Planning & Development Services Division

Transcription

1 Planning & Development Services Division To: From: County Chair and Members Volusia County Council Kelli McGee Acting Director of Growth and Resource Management Date: March 21, 2011 for Transmittal Hearing on April 21, 2011 Subject: Large Scale Comprehensive Plan Amendment Cycle 11-1 Case # I. Introduction The 11-1 large scale comprehensive plan amendment cycle consists of eleven amendments divided into two staff reports with corresponding ordinances. This is the second of the two staff reports, which details five amendments that are primarily housekeeping items of the comprehensive plan. The amendments provide for updates based on changing circumstances, improved data, or as a matter of improved efficiency. Each proposed amendment is discussed individually in the following order: 1. CPA : Recognition of Digital Format for Updates of the Official Future Land Use Map (FLUM). A text amendment to recognize the county s computerized mapping system as the format for updates and maintenance of the official Future Land Use map. 2. CPA : Historic District Map Series Update. Staff has deferred this item to a future amendment cycle. Editor s Note: Item CPA was heard by the PLDRC on March 8, Between PLDRC and council transmittal, the item was deferred. The amendment is referenced in this staff report for record keeping purposes only. 3. CPA : Transportation Map Update. A map amendment of Figure 2-3, Volusia County Roadway Number of Lanes 2025 map. Page 1 of 11

2 4. CPA : School Attendance Zones. The annual update to the School Concurrency Service Area maps based on School Board changes to the attendance boundaries. 5. CPA : Local and District Park Definition. A text amendment to Chapter 13, Recreation and Open Space Element to revise the definitions for local and district parks. 6. CPA : Osteen Local Plan. A text amendment to eliminate the agribusiness language from the Rural Estate designation, and deleting the PUD requirement, policy OST 1.1.2, because the draft land development regulations will implement the local plan requirements. Ordinance addresses these amendments. 1. CPA : Recognition of Digital Format for Updates of the Official Future Land Use Map (FLUM). A. Amendment Summary: This amendment recognizes that the official FLUM be updated and maintained in digital format. When the comprehensive plan was first adopted in 1990, the county s mapping system was based on paper maps, and any amendments to these maps were hand drawn. During the mid- 1990s, the county converted its mapping to a digital based system utilizing Geographic Information System (GIS) software. All of the data layers associated with the comprehensive plan maps are now maintained in this digital format by the county s GIS department. This amendment recognizes the current practice based on the past conversion of the county s mapping to a digital system. B. Exhibits/Support Documents Exhibit 1: Text amendment to the Future Land Use Element to recognize digital format of the official FLUM. The support document can be referenced on-line at the following website link: 2. CPA : Historic District Map Series Update. Staff has deferred this item to a future amendment cycle. Page 2 of 11

