REVIEW COMMENTS
MEMORANDUM
December 10, 1988
TO: CHAIRMAN AND MEMBERS
PLANNING AND ZONING BOARD
FROM: CARMEN S. ANNUNZIATO, PLANNING DIRECTOR
RE: ALHAMBRA SQUARE NORTH
LAND USE AMENDMENT/REZONING REQUEST
Summary: Charles Putman and Associates, Inc., agent for the Milnor
Corporation, property owner, is requesting that the Future Land Use
Element for a 4.01 acre parcel be amended from "Moderate Density
Residential" to "Office Commercial" and that this parcel be rezoned
from R-IAA (PUD) to C-1 (Office/Professional), The parcel is located
at the northeast corner of South Congress Avenue and Golf Road (S.W.
23rd Avenue) and has a 380 foot frontage on Congress Avenue and a 460
foot frontage on Golf Road. It was originally intended that this
parcel be developed for a church as part of the Leisureville Planned
Unit Development. On December 16, 1986 the City adopted the
Comprehensive Plan Evaluation and Appraisal Report (Ordinance No.
86-54) which amended the Future Land Use Element for this parcel from
"Public and Private Institutional Governmental" to "Moderate Density
Residential." The proposed use of this property, if rezoned, would
be to develop it for a'66,600 square foot professional/medical office
complex (see attached conceptual site plan).
Surroundinq Land Use and Zoninq (see attached location map):
Abutting the subject parcel to the north and fronting on Congress
Avenue is a .55 acre parcel zoned PU (Public Usage) where a City fire
station is located. Further to the north and fronting on Congress
Avenue is the Cedarwood villas development, zoned R-3, which consists
of one-story townhouses. Abutting the northern boundary of the
property to the rear of the fire station are single-family homes
zoned R-IAA (PUD) which are part of the Leisureville Planned Unit
Development. These homes continue along the eastern boundary of the
subject parcel to Golf Road. The Leisureville development continues
eastward along Golf Road to the L.W.D,D. E-4 canal. To the south,
across Golf Road, is a 10 acre parcel, zoned R-IAA, which is
currently vacant. Two applications have been submitted for this
parcel. An application has been submitted for a 4.368 acre portion
of this parcel which proposes that the Future Land Use Element be
amended from "Low Density Residential" to "Office Commercial" and
that this parcel be rezoned from R-IAA to C-1 (Office/Professional).
A second application has been submitted for the remaining five (5)
acre portion which proposes that the Future Land Use Element be
amended from "Low Density Residential" to "High Density Residential"
and that this parcel be rezoned from R-IAA to R-3 (Multi-Family
Residential) for the purpose of obtaining Conditional Use approval
for an ACLF. Further to the south is the Golfview Harbor Estates
development. These are 1 and 2 story multiple-family dwelling units
zoned R-3. Across Congress Avenue, at the southwest corner of
Congress Avenue and Golf Road is the Silverlake Estates development.
This project is a planned unit development (PUD) approved under the
name "Cranbrook Lake Estates." To the west, across Congress Avenue,
is an 11.74 acre vacant parcel which lies within the Quail Lake
Planned Unit Development, Site plans for this parcel were previously
approved under the names "Savannah Place" and "Sutton Place." The
former site plan has since expired and the latter site plan was
withdrawn by the property owner shortly after approval.
Present Zoninq: The present R-IAA (PUD) zoning would allow for the
development of about 18 single-family lots. The R-1AA zoning
requires a minimum 8,000 square foot lot with a 75 foot frontage.
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These lots could be developed so as to face away from Congress Avenue
and Golf Road, and in fact, Palm Beach County and city policies would
prohibit residential driveways onto these two thoroughfares. Access
could be provided to the property by an entrance road located on Golf
Road, which would have to be at least 180 feet east of the
intersection.
Rezoninq: Rezoning to C-1, Office/Professional, would permit
professional or office buildings up to two stories high (25 feet) or
up to 30 feet if under-building parking is utilized. Uses permitted
in the C-1 zoning district include churches, financial institutions,
funeral homes, government facilities, hospitals, medical/professional
offices, nursing and convalescent homes, pharmacies, veterinary
offices and clinics, nursery schools, instruction or tutoring,
academic schools, and copying service. Nursery schools and
instruction or tutoring greater than 2,000 square feet in floor area
require Conditional Use approval. The rear and side yard setbacks
abutting the residential properties to the north and east would be 30
feet. A six foot buffer wall or hedge two feet in height at time of
planting and maintained at a height of six feet would also be
required along these property lines. The applicant proposes to build
a 66,600 square foot professional/medical office complex. Under the
City's development regulations, a maximum of about 69,000 square feet
of office floor space could be built on the parcel if under building
parking is utilized. Approval of this rezoning request would also
set a precedent for the commercial rezoning of the vacant parcels
located at the southeast and northwest corners of this intersection.
Comprehensive Plan-Future Land Use Map: The property in question is
currently shown on the Future Land Use Element of the Comprehensive
Plan as "Moderate Density Residential," so an amendment to the Future
Land Use Element to "Office Commercial," as requested by the
applicant, would be necessary.
Comprehensive Plan-Text: The following Comprehensive Plan policies
are relevant to this rezoning re~uest:
"Provide a suitable living environment in all neighborhoods." (p.6)
"Provide a range of land use types to accommodate a full range of
services and activities," (p.7)
"Eliminate existing and potential land use conflicts." (p.7)
"Encourage the development of complimentary land uses." (p.7)
"Encourage the development of commercial land uses where
accessibility is greatest and where impacts to residential uses are
minimized." (p.?)
"Provide for efficient and safe movement within the City." (p.7)
"Encourage the development of clustered neighborhood and community
commercial centers at arterial and collector intersections." (p.39)
In addition to the broad Comprehensive Plan policies outlined above,
the parcel is designated in the Comprehensive Plan Evaluation and
Appraisal Report as an area of potential land use conflict (Area 38).
The language for Area 38 reads as follows:
This property is shown on the Future Land Use plan as
"Public and Private Governmental/Institutional" and is zoned
for single-family use. Although this property arguably is
consistent with policies for the location of commercial
uses, location of commercial uses at this corner would set a
precedent for commercial zoning of the remaining three
undeveloped corners. Commercial development of this
intersection would change the residential character of the
neighborhood and could create unacceptable levels of
traffic. It would be desirable to maintain the residential
character of this area. Therefore, commercial development
should not be permitted at this intersection. In order to
allow development of this parcel consistent with the R-1AA
(PUD) zoning, the Future Land Use plan for this parcel
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should be changed from "Public and Private Governmental/
Institutional" to "Moderate Density Residential."
As previously noted in the section entitled "Summary," the
"Public and Private Institutional/Governmental" land use for the
former Leisureville church parcel was amended to "Moderate
Density Residential" with the adoption of the Evaluation and
Appraisal Report.
IssueS/Discussion
1. Whether development of this property for commercial uses will
have an adverse impact on surrounding residential properties.
The property is of sufficient size and depth so that it could
be developed without causing significant adverse impacts on
the residences which lie to the north and east. The types of
uses that are allowed in the C-1 zoning district generally do
not create nuisances such as litter, odors, noise, or glare
and usually do not operate after 6:00 p.m. However, the use
of this property for offices would change the character of
the neighborhood, considering that there is no commercial
zoning or commercial land uses established in the vicinity.
Furthermore, approval of this rezoning re~uest would set a
precedent for the commercial rezoning of the vacant parcels
located at the southeast and northwest corners of the
intersection. This would further change the character of the
surrounding neighborhood.
As a condition of site plan approval, if this request is
approved, it is recommended that a six foot high concrete
block wall be provided along the northern and eastern
property boundaries, and that the parking lot lighting along
these property lines be directed away from the existing
residences. Although it is not anticipated that this
facility would experience significant use during the evening
hours, parking lot lighting is often activated during the
evening hours to enhance on-site security and to assist the
Police Department in patrolling the property. In addition, as
a condition of zoning approval, if this request is approved,
it is recommended that the proposed building height be
limited to one story to further protect the adjacent
residences and to minimize the impact of the development on
the surrounding road network.
The above recommendations are consistent with Section
9.C.4.h.9 of Appendix A, Zoning - Comprehensive Plan
Amendments; Rezonings, and Sections 163.3194, 163,3197,
163.3201 and 163.3202 of the Florida Statutes.
2, Whether the development of this property for commercial uses
will have a significant impact on roads in the vicinity.
As a result of the adoption of the new growth management
legislation, it is appropriate to review all rezonings and/or
Comprehensive Plan amendments on the basis of infrastructure
capacity. This is particularly important when attempting to
analyze whether or not the adopted Comprehensive Plan
Thoroughfare Plan Map provides enough capacity to meet the
needs of any request which will intensify the level of land
development, thus potentially creating more traffic than the
system was designed to carry. The applicant's traffic
engineer, K.S. Rogers, Inc., has submitted a traffic impact
analysis which analyzes the impact of the proposed
developments (Alhambra Square North, South and the ACLF) on
roadways and intersections in the surrounding area. In
addition, Mr. Roger's impact statement was reviewed by Walter
H. Keller, Jr., Inc., the City's traffic consultant, to
determine consistency with adopted City and County codes and
ordinances, Both reports can be found in Exhibit "A" of this
memorandum.
