October 17, 2017 Staff Report to the Municipal Planning Board CASE #DRI2017-10003 GMP2017-10012 GMP2017-10013 ZON2017-10005 Item #2 LAKE NONA PARCEL 10 & 11 Location Map Subject Site SUMMARY Owner James Zboril Lake Nona Land Co., LLC Applicant Heather Isaacs Tavistock Development Co. Project Planner Colandra Jones, AICP Updated: October 9, 2017 Property Location: The subject property is located south of Dowden Road, west of Narcoossee Road, and east of Orlando International Airport (±6,968.7 acres, District 1) Applicant s Request: Approval of the following amendments related to the Lake Nona Development of Regional Impact (DRI), Growth Management Plan (GMP), and the Lake Nona Planned Development (PD): 1. Amend Map H Master Plan 8.5/PD Development Plan to revise land use of several parcels. 2. Amend DRI Section 3.15(B) to revise the mix of uses by acreage. 3. GMP amendments to change the future land use designation from Conservation to Urban Village for two separate parcels (±2.2 acres and ±0.84 acres), and from Urban Village to Conservation for ±3.044 acres. 4. Amend PD Exhibits to reflect the updated base map from revised Map H. Staff s Recommendation: Approval of the request, subject to the conditions in this report. Public Comment Courtesy notices were mailed to property owners within 400 ft. of the subject property on October 6, 2017. As of the published date of this report, staff has not received any comments from the public concerning this request.
Page 2 Project Analysis Project Background For approximately 30 years, Lake Nona has developed as a large-scale, mixed-use community. Responding to changing development trends and changing market conditions, Lake Nona has evolved from a large golf course community to the cornerstone of quality development within the Southeast Orlando Sector Plan area. The current DRI development order, the Fourth Amended and Restated Development Order for the Lake Nona Development of Regional Impact, was adopted by the City of Orlando on August 6, 2007. The First Amendment to the Fourth Amended and Restated Development Order for Lake Nona Development of Regional Impact, was approved by the City Council on March 17, 2008. The Second Amendment to the Fourth Amended and Restated Development Order was approved by the City Council on June 4, 2012. The Third Amendment to the Fourth Amended and Restated Development Order was approved by the City Council on October 21, 2013. The Fourth Amendment to the Fourth Amended and Restated Development Order was approved by the City Council on June 15, 2015. The Fifth Amendment to the Fourth Amended and Restated Development Order was approved by the City Council on September 26, 2016. The current amended and restated PD ordinance, referenced Document #0708201010, was approved on August 20, 2007. Amendments to the this PD ordinance was also approved by the City Council on March 17, 2008 (Document #0803171001), June 18, 2012 (Document #1206181201), October 21, 2013 (Document #131021901), July 13, 2015 (Document #1507131205), September 26, 2016 (Document #1609261205) and current PD Ordinance No. 2017-57 which had its first reading on October 9, 2017 and a tentative adoption hearing on October 23, 2017. GMP Analysis The proposed GMP amendments subject sites are generally located south of Lake Nona, north of Wellspring Drive, east of USTA Boulevard, and west of the Red Lake. These amendments are requested to facilitate development associated with a larger proposed resort/conference project on Lake Nona Parcel 10. GMP2017-10012 This GMP amendment to change ±2.2 acres from Conservation to Urban Village will accommodate a beach amenity on Lake Nona. The proposed beach amenity is a total of ±3.67 acres. GMP2017-10013 This GMP amendment to also change ±0.84 acres from Conservation to Urban Village will accommodate an access road to the proposed resort. Also, a GMP amendment to change ±3.044 acres from Urban Village to Conservation. This amendment is to exchange the above referenced Conservation acreage that is converting to Urban Village so no Conservation acreage in the DRI is lost. Consistency with 163, Florida Statutes The proposed GMP amendments are being processed as a small scale amendment to the Official Future Land Use Map in accordance with the requirements of Chapter 163.3187, Florida Statutes. As provided in Chapter 163, small scale amendments require only one public hearing before City Council (the adoption hearing) and are not subject to review by the State Department of Economic Opportunity Division of Community Planning unless challenged by an affected party within 30 days of the adoption hearing. If not challenged, the amendment is effective 31 days after the adoption. Conformance with the GMP Urban Village Future Land Use Designation Objective 2.4 and Policy 2.4.4 of the Future Land Use Element provide standards relating to the Urban Village future land use designation. A portion of Policy 2.4.4 states: The Urban Village future land use designation provides for a mixture of land uses and intensities within a development site in order to preserve conservation areas, to reduce public investment in provision of services, to encourage flexible and creative site design and to provide sites for schools, recreation and other public facilities which provide an area-wide benefit to the community. The Urban Village future land use designation is specifically intended to provide a means of streamlining the development review process where a DRI, a Sector Plan, and/or Master Plan, have already fully accounted for the impacts of development. The designation shall be structured to ensure that the Urban Village are compatible with existing or projected surrounding land uses, taking into consideration environmental constraints, health and safety issues, and the appropriateness and potential impact of the Urban Village on adjacent existing and future land uses.