3 3. CPA : Transportation Map Update. A. Amendment Summary: Periodically, Traffic Engineering performs a review to ensure that Figure 2-3, Volusia County Roadway Number of Lanes 2025 map is consistent with the Volusia Transportation Planning Organization (TPO) adopted 2035 Long-Range Transportation Plan map (LRTP), the latest adopted County Road Program, completed area transportation studies, and adopted Development of Regional Impact (DRI) and major sub-level DRI future road project needs. The map amendment represents the most accurate and realistic number of lanes forecast for the currently adopted county thoroughfare roadway system map through 2025 and beyond. The proposed changes to Figure 2-3 are listed below. B. Overview and Analysis The TPO Board adopted the Long Range Transportation Plan (LRTP) on September 28, Volusia County staff participated in all stages of the plan s development, including the development of a local roadways cost-feasible plan. During the process, staff produced a spreadsheet of recently completed area transportation studies and DRI/sub-DRI transportation plan project needs, and compared them with the proposed LRTP. The analysis revealed that not all transportation plan and DRI/Sub-DRI transportation needs were included in the LRTP. The LRTP cannot accommodate all future transportation needs in the county. Traffic models reflect that even with the planned improvements, there will be level of service (LOS) issues. During the LRTP development process, most participating cities were also recently designated as Dense Urban Land Areas (DULAs) with Transportation Concurrency Exception Areas (TCEAs). This shifts the focus from building roads to meet level of service to a new philosophy of moving people and goods via a coordinated transportation system, including a variety of modes. All of this change, especially the adoption of the TPO LRTP, pointed toward the need for the county to review the current county number of lanes map for 2025, and evaluate conflicts with the adopted LRTP, adopted county road program, area transportation plans, and DRI/Sub- DRI transportation needs. Spreadsheet exhibit 3-D was used to analyze conflicts between the county number of lanes map for 2025 and other plans. This process was coordinated through the TPO LRTP. All conflicts were analyzed, and the majority of conflicts identified the need for updating the county s map. Each city was asked to review its transportation needs and make requests through the TPO process. In analyzing the city requests, staff considered the availability of right-of-way, policy constraints, impact on neighborhoods, cost, current number of lanes versus requested number of lanes, date of development plans, and city comprehensive plan strategies Per the analysis effort identified above, please see the following amendments to Figure 2-3: RECOMMEND AMENDING FROM 6 TO 8 LANES: Interstate 4 (Seminole County to SR 472) Interstate 4 (I-4) is a Strategic Intermodal System facility of which FDOT makes sole decisions, considering input from regional TPOs. Though the Volusia TPO did not recommend, nor adopt 8 lanes for this segment of I-4 in the 2035 LRTP, the 8-laning is part of the I-4 Master Plan and should be reflected accordingly on the county's maps. Page 3 of 11

4 RECOMMEND AMENDING FROM 4 TO 6 LANES: SR 40 (Williamson Boulevard to Breakaway Trail) SR 40 is a Strategic Intermodal System facility and is projected to operate below the adopted service volumes in the near future, especially considering the future traffic associated with the Hunters Ridge DRI and Consolidated Tomoka Land Corporation developments. The TPO LRTP was adopted with participation from FDOT. RECOMMEND AMENDING FROM 2 TO 4 LANES: SR 44 (Voorhis Avenue to Kepler Road) In 2003, FDOT completed the Planning, Development, and Engineering (PD&E) study for SR 44, which recommended several improvements, one of which was the 4-laning of this segment. The City of DeLand requested that this improvement be included in the TPO LRTP. The TPO LRTP was adopted with participation from FDOT. RECOMMEND AMENDING FROM 4 TO 6 LANES: SR 472 (MLK Beltway to Graves Avenue) This was identified in the Southwest Activity Center SR 472 Areawide DRI as an 8 lane facility; however, the TPO LRTP indicates 6 lanes. The TPO LRTP was adopted with participation from FDOT. RECOMMEND AMENDING FROM 2 TO 4 LANES: Airport Road (Sabal Creek Boulevard to Pioneer Trail) This widening need is due to heavy traffic between Creekside Middle School and the Airport Road/Williamson Boulevard intersection. The section between Sabal Creek Boulevard and the middle school is planned for engineering in FY Additionally, developments in the New Smyrna Beach area and undeveloped areas of Port Orange have created a need for future widening south of the middle school. The TPO LRTP was adopted with participation from FDOT, the City of Port Orange, and the City of New Smyrna Beach. RECOMMEND AMENDING FROM 2 TO 4 LANES: Dirksen Drive (US 17/92 to I-4) This widening need is due to future traffic volumes associated with connecting travelers from Deltona and I-4 desiring to access the new SunRail commuter rail station in DeBary at US 17/92. The TPO LRTP was adopted with participation from FDOT and the City of DeBary. RECOMMEND AMENDING FROM 2 TO 4 LANES: Doyle Road (Providence Boulevard to SR 415) This improvement was highly prioritized in the Southwest Volusia Regional Transportation Study, and identified as a significant regional roadway connecting I-4 and SR 415. With future improvements to SR 415 and the Osteen Local Plan development in the future, the 4-laning will be needed. The TPO LRTP was adopted with participation from FDOT and the City of Deltona. RECOMMEND AMENDING FROM 2 TO 4 LANES: Dunn Avenue (Clyde Morris Boulevard to Williamson Boulevard) Dunn Avenue is viewed as an important parallel route to US 92/International Speedway Boulevard. Dunn Avenue's number of lanes analysis is split in three parts: On the county s map, the first section, between Bill France Boulevard and Clyde Morris Boulevard, is depicted as 2 lanes, yet is planned as 4 lanes in the LPGA DRI. The second section, between Clyde Morris Boulevard and Williamson Boulevard, is depicted as 2 lanes, yet is shown as 4 lanes in the LRTP. The third section, between Tomoka Farms Road and LPGA Boulevard, is depicted as 4 lanes, yet is shown as needing 2 lanes in both the LPGA DRI and LRTP. It is recommended to retain the 2 Page 4 of 11