-4-
As a basis for review of plan amendment and rezoning
re~uests, the City has adopted Level of Service (LOS) C as
the base standard, which provides for stable operating
roadway conditions even though backups may occur. LOS D is
acceptable only during peak season. No approval for
development shall be adopted until it can be demonstrated
that the roadway system serving the proposed development
meets these criteria.
In addition to the above, it is also appropriate to review
plan amendment and rezoning requests with the recently
adopted Palm Beach County Traffic Performance Standards
Ordinance (Ordinance No. 87-18) as Chapter 163 of the Florida
Statutes, Local Government Comprehensive Planning Act,
mandates that the City coordinate its plan policies with
those of the state, county, region, and neighboring
municipalities. These projects, if approved, would place
additional traffic on the state and county road systems,
Mr. Keller's analysis of the report prepared by K.S. Rogers, Inc.
can be summarized as follows:
A. Trip Generation: Both daily and peak hour traffic volumes
meet or exceed calculated volumes.
B. Trip Distribution: Results were almost identical.
c. Programmed Improvements: There are three programmed roadway
improvements in the study area which all involve Congress
Avenue. These improvements should either be completed or
under construction at the time of project completion.
D. Traffic Assiqnment: The assignment is reasonable based on
the calculated trip generation and traffic distribution.
E. Background Traffic: The applicant's submittal does not
provide documentation on the background traffic analysis.
Supporting information should be submitted by the applicant
to document existing traffic counts collected, historical
traffic growth, and the generation and assignment of approved
projects.
F. Future Traffic Impacts: The applicant's future traffic
impact analysis is reasonable, subject to the submission of
the background traffic documentation. No roadway
improvements are re~uired to serve the proposed development,
other than the turn lane improvements proposed for the
project driveways.
G, Conformance with City and County Standards: The report is
consistent with both City and county re~uirements, subject to
the submission of the background traffic documentation.
Based on the above, the proposed development, if approved, will
not have a significant impact on roads in the vicinity.
3. Whether there is an ade~uate supply of office space and
existing commercially-zoned property in the vicinity.
There are currently about 230,000 square feet of office floor
space at the intersection of Congress Avenue and Woolbright
Road. On South Congress Avenue (west side) in front of the
Hunters Run Planned Unit Development, there are approximately
thirty (30) acres of vacant C-3 zoned property, The above
properties are located within one mile of the subject parcel.
At the intersection of I-95 and Woolbright Road (southwest
corner), is the Pylon Industrial Development, which include
308,000 s~uare feet of office floor space which has either
been approved or constructed. Furthermore, there are about
eight (8) acres of C-2 zoned property and 9,4 acres of vacant
C-3 zoned property at the northwest and southwest corners of
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Interstate 95 and Woolbright Road. At the northwest corner
of Woolbright Road and the LWDD E-4 Canal is the Chua Eye
Clinic, which has been approved for 14,400 s~uare feet of
medical office floor space. This project was recently
completed. At the southwest corner of Woolbright Road and
the LWDD E-4 Canal is the Woolbright Professional center,
which has been approved for 26,400 square feet of
professional medical floor space. Based on the above, it can
be concluded that there is already on ade~uate supply of
office floor space and commercially zoned property in the
vicinity.
4. Whether the property in question is physically and
economically developable for single-family residences.
Under the existing R-1AA (PUD) zoning, the property could be
developed for about eighteen (18) single-family lots. If the
property is developed for single-family residences with the
rear of the lots facing Congress Avenue and Golf Road and a
berm and/or wall provided along these thoroughfares, then the
property could conceivably be developed for single-family
detached housing. The recent construction of new
Leisureville homes adjacent to the subject parcel would tend
to support this conclusion. In addition, there is an
existing subdivision of highly-priced single-family homes at
the southwest corner of Congress Avenue and Golf Road
(Silverlake Estates). Although the lots along Golf Road in
this subdivision are separated from the intersection by an
eighty (80) foot wide canal right-of-way, the lots along
congress Avenue are separated from Congress Avenue with only
a wall. Given that this is sufficient buffering for homes in
the $150,000 plus price range, it is arguable that similar
buffering measures would be sufficient for R-1AA (PUD) zoned
lots which, when developed, would probably be in the $80,000
price range.
5. Whether office/professional zoning would be consistent with
Comprehensive Plan policies for the location of and access to
commercial uses.
commercial development of properties at this intersection
would be consistent with comprehensive Plan policies for the
location of commercial uses. The Comprehensive Plan
encourages commercial development at arterial and collector
intersections and discourages strip commercial development.
Development of the subject property would not create strip
commercial development. Commercial zoning of the property
would also be consistent, in part, with the policy of
encouraging "development of commercial land uses where
accessibility is greatest and where impacts to residential
uses are minimized, The question in this case is whether it
would be appropriate to change the character of the
properties in the vicinity from residential to commercial.
Land Use Conflict Area 38 of the Comprehensive Plan
Evaluation and Appraisal Report recommends that commercial
development should not be permitted at this intersection, as
it would change the residential character of the neighborhood
and could create unacceptable levels of traffic.
Conclusions/Recommendations: ReZoning the subject property to
Office/Professional would not have a significant impact on the
roads in the vicinity and would be consistent with Comprehensive
Plan policies with respect to location. However, rezoning would
cause a significant change in the character of the neighborhood
and may have a negative impact on abutting residential uses.
This concern is reflected in the language for Land Use Conflict
Area 38 of the Comprehensive Plan Evaluation and Appraisal
Report. Rezoning this corner would also set a precedent for
commercial zoning of the undeveloped parcels to the south and
west, which would further change the character of the
neighborhood. Whether the change in character is desirable is
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the underlying issue in this rezoning re~uest. It is the
Planning Department's conclusion that changing the character of
the neighborhood from residential to commercial is not desirable
and that the property is developable under the current
residential zoning. Therefore, it is the Planning Department's
recommendation that commercialization of this parcel not be
allowed, and that the application for amending the Future Land
Use Element to "office Commercial" and rezoning to C-1,
office/Professional, should be denied. If it is the decision of
the Planning and Zoning Board to recommend approval or the City
Commission to approve this request, it is recommended that the
following conditions be incorporated:
CONDITIONS OF ZONING APPROVAL
1. It is recommended that a six foot high concrete block wall
be provided along the northern and eastern property
boundaries,
2, Lighting to be directed away from the abutting residential
neighborhood.
3. It is recommended that the proposed building height be
limited to one story to preserve the integrity of the
abutting single-family neighborhood and to also minimize the
impact on the surround road network (the latter portion of
this recommendation is inconsistent with the language for
Land Use Conflict Area 38 of the Comprehensive plan
Evaluation and Appraisal Report).
4. Proper screening and noise mitigation is recommended for all
mechanical equipment.
5. The applicant's traffic engineer should submit information on
background traffic as outlined in the traffic analysis
prepared by Walter H, Keller, Inc. This information should
be evaluated prior to second reading of ordinances to
determine if any levels of service have been adversely
affected.
6. Final recommendations with respect to turn lane improvements
for the project driveway to be made by the Technical Review
Board at the time of site plan approval.
C1'. _ -' I{
CARMEN S.
.-..-.:z
;;}NUNZIATO
/bks
cc: Central File
M E M 0 RAN DUM
December 9, 1988
TO: CHAIRMAN AND MEMBERS
PLANNING AND ZONING BOARD
FROM: CARMEN S. ANNUNZIATO, PLANNING DIRECTOR
RE: ALHAMBRA SQUARE ACLF
LAND USE AMENDMENT/REZONING REQUEST
Summary: Charles Putman and Associates, Inc., agent for Norman
and Elishka Michael, property owners, is requesting that the
Future Land Use Element for a five (5) acre parcel be amended
from "Low Density Residential" to "Multi-Family Residential" and
that this parcel be rezoned from R-1AA (Single-Family
Residential) to R-3 (Multi-Family Residential). The parcel is
located on the south side Golf Road approximately 500 feet east
of South Congress Avenue, with 590 feet of frontage on Golf Road.
On December 16, 1986 the City adopted the Comprehensive Plan
Evaluation and Appraisal Report (Ordinance No, 86-54) which
amended the Future Land Use Element for this parcel from
"Moderate Density Residential" to "Low Density Residential." The
proposed use of this property, if rezoned, would be to seek a
Conditional Use approval for a 130,000 square foot'(130 bed)
adult congregate living facility (see attached conceptual site
plan) .
Surrounding Land Use and Zoninq (see attached location map):
Abutting the sUbject parcel to the north is the 80 foot
right-of-way for Golf Road. Further to the north, across Golf
Road, is the Leisureville Planned Unit Development, This project
consists of single-family detached homes with a gross density of
approximately 7.25 dwelling units per acre. Abutting the subject
parcel to the northeast and east is a 50 foot wide right-of-way
for S.W. 13th Street. On the east side of S,W. 13th Street,
across from the subject parcel, are three single-family homes.