Page 3 Conformance with the GMP Conservation Future Land Use Designation Objective 2.3 and Policy 2.3.1 of the Future Land Use Element provide standards relating to development outside of activity centers and mixed-use corridors. Policy 2.3.1 states: Standards for land use categories outside of activity centers and mixed-use corridors shall be shown in Figure LU-1. The densities and intensities established in Figure LU-1 for land use categories outside of activity centers and mixed use corridors shall not be altered except by amendment of this Growth Management Plan. The intensity of use allowed on land outside of activity centers and mixed use corridors shall be based on: a) Appropriate topography, soil conditions, and the availability of facilities and services; redevelopment and renewal of blighted areas; elimination or reduction of uses inconsistent with the community s character and future land uses; protection of natural resources and historic resources; and discouragement of urban sprawl; b) Compatibility with existing development in the area; and c) The public services and facilities which exist or are available to the location, based upon the policies of the Capital Improvement Element and the City s Concurrency Management System. Environmental Analysis Conservation Element Policy 1.4.1 states that all projects requiring Municipal Planning Board and City Council review shall provide an Environmental Assessment. The areas designated for the change in future land use designations include Tier One Protected Wetlands as identified under Conservation Element Policy 1.4.4. It is intended to restrict development in Protected Wetlands to those activities that have minimum or no post-development impacts upon the functions of the wetland, so that no net loss of wetland functions results from the activity. The beach amenity proposal considers a low impact on the southern bank of Lake Nona with 8 volleyball courts and a boardwalk. To reduce the impact of the wetland, the access road crossing will occur at the narrow point of the wetland which is suggested by Conservation Element Policy 1.4.4. Pursuant to Conservation Policy 1.4.4, the City will rely upon the applicable environmental regulatory agencies permitting requirements. The two wetland systems located within the area proposed for the future land use change have been reviewed by the U.S. Army Corps of Engineers and the South Florida Water Management District. The map below depicts the impact to the Primary Conservation Network (PCN) wetland which totals 1.46 acres, and the PCN Upland Buffer impact which totals 0.95 acres. The permit modifications have been issued for the removal and mitigation of the wetlands within the area proposed for the land use change.
Page 4 The area originally designated as Conservation subject to the Urban Village future land use change was part of the Primary Conservation Network (PCN) designation in the Southeast Orlando Sector Plan. The PCN was designed to maintain aggregated conservation lands with regional habitat corridor connections. The applicant is proposing to exchange the modified wetland acreage shown above, which is approximately 3.044 acres, to another location within the Lake Nona DRI. The map on the following page depicts the location above and the new location for PCN acreage. The new location is near the southern border of the Lake Nona DRI just south of the VA Hospital. Proposed Conservation Swap Acreage
Page 5 Public Facilities Analysis State law requires the City to perform a public facilities evaluation for GMP amendments that would increase the allowable density or intensity of a property. The proposed GMP amendments to change the future land use designation to Urban Village on ±2.2 acres and ±0.84 acres, respectively, would permit intensities on the subject property more than that permitted under the existing Conservation future land use designation. The proposed GMP amendments to change the future land use designation to Conservation on ±3.044 acres, respectively, would permit intensities on the subject property less than that permitted under the existing Urban Village future land use designation. This evaluation assumes that the property is developed at the maximum intensity and density allowed by each future land use category. Typically, sites are developed at a lesser intensity, so these impacts represent an upper limit, rather than a true projection of demand. The Lake Nona DRI/PD is within the Southeast Orlando Sector Plan, which has provisions within Future Land Use Element Goal 4 and associated objectives and policies within the Growth Management Plan. In terms of the amount of development allowed within the Southeast Orlando Sector Plan, a portion of Policy 4.1.6 states the following: The Southeast Orlando Sector Plan area shall accommodate approximately 17,000 residential units, 3 million square feet of retail, 2 million square feet of office, 2,500 hotel rooms, 2 million square feet of hospital space, 10 million square feet of industrial/airport support district space, and 1 million square feet of civic/government space by the year 2045. The corresponding Southeast Sector Plan land use designation which will be applied to the subject sites will be Civic. According to Future Land Use Policy 