HomeMy WebLinkAbout2010 06 14 Regular 602 Request To Designate A Prominent Site Within Town Center As A Civic Site CITY COMMISSION
AGENDA
Consent
Informational
ITEM 602 Public Hearing
Regular X
June 14, 2010 • =� 4 . 4
Mgr. /
Meeting g r Dept/
Authorization
REQUEST: The Community Development Department requests the Commission consider the
request to designate a prominent site within the Town Center as a "civic site," subject to
conditions.
SYNOPSIS: Section 20 -323 (a) of the City Code lists schools as a permitted use within the
Town Center. Section 20 -324 (9) of the City Code provides for the designation of certain sites
having special public importance to be designated as "civic sites." This allows the civic building
certain architectural flexibility to create a special architectural statement, which Dover Kohl and
staff believe is important for this site. For example, the designation exempts the site from the
build -to line requirements and building frontage requirements of the Town Center Code. It
would be the first step to assure the applicant, before it purchases the property, that the City
Commission acknowledge the value and is supportive of a properly designed and constructed site
and structures at this prominent location. If the Commission approves the designation, it should
direct the City Manager and the City Attorney to draft a development agreement that provides
appropriate safeguards to both the applicant and the City as part of conditionally designating this
as a "civic site." The civic site designation could be conditioned upon the applicant closing on
the site, so as not to encumber the site if the transaction were not completed, and conditioned
upon the development agreement ensuring that the proposed use, location, and building become a
civic oriented site..
CONSIDERATIONS:
LAND USE, ZONING DESIGNATION, ETC.:
Zoning: Town Center
Future Land Use Designation: Town Center
June 14, 2010
Regular Item 602
Page 2
APPLICABLE REGULATION:
Florida Statutes
Comprehensive Plan
City Code, Sections 20 -320 thru 20 -327
ISSUE FOR THE COMMISSION TO DETERMINE UNDER THIS AGENDA ITEM:
The City Attorney has advised that the applicable provision of the Town Center Code is section
20- 324(9) which states:
9) Civic sites: Civic buildings contain uses of special public importance. Civic buildings
include, but are not limited to, municipal buildings, churches, libraries, schools, daycare centers,
recreation facilities, and places of assembly. Civic buildings do not include retail buildings,
residential buildings, or privately owned office buildings. In order to provide greater flexibility to
create a special architectural statement, civic buildings are not subject to build -to line
requirements or building frontage requirements. The design of civic buildings shall be subject to
review and approval by the development review committee.
The City Attorney has also advised that the immediate issue for the Commission is whether or
not the subject site should be designated a civic site under the Town Center Code. The Town
Center Code requires that the Commission find that the proposed use of the subject site has
special public importance. In making this finding, the Commission should evaluate: (1) whether
the proposed use constitutes a use that has a special public importance; (2) whether the
proposed location of the use has any special public importance; and (3) whether the proposed
building on the subject property would be designed in a civic oriented manner pursuant to the
Town Center Code.
The Background and Overview Section listed below provide more detail regarding the proposal that is
currently known to -date. The Background and Overview Section, the Policies listed below, as well as
any additional information provided at the City Commission meeting by the Applicant and Staff, should
be used by the Commission to determine whether or not the proposal satisfies the criteria listed above.
BACKGROUND AND OVERVIEW:
The vegetated 8.7 acre site is strategically located along the north side of SR 434, at the western-
most terminus of the Town Center, where two (2) important [visual] terminating vistas along SR
434 meet. It is also bounded by the Cross Seminole Trail, Central Winds Park, the dog park, and
the high school. Across SR 434 is Heritage Park. The applicant is doing "due diligence" to
purchase the site for a 50,000 S.F., 2- story, charter elementary school for approximately 450 -
650 students (most of whom are projected to live within 6 miles). Such prominent locations are
widely supported in planning literature for the use as a landmark civic facility, such as a school.
The Urban Land Institute touts the 2 -story Rachel Carson Elementary School at the Kentlands
(Gaithersburg, MD) and a 2 -story elementary school at Stapleton (near Denver, CO) as prime
June 14, 2010
Regular Item 602
Page 3
examples of a small school located on visually prominent real estate becoming the focus of
community life. The famous planner from the 1920s and 1930s, Clarence Perry, known as the
"father of the neighborhood unit," considered the ideal neighborhood to be located around an
elementary school. Children from Heritage Park, Jesup's Reserve, Avery Park, Parkstone,
Winding Hollow, Stone Gable, and the homes along Orange Avenue would be within biking, or
in some cases walking, distance of the school.
A van or vans are proposed to take students to after school classes or events, which will also
support our local businesses. Future growth may include an enclosed recreational /assembly
structure and possible expansion to grade eight. The applicant has preliminarily addressed
sharing facility resources with the City Parks Department for their optimal mutual benefit (what
economists refer to as a pareto- optimal situation).
