Location Map GMP Amendment and Rezoning Area and CUP Area

Transcription

1 S. Terry Avenue Chapman Court S. Division Avenue Staff Report to the Municipal Planning Board December 15, 2015 GMP ZON CUP Item # 12. A, B & C ORLANDO UNION RESCUE MISSION Amway Center W. South Street Parking Garage W. Anderson Street SR 408 Off Ramp Area Location Map GMP Amendment and Rezoning Area and CUP Area S U M M A R Y Applicant Miranda Fitzgerald, Esq., Lowdes, Drosdick, Doster, Kantor & Reed, PA Owner City of Orlando Project Planner Mary-Stewart Droege, AICP Updated: December 8, 2015 Property Location: Located in the Parramore Neighborhood, the +/-0.99 acre subject site is generally located south of W. South Street and Chapman Court, north of W. Anderson Street, east of S. Terry Avenue and west of S. Division Avenue. Applicant s Request: The applicant is requesting to: A) Amend the future land use of a portion of the project site from Residential Medium Intensity to Public, Recreational and Institutional ( +/-0.76 ac.); B) Rezone a portion of the subject site from R-2B/T/PH to Public Use (P) with the Traditional City (/T) and Parramore Heritage (/PH) overlays (+/ ac.); and C) Establish a Conditional Use Permit to allow the development of an up to 32,101 sq. ft. social services facility with on-site temporary housing (+/-0.99 ac.) Staff Recommendation: Approval of the requests, subject to the conditions in the staff report. Public Comment: Courtesy notices were mailed to property owners within 300 ft. of the property during the week of December 1, A public meeting was held on December 7, As of the mail-out of the staff report, staff has received both written and oral comments from the public, both in support and against this request.

2 Page 2 GMP , ZON , & CUP Orlando Union Rescue Mission FUTURE LAND USE MAPS

3 Page 3 GMP , ZON , & CUP Orlando Union Rescue Mission FUTURE LAND USE SUBAREA POLICIES MAP CUP Site

4 Page 4 GMP , ZON , & CUP Orlando Union Rescue Mission ZONING MAPS

5 Page 5 GMP , ZON , & CUP Orlando Union Rescue Mission Conditional Use Permit and General Area Maps Subject CUP Site

6 Page 6 GMP , ZON , & CUP Orlando Union Rescue Mission Overview Located in the Parramore Neighborhood, the +/-0.99 ac. fenced, and mostly undeveloped, subject property is generally located south of W. South Street and Chapman Court, north of W. Anderson Street, east of S. Terry Avenue and west of S. Division Avenue. Currently owned by the City, the proposed site is comprised of two portions. The western portion consists of several undeveloped parcels, while the eastern portion is comprised of the OUC Chiller Plant site access and parking area (+/-0.23 ac.; no Chiller Plant structure). The western portion was most recently developed with multifamily development which, several years ago, was subsequently demolished, while the eastern portion is developed with a OUC Chiller Plant. Accordingly, the western portion also has the Residential Medium Future Land Use designation with R- 2B/T/PH zoning, while the eastern portion has Public, Recreational and Institutional future land use with P (Public Use) zoning with the Traditional City (/T) and Parramore Heritage (/PH) overlay districts. The applicant is asking to amend the future land use of the western portion of the site from Residential Medium Intensity to Public, Recreational and Institutional (+/-0.76 ac.), rezone this area from R-2B/T/PH to P/T/PH, and request a Conditional Use Permit (CUP) for the entire +/-0.99 ac. site, which will allow the relocation the Orlando Union Rescue Mission (OURM) Men s Facility to this new site. A City-initiated LDC amendment of the Parramore Heritage (/PH) Overlay is also proposed, which will permit the relocation of certain social service uses within the Parramore Neighborhood. (Please see staff report LDC ). An up to 32,101 sq. ft., two story structure is proposed, which will operate 7 days a week, 365 days per year to provide a broad range of services including emergency and transitional housing as well as vocational education for up to 150 male guests, or 20 more guests ( an increase of 15.3%) than at its present 410 W. Central Blvd. facility. The services provided by Orlando Union Rescue Mission are not intended for the chronically homeless, who are referred to other shelters. Up to 35 emergency shelter guests will be allowed. The western portion of the OUC Chiller Plant parking area will be reconfigured to allow OURM bus drop-off and pick-up and back-of-house activities. The Chiller Plant and the new Mission site will also share a 2-way driveway access from W. Anderson St. Prior Actions 1908: Subject property originally platted as a part of the H. Carl Dann s Addition to the City of Orlando Subdivision postwar era: Zoning changed to R-2B. 1985: Traditional City (/T) overlay added. 2002: City of Orlando purchased northern lot of Chiller Plant property (435 Chapman Ct.). 2003: City of Orlando purchased southern portion of the Chiller Plant property (531 W. Anderson St.) 2004: Mayor s Parramore Task Force Report (Pathways for Parramore Initiative) completed. 2008: City Council approved a GMP amendment to change the Future Land Use of the Chiller Plant property from Residential Medium Intensity to Public, Recreational and Institutional (GMP ) and rezone the site from R-2B/T to P/T (ZON ) : City of Orlando purchases subject property within and abutting the Chiller Plant, which includes 441 S. Terry Ave. ( ), 438 Chapman Ct. ( ), 535 W. Anderson St.,( ), 529 W. Anderson St., ( ) : Demolition of structures on sites identified above, including a multi-story apartment building on 529 W. Anderson St. 2008: Minor subdivision approval by MPB for the re-plat of the Chiller Plant into one lot to facilitate development (SUB ). 2009: Conditional Use Permit approved by MPB as part of the west Downtown Development and Event Center OUC Chiller Plan development (CUP ). 2009: Chiller Plant project received interim approval from the Downtown Development Board. 2009: Parramore Town Center Strategic Vision completed. 2010: Amendment of Future Land Use Element Subarea Policy S.6.9 to address Social Services Uses, create Land De-