4.1.9, the allowable uses in this designation is Elementary, Middle and High Schools, College Campus; Library; Water Treatment Plant; Public Safety Facilities; Community and Neighborhood Parks, Recreation Centers, Gymnasiums, Neighborhood Greens and Plazas; Golf Courses, Playgrounds, Play Fields, Active and Passive Recreation Areas, Public Buildings, Utility Facilities, Borrow Pits, and all other uses associated with the City s P zoning district. Borrow pits shall be permitted upon receipt of a South Florida Water Management District Permit. The Lake Nona DRI allocates 175 acres of Civic uses throughout the development. With the Southeast Orlando Sector Plan s allocation and the Lake Nona DRI s allocation for Civic uses, the remaining square footage takes into account the demand on public facilities in this area. However, for this recreational amenity, no building structures are proposed for these parcels proposed to be designated as Civic. Therefore, a public facilities analysis is not needed for this proposal.
Page 6 Future Land Use Map Beach Volleyball
Page 7 Future Land Use Map Access Road
Page 8 Future Land Use Map Urban Village to Conservation
Page 9 9 DRI/PD Analysis Requested Changes, Modifications and Amendments to the DRI /PD 1. Modify Map H-Master Plan 8.5/PD Development Plan The applicant is proposing to make several changes to the Map H Development Plan. The proposed map changes will change the land use of several parcels and alter the acreage mix of those uses in the DRI Development Order. There will be no increase or decrease in the approved development program. See page 13 of this report for revised Map H/PD Development Plan. The proposed amendments to Map H of the DRI Development Order and the PD Development Plan are as follows: Amend DRI Map H and PD Development Plan in order to reflect the associated GMP amendment future land use designation change from Conservation to Urban Village and from Urban Village to Conservation. The Southeast Orlando Sector Plan land use for Parcel 10c and 10d will change to Civic. This change in use is to facilitate development associated with a larger proposed resort/conference project on Lake Nona Parcel 10. The current DRI Map H- Master Plan depicts Parcel 10 as a 185.6 acre parcel designated as Airport Support Medium Intensity. With the addition of the beach parcel and access road, it would increase the acreage of Parcel 10 to 188.5 acres. The proposed Map H depicts Parcel 10 divided into 4 parcels: Parcel 10a (29.2 acres), Parcel 10b (154.9 acres), Parcel 10c (3.7 acres), and Parcel 10d (0.7 acres). Amend DRI Map H and PD Development Plan designation for Parcel 11a from Residential Neighborhood to Village Center. This change in use is to accommodate development of medical office on the site. This will add 8.9 acres to the Village Center land use. Amend DRI Map H and PD Development Plan designation for Parcel 28c by dividing the parcel and creating a separate Parcel 28f. The proposed Map H depicts both Parcel 28c and Parcel 28f as Neighborhood Center. 2. Amend Land Use Summary Consistent with the proposed Map H amendment, the applicant is proposing to update Section 3.15(B) of the Development order to adjust the acreage for the following uses: Schools/Civic: from 170.6 acres to 174.4 acres. Village Center: from 405.8 acres to 414.7 acres. Residential Neighborhood: from 1,971.1 acres to 1,962.2 acres. The proposed updated Section 3.15(B) can be on the following page. With the conservation area swap, the upland area for SMA-8 and SMA-12 has been added to the conservation acreage. 3. Amend the Height Limitation Table in Section Three, Part E of the PD Consistent with the proposed Map H amendment, the applicant is proposing to update the Height Limitation Table to reflect the land use changes and corresponding height limits for those particular land uses. Parcel 10 proposes a height limit of 10 stories for the entire parcel. Parcel 11a proposes a height limit of 4 stories and Parcel 28f proposes a height limit of 3 stories. Staff is recommending a height limit of 1 story for Parcel 10c and Parcel 10d, as shown in the table on page 11. 4. Update PD Ordinance Exhibit E and Exhibit F The applicant is proposing to amend PD Ordinance Exhibit E (Limits of Residential Development) and Exhibit F (Conceptual Transit Corridor) in order to reflect the updated base map from the revised Map H Master Plan 8.5. These updated exhibits can be found on pages 15 and 16 of this report. 5. Amend PD Section Three Subsection Q During the review of Case #MPL2017-10008 Lake Nona Village Childcare Facility, an alternative standard was requested for relief of the maximum street facing setback requirement. Previously, a 2011 PD amendment for the Panera Bread restaurant lot within Parcel 7 allowed for setback relief. The proposed childcare facility is also part of Parcel 7. The PD allows for amendments to occur from time to time as needed for alternative setback requirements for this particular parcel. Upon review, due to the narrow constraint of the property, the use and safety operation of the proposed childcare facility, staff recommended that this site be included in Subsection Q of the Lake Nona PD for setback requirement relief for both street-facing and west property line.