Staff has noted (1) that the site will be removed from the tax rolls and (2) that state law may
exempt site development from abiding by Town Center aesthetic controls, unless the applicant
commits to meeting City architectural and aesthetic standards. The City Commission
subsequently may address these issues through the concept plan and development agreement if it
chooses to move forward with the civic site designation.
The site is subject to the Town Center provisions of the comprehensive plan (Future Land Use
Element) and the Town Center Code (sections 20 -320 thru 20 -327 of the City Code). Section
163.3194, Florida Statutes, requires any development approved or undertaken by a local
government to be consistent with the comprehensive plan (i.e. no waivers are allowed from the
comp plan requirements). This is the first civic site that has come before the City Commission
for designation. Staff believes, however, that state law may exempt public schools from aesthetic
and building requirements, unless agreed to in a legal document, such as a development
agreement. Pertinent Town Center issues include, but are not limited to ensuring the provision of
prominent public architecture at the terminating vistas (from both east and west, as well as from
the intersection of the trail and Central Winds Parkway - primarily the view from east -bound SR
434), the interaction between a school on this site with the adjacent trail and park, and the
prominent role that a small school can play at this location for the Town Center, the nearby
residents, and the City.
If the proposal proceeds, site development topics of a future concept review and development
agreement, include potential re- alignment of Central Winds Parkway and the park entrance,
adjacent on- street parking (which may involve providing additional right -of -way), minimizing
on -site parking and stacking, site orientation toward the park and the trail, proper signage,
adequate sidewalks, cross - walks, and pedestrian access, Subsection 20 -321 (c) (1) (c) "large
footprint building" requirements, retention pond requirements and options, fencing, the existing
specimen trees, security, and aesthetic Town Center architecture controls.
COMPREHENSIVE PLAN REQUIREMENTS:
Future Land Use Element:
The following goals, objectives, and policies from the Future Land Use Element of the City's
comprehensive plan support the designation:
June 14, 2010
Regular Item 602
Page 4
Objective 1.11 Public Schools. The City shall implement standards for the siting of public schools to
increase the quality of life and Local educational opportunities for its citizens.
Goal 2. Town Center. The City seeks to create a Town Center based upon traditional design standards
for development that will become the identifying focus of the City's downtown and contribute to an
increased and diversified tax base for the City. The primary purpose of the Town Center shall be to
create an economically successful, vibrant, aesthetic, compact, multimodal, diverse, mixed use (including
horizontal and vertical integration of uses) neo- traditional urban environment, designed on a pedestrian
scale and with a pedestrian orientation. The Town Center is to be a place where people can reside in a
mix of single and multiple family dwellings, work, gather to shop, relax, recreate, be entertained, attend
community events, and enjoy the natural beauty of lands located in the Town Center. The Town Center
should be created through public and private investment and development.
Policy 2.2.1: Neo Traditional Characteristics. Encourage a mixed use higher density/intensity neo-
traditional Town Center, utilizing, to the extent practical, the fundamentals and urban design concepts in
the Town Center Master Plan:
• Urban and high density
• Walkable community
• Predictability in design /flexibility in land uses.
• Visibly different section of S.R. 434
• Important sites for special public places
• "Green network" of parks and preserved open spaces
• Connected network of streets and blocks
• Special public spaces of defined character
• Special sites for civic buildings
• Pedestrian sized blocks
Nongated developments
Policy 2.2.2: Variety of Places. Promote and permit a variety of places to gather, shop, relax, recreate
and enjoy the natural beauty of the Town Center. Choose sites for public spaces because of their
uniqueness or existing physical features.
Policy 2.2.4: Mixed Uses. Permit a variety of mixed uses consistent, compatible, and in harmony with
the Town Center Goal, including single family residential, multiple family residential, commercial retail
and services, public services and buildings, parks, and schools, through the enactment of creative and
flexible land development regulations.
Policy 2.3.6: High Quality Development. Ensure high - quality building and development that enhances
the image and economic well -being of the City and the Town Center.
Policy 5.2.3: Public Areas within the Town Center. Incorporate pedestrian nodes, such as plazas, parks,
squares, gardens, courtyards, or other public green space areas.
Public Schools Facilities Element:
The following supporting goal and policies are located within the City's Public School Facilities
Element of the comprehensive plan:
June 14, 2010
Regular Item 602
Page 5
Policy 1.6.2: Co Location and Community Focal Point. Encourage to the extent feasible, the co- location
of new school sites with appropriate City facilities, recognizing that new schools are an essential
component in creating a sense of community. Encourage, through the development review process, the
location of new school sites so they may serve as community focal points. Enter into an interlocal
agreement with the School Board where co- location takes place, to address shared uses of facilities,
maintenance costs, vehicular and bicycle parking, supervision and liability issues, among other concerns.
