildings of about 3-7 stories should dominate and to achieve the desired intensities and character, both surface and structured parking will likely be needed.  The predominant types of uses envisioned for these centers includes mid-rise mixed-use, medium- and small-format commercial, and large multifamily. 


Heritage Neighborhoods are described as generally encompassing neighborhoods and housing built during Cary’s first “suburban boom”, in the 1960’s and 1970’s. These neighborhoods include a rich and wide variety of housing types, lot sizes, and densities.



Staff Observations

§         If designed with the proposed maximum building heights, the preliminary development plan would be consistent with the vision for predominately 3-7 story buildings.  The current plan, however, does not specify a minimum height, 

§         Structured parking is proposed underneath the new buildings, which is consistent with the plan recommendations.

§         The PDP depicts an arrangement of buildings that frame both the adjacent public streets and internal drives, in keeping with the plan. 

§         The multifamily independent living (life care) component of the proposal could provide the sort of large multifamily use desired within a mixed-use center. New residents on this site may help support retail and dining uses within the Mayfair Commercial Mixed-Use Center.

§         The proposed PDP does not advance the plan recommendation for achieving predominantly vertically-mixed use buildings in the mixed use center; it does create a horizontal mix by adding residential uses to an existing shopping center. 

While there is the potential for the proposed life care community and adjacent shopping center to support each other, the uses are not necessarily symbiotic.  By its nature, a Continuing Care Retirement Community is fully contained; meals, health care and other personal services are provided within the development.  On the other hand, employees and guests of the CCRC, might enjoy the convenience of banks, restaurants and a grocery store located adjacent to the site.

LIVE Policies

The Town’s LIVE policies respond to the housing challenges and opportunities facing Cary by:

§         Providing a variety of housing choices

§         Meeting new household needs

§         Maintaining high quality established neighborhoods

Applicable Policies:

§  Maintain Neighborhood Character (Policy 1)

§  Provide More Housing Choices for All Residents (Policy 2)

§  Provide the Greatest Variety of Housing Options in Mixed Use Centers (Policy 4)

§  Support Residential Development on Infill and Redevelopment Sites (Policy 5)


Staff Observations

§         Conformance with Policy 1.  Since the site itself is not located within the adjacent Heritage Neighborhood, but is rather adjacent to it, the question of whether the proposal is consistent with this policy depends on the effectiveness of the transition.  This is described below with analysis of the SHAPE policies. 

§         Conformance with Policy 2.  The proposal is consistent with this policy, as it seeks to increase the supply of housing within Life Care Communities, which is presently under-supplied in Cary. 

§         Conformance with Policy 4.  One objective of this policy is to have a greater concentration and variety of housing types within developments such as Commercial Mixed-Use Centers than would be found elsewhere in Cary.  Another objective is to support housing products and densities at these centers that allow the market to realize the vision for vibrant centers, including higher density housing for young professionals, singles, couples without children, and seniors or empty-nesters. The rezoning proposal conforms by placing higher density housing for seniors within the heart of a mixed use center, within walking distance of multiple daily services and amenities.  While a CCRC may provide many of the daily living needs for its residents, the proximity to banking, restaurants and retail uses may provide important options for both residents and employees.

§         Conformance with Policy 5.  This policy supports residential redevelopment at sites such as this, as well as increased intensity when necessary for project viability.  The policy also recommends that when such redevelopment is adjacent to an established neighborhood, the project should be designed in a compatible and context-sensitive manner to the extent feasible, using designs that complement and/or transition to adjacent neighborhoods and residences.  The proposed rezoning is consistent with Policy 5 in terms of providing increased density.  The proposed PDD would limit the housing to seniors, and does not introduce a mix of housing types or provide housing options for all ages

§         Conformance with the recommendations for compatibility and context-sensitivity are discussed below with Policy. 


