Franklin aldermen approve Harlan annexation, rezoning and development plan over resident objections

Franklin — The Board of Mayor and Aldermen voted 5–3 on April 28 to approve the development plan for the Harlan PUD and earlier approved the annexation and rezoning of roughly 311.21 acres at 1247 Hillview Lane, despite sustained public opposition from nearby residents.

The board first approved a plan of services for annexation (Resolution 2025-24) by a 6–2 vote and then adopted the formal annexation (Resolution 2025-25) and rezoning to a Planned PD (Ordinance 2025-06). The development plan (Resolution 2025-26) passed 5–3. The board also approved two contracts with Boyle Investment Company: a road impact fee offset agreement (not to exceed $4,598,243) and a parkland impact fee and construction agreement.

Why it matters: Neighbors said the project, as revised, still risks increased traffic on Mack Hatcher and Columbia Avenue and could degrade the character and safety of Hillview Lane and Shadow Green. Board supporters said the plan preserves more than 200 acres as open space, shifts infrastructure costs to the developer, and includes a key condition (condition 30) that restricts buildout beyond an initial phase without required off‑site improvements.

Residents pressed elected officials throughout the public hearing. "I just really hope that you will hear our hearts in this," resident Abby Couton told the board, urging them to reject access through Shadow Green and to delay until road work is completed. Multiple speakers, including Nikki Horner of the Shadow Green homeowners association, said connecting the project’s access through their neighborhood would harm safety and quality of life.

Developers and their representatives defended the plan. Adam Balish of Boyle Investment Company said the project would deliver infrastructure first and low density (about 0.67 units per acre), include a mix of housing types and conserve large tracts of open space. "We humbly ask for your approval," Balish said during his presentation. Applicant counsel Greg Gamble described the proposed phased approach and said the plan preserves Hillview Lane while providing gated emergency access in phase one.

A central dispute concerned an owner affidavit tied to the Goodpasture property that residents said had been withdrawn. Boyle’s team and staff said Boyle holds the parcel under contract and reiterated that condition 30 would require a northern access connection before the developer could build beyond the initial 150-unit phase. Staff also told the board that departmental review of the annexation and plan of services involved roughly 30 reviewers across city departments.

What the board approved: The development plan includes requests for 15 modifications of standards, approximately 242 dwelling units, 32,000 square feet of nonresidential space and an 80-room hotel as described in staff materials. Under the plan’s phasing and triggers the developer may build up to 150 units initially; later phases require fulfillment of specified off‑site improvements or a plan revision subject to planning commission and board approval.

Board reaction and next steps: Several aldermen who voted in favor described the plan as an example of "infrastructure before development," noting Boyle committed significant off‑site funding for road improvements; the administration said some off‑site roadway work would begin as early as 2027 and that major intersections could be under construction later in the decade. Dissenting aldermen cited uncertainty over right‑of‑way acquisitions and timing for Columbia Avenue and Mack Hatcher improvements and said those risks weighed against immediate approval.

The board’s approvals allow the applicant to proceed with development permitting and required off‑site improvements; any future changes to the northern access or major elements of the plan would require a development plan revision and additional review by the planning commission and the board.