Abutting the subject parcel to the southeast is a fourth
single-family home which fronts on S.W. 13th Avenue. These
homes, within the Gulfview Harbor subdivision, are in good
condition, Abutting the subject parcel to the south is a 100
foot wide right-of-way for the L.W.D.D. L-27 Canal (Lazy Lake
Waterway). Further to the south, across the canal right-of-way,
is the Gulfview Harbor development. These are single-family
units (with a low density residential land use) zoned R-1AA,
which are generally in good condition. To the southwest, across
the canal right-of-way, is the Gulfview Harbor Estates
development. These are 1 and 2 story multiple-family dwelling
units zoned R-3. Abutting the subject parcel to the west is a
4,63 acre parcel zoned R-1AA which is currently vacant and is
under the same property ownership. An application has been
submitted for this parcel which proposes that the Future Land Use
Element be amended from "Low Density Residential" to "Office
Commercial" and that this parcel be rezoned from R-1AA to C-1
(Office/Professional) for the purpose of constructing a 57,800
square foot professional/medical office complex (Alhambra Square
South). To the northwest, across Golf Road, is a 4.01 acre vacant
parcel. An application has been submitted for this parcel which
proposes that the Future Land Use Element be amended from
"Moderate Density Residential" to "Office Commercial" and that
this parcel be rezoned from R-1AA (PUD) to C-1
(Office/Professional) for the purpose of constructing a 66,600
s~uare foot professional/medical office complex (Alhambra S~uare
North), similar to that proposed adjacent to the ACLF at the
southeast corner of the intersection (Alhambra Square South).
-2-
Present Zoninq: The present R-1AA zoning would allow for the
development of about 22 single-family lots. The R-1AA zoning
re~uires a minimum 8,000 s~uare foot lot with a 75 foot frontage.
These lots could be developed so as to face away from Golf Road,
and in fact, Palm Beach County and City pOlicies would prohibit
residential driveways on this thoroughfare. Access could be
provided to the property by a local street connection to Golf
Road or to S.W. 13th Street.
Rezoninq: Rezoning to R-3 (Multi-Family Residential) would
permit single and mUlti-family residential structures up to four
(4) stories high (45 feet). Also permitted, subject to
Conditional Use approval, are private clubs, lodges, fraternal
organizations, golf courses, swimming and tennis clubs and
rooming and boarding houses (including ACLF's). The setbacks for
the proposed ACLF would be 40 feet for the front and rear of the
building and twenty (20) feet on the sides. The applicant is
proposing to construct a 130,000 s~uare foot building consisting
of 130 beds. However, the City's Comprehensive Plan Evaluation
and Appraisal Report would allow a maximum of 124 beds for this
facility. Section 3.1,4,12 entitled "Group Housing" indicates
that densities for group homes should correspond to the average
number of persons per household for the City as a whole, which
would be equivalent to 2.3 beds times the number of dwellings
allowed under the Future Land Use Plan. Approval of this
rezoning request would also set a precedent for the R-3 rezoning
of the vacant parcel abutting this parcel on the west side
(Alhambra Square South) and the vacant parcel at the northeast
corner of South Congress Avenue and Golf Road (Alhambra Square
North) if the accompanying land use element amendment/rezoning
re~uests for these two parcels are denied.
Comprehensive Plan-Text: The following Comprehensive Plan
policies are relevant to this rezoning re~uest:
"Provide an ade~uate range of housing choices." (p. 6)
"Provide a suitable living environment in all neighborhoods."
(p. 6)
"Provide a range of land use types to accommodate a full range of
services and activities." (p. 7)
"Eliminate existing and potential land use conflicts." (p. 7)
"Encourage the development of complementary land uses," (p. 7)
"Provide for efficient and safe movement within the City."
(p. 7)
"Encourage the preservation of existing single-family
neighborhoods and discourage conversions to higher densities."
(p. 39)
"Centralize and cluster high density
around "activity centers" created by
other areas of high accessibility."
residential development
arterial crossroads and
(p.39)
in
In addition to the broad Comprehensive Plan policies outlined
above, the parcel is designated in the Comprehensive Plan
Evaluation and Appraisal Report as an area of potential land use
conflict (Area 39). The language for Area 39 reads as follows:
The recommendation contained in the original draft of this report
that the west half of Area 39 be changed to a High Density
Residential land use category and R-3 zoning district has been
deleted. Therefore, the R-1AA zoning on this parcel should
continue, and the land use should be shown as "Low Density
Residential."
The Planning Department's recommendation that the land use for
the west half of area 39 be changed to "High Density Residential"
was modified by the City commission during public hearings which
preceded the adoption of the Comprehensive Plan Evaluation and
-3-
Appraisal Report. The Future Land Use Plan designation was
amended from "Moderate Density Residential" to "Low Density
Residential" to reflect the desire of the residents in the
vicinity of this intersection to retain the existing low density
character that currently exists.
Issues/Discussion
1. would development of this property as an ACLF have an adverse
impact on surrounding residential properties?
Development of an ACLF at this location would probably not result
in any significant adverse impacts to the surrounding
single-family neighborhood, owing to the residential character of
this type of facility and the separation afforded by the canal to
the south and the local street to the east. There is one
single-family lot, however, that abuts the ACLF site at the
southeast corner. If this application is approved, the applicant
would be required to submit a Conditional Use Application for the
proposed ACLF. At the time of Conditional Use approval,
appropriate measures for buffering between the ACLF and the
surrounding single-family neighborhood would be addressed.
2. Whether development of this property for an ACLF would have a
significant impact on roads in the vicinity.
As a result of the adoption of the new growth management
legislation, it is appropriate to review all rezonings and/or
Comprehensive Plan amendments on the basis of infrastructure
capacity. This is particularly important when attempting to
analyze whether or not the adopted Comprehensive Plan
Thouroughfare Plan Map provides enough capacity to meet the needs
of any request which will intensify the level of land
development, thus potentially creating more traffic than the
system was designed to carry. The applicant's traffic engineer,
K.S. Rogers, Inc., has submitted a traffic impact analysis which
analyzes the impact of the proposed developments (Alhambra Square
North, South, and the ACLF) on roadways and intersections in the
surrounding area. In addition, Mr. Roger's impact statement was
reviewed by Walter H. Keller, Jr., Inc., the City's traffic
consultant, to determine consistency with adopted City and County
codes and ordinances. Both reports can be found in exhibit "A"
of this memorandum.
As a basis for review of plan amendment and rezoning requests,
the City has adopted Level of Service (LOS) C as the base
standard, which provides for stable operating roadway conditions
even though backups may occur. LOS D is acceptable only during
peak season. No approval for development shall be adopted until
it can be demonstrated that the roadway system serving the
proposed development meets these criteria.
In addition to the above, it is also appropriate to review plan
amendment and rezoning requests for consistency with the recently
adopted Palm Beach County Traffic Performance Standards Ordinance
(Ordinance No. 87-18) as Chapter 163 of the Florida Statutes,
Local Government Comprehensive Planning Act, mandates that the
City coordinate its plan policies with those of the state,
county, region, and neighboring municipalities. These projects
if approved, would place additional traffic on the state and
county road systems.
Mr Keller's analysis of the report prepared by K.S. Robers, Inc.
can be summarized as follows:
a) Trip Generation: Both daily and peak hour traffic
volumes meet or exceed calculated volumes. '
b) Trip Distribution: Results were almost identical.
c) Programmed Improvements: There are three programmed
roadway improvements in the study area which all involve
Congress Avenue. These improvements should either
be completed or under construction at the time of
-4-
project completion, if approved.
d) Traffic Assiqnment: The assignment is reasonable based
on the calculated trip generation and traffic
distribution.
e) Backqround Traffic: The applicant's submittal does not
provide documentation on the background traffic
analysis. Supporting information should be submitted by
the applicant to document existing traffic counts
collected, historical traffic growth, and the generation
and assignment of approved projects.
f) Future Traffic Impacts: The applicant's future traffic
impact analysis is reasonable subject to the submission
of the background traffic documentation. No roadway
improvements are re~uired to serve the proposed
development, other than the turn lane improvements
proposed for the project driveways.
g) Conformance with City and County Standards: The report
is consistent with both City and County requirements,
subject to the submission of the background traffic
documentation.
Based on the above, the proposed development, if approved, will
not have a significant impact on roads in the vicinity.
3. Whether there is an adequate supply of property in the City
which is zoned for this type of use.
The proposed use is allowed as a Conditional Use in the R-3
zoning district and as a permitted use in the PUD, PCD, C-I, C-2
and C-3 zoning districts. Currently, there are about 100 acres
of vacant R-3 zoned property in the City, most of which is
located east of I-95. However, not all of this property would be
suitable for an ACLF. In addition to the vacant R-3 zoned
acreage, there are approximately 200 acres of vacant C-1, C-2,
and C-3 zoned property which is currently vacant. Based on the
above, it can be concluded that there is an adequate supply of
vacant land in the City which is zoned for the proposed use. It
should also be noted that there are currently several existing
ACLF's located within the corporate limits, inclUding the Florida
Four Seasons Manor, the Praxis Adult Care Residence, the Rustic
Retreat Retirement Home, and the Manor Care Personal Care
Facility. According to research undertaken by the Plantec
Corporation for the City's Comprehensive Plan, these four
facilities represent a licensed capacity of 272 beds.
4. Whether the property in question is physically and
economically developable for single-family residences.
