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REVIEW COMMENTS TO: FROM: THROUGH: DATE: PROJECT NAME/NUMBER: REQUEST: DEVELOPMENT DEPARTMENT PLANNING &. ZONING DIVISION MEMORANDUM NO. PZ 04-101 Chairman and Members Community Redevelopment Agency Board Mayor an~Ci Commission Dick Hud AICP Senior PI ner ...0 ~~ Michael W. Rumpf I Director of Planning and Zoning May 5, 2004 Oceanside/LUAR 04-003 To amend the Future Land Use designation from Local Retail Commercial to Special High Density Residential and Rezone from C-3 Community Commercial to IPUD Infill Planned Unit Development Property Owner: Applicant/Agent: Location: Parcel Size: Existing Land Use: Existing Zoning: Proposed Land Use: Proposed Zoning: Proposed Use: Adjacent Uses: North: PROJECT DESCRIPTION Southern Homes of Palm Beach, V LLC Hector Garcia/Carlos Ballbe of Keith and Ballbe, Inc. West side of South Federal Highway, approximately 1,000 feet south of Old Dixie Highway. (Exhibit "A") :t2.26 acres Local Retail Commercial C-3 Community Commercial Special High Density Residential (20 du/ac) IPUD Infill Planned Unit Development 45-unit Multi-family Development Developed commercial property (self-storage facility) designated Local Retail Commercial and zoned C-3 Community Commercial Page 2 File Number: LUAR 04-003 Oceanside South: Vacant property located in unincorporated Palm Beach County, designated CH/5(Commercial High Intensity with an underlying residential density of 5 du/ac) and zoned CG (Commercial General) East: Right-of-way of Federal Highway then property located in unincorporated Palm Beach County designated CH/5(Commercial High Intensity with an underlying residential density of 5 du/ac) and zoned CG (Commercial General). West: Developed residential property located in unincorporated Palm Beach County, designated Medium Residential 5 and zoned RM Multi-family Residential EXECUTIVE SUMMARY Staff recommends approval of the requested land use amendment and rezoning for the following reasons: 1. The request is consistent with the intent of the Comprehensive Plan; 2. It will not create additional impacts on infrastructure that have not been anticipated in the Comprehensive Plan and will be compatible with adjacent land uses; 3. It will represent redevelopment and enhancement of the Federal Highway Corridor; and 4. Will contribute to the overall economic development of the City and will increase the range of housing opportunities for residents of Boynton Beach. BACKGROUND When the Comprehensive Plan was adopted in 1989, it was envisioned that the properties along the Federal Highway Corridor south of the intersection of Old Dixie Highway would eventually be annexed into the City and form a retail-oriented corridor, consistent with the land use designations and zoning categories assigned by both the City and Palm Beach County and in effect at that time. For example, the "Problems and Opportunities" section of the support documents suggested that an appropriate use in this area would be new car dealerships. Over the past several years, the City has seen a shift from the perpetuation of small commercial uses along the corridor to residential uses, particularly those with densities greater than 10.8 units per acre. Higher density development was facilitated by the City's Comprehensive Plan through the establishment of the Special High Density Residential classification, intended to support redevelopment in the coastal area. This type of development furthered the pattern that existed in the corridor, south of Woolbright Road, before the adoption of the current Comprehensive Plan. At the time of its adoption, there were already 4 developments that exceeded 10.8 du/ac with densities ranging from 21 du/ac (Colonial Club) to 32.2 du/ac (Seagate). The shift has served to replace marginal and sub-standard commercial uses with residential projects that have enhanced the esthetics of the corridor, as well as the City's tax Page 3 File Number: LUAR 04-003 Oceanside base. The remaining viable neighborhood-serving commercial uses are being concentrated into nodes located at major intersections along Federal Highway-Woolbright Road, Gulfstream Boulevard, and Old Dixie Highway. The request for a land use amendment and rezoning for the subject property continues this trend. PROJECT ANALYSIS The parcels, which are the subject of this land use amendment, total 2.26 acres. Because of the size of the property under consideration, the Florida Department of Community Affairs classifies this amendment as a "small