Legion Property

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Legion Property birdseye1

The Legion Property is a 36.2-acre, Town-owned property at 1714 Legion Road. The Town purchased the property in 2017. Town staff are currently working to build affordable housing and a Town park on the site, as approved by the Town Council in December 2022.

Join the Legion Property project email list to receive updates in your inbox. Email comments and questions to Legion Property staff team members.

Current Update (June 2024)

The Town has been working with an engineering consultant to determine next steps for the Legion Property pond. Based on their professional assessment, we will replace the pond and dam with a constructed wetland.

Here’s why:

A constructed wetland is a vibrant and biodiverse water feature that is well-suited for the future of the property
It will meet both the water containment and stormwater management needs on the property
It will allow for the development of affordable housing along the front of the property
It will provide numerous walking, environmental education, and engagement opportunities.

Next steps include designing the constructed wetland, getting the approvals needed for construction, assessing wildlife in the area, and planning for construction. These steps will take until at least early 2025.

For the full May 31, 2024 staff and engineering memo to Town Council, click here.

2023 Updates

Selected engineering firm Tetra Tech to help the Town make a final decision about the pond dam repair. They'll also submit required permits for this work and oversee the construction once permits are issued. Staff expects this process to take up to two years to complete.
Selected DHIC as the affordable housing developer to partner with the Town for the affordable housing development of this site. This local non-profit brings many years of experience creating affordable communities throughout North Carolina, including Chapel Hill. They'll work with the Town through the design, permitting, financing, and construction of a new neighborhood next to the future Town park. Staff expects it will take three to five years to complete construction.
Prepared bid notice for a comprehensive parks and recreation master plan consultant. The master plan will identify and prioritize town-wide needs for greenways, open space, recreation, and parks. This will help inform future park design at Legion Property/Ephesus Park. Consultant selection will happen in 2024. Staff estimates two years to complete the master plan effort. Legion park planning could begin before the master plan is finished.

Council Actions

The Mayor formed the Legion Property Committee (LPC) in October 2022. The LPC met in October and November to form their recommendations on the future use of the Legion Property. Town staff shared the LPC's recommendations at a Public Information Meeting on Tuesday, November 29, 2022.

At their December 7, 2022 meeting, the Town Council approved the recommendations of the Legion Property Committee and authorized the Town Manager to proceed with next steps as recommended by the LPC. This Council approval includes:

retain ownership of the entire property
combine approximately 27 acres of the Legion property with Ephesus Park for a Town Park that includes both active and passive recreation and can also accommodate the cultural arts
designate 8-9 acres fronting on Legion Road for affordable housing that complements the park and is consistent with the Town’s Complete Community strategy
preserve existing natural areas including stream features and forests
determine the best placement of stormwater feature(s) on the site which might include a reduced pond.

At their March 22, 2023 meeting, the Council approved the Fiscal Year 2021-22 excess fund balance appropriation, which included budgeting $540,000 to begin to address the Legion Property dam.

At their May 24, 2023 meeting, the Council authorized the Town Manager to begin the process of selecting an affordable housing development partner.

As part of the Fiscal Year 2023-24 budget adopted on June 7, 2023, the Council approved funds for Parks & Recreation capital needs. Some of this money will pay for the Town's comprehensive parks and recreation master planning process.

Site Overview

The Town purchased the 36.2-acre parcel located along Legion Road from American Legion Post 6 in March 2017.

AMERICAN LEGION PROPERTY MAP The property includes the 8,400 square-foot Post building, a small dance studio, and a 3.1-acre pond. A stream running north to south through the property, and its associated buffer, make up about 8.6 acres. The property borders the Town's Ephesus Park, Ephesus Elementary School, as well as several residential and commercial properties. As a condition of the sale, the Post leased a portion of the property (including both buildings) from the Town until the Post moved off the property in Summer 2020.

After the Town purchased the American Legion property, the Chapel Hill Town Council appointed the American Legion Task Force (ALTF) to develop future land use recommendations for the property. The ALTF recommended a set of Development Principles to the Council in June 2017, as well as a list of Evaluation Criteria and Prioritized Uses in November 2017.

In early 2017, the Town contracted with Hart & Hickman to perform a Phase I Environmental Site Assessment (ESA). The report delivered in February 2017 identified one Recognized Environmental Condition that warranted a Phase II ESA: a maintenance shed floor drain with an uncertain discharge point. The Town proceeded with a Phase II ESA, which included soil and groundwater assessment activities based on the Phase I ESA. The scope of work also included a supplemental assessment based on a report of a potential fill area and a potential dump area on the property. Hart & Hickman included the findings in their report delivered in June 2017 and no further assessments were recommended.

Phase I Environmental Site Assessment (February 2017)
Phase II Environmental Site Assessment (June 2017)

The Council did not have any formal discussions about the future use of the property during the COVID-19 pandemic. On May 18, 2022, the Council received a petition from several Council members requesting the Town move forward with developing and implementing a plan for the future use of the property. In October 2022, the Mayor formed a subcommittee to discuss key interests and make high level recommendations to the full Council.