Under the existing R-1AA zoning, the property could be developed
for about 22 single-family lots, If the property is developed
for single-family residences with the rear of the lots facing
Golf Road and a berm and/or wall provided along this
thoroughfare, then the property could conceivably be developed
for single-family detached housing. There is an existing
subdivision of high priced single-family homes at the southwest
corner of Congress Avenue and Golf Road (Silverlake Estates).
Although the lots in this subdivision are separated from the
intersection by an 80 foot wide canal right-of-way, these lots
are separated from Congress Avenue with only a wall. Given that
this is sufficient buffering for homes in the $150,000 plus price
range, it is arguable that similar buffering measures would be
sufficient for R-IAA zoned lots which, when developed, would
probably be in the $80,000 to $90,000 price range.
5. Whether the proposed use and development of this property
furthers the intent and purpose of the policies reflected on
the Future Land Use Element or stated in the Comprehensive Plan.
The applicant is re~uesting a land use element amendment from
"Low Density Residential" to "High Density Residential." In
-5-
terms of gross density, this would allow for an increase of 5.98
units per acre (from 4.82 to 10.8). According to Section
3.1,4.12, Group Housing, of the Comprehensive Plan Evaluation and
Appraisal Report, densities for ACLF's and other forms of group
housing should correspond to the average number of persons per
household for the City as a whole, which would be e~uivalent to
2.3 beds times the number of dwellings allowed under the Future
Land Use Plan. This would equate to 55 beds under the current
Low Density Residential land use and 124 beds under the proposed
High Density Residential Land Use. The applicant's traffic
engineer calculated trip generation for this facility based on
130 beds. If approved, it is recommended that this facility be
limited to 124 beds consistent with the language for Section
3.1.4.12 of the Evaluation and Appraisal Report. Concerning the
Future Land Use Element of the Comprehensive Plan, the original
draft of the City's Comprehensive Plan Evaluation and Appraisal
Report (Potential Land Use Conflict Area 39) recommended that the
west half of the owner's property (where the Alhambra Square
South professional/medical office building is proposed) be
designated for "High Density Residential" land use. The land
use underlying both sites at that time was "Moderate Density
Residential." The Planning Department's original recommendation '
was modified by the City Commission during public hearings which
preceded the adoption of the Comprehensive Plan Evaluation and
Appraisal Report in 1986. The Future Land Use Plan designation
was amended form "Moderate Density Residential" to "Low Density
Residential" for the entire property (both the proposed ACLF and
professional/medical complex) to reflect the desire of the
residents in the vicinity to retain the existing low density
character that currently exists. Approval of this re~uest would,
therefore, contradict the intent and purpose of the policies
reflected on the Future Land Use Element and stated in the
comprehensive plan for Potential Land Use Conflict Area 39.
Conclusions/Recommendations: Rezoning the subject property to
MUlti-Family Residential for development of an ACLF would not
have a significant impact on roads in the vicinity and would
probably not result in any significant adverse impacts on the
surrounding single-family neighborhood. The provision of
ade~uate buffering and mitigation of any adverse impacts that may
be created would be addressed at the time of future Conditional
Use approval, if this re~uest is approved. Approval of the
request would contradict the intent and purpose of the policies
reflected on the Future Land Use Element and stated in the
Comprehensive Plan for Potential Land Use Conflict Area 39,
Rezoning the subject property to Multi-Family Residential would
also set a precedent for mUlti-family residential zoning of the
Alhambra Square North and South properties, if the proposed
rezonings to C-1, Office/Professional, are denied. The
underlying issue in this rezoning re~uest is whether the change
in land use intensity from low density residential to high
density residential is desirable. It is the Planning
Department's conclusion that the change in land use intensity at
this intersection to high density residential is not desirable,
based on the actions that were taken at the time of the adoption
of the Comprehensive Plan Evaluation and Appraisal Report, and
that the property is developable under the current zoning,
Therefore, it is the Planning Department's recommendation that
the application for amending the Future Land Use Element to "High
Density Residential" and rezoning to R-3, Multi-Family
Residential, should be denied. If it is the decision of the
Planning and Zoning Board to recommend approval or the City
Commission to approve this request, it is recommended that the
fOllowing conditions be incorporated:
CONDITIONS OF ZONING APPROVAL
A. The maximum number of beds should be limited to
124 in connection with policies for group housing
contained within section 3.1.4.12 of the Comprehensive
Plan Evaluation and Appraisal Report.
B. Proper screening and noise mitigation is recommended
-6-
for all mechanical e~uipment.
C. Lighting to be directed away from the abutting
residential neighborhood.
D. The applicant's traffic engineer should submit
information on background traffic as outlined in
the traffic analysis prepared by Walter H. Keller, Inc.
This information should be evaluated prior to second
reading of ordinances to determine if any levels of
service have been adversely affected.
E. Final recommendations with respect to turn lane
improvements for the project driveway to be made
by the Technical Review Board at the time of site
plan approval.
Cc.-
CARMEN S.
~~h
ANNUN TO
CSA:ro
,
EXHIBIT A
M E M 0 RAN DUM
TO: Mr. Carmen Annunziato
Planning Director
DATE: December 8, 1988
FROM: Betty S. Boroni
City Clerk
RE: Planning & Zoning Board
Meeting of 12/15/88
Attached please find a letter received from Carmen L.
Ford in opposition to the applications submitted by
Norman J. Michael and Milnor Corporation, scheduled
to be heard by the Planning & Zoning Board on December
15.
B~~
BSB/smk
Attachment
cc: City Attorney
City Manager
Mayor & Commission
P&Z Board Members:
H. Blanchette
M. Huckle
M. Jackier
D. Richter
R. Walshak
J. Aguila
G. Lehnertz
RECEIVED
,\:c 9 c1lll8
PLJ\."""G DEPT.
-
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CARMEN 1. FORD
1425 S.W. 25TH AVENUE, #B
BOYNTON BEACH, FL 33426
City of Boynton Beach
City Connniss ion
P.O. Box 310
Boynton Beach, FL 33435
RE: Notice of Zoning Change
Notice of Land Use Change
This is to advise you that I object to the changing of:
Application No.1, from Moderate Density Residential to Office Connnercial
Applicant: Milnor Corporation
Location: S. Congress Avenue at Golf Road, Northeast Corner
Project Name: Alhambra Square North
~ further object to the changing of:
Application
Applicant:
Owner:
Location:
Project Name:
No.2, from low density Residential to C-1 (Office/Professional)
Noman J. Michael
Noman & Elishka Michael
South Congress Avenue at Golf Road, Southeast Corner.
Alhambra Square South
I further object to the changing of:
Application
Applicant:
Owner:
Location:
Project Name:
No.3, from Low Density Residential to High Density Residential
Noman J. Michael
Noman and Elishka Michael
Golf Road at S,H. 13th Street, Southwest Corner
Alhambra Square ACLF
I am requesting all three (3) applications be denied. Any fom of business in this
area will decrease the residential property value and the home type atmosphere we have
now.
Sincerely; /,
17 ,pi ')., l'
~d..'41\.~;.v' .~ . ,,-:frY/~
Camen L. Ford
Date
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My commission expires:
Notary Public. State of F'lorlda at large
My Commi:;sion Expires December 18, 1988
Bonded Thru Brown & Orown. Inc.
M E M 0 RAN DUM
TO: Mr. Carmen Annunziato
Planning Director
DATE: November 14, 1988
FROM: Betty S. Boroni
City Clerk
RE: Planning & Zoning Board
Attached please find copies of the following notices
scheduled to be advertised for the December 15, 1988
Planning & Zoning Board meeting:
NOTICE OF LAND USE CHANGE (3)
NOTICE OF ZONING CHANGE
Kilday & Associates, Applicant
Milnor Corporation, Applicant
Bill Ray Winchester, Applicant
The Post has been requested to omit the second paragraph
for the last publication on December 28.
These notices are scheduled to be mailed tomorrow and we
trust you find everything in order.
~ft~
Betty S. Boroni
BSB/smk
Attachments
cc: City Manager
RECEIVED
NQV 15 1988
PLANNING DEPT.
...
!:!~!:!Qg?d!!2!I!:!
October 20, 1988
TO:
Carmen Annunziato, City Planner
FROM:
Raymond A. Rea, City Attorney
RE:
Norman Michael Property
In regard to the above entitled matter herewith I enclose
copy of correspondence I received from Michael M. Listick,
together with a copy of a Warranty Deed, dated November 17, 1975
from First Federal Savings and Loan Association of Broward County
into Norman J, Michael and Elishka E, Michael.
~~Q--
City Attorney
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October 20, 1988
TO:
Carmen Annunziato, City Planner
FROM:
Raymond A. Rea, City Attorney
Norman Michael Property
RE:
In regard to the above entitled matter herewith I enclose
copy of correspondence I received from Michael M, Listick,
together with a copy of a Warranty Deed, dated November 17, 1975
from First Federal savings and Loan Association pf Broward County
into Norman J, Michael and Elishka E. Michael.
~~~-
Raymon A. ...