scale" amendment. A "small-scale" amendment is adopted prior to forwarding to the Florida Department of Community Affairs and is not reviewed for compliance with the state, regional and local comprehensive plans prior to adoption. Even though the requested density for the site is greater than 10 dulac, the parcel is less than 10 acres in size, is located within the expanded Community Redevelopment Area, and would be considered an urban redevelopment project. The criteria used to review Comprehensive Plan amendments and rezonings are listed in the Land Development Regulations, Chapter 2, Section 9, Administration and Enforcement, Item C. Comprehensive Plan Amendments: Rezonings. These criteria are required to be part of a staff analysis when the proposed change includes an amendment to the Comprehensive Plan Future Land Use Map. a. Whether the proposed rezoning would be consistent with applicable comprehensive plan policies including but not limited to, a prohibition against any increase in dwelling unit density exceeding 50 in the hurricane evacuation zone without written approval of the Palm Beach County Emergency Planning Division and the City's risk manager. The planning department shall also recommend limitations or requirements, which would have to be imposed on subsequent development of the property, in order to comply with policies contained in the comprehensive plan. Over the past several years, the City has seen a shift from the perpetuation of small commercial uses along the corridor to residential uses, particularly those with densities greater than 10.8 units per acre. Higher density development was facilitated by the City's Comprehensive Plan through the establishment of the Special High Density Residential classification, intended to support redevelopment in the coastal area. Land use amendments and rezonings, which change designations from commercial use to residential use are particularly consistent with two policies in the Comprehensive Plan: "Policy 1.17.1 The City shall continue to discourage additional commercial and industrial uses beyond those which are currently shown on the Future Land Use Map, except where access is greatest and impacts on residential land uses are least'~ and ''Policy 1.19.7 The City shall continue to change the land use and zoning to permit only residential or other non-commercial uses in areas where the demand for commercial uses will not increase, particularly in the Coastal Area. " Page 4 File Number: LUAR 04-003 Oceanside The subject property is located in Planning Area V (Entrances to the City) in the Federal Highwav Corridor Communitv Redevelooment Plan, which was adopted by the City on May 16, 2001. The plan's recommendations for this planning area include the following: "Encourage a variety of housing. Develop intensity standards that allow for a variety of housing styles and types at intensities that will assist in supporting the downtown area and general economic expansion." (p. 80); and "Require a transition to the adjacent gateway neighborhoods. Create development standards in the city entrance communities that establish a logical transition to the gateway communities. Building scale, massing and placement should be less intense than that of the adjacent planning areas, but substantial enough to announce an arrival in the City." (p. 81) In concert with the recommendations cited, the residential density of the proposed development will help to support the downtown commercial core, as well as the recognized commercial nodes in the corridor. In addition, it is proposed at a scale and massing that will provide a transition into the downtown area, where development standards allow greater densities and more intense massing of buildings. b. Whether the proposed rezoning would be contrary to the established land use pattern, or would create an isolated district unrelated to adjacent and nearby districts, or would constitute a grant of special privilege to an individual property owner as contrasted with the protection of the public welfare. Parcels lying on west and southwest of the subject property are in unincorporated Palm Beach County and are designated for single-family residential with a density of S dujac. In addition, property within the City having C-3 Community Commercial zoning may develop as multi-family residential at a density of 10.8 dujac and in the County, property with CHjS land use has the alternative of developing at S dujac. The changing development pattern in the Federal Highway corridor has seen an increase