GOAL 1: Provide Quality Education. As a basic tenet of community life, it is the goal of the City to
contribute to and maintain a high quality public school environment.
Objective 1.6: Ensuring Compatibility with Surrounding Land Uses, Encouraging Co - location with
Appropriate City Facilities, Location in Proximity to Residential Areas to be Served and Function as a
Community Focal Point. The City shall ensure compatibility of school facilities with surrounding land
use through the development review process and shall encourage, to the extent feasible, co- location of
new schools with compatible City facilities, and the location of school facilities to serve as community
focal points.
Policy 1.7.1: Maximizing Efficiency of Infrastructure. Seek to maximize efficient use of existing
infrastructure and avoid sprawl development by identifying future school sites that take advantage of
existing and planned roads, potable water, sanitary sewer, parks, and drainage systems, during
participation in the future school site identification process detailed in the 2007 ILA.
Policy 1.3.2: Site Sizes and Co location in the City. Work with the School District to identify sites for
future educational facilities that meet the minimum standards of the School Board where possible and
which are consistent with the provisions of the City's Comprehensive Plan. Support the School Board in
efforts to use standards more appropriate to a built urban environment, when the size of available sites
does not meet the minimum School Board standards. Work with the School Board to achieve co- location
of schools with City facilities, to the extent feasible, as a solution to the problem of lack of sufficiently
sized sites.
Recreation & Open Space Element:
The following supporting policy is from the Recreation and Open Space Element of the City's
comprehensive plan:
Policy 1.7.3: Continue coordination with the Seminole County School Board, to allow the use of school
board facilities by the general public. Parks and schools shall be collocated to the extent possible to
optimize the shared use of facilities. (Cross Reference: See Future Land Use Element, Policy 1.11.9)
Fiscal Impact Objective & Policies:
The following comprehensive plan, Future Land Use Element, objective and policies address the
fiscal impact of a development:
Policy 2.1.3: Promote and Protect. Maintain a leadership position to protect the economic and planning
integrity of the Town Center and promote public and private investment and growth therein.
Objective 2.3 Economic Development. Plan and promote sufficient economic growth and development
that provides for an appropriate balance of high - quality land uses, development and activities that will
provide a sound financial future for the City.
June 14, 2010
Regular Item 602
Page 6
Policy 2.3.3: Optimization of Tax Base. Ensure compatible land uses and development projects within
the Town Center that optimally increase and diversify the City's tax base and economic well- being, while
complementing and protecting established surrounding neighborhoods.
Policy 2.3.4: Fiscal Impacts of Development. Ensure that City policies, regulations, and decision making
processes not only consider Town Center design planning impacts, but also consider whether proposed
new development will have a positive and acceptable economic impact on the City. In furtherance of this
policy, the City Commission may require, as a condition of considering the approval or denial of a
development project, that developers provide a written economic fiscal impact report, prepared by a duly
qualified expert that details the associated fiscal impacts of any proposed new development project on
the City and the School District.
STRATEGIC PLAN:
The Winter Springs Strategic Plan identified the Town Center as both a strength and an
opportunity (other strengths include neighborhoods and planning). Goals and objectives
included promoting a sense of community and aggressively completing the vision for the Town
Center. The plan also listed community treasures as including the Town Center, schools, family
atmosphere, walkable community, upscale atmosphere and enforced standards, and high stable
property values. While the strategic plan is not legally binding, it embodies and projects the
values, spirit, and visions of the future of the City's citizens and business owners.
EAST CENTRAL FLORIDA 2060 PLAN:
The East Central Florida Regional Planning Council's 2060 Strategic Regional Policy Plan sets
forth the following Policy 10.10.3:
New schools should be sited as community anchors, located within walking distance of their
students and co- located with other public facilities where possible.
CONGRESS FOR THE NEW URBANISM CHARTER:
16. Concentrations of civic, institutional, and commercial activity should be
embedded in neighborhoods and districts, not isolated in remote, single -use
complexes. Schools should be sized and located to enable children to walk or
bicycle to them.
25. Civic buildings and public gathering places require important sites to
reinforce community identity and the culture of democracy. They deserve distinctive form.,
because their role is different from that of other buildings and
places that constitute the fabric of the city.
MAY 14, 2010 CHARETTE /WORKSHOP:
On May 14, 2010, Victor Dover (Dover Kohl & Partners, the City's Town Center consultant)
provided a charette for the site (the applicant agreed to pay the cost) with the applicant and City
staff. The following are the highlights of his comments and advice for designation as a civic site
and subsequent development as a charter school in the Town Center:
1. The Commission should consider determining this to be a Civic Site (Sec. 20 -324 (9) and
have a document to memorialize the designation, subject to commitments from the applicant.
