OVERVIEW ORDINANCE:

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1 PROPOSED SEMI-ANNUAL FUTURE LAND USE MAP (FLUM) AMENDMENT OVERVIEW ORDINANCE: APPLICATION: 2010D APPLICANT: DAVID PORTWOOD PROPERTY LOCATION: at 3124 Belfort Road Acreage: acres Requested Action: Current Proposed LAND USE LDR MDR ZONING RLD-60 PUD Existing FLUM Category Proposed FLUM Category Existing Maximum Density (DU/Acre) LDR MDR 67 Dwelling Units Proposed Maximum Density (DU/Acre) 203 Dwelling Units Existing Maximum Intensity (FAR) Proposed Maximum Intensity (FAR) Net Increase or (Decrease) in Maximum Density N/A N/A Net Increase of 136 Dwelling Units Non- Residential Net Increase or (Decrease) in Potential Floor Area No Net Increase or Decrease PLANNING AND DEVELOPMENT DEPARTMENT S RECOMMENDATON: DENIAL LOCATION MAPS: Arrows point to location of proposed amendment. Planning District 3 - Southeast Land Use Amendment Report December 10, 2010 Page 1 of 17

2 DUAL MAP PAGE Land Use Amendment Report December 10, 2010 Page 2 of 17

3 ANALYSIS Background: The subject property is located at 3124 Belfort Road in the Southeast Planning District, within the boundaries of Council District 4 and the Southeast Vision Plan. The subject property is mostly vacant land with one single-family dwelling and comprises acres. The applicant proposes an amendment to the Future Land Use Map from Low Density Residential (LDR) to Medium Density Residential (MDR) and a rezoning from Residential Low Density-60 (RLD-60) to Planned Unit Development (PUD) to allow for development of an assisted living facility and 70 villas for senior housing. The subject site is located just west of the intersection of Belfort Road and Touchton Road. Touchton Road, from Belfort Road to Southside Boulevard, is currently undergoing construction as part of the Better Jacksonville Plan (BJP). The purpose of the Touchton Road BJP project is to reconstruct Touchton Road to a two-lane section with three roundabouts, bike lanes, sidewalks and curb and gutter on both sides of the road. The budget for the project is $7.3 million and completion is estimated for early As illustrated in Attachment A, the surrounding area is predominantly single-family residential. The Future Land Use designations and existing uses surrounding the site are as follows: North: Low Density Residential (Single-family homes and Zion Korean Baptist Church ) East: Low Density Residential (Lakemont Subdivision, Wyngate Subdivision, Touchton Road Park, and vacant land) South: Low Density Residential (Panda Xpress gas station and convenience store, Secret Cove Subdivision, and vacant land) West: Low Density Residential (Single-family homes) The proposed amendment would allow for isolated medium-density residential development that is out of context with the development trends of the neighborhood. The subject property is accessed from Belfort Road, a two-lane collector roadway and Bridges Street, a local roadway. Sidewalks and bike lanes are present along both sides of this section of Belfort Road. According to the Capital Improvements Element of the 2030 Comprehensive Plan, the site is located within the Urban Area of the City. The proposed land use map amendment has a potential development of 203 multi-family dwelling units. This development was analyzed to determine whether there is adequate school capacity for each school type (elementary, middle, and high school), to accommodate the proposed development, based on the LOS standards (105% of permanent capacity), Concurrency Service Areas (CSAs) for schools, and other standards set forth in the City of Jacksonville School Concurrency Ordinance. In evaluating the proposed residential development for school concurrency, the following results were documented: Land Use Amendment Report December 10, 2010 Page 3 of 17