5 lanes between Bill France Boulevard and Clyde Morris Boulevard, because it was not identified as a need in the LRTP process. It is recommended to amend the map to 4 lanes in the section between Clyde Morris Boulevard and Williamson Boulevard, because it was part of the LRTP. Staff recommends retaining the 4 lanes for the western section, west of the current Dunn Avenue extension project, because Dunn Avenue relieves US 92. RECOMMEND AMENDING FROM 2 TO 4 LANES: Graves Avenue (Veterans Memorial Pkwy to SR 472/Howland) The 4-laning of Graves Avenue is a planned transportation improvement envisioned to support the I-4/SR 472 Activity Center Areawide DRI. The TPO LRTP was adopted with participation from FDOT, and the Cities of DeLand and Deltona. RECOMMEND AMENDING FROM 2 TO 4 LANES: Hand Avenue (Shangri La Drive to Williamson Boulevard) This widening need is related to Hand Avenue being viewed as a parallel facility and reliever to SR 40, which is currently operating below the adopted service volume. It is also considered by the local governments as a necessary mitigation project to address the current SR 40 concurrency issue, enabling the continuation of future development approvals. Hunters Ridge DRI is currently negotiating the 4 lane improvement details with the county for the segment of Hand Avenue between Clyde Morris Boulevard and Shangri La Drive. The TPO LRTP was adopted with participation from FDOT and the City of Ormond Beach. RECOMMEND AMENDING FROM 2 TO 4 LANES: Indian River Boulevard (Williamson Boulevard to I-95) This planned transportation improvement is identified in the Restoration DRI development order. Although the TPO LRTP did not include this project in its cost feasible plan, it is recommended that the map be amended to show the 4 lanes consistent with the Restoration DRI master plan. RECOMMEND AMENDING FROM 2 TO 4 LANES: Kentucky Avenue (Graves Avenue to SR 472) This planned improvement is part of a development agreement between the county and Jordan Development Group. Although private development plans have been placed on hold due to the recession, the county has retained, yet pushed back, the 4 laning in its currently adopted road program. It is now planned to be constructed in FY Although the TPO LRTP did not include this project, it is recommended that the map be amended to be consistent with the private development and the county's plans. RECOMMEND AMENDING FROM 2 TO 4 LANES: Madeline Avenue (Williamson Boulevard to Clyde Morris Boulevard) This widening need is related to Madeline Avenue being considered as a parallel reliever to both Beville Road and Dunlawton Avenue. Also, the City of Port Orange requested that this segment be included in the TPO LRTP. RECOMMEND AMENDING FROM 2 TO 4 LANES: Mason Avenue (Williamson Boulevard to Bill France) This need was identified in the LPGA DRI. Additionally, Mason Avenue is a designated hurricane evacuation route. Though the improvement is not contained within the TPO LRTP, it is still recommended to amend the map to show 4 lanes. Page 5 of 11