June 14, 2010
Regular Item 602
Page 7
[staff suggested perhaps a development agreement would be appropriate] The site could be
conditionally determined to be a civic site, so that if the land deal fell apart, it could still be
developed for commercial or residential purposes.
2. The prominence of the site allows opportunity as a gateway to the Town Center and will alert
drivers traveling eastbound, that they are entering a different portion of the City.
3. The building should have a prominent vertical feature as a focal point at the tangent of the
prominent east -bound and west -bound terminating vistas. Due to the 2 story height and its
location in important terminating vistas, the building should be located as far west (toward
Parkstone) as possible, to make it appear large and prominent.
4. In an urban setting, where land is scarce and valuable, a vertically sloped and fenced pond
can be an acceptable amenity (e.g. a reflecting pond; an urban water edge), incorporating
appropriate fencing (e.g. the pond behind City Hall). Consider off -site retention possibilities
and options (e.g. the enclave property to the west) and other alternatives (some underground).
5. The student drop -off area needs to not look like a parking lot.
6. Parking determination should be made on the side of not over - paving. The objective is to
strike the correct balance and to have a plan "B" for special events which might be a shared
parking solution (with Winter Springs High School or Central Winds Park).
7. To keep the 434 side from looking like a parking lot, it should be designed for the cars to
park among the trees (a site that will look good when the cars are not there and not bad when
they are).
8. Perimeter fencing should look like an extension of the architecture. Conceal as much of the
perimeter fence as possible in the trees and landscaping — with attractive vistas in thru the
vegetation [There was discussion of a fence possibly incorporating masonry footer, base, and
columns and imitation wrought iron pickets and of how chain link is prohibited in the Town
Center].
9. The complete site needs to be considered, including buildings, fences, parking, and other
features, as they will appear/be seen from the intersection of the Cross Seminole Trail and
Old 434.
10. Signage should complement the site. Instead of a monument sign, consider a monument with
signage. There are a lot of signage options in the town center code. Do not look at the
monument sign out front or the clock towers to emulate [there was discussion of building
mounted signage, including signage projecting from the roof].
11. If the applicant were seeking LEED status, provision of a small school brings LEED ND
(neighborhood) points.
June 14, 2010
Regular Item 602
Page 8
FISCAL IMPACT:
Development of the site as a school would remove the property from the tax rolls. The Urban
Land Institute notes that neighborhood schools are a primary consideration for many home
buyers and are often a significant factor in residential development demand and sales price. If
parents patronize local merchants, while waiting for their children, and the school incorporates
local dance, martial arts, or music classes, these could be an additional significant positive effect
on the local economy.
The potential tax revenue for the property has been accessed for both a residential as well as a
commercial development scenario. Since the property, if used as a charter school, would be
removed from the tax rolls, the City Commission needs to be aware of the potential for lost tax
revenue when considering designation of the property as a civic site and when entertaining any
statements from the applicant relative to ancillary revenues as a result of the location of the
school.
Tax revenue scenarios are as follows:
• The undeveloped property currently pays $20, 643 in property taxes.
• Townhomes (76 units), as proposed in a 2006 design submittal
Units (1,200 square feet) — assessed at $90 /square foot: $8,208,000
$8,208,000/1000 = 8208
8,208 (2.5814) = $21,188.13
$21,188.13 (less the 4% statutory discount) _ $20,340.61 tax revenue
• Commercial (floor area ratio of 20 %)
8.7 acres (43,560 square feet) = 378,972 square feet
FAR of 20% = 75,794 square feet of commercial development
75,794 square feet assessed at $105 /square foot = $7,958,412
$7,958,412/1000 = 7,958.41
7,958.41 (2.5814) - $20,543.84
$20,543.84 (less the 4% statutory discount) = $19,722.09 tax revenue
The tax revenue estimates for the residential and the commercial scenarios would be added
to the tax revenue for the vacant property, thereby generating tax revenues of $40,983.61
for the residential scenario and $40,365.09 for the commercial scenario.
COMMUNICATION EFFORTS:
No communication efforts beyond the advertising of the Commission agenda are necessary in
conjunction with this agenda item.
June 14, 2010
Regular Item 602
Page 9
RECOMMENDATION:
Staff recommends that the City Commission (1) designate the 8.7 acres as a civic site,
conditioned upon the applicant closing on the property and upon the City and property owner
entering into a development agreement ensuring that the proposed use (charter school), location,
and building become a civic - oriented site; and (2) direct the City Manager and City Attorney to
draft a development agreement to be proposed to the City Commission at a later date which
memorializes the civic site commitments, requires the development to comply with Town Center
requirements, and addresses other relevant development issues deemed necessary by the City.
ATTACHMENTS:
A Location map
B Preliminary sketches
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