WORK Policies

The Town’s WORK policies respond to economic challenges and opportunities facing Cary by:

§         Maintaining a strong and diverse local economy

§         Providing a variety of employment options 

Applicable Policies:

§  Retain and Grow Existing Cary Businesses (Policy 3)

§  Reserve and Provide Employment Sites in Selected Commercial Mixed Use and Destination Centers (Policy 10)


Staff Observations

§         The proposal may help to support Policies 3 and 10, by allowing Glenaire to grow as an employer in central Cary. 


engage Policies (Cary Community Plan, Chapter 5)

Parks Recreation and Cultural Resources Master Plan Goals

§         Maintain a diverse and balanced park and open space system as the Town of Cary grows. (Goal 1)

§         Provide Cary citizens with a highly functional, safe, well-maintained greenway network that provides recreation, transportation, and education opportunities and wildlife benefits. (Goal 2)

§         Incorporate best management and planning practices to ensure quality services and efficient use of resources. (Goal 9)


§         The subject property is adjacent to Rose Street Park.  The Preliminary Development Plan proposes pedestrian access to the park but does not make a vehicular connection to Rose Street.  Staff is continuing to evaluate the connection to the Rose Street Park.

§         The Parks, Recreation and Cultural Resources Master Plan does not identify any other proposed parks within or adjacent to the subject property. 

§         The PRCR Master Plan does not identify any greenway corridors within or adjacent to the subject parcel. 

§         The closest greenway trail is the Higgins Greenway, with an access located approximately 0.7 miles from the site.  The Higgins Greenway corridor is proposed to extend to Kildaire Farm Road, approximately 0.3 miles north of the site. 





shape Policies

The Town’s SHAPE policies guide future growth by:

§         Supporting the Town’s economic development efforts

§         Efficiently using existing and planned infrastructure

§         Ensuring the Town’s fiscal health

§         Maintaining the high quality of development found today

Applicable Policies: 

§  Focus the Most Intense Types of Development in Strategic Locations (Policy 2)

§  Encourage Mixed-Use Development (Policy 3)

§  Support and Facilitate Redevelopment and Infill Development (Policy 4)

§  Support the Revitalization of Targeted Redevelopment Corridors (Policy 5)

§  Provide Appropriate Transitions Between Land Uses (Policy 6)


Staff Observations

§         Focus the Most Intense Types of Development in Strategic Locations:   The proposed PDP includes a maximum residential density of 20 units per acre. Current LDO density limits for a residential multi-family zoning district are 12 dwelling units; therefore, this is somewhat consistent with the Policy intent to focus intense development in strategically-located locations (Commercial Mixed-Use Centers for example.)  With its proximity to transit, and walkability to downtown Cary, this property has the potential to support even higher densities and more intense commercial uses.

§         Encourage Mixed-Use Development: The proposal by itself does not contain a mix of does add multifamily housing to the Mayfair Community Mixed Use Center, contributing to the mix of uses.  The Policy supports individual development projects creating the right mix of adjacent single-use sites in the aggregate where appropriate.  

§         Support and Facilitate Redevelopment and Infill Development & Support the Revitalization of Targeted Redevelopment Corridors: The proposed rezoning facilitates redevelopment of a portion of the Mayfair Plaza shopping center, which was built 37 years ago and has been identified as an underperforming center in recent years. In the Imagine Cary Community Plan, Kildaire Farm Road and sections of Maynard Road are cited as examples where policy objectives should be tailored to:

o       Encourage and facilitate new infill development and redevelopment of underperforming or distressed corridor properties,

o       Capitalize on corridor location and visibility, access to transit and roadway connections and/or access to adjacent neighborhoods, employment or amenities,

o       Strengthen the visual appeal of the corridor


The increased density and visual massing of the redevelopment parcels will contribute to improving the visual aesthetic of the northern section of the Kildaire Farm Road corridor.

The project may also contribute expanded customer base for non-residential uses in the shopping center and surrounding non-residential uses; however, it should be pointed out that we would like to see the entire center to redevelop and redevelopment of part of the site could also delay redevelopment of the remainder of the site or make redevelopment less flexible.  What is uncertain about the proposed life care community expansion, is how it impacts further expansion opportunities for the outparcels and the remaining in-line tenant spaces in this aging shopping center. 

§         Provide Appropriate Transitions Between Land Uses (Policy 6):  The proposed PDP provides transitions between the new life care community and the surrounding neighborhoods through spatial separations as described below:

o       North of the site is West Cornwall and the existing Glenaire development. The existing multifamily building in the northwestern quadrant of the intersection with Kildaire Farm Road is a two-story form with pitched roofs. The building is located right at the edge of the 30-foot streetscape.