Page 10 10 The proposed amendments, as described, which changes the previously approved DRI does not create a reasonable likelihood of additional of additional regional impacts (consistent with Section 380.06(19) F.S.). The proposal is determined to be non-substantial and will not require a Notice of Proposed Change (NOPC) per FS 380.06(19)(e)2(k) and does not require further DRI review. School Impacts It is acknowledged that the Lake Nona DRI/PD is vested for up to 9,000 residential units, and that an agreement exists between the Orange County School Board and Lake Nona Land Company, LLC, pertaining to the provision of schools. The Agreement states that the designation by Lake Nona of two elementary school sites and one middle school site satisfies any and all obligations Lake Nona has to the School Board for school sites with respect to the development of the DRI/PD. The proposed amendments do not change the potential number of residential units approved in the DRI. Any future amendments or conversions requested by the applicant will be reviewed by the City and additional impacts on schools will be addressed as part of that review. Proposed DRI Text Amendments DRI Subsection 3.15(B) Land Use Summary: Residential 9,000 Units Retail 1,187,500 GSF Hotel/Resort Villas 2,250 Units Office 935,000 GSF Airport Support 4,210,277 GSF Development Program Acreage: Residential Neighborhood 1,971.1 1,962.2 acres Residential Center 8.8 acres Neighborhood Center 67.1 acres Village Center 405.8 414.7 acres Village Center / Urban Transit 159.3 acres Airport Support District High Intensity 980.0 acres Airport Support District Medium Intensity 185.6 acres Schools/Civic 170.0 174.4 acres Road ROW 575.8 acres Easements 9.2 acres Open Space * Lakes/Stormwater Management Areas 1,023.2 acres Primary Conservation Network 1,225.2 acres Conservation 182.63 acres * A minimum of 287.6 acres of open space will be provided throughout the Project, exclusive of the wildlife corridor addressed in Condition 5.7. The open space acreage is included in and not separated from the acreages shown for various land uses and will be provided in the form of parks, golf courses, perimeter buffers and landscaped areas. The open space acreage within the Lake Nona DRI/PD has not been given special protection status under Subsections 380.06(19)16 or 380.06(19)(e)5.b, Florida Statutes. Proposed PD Text Amendments Section Three Subsection Q 1.7 Parcel 7. Section Three of the PD Ordinance is hereby amended to add a new subsection Q to read as follows: Neighborhood Center Parcel 7 may include one building that does not meet the setback requirements of Chapter 68 of the City of Orlando LDC, as approved in MPL2011-00030 and MPL2017-10008, as may be amended from time to time.