4 School Impact Analysis LUA: 2010D-001 Development Potential: 203 Single-Family Dwelling Units New Student/ Development 5-Year Utilization (%) School Type CSA Enrollment/CSA Current Utilization (%) Available Seats Elementary 3 8,662 80% 34 92% 1,888 Middle 3 2,653 81% 15 73% 713 High 3 4,684 97% 19 88% 811 Total New Students 68 Total Student Generation Yield: Elementary: Middle: High: The analysis of the proposed residential development reveals that it would not create a deficiency for school capacity for the elementary school, middle school, and high school. However, the applicant should apply for a formal review and testing for school concurrency through the Concurrency Management Office. Impacts and Mitigation: Potential impacts of a proposed land use map amendment have been analyzed by comparing the maximum residential density permitted for each land use category that allows residential development, or the Development Impact Standards, for the subject site. Development Impact Standards are detailed in FLUE Policy , Development Standards for Impact Assessment. These standards produce development potentials shown on the attached Impact Assessment. Utility Capacity The calculations to determine the water and sewer flows contained in this report and/or this spreadsheet have been established by the City of Jacksonville Planning and Development Department and have been adopted by JEA solely for the purpose of preparing this report and/or this spreadsheet. The method of calculating water and sewer flows in order to properly size infrastructure shall continue to be based on JEA s Water, Sewer and Reuse for New Development Projects document (latest edition). Transportation The completed a transportation analysis and determined that the proposed amendment does not maintain roadway Level Of Service (LOS) (see Attachment B). This analysis utilizes a methodology approved by the Florida Department of Transportation and is based upon the comparison of what potentially could be built on that site (as detailed in FLUE Policy , Development Standards for Impact Assessment) versus the maximum development potential. Roadway LOS will be dealt with when the applicant applies for concurrency. Land Use Amendment Report December 10, 2010 Page 4 of 17

5 Archaeological Sensitivity According to the Duval County Preliminary Site Sensitivity Map, the subject property is located within an area of Mixed Low, Medium, and High sensitivity for the presence of archaeological resources. The Historic Preservation Section advises the applicant that future construction activities may require completion of an Archaeological Reconnaissance Survey in order to determine if a Phase I Archaeological Survey is needed. Joel McEachin is the contact person in the Historic Preservation Division of the Department at for archaeological and historic-related issues. Wetlands According to the applicant s wetlands survey there is an approximate total of 4.35 acres of wetlands found on the acre subject (see Attachment D) comprised of Wetland Forested Mix and Mixed Scrub-Shrub Wetland. The wetlands area has a low functional value and is classified as a Category III wetland. Wetland alteration will require an environmental resource permit from the St. Johns River Water Management District. However, any future development into the wetlands must meet the requirements of Goal 4 of this element to achieve no further net loss of the natural functions of the City's remaining wetlands, improve the quality of the City's wetland resources over the long-term and improve the water quality and fish and wildlife values of wetlands. Goal 4 Objective 4.1 To achieve no further net loss of the natural functions of the City's remaining wetlands, improve the quality of the City's wetland resources over the long-term and improve the water quality and fish and wildlife values of wetlands. The City shall protect and conserve the natural functions of its existing wetlands, including estuarine marshes. Land Use Amendment Report December 10, 2010 Page 5 of 17

6 IMPACT ASSESSMENT DEVELOPMENT ANALYSIS CURRENT PROPOSED Site Utilization Single-Family Dwelling & Vacant Land Assisted Living Facility and 70 Villas for Senior Housing Land Use Category LDR MDR Development Standards For Impact Assessment 5 Single-Family DUs/Acre 15 Multi-Family DUs/Acre Development Potential 67 Single-Family DUs 203 Multi-Family DUs Population Potential 178 people 477 people SPECIAL DESIGNATIONS AREAS YES NO Aquatic Preserve X Airport Environ Zone X Industrial Preservation Area X Cultural Resources X Archaeological Sensitivity Mostly low sensitivity, with a mix of medium and high along the northeastern portion of the subject site Historic District X Coastal High Hazard Area X Ground Water Aquifer Recharge Area X Well Head Protection Zone X PUBLIC FACILITIES Potential Roadway Impact Possible increase of 56 peak hour trip and a net increase of 635 new daily trips. LOS not maintained. Water Provider JEA Potential Water Impact Possible increase in demand of 29,883 gpd. LOS maintained. Sewer Provider JEA Potential Sewer Impact Possible increase in demand of 22,412 gpd. LOS maintained. Potential Solid Waste Impact Possible increase in demand of tons per year. LOS maintained. Drainage Basin / Sub-Basin Pottsburg Creek Recreation and Parks Touchton Road Park Mass Transit J.T.A. S1 Line/Regency-Avenues NATURAL FEATURES Elevations 20 feet Soils Land Cover Flood Zone Wet Lands Wild Life (22) Evergreen-Wesconnett Complex, Depressional, 0 to 2 Percent Slopes; (32) Leon Fine Sand, 0 to 2 Percent Slopes; and (66) Surrency Loamy Fine Sand, Depressional, 0 to 2 Percent Slopes Residential, Low Density; Residential, Medium Density; Wetland Coniferous Forest; Wetland Forest Mix; and Mixed Scrub-Shrub Wetland N/A Wetland Forest Mixed (very small portion on the lower SE corner of the subject site) and Mixed Scrub-Shrub Wetland N/A Land Use Amendment Report December 10, 2010 Page 6 of 17