in the number of residential developments with densities greater than 10.8 dujac. This type of development furthers the pattern that existed in the corridor, south of Woolbright Road, before the adoption of the current Comprehensive Plan. At the time of its adoption, there were already 4 developments that exceeded 10.8 dujac with densities ranging from 21 dujac (Colonial Club) to 32.2 dujac (Seagate). The shift in the development pattern has served to replace marginal and sub-standard commercial uses with residential projects that have been an enhancement to the esthetics of the corridor, as well as the City's tax base, supporting existing commercial nodes and the downtown core. The requested map amendment and rezoning would serve to increase the range of housing opportunities available in the redevelopment area. At the same time, they will increase allowed residential density adjacent to existing single family homes. c. Whether changed or changing conditions make the proposed rezoning desirable. Page 5 File Number: LUAR 04-003 Oceanside The request for conversion of parcels designated for commercial uses to multi-family residential for condominium and townhouse development has become more prevalent in the Federal Highway corridor in the last four years. While not the case in this instance, often the conversion serves to remove marginal, and sometimes undesirable, commercial uses. Additionally, adoption of the IPUD regulations in June 2002, provided an attractive incentive for redevelopment and infill projects on smaller parcels in the Federal Highway corridor. These two changes in conditions serve to make the proposed rezoning desirable. d. Whether the proposed use would be compatible with utility systems, roadways, and other public facilities. The applicant has provided a traffic analysis that indicates that if the property were developed to its fully-allowed potential as a commercial use, it would generate 3,073 average daily trips compared to 421 average daily trips generated by the proposed multi-family development, or 2,652 fewer trips per day. According to link analysis, preformed by Kimley-Horn and Associates during the TCEA application process, the Federal Highway roadway from 23rd Avenue to George Bush Boulevard has a daily capacity of 29,300 trips at LOS "D", with Average Annual Daily Trips (MDT) for the year 2003 at 22,772. Based on the City's adopted Levels of Service (LOS) for potable water (200 gallons per capita per day [GPCD]) and sewer service (90 GPCD) the projects demands are expected to be 19,350 gallons for water and 8,708 GPCD sewer service. The City's utility plants currently have unreserved capacity to serve the projected demands of the proposed project. With respect to solid waste, the Palm Beach County Solid Waste Authority has stated that adequate capacity exists to accommodate the county's municipalities throughout the 10-year planning period. The School District of Palm Beach County has reviewed the application and has issued a statement that the project complies with the adopted Level of Service (LOS) for school concurrency. The determination is valid for one year from March 24, 2004, the date of issuance. Lastly, drainage will also be reviewed in detail as part of the site plan approval process, and must satisfy all requirements of the city and local drainage permitting authorities. e. Whether the proposed rezoning would be compatible with the current and future use of adjacent and nearby properties, or would affect the property values of adjacent or nearby properties. The proposed rezoning will be compatible with adjacent and nearby properties, and will only serve to increase the value of these properties. f. Whether the property is physically and economically developable under the existing zoning. The property is currently developed as a sales office for the rezoning applicant, Southern Homes, and is developable under current commercial zoning. Page 6 File Number: LUAR 04-003 Oceanside g. Whether the proposed rezoning is of a scale which is reasonably related to the needs of the neighborhood and the city as a whole. The requested land use amendment and rezoning present the opportunity for redevelopment in a highly visible entrance corridor to the City and will also support the current trend toward greater residential uses in this area, economic revitalization, and downtown redevelopment. h. Whether there are adequate sites elsewhere in the city for the proposed use, in districts where such use is already aI/owed. Residential