City Attorney
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M E M 0 RAN DUM
october 11, 1988
TO: BETTY BORONI, CITY CLERK
FROM: JAMES J. GOLDEN, SENIOR CITY PLANNER
RE: TRANSMITTAL OF LAND USE AMENDMENT APPLICATIONS
SUBMITTED TO THE PLANNING DEPARTMENT ON OCTOBER 1, 1988
Accompanying this memorandum you will find a copy of the
application and related documents for the fOllowing Land Use
Element Amendment/Rezoning applications: '
1. Boynton Beach Mall Land Use Element Amendment/Rezoning
($1,800 fee includes postage)
2. Alhambra Square North Land Use Element Amendment/Rezoning
($700 fee)
3. Alhambra S~uare South Land Use Element Amendment/Rezoning
($700 fee)
4. Alhambra Square ACLF Land Use Element Amendment/Rezoning
($800 fee)
5. Winchester Tract #1 Annexation and Land Use Element
Amendment/Rezoning ($1,400 fee)
6. Winchester Tract #2 Annexation and Land Use Element
Amendment/Rezoning ($1,400 fee)
7. Winchester Tract #3 Annexation and Land Use Element
Amendment/Rezoning ($1,300 fee)
8. Jonathan's Grove Annexation and Land Use Element
Amendment/Rezoning ($900 fee)
The pUblic hearing dates for the above re~uests have been
tentatively scheduled for December 15, 1988 and January 4, 1989
pending approval by the Planning and Zoning Board and City
commission respectively. Legal advertisements (one-quarter page
map ads) will be prepared by the Planning Department and
forwarded to your office upon completion.
~t-~
J6MES J I GOLDEN
JJG:ro
cc Central File
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JUS T I F I CAT ION
PROPOSED
A C L F
NOR MAN
M I C H A E L
The applicant is proposing to construct an Adult Congregate Living Facility
on the five acre tract which is the subject of this petition. The facility that
he is proposing to construct would not be permit table under the existing zoning
classification. In order to achieve the overall density that is required to
make this project feasible at this location, it is necessary that the property
be classified in a high density residential land use designation, and rezoned
R-3.
The zoning being requested will allow the petitioner to construct an ACLF facil-
ity containing, roughly, 130 beds. The proposed facility will essentially be
residential in nature, similar to the uses that currently surround this site.
The nature of these types of facilities is such that they are very compatible
with residential neighborhoods in that, being that they are occupied primarily
by elderly citizens, they generate very little traffic and are very quiet and
noise free uses. In general, the overall ambiance of this type of use is very
compatible with other residential uses.
The existing zoning on the property would require that this site be developed
with low density single-family homes on individual lots. While it is true that
this type of development occurs in other areas adjacent to the property, most of
these dwellings were constructed many years ago before the intensity of develop-
ment in the area increased, and before the price of land and construction reached
its current levels. The applicant does not feel that it is possible to construct
a high quality single-family product on this site and market it in today's envir-
onment. The only alternative would be to construct very inexpensive units on
the site, it would not only be economically undesirable from his standpoint
but, certainly, would not be a positive asset to this community. The petitioner
has devoted a great deal of time in researching development alternatives for this
site, and it is his feeling that this presents the best compromise between the
desire of the adjacent residents to keep residential development in this area
of his property, and the potential that he feels the property has for commercial
development.
From an overall marketing standpoint, this project has a very strong justifica-
tion. Most communities throughout the nation are encouraging the development of
congregate living facilities for the elderly, since they provide a form of residen-
tial community that has not been available until recent years, and which serves
the needs of elderly citizens in a much more positive way. By the same token,
senior citizens are enjoying the use of these facilities since they supply both
a quality living environment and also services such as stand-by medical atten-
tion, meals, recreational activities, etc. In the particular case of this project,
it is the plan of the developer to encourage the construction of a clinic adjacent
to the ACLF, where a variety of medical services would be available, including
drugstores, doctors' offices, chiropractic services, etc. This total on-site
package, coupled with the fact that this property is highly accessible to the
area hospitals and shopping areas would seem to make it a very desirable location
for the proposed use.
II.h(l) Rezoning from R-1AA
Rezoning to R-3
Under the current zoning, R-1AA, 5.4 units per acre are allowable. The
site is approximately 5 acres. This would give a potential yield of 27
units. However, with the required roadways and setback, the maximum
yield for the site would be 23 single family homes. This would be a
total of 69 rooms if all houses were restricted to 3 bedrooms.
Under the proposed zoning, R-3, 10.8 units per acre would be allowed.
The proposed use of the project will be an ACLF with 140 rooms.
II.h(2) Allowable Uses R-3 Zoning
Development
appropriate
etc.
on the site
support uses,
would be restricted to an ACLF with
i.e., cafeteria, office, recreation rooms,
II.h(3) Phasing and Timing of Project
The project
starting date
December 1990.
after obtaining
will be constructed as one entire phase. Projected
would be September 1989, and would be finalized around
Development and construction will begin immediately
the necessary approvals.
II.h(5)(6) Water and Sewer Demands
Under the current zoning, R-1AA, a development potential of 27 units,
could be realized. Under current Palm Beach County estimates, a three
bedroom house would use some 450 gallons per day per unit for both
water and sewer. This would total 12,150 gallons per day for the
entire site.
Under the proposed zoning and use, R-3, an ACLF would use 100 gallons
per day per bed plus 5 gallons per day per meal per person. This would
be equal to a total of 16,100 gallons per day.
II.h(7) Population Projections
Under the current zoning, R-1AA, 27 single family units could be
built. With an average of 2.67 persons per house. This would mean 72
persons for the entire project.
Breakdown by ages:
Age
No.
o
21
45
65
20
44
64
over
15
23
24
10
&
Under
guests
at the
the proposed zoning, R-3, the project population would be 140
and an estimated 20 staff members. The entire population living
ACLF would be in the over 65 age group.
919MilBBR1AA
Traffic Analysis
\
of the
Traffic Report Submitted for
M1Rllil (Q)lf JP>lf(Q) }p)elfftli e s
December, 1988
Analsysls Prepared for:
The Planning Department
City of Boynton Beach
Analysis Prepared by:
WALTER H. KELLER JR" lNe,
Consulting Engineers & Planners
10211 West Sample Road. Suite 204
Coral Springs, Florida 33065
(305) 755-3822
J, INTRODUCTION
Walter H. Keller Jr., Inc. has been retained by the City of Boynton Beach to analyze
and review the Traffic Impact Analysis submitted for the proposed development of the
Milnor Property in the western section of the City. The site is comprised of two
parcels including a 10.4 acre parcel at the southeast corner of Congress Avenue and
SW 23rd Avenue and a 4.0 acre site located at the northeast corner of the same
intersection.
The proposed development includes 66,000 square feet of professional office space on
the 4.0 acre site and 57,800 square feet of medical office space, a 3,000 square foot
bank. with 3 drive.in windows and a 130 bed adult congregate living facility on the 10.4
acre site. Existing zoning allows for the construction of 79 multi-family units.
This report reviews the methods utilized in the analysis of future traffic impacts and
provides recommendation as to conformance with Boynton Beach and Palm Beach
County zoning and traffic impact requirements.
II. TRAFFIC ANALYSIS METHODS
Trip Generation
Estimates of daily and peak hour traffic generated from the proposed site were
calculated utilizing the 4th Edition of the ITE Trip Generation Manual. The volumes
generated in this analysis are compared to those shown in the submitted report on
Table I, below. The comparison indicates that the submitted report overestimates
both daily and peak hour traffic.
Table 1. Trip Generation Comparison
WHK Analysis
Land Use ADT AM PM
ACLF 273 8 22
Medical Office 1,934 94 209
General Office 1,011 141 140
Drive-In Bank 954 15 135
Total Trips 4,172 258 506
Internal Trips 179 11 15
External Trips 3,993 247 491
Captured Trips 190
New External Trips 3,803 247 491
Source: Walter H. Keller Jr., Inc.
4th Edition ITE Trip Generation Manual
Trip Distribution
Submitted Analysis
ADT AM PM
325 9 26
1,934 94 209
1,011 141 140
1,500 20 131
4,770 264 506
269
4,501 264 506
278
4,223 264 506
A directional trip distribution analysis was performed from the site onto the local
. roadway network utilizing Palm Beach County MPO data. A comparison of the results
to those in the submitted report on Table 2, show almost identical results.
Table 2. Trip Distribution Comparison
WHK
Direction Percent
North 35%
South 15%
East 30%
West ~
Source: Walter H. Keller Jr., Inc.
K.S. Rogers Inc.
-2-
Submitted
Percent
37.6%
14.9%
27.9%
19.6%
Programmed Improvements
The submitted report includes three (3) programmed improvements in the study area,
all of which are on Congress Avenue. Two of these improvements, on Congress
, Avenue from Boynton Beach Boulevard to the L-28 Canal and on Congress Avenue
from L-30 Canal to Lake Ida Road, are underway and will be complete prior to project
buildout. Based on a conversation with the Palm Beach County Engineering Division
the third improvement, Congress Ave from the L-28 to the L.30 Canal, is still
scheduled for construction in Fiscal Year 1991-1992, as documented in the submitted
report.
Project Impact
Based on the trip generation and distribution analyses. daily trips were assigned to
the local roadway network. Utilizing the criteria in the Palm Beach County Traffic
Performance Standards Ordinance, six links ,are classified as being "Significantly
Impacted". These links include:
. Congress Avenue from Boynton Beach Boulevard to SW 15th Street
. Congress Avenue from SW 15th Avenue to SW 23rd Avenue
. Congress Avenue from SW 23rd Avenue to Lake Ida Road
. SW 15th Avenue West of Military Trail
. SW 15th Avenue from Congress Avenue to 1-95
. SW 23rd Avenue from Congress Avenue to Seacrest Avenue
These same links are identified in the submitted report and the results of both studies
indicate an analysis of traffic impacts at project buildout must be performed.