Page 11 11 Proposed PD Text Amendments PD Section Three Part E. Maximum Building Height Standards: Parcel Land Use Category Max. Height (Stories) 1 Residential Neighborhood LNGCC 3 2 5 Residential Neighborhood 2 6 7 Neighborhood Center 3 8 Civic, Residential Center 3 9 Airport Support District High Intensity 2 10A Airport Support District Medium Intensity 10 10B Airport Support District Medium Intensity 10 10C Civic 1 10D Civic 1 11A Residential Neighborhood Village Center 2 4 11B Village Center 4 12 Residential Neighborhood 2 13A Residential Neighborhood 2 13B Residential Center 3 14A Village Center 4 14B Civic - School 3 15A, B Airport Support District - High Intensity 5 15C Civic 2 16-19 Airport Support District - High Intensity 5 20A, B Airport Support District - High Intensity 10 21A, B Airport Support District - High Intensity 10 22A Village Center 16 22B Village Center/Urban Transit 10 23A Village Center 10 23B Village Center/Urban Transit 10 23C Village Center 10 24A Village Center/Urban Transit 10 24B Village Center 10 24C Airport Support District High Intensity 10 24D Civic Open Space 4 25A Residential Neighborhood 2 25B Residential Neighborhood 2 26 Residential Neighborhood 2 27A, B Residential Neighborhood 2 27C Residential Neighborhood 2 28A, B Residential Neighborhood 3 28C, D Neighborhood Center 4 28E Village Center 10 28F Neighborhood Center 3 29 Village Center 3 30A Civic School 4 30B Village Center 3 31 Village Center 3 32A, B Airport Support District - High Intensity 2 33 Civic 2 34 SMA 0
Page 12 12 Existing Map H/PD Development Plan Residential Neighborhood to be changed to Village Center Conservation areas to be changed to Civic Area to be changed to Neighborhood Center
Page 13 13 Proposed Map H/PD Development Plan Parcel 11a Village Center Parcel 10c - Civic Parcel 10d - Civic Parcel 28f Neighborhood Center
Page 14 14 Proposed Map H/PD Development Plan
Page 15 15 Proposed PD Exhibit E
Page 16 16 Proposed PD Exhibit F
Page 17 17 Findings Subject to the conditions contained herein, the proposal is consistent with the requirements for approval of DRI, GMP amendments and rezoning applications contained in Section 65.255, 65.397 and 65.366, respectively, of the Land Development Code (LDC): 1. The proposed amendments are consistent with the City s Growth Management Plan including Future Land Use Goal 4 and associated objectives and policies relating to the Southeast Orlando Sector Plan. 2. The proposed amendments are consistent with the purpose, intent and general requirements of the LDC. 3. The proposed amendments are consistent with Chapters 163, 187, and 380, Florida Statutes. 4. The proposed amendments are consistent with the East Central Florida Strategic Regional Policy Plan and the recommendations of the East Central Florida Regional Planning Council. Notice of Proposed Change/Determination of Non-Substantial Amendment The applicant has submitted relevant information to the East Central Florida Regional Planning Council (ECFRPC). Information submitted indicates that the request meets the criteria for consideration as a non-substantial amendment to the DRI. Staff recommends approval of the Lake Nona DRI, GMP & PD amendments subject to the findings and conditions below and further review/revision by the City Attorney s Office. Conditions of Approval City Planning 1. Amended DRI Development Order In consultation with the City Planning Division and the City Attorney s Office, the applicant shall prepare the Sixth Amendment to the Fourth Amended and Restated Development Order for the Lake Nona Development of Regional Impact for consideration by the Orlando City Council, including all necessary exhibits. The amendment to the Development Order shall address the findings and conditions detailed in this staff report, the conditions of the East Central Florida Regional Planning Council and review agencies. The amendment to the Development Order shall be subject to contextual and legal review by the City Attorney s Office. 2. Amended PD Ordinance In consultation with the City Planning Division and the City Attorney s Office, the applicant shall prepare an amended Planned Development Ordinance for consideration by the Orlando City Council, including all necessary exhibits. The amended Planned Development Ordinance shall address the findings and conditions detailed in this staff report. The amended Planned Development Ordinance shall be subject to contextual and legal review by the City Attorney s Office. 3. Specific Parcel Master Plan Required Any new development, including the beach amenity in Parcel 10c, requires a Specific Parcel Master Plan to be reviewed by the Southeast Town Design Review Committee (SETDRC).
Page 18 18 Contact Information City Planning For questions regarding City Planning plan review, please contact Colandra Jones at 407.246.3415 or colandra.jones@cityoforlando.net. Transportation For questions regarding Transportation Planning plan review, please contact John Rhoades at 407.246.2293 or john.rhoades@cityoforlando.net Police For questions regarding Orlando Police Department plan reviews or to obtain a copy of the brochure, contact Audra Rigby at 407.246.2454 or audra.rigby@cityoforlando.net. Review/Approval Process Next Steps 1. City Council approves the MPB minutes. 2. Staff forwards DRI, GMP and PD zoning ordinance requests to City Attorney s Office. 3. City Council Hearing of the DRI Development Order. 4. The DRI Development Order is recorded. 5. The First and Second Reading of GMP amendment ordinances. 6. The First and Second Reading of PD zoning ordinance.