6 RECOMMEND AMENDING FROM 4 TO 2 LANES: Orange Avenue Bridge A bridge replacement feasibility study was completed in 2006, which concluded that traffic volumes would not warrant 4 lanes. This supports the future need to retain 2 lanes. RECOMMEND AMENDING TO 4 LANES: Orange Camp Road (MLK Beltway to I-4) This analysis is split in two parts: The first section, between the I-4 Frontage Road and west of Martin Luther King Boulevard, is scheduled for construction in FY The other section, between Martin Luther King Boulevard and US 17-92, is a need that was discussed by the Victoria Park DRI developer, yet won't be demonstrated until later years. This westerly phase was not part of the TPO LRTP, and it was not recommended for inclusion by either the City of DeLand or Volusia County. Therefore, it is recommended that the map show 4 lanes between the I-4 Frontage Road and Martin Luther King Boulevard, yet retain 2 lanes between Martin Luther King Boulevard and US RECOMMEND AMENDING FROM 2 TO 4 LANES: Providence Boulevard (Howland Boulevard to Fort Smith Boulevard) RECOMMEND AMENDING FROM 2 TO 4 LANES: Providence Boulevard (Tivoli Drive to Doyle Rd) This analysis is split into three parts: The first section, between Howland Boulevard and Fort Smith Boulevard, is currently 2 lanes. The second section, between Fort Smith Boulevard and Tivoli Drive, is 4 lanes. The third section, between Tivoli Drive and Doyle Road, is 2 lanes. Notably, the recently completed Southwest Regional Transportation Study identified Providence Boulevard as a regionally significant roadway needing 4 lanes from Howland Boulevard south to Doyle Road. This need was also contained in the TPO LRTP. Therefore, it is recommended that the map be amended to show 4 lanes in the sections above that are currently 2 lanes. RECOMMEND AMENDING FROM 2 TO 4 LANES: Saxon Boulevard (Tivoli Drive to Providence Boulevard) This improvement was requested by the City of Deltona to indicate the future capacity improvement need on this regionally significant roadway within the Southwest Volusia Regional Transportation Study. Additionally, the improvement need is part of the transportation plan for the Southwest Activity Center SR 472/I-4 Areawide DRI. Though the improvement is not contained within the TPO LRTP, it is still recommended to amend the map to show 4 lanes. RECOMMEND AMENDING FROM 2 TO 4 LANES: Taylor Road (Summertrees to Forest Preserve Boulevard) This widening of Taylor Road is scheduled for right-of-way acquisition phase in FY The funding for construction has been deferred due to the economic downturn. The TPO LRTP was adopted with participation from FDOT and the City of Port Orange. RECOMMEND AMENDING FROM 2 TO 4 LANES: Westside Beltway/Kepler Road/MLK Boulevard (US 92 to Graves Avenue) RECOMMEND AMENDING FROM 2 TO 4 LANES: Westside Beltway/MLK Boulevard/VMP (Monastery Road to Harley Strickland Boulevard) The 4 lane widening of the Volusia Beltway was identified as an important west Volusia project within the LRTP. Several sections of the Beltway were identified as 4 lane needs. The Southwest Activity Center DRI and several sections were identified as regionally significant priorities in the recently completed Southwest Volusia Regional Transportation Study. The currently adopted Volusia County Road Program has the section between US 92 and SR 44 programmed for Page 6 of 11