Background Traffic
The Palm Beach County Traffic Performance Standards requires background traffic to
consist of three elements, existing traffic, traffic generated by previously approved, yet
unconstructed, projects and incidental traffic indicated by areawide historic traffic
growth patterns.
Existing traffic counts are provided on Figure 4 in the submitted report. A portion of
the traffic volumes shown are provided by the Palm Beach County Metropolitan
Planning Organization, while the traffic counts adjacent to the site are assumed to be
-3-
performed by the submitting consultant. No supplemental traffic counts are provided in
the appendix.
The submitted report indicates three year increases of traffic volumes ranging from
, sixty.six to twenty.one percent on Congress A venue, from thirty.one to thirteen
percent on SW 23rd Avenue and thirty percent on Woolbright Road. These increases
are based solely on historical background data. Although there are four developments
in the study, the submitted report indicates the developments do not impact any
roadway by more than ten percent of LOS D threshold capacity. The four
developments include:
. Quail Lake West
. Quantum Park
. Motorola
. Boynton Beach Mall
Projected Daily Traffic Impacts
The assessment of projected daily traffic provided in the submitted report shows that
none of the "Significant Links" in that report are operating at LOS D, or worse, at
project buildout. This condition indicates no offsite roadway improvements are
required by local ordinances.
Projected Peak Hour Traffic Impacts
Based on the Palm Beach County Traffic Performance Standards, peak hour traffic
impacts at the SW 23rd Avenue/Congress Avenue must be analyzed. The submitted
report provides analysis at this intersection indicating no required improvements. The
volumes utilized in this analysis were found to be within six to eight percent of the
projected daily volumes, which is an adequate representation of peak hour travel. The
report does indicate that an exclusive eastbound left and right turn lane and an
exclusive northbound left be constructed at the west project entrance intersection with
SW 23rd Avenue.
Conformance with City and County Standards
The City of Boynton Beach requires a traffic impact analysis be performed for any
rezoning proposal that would generate more than 3,000 trips over and above existing
zoning. All major roadways and intersections within 1.5 miles shall be addressed in
-4-
the impact analysis and shall follow the standards and guidelines as provided in the
Palm Beach County Traffic Performance Standards Ordinance.
According to the County Performance Standards, no development order may be issued
if a roadway link is impacted by more than one percent of Level Of Service "c" (LOS
C) capacity when that link operates at LOS D, or worse at project buildout. The
Ordinance also stipulates that no development order shall be issued if any
intersection, adjacent to a link where project traffic represents ten percent or more of
total traffic, is operating at LOS E or worse at project buildout.
Based on the trip differential of the proposed rezoning and the traffl,l: impacts of the
proposed project, both the City Zoning Code and the County Traffic Performance
Standards require an analysis of future traffic impacts. The projected roadway and
intersection analyses provided in the submitted report indicate that the project is in
conformance with local standards and may be approved without offsite improvement.
-5-
III. Summary
The fum of Walter H. Keller Jr., Inc. has analyzed and reviewed the submitted traffic
impact analysis for the proposed rezoning of the Milnor Properties in western Boynton
Beach. Based on the trip generation analysis performed in both studies the proposal
would increase traffic generated from the site by approximately 3,700 to 4,100 vehicle
trips per day. This review of the submitted report considered the various traffic
analysis procedures as follows:
Trip Generation
The number of trips generated by th~ applicant are
reasonable.
Trip Distribution
The trip directional splits submitted by the applicant are
reasonable.
Programmed Imprvmnts The roadway improvements documented in the submitted
report are correct.
Traffic Assignment The applicant's assignment of project traffic is reasonable
based on the above trip generation and distribution.
Background Traffic The applicant's submittal does not provide documentation on
the background traffic analysis. Supporting information
should be submitted by the applicant to document existing
traffic counts collected, historical traffic growth and the
generation and assignment of approved projects.
Future Traffic Impacts Subject to the submission by the applicant of the background
traffic documentation as provided above, the applicant's
future traffic impact analysis is reasonable.
Conformance Subject to the submission by the applicant of the background
traffic documentation as provided above, the report is
consistent with both City and County requirements.
-6-
TRAFFIC IMPACT ANALYSIS
MILNOR PROPERTIES
CONGRESS AVENUE & SW 23RD ST
BOYNTON BEACH, FLORIDA
SEPTEMBER 29, 1988
REVISED NOVEMBER 28, 1988
Prepared By:
I
I
I
I
,
l
K,S. ROGERS, P.E.
Fla. Reg. No. 24068
K.S. ROGERS, CONSULTING ENGINEER, INC.
1495 Forest Hill Boulevard, Suite F
West Palm Beach, FL 33406
407-964-7300
K.S. ROGERS, CONSULTING ENGINEER, INC.
1495 Forest Hill Boulevard
Suite F
Centre Place Professional Park
West Palm Beach, FL 33406
407-964-7300
November 28, 1988
Mr. Charles Putman
Charles Putman & Associates
4722 N.W. Second Avenue, Suite 106
Boca Raton, FL 3343l
RE: Milnor Property
Congress Avenue & S.W. 23rd Avenue
Dear Charles:
We have completed the revisions to the Traffic Impact Analysis
which we previously prepared for the Milnor property at
Congress Avenue and S.W. 23rd Avenue in Boynton Beach,
Florida. These revisions encompassed the following:
A. Revising the number of ACLF units to 130
B. Including the Boynton Beach Mall in the
Major Project List
C. Comparing proposed zoning generation to
existing zoning generation
D. Addressing buildout volumes on impacted
roadways within the study area.
Thank you for the
you. If we may
hesitate to call.
opportunity of working on this project with
be of further assistance, please do not
Very truly yours,
K. S. ROGERS, P.E.
KSR/jr
toIST OF FIGURES
I
I
FIGURE 1 LOCATION MAP
FIGURE 2 EXISTING ROADWAY
CONDITIONS
FIGURE 3 DISTRIBUTED
TRAFFIC
FIGURE 4 TOTAL TRAFFIC
FIGURE 5 A.M. PEAK HOUR
VOLUMES
FIGURE 6 P.M. PEAK HOUR
VOLUMES
APPENDIX
I
,
I
I
I
l
~
.
APPENDIX A
CAPACITY AT LEVEL
OF SERVICE "0"
THRESHOLD VOLUMES
APPENDIX B
THESHOLD VOLUMES
FOR SIGNIFICANT
IMPACT
APPENDIX C
HISTORICAL GROWTH
APPENDIX D
MAJOR PROJECT LIST
APPENDIX E
CAPACITY ANALYSIS
INTRODUCTION
I
~
~
,
~
~
I
I
This office has been retained to prepare a Traffic Impact
Analysis for a mixed use commercial and residential project at
the intersection of Congress Avenue and S.W. 23rd Avenue, in
the City of Boynton Beach, Florida. This Analysis has been
performed in order to determine the volume of traffic expected
to be added to the roadway system as a result of the approval
of this project, the effect that this traffic will have on the
capacity of the roadways in the area of the project and what
roadway improvements, if any, are necessary as a result of the
approval of this project. In addition, in conformance with
the policy of the City's Planning staff, this Analysis has
been performed in accordance with the standards and criteria
as established in the City's Zoning Code and in the Palm Beach
County Traffic Performance Standards Ordinance 487-18.
Existing traffic counts, which were available from the
Metropolitan Planning Organization and the Palm Beach County
Traffic Division, were used when applicable and these counts
were augmented by twenty-four (24) hour machine and peak hour
turning counts performed by this office.
SITE INFORMATION
According to the site plan, as prepared by Charles Putman
and Associates, the petition comprises two sites. A 4.0 acre
parcel on the northeast corner and a 10.4 acre parcel on the
southeast corner of Congress Avenue and S.W. 23rd Avenue. A
two story 66,600 square foot professional office building is
planned on the northeast corner. On the southeast corner, a
two story 57,800 square foot medical office building, a 3,000
square foot branch bank with three drive-in teller windows and
a 130 bed adult congregate living facility (ACLF) are planned.
The site is located in relation to the major roadways in
Figure 1.
EXISTING ROADWAY CONDITIONS
As previously stated, there are two major roadways which
provide access to this site. Congress Avenue, adjacent to
this site on both sides of S.W. 23rd Avenue, is being widened
to a six lane divided roadway. This major reconstruction,
which is being performed by Palm Beach County, extends from
Boynton Beach Boulevard to the Lake Worth Drainage District
Canal L-28 (north boundary of Hunter's Run). Palm Beach
County is also presently widening the section of Congress
Avenue from the L-30 Canal to Delray West Road to a six lane
divided roadway. Congress Avenue, between the L-28 and the
L-30 Canals, is a four lane divided roadway and is scheduled
to be widened by Palm Beach County in fiscal year 1991 - 92.
S.W.
The
23rd
other major road providing access to this site is
Avenue. S.W. 23rd Avenue is a two lane collector
roadway which connects U.S. 1 and Military Trial.