7 PROCEDURAL COMPLIANCE Upon site inspection by the on October 15, 2010, the required notices of public hearing signs were posted. Fifty-nine (59) notices were mailed out to adjoining property owners informing them of the proposed land use change and pertinent public hearing and meeting dates. Several telephone calls were received requesting more information about the proposed land use amendment. Three of the callers expressed opposition for the proposed amendment, stating that the proposed MDR use was not appropriate for the area. Additionally, there were three speakers present for the proposed amendment at the Preview Workshop held by the on October 18, The speakers indicated that there are several similar uses, including a senior wellness center, located within two miles of the subject property. The speakers expressed concerns regarding the timeframe for development and the due diligence of the applicant. The speakers stated that a land use change to MDR does not make sense given that all of the surrounding properties are designated as LDR. The speakers also made reference to the Tiger Hole Charrette, a community vision plan that was organized and completed by JaxPride on April 28, The applicant stated that the proposed development would be designed in a manner that is conducive to the surrounding residential neighborhood. He indicated that he is willing to work with the community to address their concerns. A community meeting was held on December 2, 2010, at which time the community reiterated their concerns with the proposed amendment. Several residents present at the community meeting voiced concerns regarding the potential for flooding on the surrounding properties as a result of the proposed development. Concerns were also raised regarding increased traffic and the need for the proposed development. The applicant was present at the meeting and indicated that he would comply with any requirements regarding traffic and stormwater retention. He also indicated that he does not intend to develop apartments or other multi-family residential uses and would include limitations in the Planned Unit Development (PUD) that will be submitted during the adoption round of this semi-annual series. CONSISTENCY EVALUATION 2030 Comprehensive Plan Inconsistency The proposed amendment is inconsistent with the following Objective and Policies of the 2030 Comprehensive Plan, Future Land Use Element: Objective 1.1 Ensure that the type, rate, and distribution of growth in the City results in compact and compatible land use patterns, an increasingly efficient urban service delivery system and discourages proliferation of urban sprawl through implementation of regulatory programs, intergovernmental coordination mechanisms, and public/private partnerships. Land Use Amendment Report December 10, 2010 Page 7 of 17

8 Policy Policy Policy Policy Policy Promote the use of Planned Unit Developments (PUDs), cluster developments, and other innovative site planning and smart growth techniques in all commercial, industrial and residential plan categories, in order to allow for appropriate combinations of complementary land uses, and innovation in site planning and design, subject to the standards of this element and all applicable local, regional, State and federal regulations. Require mitigation of adverse land use impacts on adjacent uses during development and redevelopment through: 1. Creation of like uses; 2. Creation of complementary uses; 3. Enhancement of transportation connections; 4. Use of noise, odor, vibration and visual/ aesthetic controls; and/or 5. Other appropriate mitigation measures such as requirements for buffer zones and landscaping between uses. Future development orders, development permits and plan amendments shall maintain compact and compatible land use patterns, maintain an increasingly efficient urban service delivery system and discourage urban sprawl. Protect neighborhoods from potential negative impacts by providing a gradation of uses and scale transition. The Land Development Regulations shall be amended to provide for an administrative process to review and grant, when appropriate, relief from the scale transition requirements. The City shall recognize and maintain neighborhoods through the development and implementation of district plans and/or neighborhood plans, which identify the needs of the City's neighborhoods and the opportunities to improve and maintain those neighborhoods in light of continued growth and development pressures within and surrounding them. According to the category description within the Future Land Use Element (FLUE), the LDR category is intended to provide for low density residential development. The maximum gross density in the Urban Area shall be seven (7) units per acre when full urban services are available to the site. Generally, single-family detached housing will be the predominant land use in this category, although mobile home, patio homes and multi-family dwellings may also be permitted in appropriate locations. The MDR category is intended to provide compact medium to high density residential development and transitional uses between low density residential uses and higher density residential uses, commercial uses and public and semi-public use areas. Generally, multifamily housing such as apartments, condominiums, townhomes, and rowhouses will be the predominant land uses in this category, although nursing homes, rooming houses, and residential treatment facilities may also be permitted in appropriate locations. The maximum Land Use Amendment Report December 10, 2010 Page 8 of 17