In contrast, the proposed buildings will be up to four stories in height. However, the horizontal separation from West Cornwall is increased as well, placing the building about 43 feet farther from the roadway (~73 feet total from the roadway). The proposed PDP includes the required 50-foot streetscape width.

o       Northwest of the site is Cornwall Village, consisting of nine two-story detached residences. The proposed life care building is about six stories in appearance, and a transition is accomplished primarily through spatial separation. The closest proposed building is approximately 183 feet from the closest of the residences.

o       East of the site, Suntrust Bank and Istanbul restaurant: These two-existing commercials outparcels are single- story commercial structures. The proposed life care community will range from two to six stories adjacent. However, the two outparcels represent an older form based on a suburban strip center concept. The proposed use, though significantly higher, is more consistent with the vision of Cary’s future identified in the Imagine Cary plan.

o       South of the site lies the balance of the Mayfair Plaza shopping center. As with the non-residential uses to the west, the remnant of the Mayfair shopping center consists primarily of single-story commercial buildings. Again, the center is ripe for redevelopment opportunities in the future.

The one exception to this description is the two-story bank located along Kildaire Farm. This was a redevelopment parcel in the mid-2000s and is more consistent with the vision for development in the Imagine Cary plan.

o       West of the site is a cell tower, Rose Street Park, and the Burtrose Subdivision. Spatial separation is the key to effectively transitioning the density envisioned in the Commercial Mixed Use Center and the surrounding neighborhoods. Aided by Rose Street Park and the remnant parking lot containing the telecommunications tower, the proposed buildings are almost 200 feet from the closest residential lots in Burtrose.


MOVE Policies

Cary’s MOVE policies are designed to respond to transportation challenges and opportunities:

§         Provide an efficient, functional, and well-designed transportation system

§         Allow mobility choices

Ensure Safety for All Users and Modes (Policy 1)

Apply Multimodal Street Designs (Policy 2)

Design Transportation Infrastructure to Address Land Use Context (Policy 3)

Ensure a Well-Maintained System (Policy 8)


Cary’s transportation requirements for development reflect the Move Chapter policies. Planned improvements illustrated on the adopted Move chapter maps were developed to ensure the safety and accommodation of all users and modes, reflect land use considerations, provide additional system connections, close gaps, and minimize thoroughfare widths wherever possible. 


Kildaire Farm Road

Existing Cross Section:  3-lane roadway with curb and gutter.  Sidewalk exists on both sides of the roadway, and the road is striped with bike sharrows.  ROW along the property’s frontage varies between 60 ft – 80 ft.    


Future Cross Section:

§         Road:  5-lane roadway in a minimum 90 ft of right-of-way.  Additional right-of-way may be needed along W. Cornwall Road to accommodate turn lanes.

§         Sidewalks:  5-foot sidewalk on both sides of the roadway    

§         Bicycle Lanes:  14-foot-wide outside lane in both directions


Transit:  This project will result in the relocation of the transit stop on Kildaire Farm Road at Mayfair Plaza.  This stop currently serves GoCary Route 5 and GoTriangle Route 301. The stop will be relocated to south of the proposed project entrance road with identical amenities (bench, trash receptacle, and bicycle rack). Transit staff will coordinate with the applicant on appropriate pedestrian circulation to the proposed buildings.

W. Cornwall Road

Existing Cross Section:  2-lane roadway with sidewalk present on the north side of the road.  The ROW along the property’s frontage increases slightly from 50 ft to 57 ft, as you approach Kildaire Farm Rd. 


Future Cross Section:

W. Cornwall Road is a collector street in the Town’s CCP. 

§         Road: 2 lane road with curb and gutter within 60 ft of right-of-way.  Additional right-of-way may be needed at the Kildaire Farm Rd intersection to accommodate turn lanes.

§         Sidewalks:  5-foot sidewalk on both sides of the road.

§         Bicycle Lanes:  4-foot wide bike lane in both directions.