The existing roadway average annual daily volumes and the
roadway capacities in the project study area are shown in
Figure 2.
GENERATION
The generation rates used for this mixed use project were
obtained from "Trip Generation - Fourth Edition", Institute of
Transportation Engineers, 1987 and from an in-house generation
study for an ACLF. The generation rates used in this Analysis
are as follows:
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TABLE 1
GENERATION RATES
LAND USE
RATE
ACLF
MEDICAL OFFICE
PROFESS. OFFICE
BANK
2.5 tpd/bed
Ln(T) = 1.18Ln(x)+2.78
Ln(T) = 0.75Ln(x)+3.77
500 tpd/drive-in window
As in any mixed use development, a portion of the total
traffic is expected to stay within the development. For the
purposes of this Analysis, the following internal traffic
rates shall be used:
TABLE 2
INTERNAL TRAFFIC RATES
ACLF - MEDICAL OFFICE
ACLF - PROFESSIONAL OFFICE
MEDICAL OFFICE - BANK
PROFESSIONAL OFFICE - BANK
5% of ACLF
3% of ACLF
3% of MED. OFF.
5% of PROF. OFF.
The
generated
indicating
average daily external traffic volumes expected to be
by this site at bui1dout and 100% occupancy
maximum impact can be calculated as follows:
TABLE 3
GENERATION
LAND USE
TOTAL
GENERATION
INTERNAL
GENERATION
EXTERNAL
GENERATION
ACLF
MED, OFF.
PROF. OFF.
BANK
325
1934
1011
1500
4770
26
74
60
109
269
299
1860
951
1391
4501
-3-
Ordinance # 87-18 recognizes that 20% of the traffic
generated by banks is considered to be "captured traffic".
That is, traffic which is attracted to the site from the
passing stream of traffic and is not actually additional trips
to the roadway network. TABLE 4 shows the calculation to
determine the actual number of additional trips this project
is expected to add to the roadway network:
TABLE 4
CAPTURED TRIP ADJUSTMENT
LAND USE
ACLF
MED. OFF.
PROF. OFF,
BANK
EXTERNAL
GENERATION
299
1860
95l
1391
450l
CAPTURED
TRIPS
278
278
ACTUAL
GENERATION
299
1860
95l
1113
4223
The
project
day.
total, average, daily traffic calculated for this
at full buildout and 100% occupancy is 4223 trips per
TRAFFIC DISTRIBUTION
The traffic distribution for this project was prepared
according to an examination of population patterns and travel
patterns in the project study area. Population patterns for
this area were obtained from information published by the
MetropOlitan Planning Organization. Based upon the
proceeding, the traffic distribution for this project was
determined and is shown below:
NORTH
EAST
SOUTH
WEST
37.6%
14.9%
27 .9%
19.6%
-4-
The distributed traffic volumes for this project are
shown in Figure 3. In accordance with the Traffic Performance
Standards Ordinance, the distributed traffic was brought four
miles from the site, or until the project generated less than
1\ of the capacity of the roadway (Insignificant Volume).
EFFECT ON CAPACITY
The Palm Beach County Traffic Performance Standards
Ordinance delineates very specific criteria which must be met
prior to any Rezoning or Special Exception Request being
approved, Petitions are classified as being either a
"Significant Project" or "Insignificant Project" according to
the project impact on roadway links and the capacity of the
impacted roadway links.
A "Significant Project" is defined by Ordinance #87-18
as a project which generates more than one percentum (1%) of
the threshold volume at Level of Service "D" on any link with
the project's radius of development influence. The threshold
volumes for "Significant Projects" are shown in APPENDIX B.
For a two lane road, the threshold volume for a significant
impact is l3l trips per day, is 300 trips per day for a four
lane divided roadway and/or five lane undivided roadway, and
464 trips per day for a six lane divided roadway.
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Reviewing the project volumes in Figure 3 with the
threshold volumes in APPENDIX B, it is seen that this project
creates a significant impact on the following roadway links:
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TABLE 5
SIGNIFICANT IMPACT
CONGRESS AVENUE
S.W. 23rd Avenue to Boynton
Beach Boulevard
S.W. 23rd Avenue to Lake Ida Rd,
Congress Avenue to Military Tr.
Congress Avenue to 1-95
CONGRESS AVENUE
S.W. 23RD AVENUE
S.W. 15th AVENUE
It is concluded that this project is classified as a
"Significant Project" according to Ordinance *87-18.
A "Significant Project" must pass two tests in order to
be approved. The first test is the Link Test.
The Traffic Performance Standards Ordinance requires
that for any roadway link for which the project creates a
"Significant Impact", the total traffic on that roadway link
must not exceed capacity during the buildout period for the
project.
The buildout period for this project has been established
as mid 1991 by the Developer and owner I operator of the
facility. Thus, to meet the Link Test, the total traffic on
the links listed in TABLE 1 should not exceed capacity during
the buildout of the project (during 1991).
The total traffic is defined as the sum of the existing
average, annual, daily traffic, the project traffic plus the
background traffic. The background traffic is further defined
as the sum of the historical growth, plus traffic generated by
Major Projects, which are in excess of 10% of the capacity of
the affected roadway link. The total traffic volumes are
shown in Figure 4.
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The 1991 projected traffic has been determined by taking
the sum of the 1988 AADT, plus the projected historical
growth, plus the traffic generated from Major Projects which
are in excess of 10% of the roadway's link capacity. The
historical growth calculations are shown in APPENDIX C. The
major project traffic volume calculations are shown in
APPENDIX D.
A review of the available information did not reveal any
major projects which would generate more than 10% of the
capacity of any road link on which this proposed project would
create a significant impact within the buildout period. Thus,
the background traffic shall be comprised of the historical
growth.
The total traffic volumes for the buildout year of 1991
are shown with the roadway capacities in Figure 4. Reviewing
the total volumes and the roadway capacities in Figure 4, it
is seen that on the roadway link which this project creates a
significant impact, the total traffic does not exceed
capacity. Therefore, this Application meets the Link Test.
PEAK HOUR
The second test that a "Significant Project" must meet is
the Intersection Test. This test requires that all major
intersections within the radius of development influence be
analyzed through which the project generates 10% or more of
the total traffic on any link of the intersection. Further,
no intersection, as above described, could have an average
peak hour volume that exceeds threshold Level of Service "D"
during the buildout period.
-7-
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Reviewing the volumes in Figure 3, it is concluded that
this project does generate more than 10% of the total traffic
on a link to the intersection of Congress Avenue and S.W. 23rd
Avenue. Thus, a capacity analysis for this intersection will
be required.
In
turning
traffic
addition, the
movements shall
meets the directly
Ordinance requires
be analyzed where
accessed links.
that
the
peak hour
project's
The peak hour volumes generated
calculated in order to determine
improvements, if any, will be required.
by this project were
what site related
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t
The peak hour generation rates were also calculated based
upon information obtained from "Trip Generation". The peak
hour generation rates used for this project have been
determined to be:
PEAK HOUR - A.M.
IN OUT
ACLF 0.073 tr./unit x 130 = 9 "6 -r
,. MED. OFF. 1.633 tr./1000 s.t. = 94 53 41
PROF. OFF. Ln(T) = 0.86Ln(x)+1.34 = 141 122 19
I BANK 6.765 tr./lOOO s.t. = 20 l2 8
6.09 (x) + 2.0 264 193 'IT
I PEAK HOUR - P.M.
I IN OUT
ACLF 0.202 tr./unit x 130 26 14 12
MED. OFF. 3.626 tr./lOOO s,t. 209 57 152
PROF. OFF. Ln(T)=.83Ln(x)+1.46 140 22 118
BANK 12.59 (x) + 93 131 64 67
506 157 349
-8-
~'-~-~-------~.
The peak hour volumes are shown in Figures 5 and 6.
A review and an analysis of the volumes shown in Figures
5 and 6 concludes that a left turn lane and right turn lane on
S.W. 23rd Avenue, west approach, at the project's west
driveway should be constructed to accommodate the traffic
entering the site. Also, the west driveway on the south side
of Gulf Road should be constructed to two exit lanes to
accommodate left turning vehicles.
COMPREHENSIVE PLAN
The Boynton Beach Zoning Code requires that a comparison
be made of the traffic which is generated under the proposed
zoning with the current zoning. Based upon land use
information obtained from the City Planning Department, the
traffic generation for the existing zoning can be calculated
as follows:
GENERATION
AREA DENSITY UNITS RATES GENERATION
(Ac. ) (du/Ac) (du) (tpd/du) (tpd)
N.E. Corner 4.0 7.26 29 7.0 203
S.E. Corner lO.4 4.84 50 7.0 350
TOTAL 10.4 79 7.0 553
This generation compares with the proposed generation as
follows:
PROPOSED ZONING
EXISTING ZONING
DIFFERENCE
4,223 tpd
553 tpd
3,670 tpd
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The Boynton Beach Zoning Code also requires that a
bui1dout analysis be presented for the roadways in the project
study area. This bui1dout analysis is based upon the Year
2010 study which was recently prepared for the Palm Beach
County Metropolitan Planning Organization (MPO). This
information is presented in TABLE 6 below.