9 gross density in the Urban Area shall be twenty (20) units per acre and the minimum gross density shall be ten (10) units per acre when full urban services are available to the site. The subject site is located in an area that is predominantly single-family residential in nature. The closest MDR uses are located on the southern side of Touchton Road, approximately 0.26 of a mile east of the subject site. The proposed MDR land use category is inconsistent with the character of the surrounding area and is therefore inconsistent with FLUE Objective 1.1 and FLUE Policy As noted above, the proposed amendment to MDR would allow for isolated medium-density residential development that is out of context with the development trends of the neighborhood. The proposed amendment does not allow for an appropriate combination of complementary land uses or a gradation of uses and is therefore inconsistent with FLUE Policies and , and The subject site is located within the boundaries of the Southeast Vision Plan area. The Vision Plan aims to preserve the existing character and scale of neighborhoods in the Southeast Planning District. The proposed amendment is inconsistent with the Southeast Vision Plan and is therefore inconsistent with FLUE Policy Also, if the proposed amendment is approved, it could provide justification to increase density on vacant lands to the east of the subject site. Vision Plan Inconsistency The subject site is located within the Southeast Vision Plan area. The Guiding Principles of the Southeast Vision Plan provide a framework for directing growth away from existing neighborhoods, with an aim towards preserving existing character and scale of neighborhoods. Principal Two of the Vision Plan seeks to protect neighborhoods from potential negative impacts of development that are inconsistent with the neighborhood s livability, architectural or historic character. The subject site is completely surrounded by Low Density Residential (LDR). The proposed amendment to MDR is inconsistent with the surrounding single-family residential development and is therefore inconsistent with the Southeast Vision Plan. Strategic Regional Policy Plan Inconsistency The proposed amendment is inconsistent with the following Policy of the Strategic Regional Policy Plan, Transportation Element: Policy All local land use plans and regulations should require that an appropriate mix of land uses be provided to reduce trips between predominantly single-use activity centers. The proposed amendment would allow for an increase in residential density that would increase the number of peak hour trips and negatively impact traffic circulation on the local roadways. The proposed amendment is therefore inconsistent with Policy of the Strategic Regional Policy Plan, Transportation Element. Land Use Amendment Report December 10, 2010 Page 9 of 17

10 State Comprehensive Plan Inconsistency The proposed amendment is inconsistent with the following Policy of the State Comprehensive Plan Land Use Element: (15)(b)(1), F.S. Enhance the livability and character of urban areas through the encouragement of an attractive and functional mix of living, working, shopping, and recreational activities. The proposed development would allow for medium-density residential uses in a predominantly single-family neighborhood. As previously noted the proposed amendment is out of context with the surrounding low density residential uses and would detract from the livability of the area. The proposed amendment is therefore inconsistent with Chapter (15)(b)(1), F.S. RECOMMENDATION The recommends DENIAL of this application based on its inconsistency with the 2030 Comprehensive Plan, Southeast Vision Plan, Strategic Regional Policy Plan, and State Comprehensive Plan. Land Use Amendment Report December 10, 2010 Page 10 of 17