7 construction in FY All sections, except for those between Graves Avenue and Monastery Road and Harley Strickland Boulevard and Saxon Boulevard, are currently shown as 2 lanes. Additionally, the section of Kentucky Avenue between Graves Avenue and SR 472 is a planned improvement that is part of a development agreement between the county and Jordan Development Group. For all of the reasons above, it is recommended that the map be amended to show 4 lanes on all remaining sections. RECOMMEND AMENDING FROM 2 TO 4 LANES: Williamson Boulevard (Beville Road to Taylor Road) This widening needs analysis is split in two parts: The first section, between Beville Road and Summertrees Road, is currently 2 lanes and depicted on the map as 2 lanes, although the subsection between Summertrees Road and Town West Boulevard is planned for 4 lane construction in FY The second section, between Summertrees Road and Taylor Road, is currently depicted as 2 lanes, yet is physically 4 lanes due to the recently completed Pavilion DRI developer widening as part of the required mitigation for the project. The 4-laning between Summertrees Road and Beville Road was included in the TPO LRTP; therefore, it is recommended that the map be amended to show 4 lanes between Taylor Road and Beville Road to be consistent with the TPO LRTP. RECOMMEND AMENDING FROM 2 TO 4 LANES: Williamson Boulevard (Pioneer Trail to Indian River Boulevard) This analysis is split in two parts: The first section, between Indian River Boulevard and SR 44 is a future need to support the approved Restoration DRI, and will be widened by the developer at the time of need. Additionally, the City of Edgewater requested it for inclusion in the Southeast Volusia Regional Transportation Study. The second section, between SR 44 and Pioneer Trail, is the only Williamson Boulevard link that is not officially planned to be 4 lanes. In conversations with New Smyrna Beach staff, it is recognized that the roadway will need to be 4 lanes in the future beyond either local government s comprehensive planning horizon year. However, the map change is recommended to show this link as a future 4 lane segment, as it will complete the 4 lane integrity of Williamson Boulevard s role as a viable I-95 alternative from Edgewater to Ormond Beach. C. Applicable Comprehensive Plan Goals, Objectives & Policies: The proposed amendments are supported by all goals, objectives and policies within Chapter 2, Transportation Element of the comprehensive plan, especially the following: Volusia County shall coordinate the transportation system with the plans and programs of the Volusia County MPO, the Florida Transportation Plan, and the FDOT s Adopted Work Program, and the Florida Scenic Highways and National Scenic Byways Programs Volusia County shall coordinate the County s transportation system with the FDOT, the Volusia County MPO, and all appropriate Volusia County municipalities to provide a coordinated system of arterials, collectors, local streets, public transportation, and air service. Page 7 of 11

8 Volusia County shall coordinate major transportation system improvements with the FDOT, the Volusia County MPO, VOTRAN, and with all appropriate Volusia County municipalities. D. Exhibits/Support Documents Exhibit 3-A: Current Figure 2-3 Exhibit 3-B: Figure 2-3 depicting specified changes Exhibit 3-C: Proposed Figure 2-3 (with changes) Exhibit 3-D: Roadway Lanes Analysis Spreadsheet The support documents can be referenced on-line at the following website link: 4. CPA : School Attendance Zones. A. Amendment Summary Volusia County is the keeper of the maps that define the Concurrency Service Areas (CSAs), pursuant to the county s agreement with the School Board. When the Volusia County School Board changes the school attendance zone boundaries for either elementary or middle schools, the CSA maps must be adjusted to reflect the revised attendance boundaries in accordance with the Public Schools Facilities Element. The only CSA map being revised this year is Map #2, Elementary School CSA map. The change reflects the addition of Elementary School Z. The county is also amending Maps #5 and #6, which depict existing public school facilities and ancillary plants, to reflect changes in facility status since Specifically, Samsula and Burns Oak Hill Elementary Schools are now charter schools, Seville Elementary has been closed, University High School in Orange City opened, and the Advanced Technology School is no longer run by the Volusia County School Board. The revised maps reflect these changes. B. Exhibits/Support Documents Exhibit 4-A: Map #2 Elementary School Concurrency Service Areas Exhibit 4-B: Map #5 Existing Public School Facilities and Ancillary Plants East Volusia Exhibit 4-C: Map #6 Existing Public School Facilities and Ancillary Plants West Volusia The support documents can be referenced on-line at the following website link: Page 8 of 11