Improvements Being Considered by the Town of Cary as Part of Ongoing Budgeted Capital Projects:  None at this time.


Notes: 1) Streets in Cary are typically constructed or widened in increments, with developers completing the half-width section along their frontage when the property is developed. 

2) Construction of other off-site improvements may be voluntarily offered as zoning conditions by applicants for rezoning cases.  3) NCDOT may require additional off-site improvements.





The applicant has proposed to rezone 11.97 acres with a Preliminary Development Plan (PDP) that would facilitate development of a life care community with up to 192 independent living units, 40 assisted living units, and an adult day care facility that could serve residents and up to 25 non-residents. A summary of the trip generation for the proposed uses is provided below.



Land Use


Weekday Traffic

AM Peak Hour (vehicles/hour)

PM Peak Hour


Continuing Care Retirement Community (Land Use Code 255)





Assisted Living

(Land Use Code 254)





Adult Daycare(1)








(1)    The trip generation for adult daycare is based on the information provided by the applicant. Data on weekday traffic for the proposed adult daycare is not available.



Staff Observations:

Based on the ITE Trip Generation Manual, 9th edition and the information provided by the applicant, the proposed rezoning is anticipated to generate approximately 94 AM peak hour and 99 PM peak hour trips. Since the proposed uses are expected to generate less than 100 peak hour trips, a traffic study was not required.  The applicant has not voluntarily offered to conduct a traffic study; therefore, any impacts of site traffic on the adjacent street network are currently unknown.



The Town has specific stormwater and floodplain management requirements for new development that must be addressed during the development plan review process to satisfy Cary’s Land Development Ordinance. These new development requirements are established to mitigate potential flooding impacts and to enhance water quality of our streams while protecting current and future residents of Cary. These protections are provided comprehensively as follows:


§         During development plan review, address improving stormwater and floodplain management by addressing the potential for replacing aging and inadequate infrastructure, as allowed and applicable.

§         During construction, provide sedimentation and erosion control measures to prevent transport of sediment from the construction site.

§         In perpetuity, limit the stormwater runoff from new development to pre-development site conditions with approved stormwater control measures (SCM’s) that restrict stormwater flow leaving the site to engineered limits.

§         Upon completion of the post-construction SCM’s and prior to final acceptance of the new development, require independent certification that they will function as designed, and require provisions for the ongoing maintenance of the SCM’s, to protect quantity and enhance the quality of stormwater leaving the site in perpetuity.





After hearing feedback from the public at the Public Hearing, Staff will continue to evaluate this proposal for conformance with the Imagine Cary Community Plan before making a staff recommendation.  After the Public Hearing Council may forward the case to the Planning and Zoning Board for their review and recommendation. After making their recommendation, the Planning and Zoning Board will forward the case back to Council for final action.













Section 1: The Official Zoning Map is hereby amended by rezoning the area described as follows:





Property Owner

County Parcel Numbers
(10-digit) (PIN)

Real Estate IDs (REID)



Glenaire Inc.

4000 Glenaire Circle

Cary, NC  27511







906 Kildaire Farm Rd

111 W. Cornwall Rd

W. Cornwall Rd (unaddressed)




Marsh Pottery LLC

3599 Andrew L. Tucker Rd.

Fort Mill, SC  29715



960 Kildaire Farm Rd


Total Area





Section 2:

That this Property is rezoned from General Commercial (GC), General Commercial Conditional Use (GC-CU) and Mixed Use District (MXD) to Mixed Use District (MXD) subject to the individualized development conditions set forth in the “Glenaire Preliminary Development Plan” approved by the Town Council as of this date and to be filed in the Planning Department, and to all the requirements of the Cary Land Development Ordinance (LDO) and other applicable laws, standards, policies and guidelines, all of which shall constitute the zoning regulations for the approved district and are binding on the Property.


Section 3:

The conditions proposed by the applicant to address conformance of the development and use of the Property to ordinances and officially adopted plans, to address impacts reasonably expected to be generated by the rezoning, and to promote the public health, safety and general welfare, and accepted and approved by the Town are set forth in the “Glenaire Preliminary Development Plan” approved by the Town Council as of this date and to be filed in the Planning Department.