11 ATTACHMENT A Existing Land Utilization: Land Use Amendment Report December 10, 2010 Page 11 of 17

12 ATTACHMENT B Produced by: Application Number: 2010D-001 J LEE Ordinance Number: Date 11/4/2010 Table A Trip Generation Estimation Section 1 ITE Existing Less Less Net New Net New Existing Number Land Number Independent Estimation Method Gross Trips Internal Pass-By PM Peak Daily Development of Acres Use of Units Variable (Rate or Equation) Trips Trips Trip Ends Trip Ends Code (X) (Units) Undeveloped Total Section Section 2 ITE Potential Less Less Net New Net New Current Number Land Number Independent Estimation Method Gross Trips Internal Pass-By PM Peak Daily Land Use of Acres Use of Units Variable (Rate or Equation) Trips Trips Trip Ends Trip Ends Code (X) (Units) LDR/RLD DU Ln(T)=0.9Ln(X) % 0.00% 73 Ln(T)=0.92Ln(X) % 0.00% 719 Total Section Section 3 ITE Potential Less Less Net New Net New Proposed Number Land Number Independent Estimation Method Gross Trips Internal Pass-By PM Peak Daily Land Use of Acres Use of Units Variable (Rate or Equation) PM/Daily Trips Trips Trip Ends Trip Ends Code (X) (Units) MDR/PUD DU T=0.55(X) % 0.00% 129 T=6.06(X) , % 0.00% 1,354 Total Section ,354 Net New Trips = Section 3 - Section 2 - Section City of Jacksonville Land Use Amendment Report - December 10, 2010 Ordinance # Page 12 of 17

13 ATTACHMENT B, Continued 11/16/2010 Produced by: J LEE Application Number: 2010D-001 Ordinance Number: 0 Date 11/4/2010 Table B Net New Daily External Trip Distribution a b = Total Net New External Trips (Table A) c (b*c) (a*c) Percent of Net New Net New Total Net Daily Peak Hour Link ID Roadway Name From / To New Daily External External Number Amendment Amendment Amendment Trips Trips Trips 21 I-95 BAYMEADOWS RD TO JTB 0.54% I-95 JTB TO BOWDEN RD 0.00% SOUTHSIDE BLVD BAYMEADOWS RD TO JTB 0.33% SOUTHSIDE BLVD JTB TO BEACH BLVD 83.25% SOUTHSIDE BLVD BEACH BLVD TO ATLANTIC BLVD 10.48% BEACH BLVD UNIVERSITY BLVD TO HART EXPY 4.72% BEACH BLVD HART EXPY TO SOUTHSIDE BLVD 0.17% BEACH BLVD SOUTHSIDE BLVD TO SR 9A 0.20% UNIVERSITY BLVD W I-95 TO BEACH BLVD 0.04% HART BRIDGE EXPY UNIVERSITY BLVD TO BEACH BLVD 2.31% J TURNER BUTLER BLVD PHILIPS HWY TO I % J TURNER BUTLER BLVD I-95 TO BELFORT RD 0.71% J TURNER BUTLER BLVD BELFORT RD TO SOUTHSIDE BLVD 0.54% J TURNER BUTLER BLVD SOUTHSIDE BLVD TO GATE PKWY 27.47% GATE PKWY BELFORT TO SOUTHSIDE BLVD 16.11% GATE PKWY J TURNER BUTLER BLVD TO SOUTHSIDE BLVD 66.44% TOUCHTONE RD BELFORT RD TO SOUTHSIDE BLVD 94.45% BELFORT RD TOUCHTONE RD TO HOGAN RD 94.58% BELFORT RD SOUTHPOINT PKWY TO TOUCHTONE RD 0.14% BELFORT RD JTB TO SOUTHPOINT PKWY 1.30% HOGAN RD BEACH BLVD TO SOUTHSIDE BLVD 5.14% PARENTAL HOME RD BEACH BLVD TO HOGAN RD 4.76% BOWDEN RD I-95 TO SOUTHPOINT PKWY 14.62% 93 8 BOLD Indicates Directly Accessed Segment(s) City of Jacksonville Land Use Amendment Report - December 10, 2010 Ordinance # Page 13 of 17