Purchase of the Legion Property

In June 2015, the Town Council considered an option to purchase the American Legion Property for $9 million, and declined because of cost. To inform consideration of anticipated development proposals, on March 16, 2016, the Town Council held a work session to hear community interests in the property and to express Council interests for the future of the American Legion site. Guiding principles for any future development were subsequently adopted on June 20, 2016. An applicant then submitted a concept plan for a multifamily and office development in the summer of 2016. The Council reviewed and provided comment on that plan at their meeting on September 19, 2016.

The Council revisited their option to purchase the property and on December 5, 2016, authorized the Town Manager to sign a contract to purchase the American Legion Property at 1714 Legion Road. Council further resolved that the property should be used for a mix of public and private purposes. The Contract was signed by the Town Manager on December 6, 2016. On December 15, 2016 the General Membership of Chapel Hill Post 6, American Legion, Inc. met and voted to approve the contract.

As a condition of the purchase, the Town agreed to lease the property back to Post 6 for three years. The Town also agreed to pay the $7.9 million purchase price in three installments. The final installment was paid in March 2019. The funding source for these payments is as follows:

$3,600,000: General Fund excess fund balance
$4,300,000: General Obligation (G.O.) bonds

The G.O. bonds were part of a 2015 voter referendum and were designated for Recreation Facilities. While the purchase of the Legion property was not specifically contemplated at the time of the 2015 referendum, staff determined that land acquisition aligned with the bond authority if the funds paid for a portion of the property that would be used for parks and recreation purposes. Council authorized the sale of the G.O. bonds for this purpose in March 2018.

Timeline of Council Discussion

05/24/2023 Council Meeting: Authorize the Town Manager to Seek an Affordable Housing Partner for the American Legion Property and Begin Negotiating an Agreement under which the Parties would Prepare a Proposed Development Project
05/17/2023 Council Work Session: Update on the Legion Property Project (video)
03/22/2023 Council Meeting: Approve FY 2022 Excess Fund Balance Appropriation (video)
12/07/2022 Council Meeting: Receive the Recommendations of the Legion Property Committee and Consider Next Steps on the Future Use of the American Legion Property (video)
06/01/2022 Council Work Session: Discuss the Future Use of the American Legion Property, 1714 Legion Road (video)
02/12/2020 Council Work Session: Discuss the Future Use of the American Legion Property, 1714 Legion Road (video)
04/18/2018 Council Meeting: Parks and Recreation Trust Fund Grant Application Update (video)
03/21/2018 Council Meeting: Consider Adopting a Resolution for the Sale of $12.5 million of 2015 Public Improvement General Obligation Bonds (video)
11/29/2017 Council Meeting: Receive the Second American Legion Task Force Report and Consider the Recommendations - Agenda Item #16 (video)
06/26/2017 Council Meeting: Receive the American Legion Task Force Report and Consider the Recommendations and Authorize the Additional Scope of Work - Agenda Item #20
03/13/2017 Council Meeting: Compose a Task Force for the American Legion Post 6 Property – Agenda Item #6
03/06/2017 Council Meeting: Seller Financing of American Legion Purchase and Planning for the Future Use – Agenda Items #7 and #8
12/05/2016 Council Meeting: Consider Proposed Town Acquisition of American Legion Property - Agenda Item #8 (Presentation to Town Council)
09/19/2016 Council Meeting: Concept Plan: American Legion Post 6, Mixed-Use Development – Agenda Item #7
06/20/2016 Council Meeting: Adoption of Guiding Principles – Agenda Item #6
03/16/2016 Council Work Session: American Legion Property - Council interests - Agenda Item #3
01/07/2016 Email from Town Manager to Council: A recent history of the American Legion property
12/18/2015 Email from Town Manager to Council: Status of the American Legion property and Town's right of first refusal
11/09/2015 Council Closed Session: Meeting Minutes
06/15/2015 Council Closed Session: Meeting Minutes
04/05/2005 Council Resolution: Legion Property Right of First Refusal

Additional Resources

American Legion Task Force web page: Includes meeting agendas, materials, and draft components of the report
Summary Presentation on American Legion Public Engagement Process (03/30/2017)
Agreement for Purchase and Sale of American Legion Property (12/06/2016)
Concept Plan Application page for Woodfield Investments under Chapel Hill Development Activity Report (submitted 07/26/2016)
Agreement and Memorandum of Understanding between Chapel Hill and Woodfield (11/20/2015)
Letter to Town from American Legion, including Contract between Woodfield and the American Legion (09/30/2015)
Town’s Comprehensive Parks Master Plan (adopted May 2013)
Chapel Hill Affordable Housing website

The Project Managers for this project are Sarah Poulton, Senior Project Manager in the Town Manager's Office, and Chad Brown, Capital Project Manager in Public Works. Please email legionproperty@townofchapelhill.org or call 919-969-5009 with any questions.