9 5. CPA : Local and District Park Definition. A. Amendment Summary The purpose of this text amendment is to clarify and simplify the definitions for local and district parks as presented in Chapter 13, Parks and Recreation Facilities Element. The county currently defines two types of local parks and two types of district parks. The current definitions are based on size and the facilities provided. Staff proposes the following changes to the local and district park definitions: 1. Remove mandatory minimum facilities in each park classification. 2. Provide more facilities that may classify as a park. a. A minimum of 4 out of 13 facilities for a local park. b. A minimum of 6 out of 20 facilities for a district park. 3. Eliminate the size criteria for park classification and rely on function. 4. Include trails, public access, and specialty parks as facilities. The proposed text amendment allows additional flexibility in classifying local and district parks and shifts the focus from total number of acres for each park to how a park actually functions. This flexibility also assists the county in meeting level of service (LOS) standards and provides credit for county land purchases by adding trails and public access to conservation lands to the facility checklist. Local level needs are typically satisfied by city parks, with the county s emphasis shifting to regional services. Providing flexibility in the local and district park classification helps the county meet our mandatory LOS standards and provides quality park services that meet the needs of our community. B. Exhibits/Support Documents Exhibit 5: Text changes to Chapter 13, Recreation and Open Space Element The support document can be referenced on-line at the following website link: 6. CPA : Osteen Local Plan. A. Amendment Summary The Osteen Local Plan was the result of a joint planning effort between the elected officials of the City of Deltona and Volusia County, and was incorporated into the respective comprehensive plans in Since adoption, two issues have arisen related to the inclusion of a use termed agribusiness and a requirement that all new development be rezoned to the Planned Unit Development (PUD) zoning classification. The proposed text amendment eliminates the agribusiness language from the Rural Estate designation and deletes the PUD rezoning requirement. The 2008 Joint Planning Agreement requires concurrence of each of the governments when amendments are proposed. City and county staff are in agreement on these amendments and Page 9 of 11

10 will process similar amendments to their respective Osteen Local Plans as required by the agreement. Agribusiness Within the Osteen Local Plan, the Rural Estate land use designation allows agribusiness uses. The term agribusiness was derived from the Merriam-Webster s College Dictionary, 3 rd Edition, which is used by the zoning code to define terms. The definition for agribusiness in the dictionary is quite broad allowing both agriculture and agriculture related uses, such as the manufacturing of farm equipment. Since adoption, it has become evident that some of the more intense, industrial types of agribusiness uses have the potential to be incompatible with the surrounding area and the original intent of the Osteen Local Plan provisions. There are only three lots that are currently eligible for agribusiness uses (see map to the right). These lots front on SR 415 and total approximately 50 acres. They are located between existing and vacant residential lands. The area adjacent on the west side of the three lots is also part of the Osteen Local Plan and is designated Transitional Residential, which is intended for low density residential development. The area on the west is within the City of Deltona and designated for residential uses. PUD Requirement The requirement to rezone new development to the PUD classification was intended to ensure consistency with the design features of each new Future Land Use designation created by the Osteen Local Plan. The county s existing zoning classifications did not provide for this consistency. Staff is in the process of drafting land development standards that will implement the requirements of the land use designations. Therefore, the PUD rezoning requirement will no longer be necessary to ensure compliance. B. Exhibits/Support Documents Exhibit 6: Text changes to Chapter 1, Section F.13: Osteen Local Plan The support document can be referenced on-line at the following website link: Page 10 of 11

11 II. Finding of Fact/Conclusions 1. These proposed amendments are primarily updates and housekeeping items that ensure the comprehensive plan is kept current, accurate, and eliminates internal inconsistencies. 2. These proposed amendments are in accordance with the adopted comprehensive plan. 3. Proposed transportation amendments that impact other jurisdictions or agencies have been coordinated through the TPO LRTP Process. III. Staff Recommendation Staff recommends county council approve transmittal of the 11-1 cycle amendments to the Department of Community Affairs and the Volusia Growth Management Commission. Page 11 of 11