14 ATTACHMENT B, Continued Table C Produced by: J LEE Application Number: 2010D-001 Ordinance Number: 0 Date 11/4/2010 Roadway Link Analysis Percent Pk Hour Link Adopted Serivce Improved Peak Hour Existing Capacity LOS ID Road Roadway State or Volume Service Background Traffic Pk Hour Trips Total Trips Used with LOS Number Name Termini Classification Non-State Number Volume Pk Hour 1 Year Volumes w/ Link PM PM with Amened Land Use Maintained Road of Lanes Daily PM Pk Hour Daily/Pk Hr Volumes Growth %* 5 yr Growth LOS Pk Hour Pk Hour Trips Change a b c d e f g h i j k l 136 SOUTHSIDE BLVD JTB TO BEACH BLVD Arterial I SHS 4 36,700 3,560 n/a 4, % 4,959 F 47 5, % F NO 137 SOUTHSIDE BLVD BEACH BLVD TO ATLANTIC BLVD Arterial I SHS 4 36,700 3,560 n/a 3, % 3,206 D 6 3, % D YES 91 BEACH BLVD UNIVERSITY BLVD TO HART EXPY Arterial II SHS 4 35,100 3,400 n/a 2, % 3,059 D 3 3, % D YES 65 HART BRIDGE EXPY UNIVERSITY BLVD TO BEACH BLVD Freeway SHS 4 73,600 6,770 n/a 2, % 2,221 C 1 2, % C YES 88 J TURNER BUTLER BLVD SOUTHSIDE BLVD TO GATE PKWY Freeway SHS 6 110,300 10,150 n/a 7, % 8,192 C 15 8, % D YES 653 GATE PKWY BELFORT TO SOUTHSIDE BLVD Collector City 4 33,030 3,204 n/a 1, % 1,121 C 9 1, % E YES 553 GATE PKWY J TURNER BUTLER BLVD TO SOUTHSIDE BLVD Collector City 4 31,590 3,060 n/a 1, % 2,109 C 37 2, % D YES 434 TOUCHTONE RD BELFORT RD TO SOUTHSIDE BLVD Collector City 2 14,850 1,440 n/a 1, % 1,256 D 53 1, % E YES 557 BELFORT RD TOUCHTONE RD TO HOGAN RD Collector City 2 15,593 1,512 n/a 1, % 1,305 D 53 1, % E YES 519 BELFORT RD JTB TO SOUTHPOINT PKWY Collector City 4 33,017 3,209 n/a 2, % 2,434 D 1 2, % D YES 432 HOGAN RD BEACH BLVD TO SOUTHSIDE BLVD Collector City 2 14,850 1,440 n/a % 499 C % C YES 427 PARENTAL HOME RD BEACH BLVD TO HOGAN RD Collector City 4 21,533 2,093 n/a 1, % 1,338 D 3 1, % D YES 430 BOWDEN RD I-95 TO SOUTHPOINT PKWY Collector City 4 28,710 2,790 n/a 2, % 2,240 D 8 2, % D YES * As determined from Trend Analysis or FDOT LOS Report BOLD Indicates Directly Accessed Segment (s) Data from City of Jacksonville Road Most recent Links Status Report dated 11/4/2010 Trend Analysis for Link 653, Gate Parkway, data is not avaliable & less than 1 % trip distribution of collector road does not include Major Intersections List SIS Interchanges/ SHS Intersections within Impact Area SOUTHSIDE BLVD & BEACH BLVD SOUTHSIDE BLVD & JTB I-95 & JTB City of Jacksonville Land Use Amendment Report - December 10, 2010 Land Use Amendment Tables 2010D-001.xls Ordinance # Page 14 of 17

15 Land Use Amendment Application: ATTACHMENT C Land Use Amendment Report December 10, 2010 Page 15 of 17

16 ATTACHMENT C, Continued Land Use Amendment Report December 10, 2010 Page 16 of 17

17 ATTACHMENT D Wetlands Map: Land Use Amendment Report December 10, 2010 Page 17 of 17