TABLE 6
BUILDOUT PROJECTIONS
2010 2010 2010
2010 PROJECTED PROJECTED PROJECTED
PROJECTED CAPACITY CAPACITY VOLUME
VOLUMES LOS lien LOS "0" W/PROJECT
ROAD / LINK ADT ADT ADT ADT
CONGRESS AVENUE:
B.B. B1vd.-SW 15th 45,000 46,400 55,800 45.813
SW 15th-SW 23rd 45,000 46,400 55,800 47,805
SW 23rd-Linton 45,000 46,400 55.800 45,643
SW 23RD AVENUE:
Military-Congress 10,000 13,100 15,800 10,758
Congress-Seacrest 15,000 23,200 27,800 15,397
SW 15TH AVENUE:
Congress - I-95 30,000 46.400 55,800 31,601
Reviewing TABLE 6, it is observed that the projected 2010
volumes, including this project, are below the LOS "D"
threshold on all impacted roadway links in the project study
area, with the exception of Congress Avenue, between S.W. 15th
Avenue and S.W. 23rd Avenue.
-10-
I
Further review of the volumes in Figure 6 reveal that the
projected volumes of Congress Avenue, between S.W. 15th Avenue
and S.W. 23rd Avenue, are within 3% of the calculated capacity
at Level of Service "Co. As this calculated capacity is not
accurate to 3%, nor are the 2010 projected volumes accurate to
within 3%, it can be reasoned that this projected volume is
within an acceptable tolerance of the projected capacity and
therefore is deemed to be in conformance with the intent of
the City's Comprehensive Plan.
CONCLUSION
This proposed 14.4 acre mixed use development is expected
to generate an average of 4223 additional trips per day on the
area's roadway system,
Although this project is classified as being a
.Significant Project", it is concluded that the total traffic
on any link upon which this project creates a significant
impact does not exceed capacity during the project's buildout
period. This project, therefore, can be approved in
accordance with the Palm Beach county Traffic Performance
Standards Ordinance #87-18. This project was also found to be
generally in conformance with the intent of the City's
Comprehensive Plan and this project also can be approved as
submitted,
-11-
APPENDIX
APPENDIX A
THRESHOLD VOLUMES
LEVEL OF SERVICE "0"
(AVERAGE DAILY TRAFFIC)
ROADWAY TPD
Two Lane 13,100
Four Lane Undivided 27,800
Four Lane Divided 30,000
Five Lane Undivided 30,000
Six Lane Divided 46,400
Eight Lane Divided 60,000
six Lane Freeway 95,000
APPENDIX "B"
THRESHOLD VOLUMES FOR
SIGNIFICANT IMPACT
THOROUGHFARE TYPE
MINIMUM VOLUME
(TRIPS PER DAY)
Two lane 131
Four lane (Divided) 300
Five lane (Undivided) 300
Six lane (Divided) 464
Eight lane (Divided) 600
Six lane (Expressway) 950
.
I
APPENDIX C
I
HISTORICAL GROWTH CALCULATIONS
MILNOR PROPERTY
.
.
ROAD I LINK
HISTORICAL
GROWTH
FACTOR
1988
!\ADT
1989
!\AD T
1990
!\AD T
1991
AADT
.
CONGRESS AVENUE:
.
S.W. 23rd Ave.
to S.W. 15th
1.186
23,896
28,340
33,612
39,836
.
S.W. 15th to
Boyn.Bch.Blvd.
1.186
20,678
24,524
29,086
34,495
S.W. 23rd Ave.
to Lake Ida Rd.
1. 067
16,072
17,149
18,298
19,523
~
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S.W. 23RD AVENUE:
Site to Congress 1.094 8,892 9,728 10,642 11,643
Congress to
Mili tary Trail 1,074 9,315 10,004 10,745 11,540
Site to Seacrest 1. 042 10,246 10,749 11 ,200 11,671
WOOLBRIGHT ROAD (S.W. 15th Avenue)
congress to 1-95 1. 091 17,468 19,057 20,792 22,684
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.._-~--_. '
APPENDIX D
MILNOR PROPERTY
MAJOR PROJECT TRAFFIC
A. LIST OF MAJOR PROJECTS IMPACTING ROADWAY
LINKS WITHIN PROJECT STUDY AREA:
1. Quail Lake West
2. Quantum Park
3, Motorola
4. Boynton Beach Mall
B. TRAFFIC FROM ALL OF THESE MAJOR PROJECTS
WERE NOT INCLUDED IN THE MAJOR PROJECT
DISTRIBUTION FOR THE FOLLOWING REASON:
1. All of the projects are expected to generate less than
an additional 1,310 trips per day on both S.W. 23rd Avenue,
between Military Trail and Seacrest Boulevar.d and an
additional 4,640 trips per day on Congress Avenue, between
Boynton Beach Boulevard and Lake Ida Road, during the buildout
period of this project,
-~._---~-~
EXHIBIT E-1
TRANSPORTATION RE ~RCl ~ENTER
CRITICAL MOVEME~~ ANALYSIS
CONGRESS & SW 23 AVE
DATE AM PEAK
**********************************
LEVEL OF SERVICE B
SATURATION 60
CRITICAL N/S VOL 408
CRITICAL E/W VOL 579
CRITICAL ~UM 987
*************************************
LANE
NORTHBOUND
MOV WIDTH
LANE GEOMETRY
SOUTHBOUND EASTBOUND
MOV WIDTH MOV WIDTH
WESTBOUND
MOV WIDTH
1
2
3
4
5
6
12.0
12.0
12.0
12.0
RT.
T. .
T. .
L. .
. ..
RT. 12.0
T. . 12.0
T. . 12.0
L. . 12.0
. . . . . . .
RT.
L. .
.. .
12.0
12.0
12.0
12.0
RT.
L. .
. . . .
. ..
. . . .
NORTHBOUND
TRAFFIC VOLUMES
SOUTHBOUND EASTBOUND
WESTBOUND
LEFT
THRU
RIGHT
77
403
62
TRUCKS (%)
5
5
5
5
NORTHBOUND
SOUTHBOUND
EASTBOUND
WESTBOUND
PHASING N/S
E/W
PEDESTRIAN ACTIVITY
CYCLE LENGTH
:4.
:4.
: 1.
: 90
203
751
110
LOCAL BUSES (i/HR)
o
o
o
o
123
265
95
171
243
129
PEAK HOUR FACTOR
.9
.9
.9
.9
BOTH TURNS
BOTH TURNS
o
PROTECTED (WITH OVERLAP)
PROTECTED (WITH OVERLAP)
- 99 (#PEDS/HR)
CRITICAL LANE VOLUMES BY MOVEMENT
THRU -RIGHT
LEFT
NORTHBOUND
196
45
INPUT VOLUME
ADJUSTED VOL
CAPACITY
MOVEMENT
NORTHBOUND
77
45
o
N/A
SECONDS
SOUTHBOUND
363
199
EASTBOUND
419
lOl
WESTBOUND
433
160
LEFT TURN CHECK
SOUTHBOUND
203
199
o
N/A
EASTBOUND
l23
101
o
N/A
WESTBOUND
171
160
o
N/A
EXHIBIT E-2
TRANSPORTATION RESEAh~h CENTER
CRITICAL MOVEMENT ANALYSIS
CONGRESS & SW 23 AVE
DATE PM PEAK
**********************************
LEVEL OF SERVICE B
SATURATION 56
CRITICAL N/S VOL 387
CRITICAL E/W VOL 540
CRITICAL ~UM 927
*************************************
NORTHBOUND
LANE MOV WIDTH
1 RT. 12.0
2 T.. 12.0
3 T. . 12.0
4 L. . 12.0
5 .. . .. .
6 .. . . .
NORTHBOUND
LEFT 106
THRU 570
RIGHT 86
TRUCKS (%)
NORTHBOUND 5
SOUTHBOUND 5
EASTBOUND 5
WESTBOUND 5
LANE GEOMETRY
SOUTHBOUND EASTBOUND
MOV WIDTH MOV WIDTH
WESTBOUND
MOV WIDTH
RT. 12.0
T. . 12.0
T. . 12.0
L. . 12.0
.. . . ..
12.0
12.0
12.0
12.0
RT.
L. .
RT.
L. .
.... .
.. .
. .. .. .
.. .
TRAFFIC VOLUMES
SOUTHBOUND EASTBOUND
WESTBOUND
130 83
358 216
94 49
LOCAL BUSES (#/HR)
o
o
o
o
104
264
155
PEAK HOUR FACTOR
.9
.9
.9
.9
PHASING N/S :4. BOTH TURNS PROTECTED (WITH OVERLAP)
E/W :4. BOTH TURNS PROTECTED (WITH OVERLAP)
PEDESTRIAN ACTIVITY . 1- 0 - 99 (#PEDS/HR)
.
CYCLE LENGTH 90 SECONDS
CRITICAL LANE VOLUMES BY MOVEMENT
NORTHBOUND SOUTHBOUND EASTBOUND WESTBOUND
THRU -RIGHT 277 189 309 488
LEFT 80 110 52 78
LEFT TURN CHECK
NORTHBOUND SOUTHBOUND EASTBOUND WESTBOUND
INPUT VOLUME 106 130 83 104
ADJUSTED VOL 80 110 52 78
CAPACITY 0 0 0 0
MOVEMENT N/A N/A N/A N/A