densities of 20 dujac are permitted in the Federal Highway corridor to encourage infill development and redevelopment. There are a limited number of sites elsewhere in the city where residential development could occur at a density of 10.8 dujac; however, those sites do not offer the opportunity for redevelopment and infill development that this location affords. Nor would development of those available sites serve to promote the goals of the Community Redevelopment Agency and the Federal Highway Corridor Community Redevelopment Plan. MASTER/SITE PLAN ANALYSIS The IPUD regulations are intended for use in situations where new development or redevelopment is proposed within an already developed area or neighborhood located in the "Federal Highway Corridor Community Redevelopment Plan"Study Areas I and V. (The site for Bayfront is in Area V.) A mixture of uses, including residential, retail commercial and office, may be allowed to the extent that no land use conflicts will result and the basic intent of the Zoning Code and the Comprehensive Plan will be followed. It is a basic expectation that anyone requesting the use of the IPUD district will develop to standards that exceed the City's basic development standards in terms of site design, building architecture and construction materials, amenities and landscape design. To that end, all applications for rezoning to an IPUD Infill Planned Unit Development must be accompanied by a detailed master plan or site plan. In this instance, an application for site plan approval has been submitted and is being reviewed concurrent with this request. The site plan shows forty-five (45) multi-family units in 5 structures, each containing three stories. Designs shown for the buildings are a derivative of Mediterranean architecture with stucco walls, S-tile roofs and decorative moldings, appliques columns and balconies; all represent a relatively high quality of architectural design and materials The maximum density allowed by the Special High Density Residential land use classification is 20 dujac, the applicant proposes a density of 19.9 dujac. The proposed units are a mix of single-story and two-story condominiums ranging between two (2) and three (3) bedrooms. Each of the five (5) buildings would contain a variety of unit types. According to the floor plans the smallest unit would be 1,260 square feet in area and the largest unit would be 1,640 square feet. Page 7 File Number: LUAR 04-003 Oceanside Building setbacks are as follows: Front: Side Rear 10 feet 5 feet 10 feet A recreation area of approximately 0.08 acre will be located along the north boundary of the development. The proposed recreation area would include a pool area, and a clubhouse of approximately 1,800 sq. ft. with clubroom, kitchenette and bathrooms. CONCLUSIONS/RECOMMENDATIONS As indicated herein, this request is consistent with the intent of the Comprehensive Plan; will not create additional impacts on infrastructure that have not been anticipated in the Comprehensive Plan and will be compatible with adjacent land uses. It will represent redevelopment and enhancement of the Federal Highway Corridor, will contribute to the overall economic development of the City and will increase the range of housing opportunities for residents of Boynton Beach. Therefore, staff recommends that the subject request be approved. If the Planning and Development Board or the City Commission recommends conditions, they will be included within Exhibit "B". ATTACHMENTS S:\Planning\SHARED\WP\PROJECTS\Southem Homes of Palm Beach\Oceanside\LUAR Q4-003\STAFF REPORT NEW,doc OCEANSIDE: LOCATION MAP EXHIBIT A ...<<.." ,\..Y....-..-..-...----.......-./..... ...~. \." '\. f . " " " / ~.."',,,>,," "'"'' "'""II _.----,--------- ---1 ", "" "'" '\, / . ../, "'. \, "" 'y I /..<"" '.....) .//",\,~"V _.....___..._.________.______,___..._..__.._,1 ../~,~:,'-" """-_ >::, ./ 'j-- NIC ! .". '," V'~ II · ".. , "", /' X · .". "', "" \/ / \ I I """" '-, ',~ -', / : ""'./ /)\ '-, ./ l. / / \)\ / ",,',< I i J 'y "",< / ./ ........"" '-'-' l.-------.--------j-T......-.......-----...-...--....... I ./ ',/ ''I ! 1---- ", /' " . I I, '\ NIC ~< '/ LR9' I SITE f ',- / '" I / ----. " \", /~ )" I ,..;e., ., l . _.... . /;'~y/ y---- / '\'\. d t- '\ \; ! NIC "'_" ;: ._ Ii< '\ I~ ~rf-r-...-r...T-T.---. Ii / / I .,. J._..__L....-J I .------ =~-~--L-T'ttGr --Tl Nle / / ___ ___ ____J __.__1 ____ --- -- -- ---.------ -, : / /------- b.. · ,. -- W+E S I I LEGEND ...., City Boundary Future Land Uses: LRC - Local Retail Commercial