7 Page 7 GMP , ZON , & CUP Orlando Union Rescue Mission velopment Code Chapter 58 Part AI, Parramore Heritage (PH) Overlay District, and rezone property to /PH (Parramore Heritage) Overlay Zoning District. (GMP , LDC , and ZON ). 2011: Orlando Utilities Commission (OUC) Chiller Plant construction was completed. 2015: Project DTO was completed which addresses, in part, the eastern portion of the Parramore Neighborhood, including this site. 2015: Addition of new Future Land Use Subarea Objective 6.B2 and Subarea Policy S.6.14 to incorporate the Parramore Comprehensive Neighborhood Plan into the City s Growth Management Plan (GMP ). Project Context and Land Use Compatibility (GMP ) As shown in the following table, surrounding uses include vacant residential lots to the north, East-West Expressway (SR 408)/I-4 off-ramp area across W. Anderson Street to the south, the Orlando Utilities Commission (OUC) Chiller Plant building to the east, and vacant residential lots across S. Terry Avenue to the west. Surrounding future land use designations include Residential Medium Intensity to the north, west and south and Public, Recreational and Institutional to the east. Associated zoning includes R-2B with the Traditional City (/T) and Parramore Heritage (/PH) overlays to the north, west and south, while to the east is Public Use (P) with /T and /PH overlays. The larger +/-0.99 subject Conditional Use Permit (CUP) site is comprised of the Residential Medium Intensity and Public, Recreational and Institutional future land use designations and R-2B/T/PH and P/T/PH zoning, while the +/-0.76 ac. future land use amendment site and rezoning site have the Residential Medium Intensity future land use designation and R-2B/T/PH zoning. There are a number of Growth Management Plan (GMP) policies, which also address the proposed project, and are discussed on the next several pages. The proposed public benefit use is compatible with the surrounding neighborhood, which is undergoing a transition to a mixed-use community. (See the CUP section for a more detailed discussion). Table 1 Project Context North West South Future Land Use Zoning Surrounding Use Residential Medium Intensity R-2B/T/PH 1-5 Family District with the Traditional City (/T) and Parramore Heritage (/PH) Overlays Vacant Land Across S. Terry Street- Vacant Land Across W. Anderson St.- SR 408 Off-Ramp Area East Public, Recreational and Institutional P/T/PH Public Use with Traditional City (/T) and Parramore Heritage (PH) Overlays OUC Chiller Plant Consistency with Chapter 163, Florida Statutes The proposed GMP amendment, to change the future land use from Residential Medium Intensity to Public, Recreational and Institutional for a +/-0.76 acre portion, of a larger +/-0.99 ac. site, is being processed as a small scale amendment to the Official Future Land Use Map in accordance with the requirements of Chapter , 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 Florida 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 Growth Management Plan (GMP) Objective 2.3 and Policy of the Future Land Use Element provide standards relating to development outside of activity centers and mixed use corridors. Policy states:

8 Page 8 GMP , ZON , & CUP Orlando Union Rescue Mission 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. Public, Recreational and Institutional uses are defined as follows: (a)ctivities within areas used predominantly for structures or lands that are owned, leased or operated by a government entity, or facilities of public or private primary or secondary schools, vocational and technical schools, colleges and universities, or areas where public or private recreation occurs, or other public facilities or public benefit uses. Public/private partnerships, supportive mixed uses and other compatible uses are also consistent in these areas as secondary uses. The Orlando Union Rescue Mission, a non-profit, is one of Central Florida's oldest and most experienced service providers. The proposed Men s Facility will have a mixture of uses including emergency shelter, transitional housing as well as educational programming and vocational training framed within a religious context. The Public, Recreational and Institutional future land use designation allows for public benefit uses. The proposed mixed-use project, which is to share access with the OUC Chiller Plant, qualifies as a public benefit use as defined under LDC Chapter 66 and which includes...public utilities...any municipal or state purpose...educational, philanthropic, charitable or religious uses. The project primarily focuses on intensive educational and vocational programming, which requires guests to live on site for a year (transitional housing model). The goal is for residents to achieve specific personal goals, develop life skills and transition successfully to independent living and full-time employment. Growth Management Plan Policies In addition to the GMP policies provided above, there are specific policies that address the nature and extent of public benefit uses in the Parramore Neighborhood. Subarea 6 Goal A To protect the residential integrity of the Parramore Heritage neighborhood from the encroachment of nonresidential uses; to improve the physical appearance of the neighborhoods; and to increase the opportunities for neighborhood-serving retail development which does not encroach upon these residential neighborhoods. Objective 6A.1 The City shall maintain its Land Development Regulations throughout the planning period so as to protect and improve the physical appearance of the residential integrity of the Parramore Heritage neighborhood, and increase the opportunities for appropriately located neighborhood-serving retail development. Response: The proposed facility and its attractive neighborhood-scale design and internalized on-site activities will enhance the physical appearance of the area, serve as a buffer to the SR408 ramps, and will not encroach into the residential neighborhood. Subarea Policy S.6.9 The City of Orlando has determined that the over-concentration of social service uses in the Parramore Heritage Renovation Area has had a negative impact on the area s stability and prosperity. Likewise, the City has determined that the establishment of adult entertainment facilities would further limit the revitalization of the area. In order to protect existing residential areas, encourage reinvestment and promote the fair distribution of social service uses throughout the region, the City s Land Development Code shall in-

9 Page 9 GMP , ZON , & CUP Orlando Union Rescue Mission clude provisions to appropriately limit or prohibit the establishment, expansion, and relocation of such uses within Subarea 6. Response: Over-concentration of social services may have a negative effect on an area s stability, if those uses are inappropriately sited, highly concentrated, or in disrepair. In contrast, the relocation of the OURM facilities will have an overall positive effect on the neighborhood by: Moving to a more peripheral location that is easily accessible to its guests; Internalizing and mitigating many of the perceived negatives through a more purposeful design (expedited intake, secured bicycle parking, enhanced buffering, shared access, etc.); and Constructing a modern building that will offer improved training facilities and programs to increase the number of long-term guests that can return to productive status. Future Land Use Subarea Policy S.6.9 defers to the City s Land Development Code to provide provisions to appropriately limit or prohibit the establishment, expansion, and relocation of certain public benefit uses within Subarea 6. Accordingly, concurrent with this application, a Land Development Code (LDC) amendment to the Parramore Heritage (/PH) overlay text is proposed to establish criteria for relocation of social service uses (Please see staff report LDC for further discussion). Housing Element Policies Given the residential nature of the proposed public benefit use, there are Growth Management Plan housing policies which also support the development of this facility and include: Housing Policy 1.3.1: The placement of public facilities shall be planned so as to minimize the demolition of housing and related relocation of residents. Housing Goal 4: To provide housing opportunities for people with special needs such as the homeless, the elderly, and the physically and/or mentally disabled. Housing Objective 4.3: The City shall continue to support a variety of public and private housing initiatives for affordable housing for special needs populations. Housing Policy 4.3.1: The City shall continue to support organizations which provide shelter and related services to the homeless. Such support may include but not be limited to financial and/or technical assistance and alternative design standards and code requirements. Response: No homes need to be demolished to construct this use (Housing Policy 1.3.1). The Orlando Union Rescue Mission is an established social services organization and through this new development will be able to offer critical residential life skills programming, which serves special needs populations (Housing Goal 4 and Objective 4.3). The requested future land use amendment, rezoning and CUP have been reviewed by staff and it is anticipated that a superior design and functional development will be achieved (Housing Policy 4.3.1), which will better serve guests and enhance the overall community environment. Parramore Comprehensive Neighborhood Plan, Related GMP Policies and South Street Development Additional support for the proposed project can be found in the Parramore Comprehensive Neighborhood Plan. The Plan as part of the Pathways for Parramore initiative, contains the community s neighborhood vision based on Healthy Community Design principles, and provides strategies along with recommendations for improving economic and job growth, community health, transportation options, housing, education and infill development. In addition to being incorporated into the City s Growth Management Plan, the Parramore Comprehensive Neighborhood Plan is considered to be an integral component of the CRA plan (Project DTO Advancing Downtown Orlando initiative). Recently adopted Future Land Use Subarea Objective 6.B2 and Policy S.6.14 incorporates key elements of the Parramore Comprehensive Neighborhood Plan into the City s Growth Management Plan s Future Land Use Element. Future Land Use Subarea Policy S.6.14, which encompasses the entire Parramore Neighborhood, addresses healthy community design and the establishment of a zoning overlay to implement the plan. Key elements of the plan are pertinent to

10 Chapman Ct. S. Terry Ave. Page 10 GMP , ZON , & CUP Orlando Union Rescue Mission the proposed Men s Facility and address that (s)pecial consideration shall be given to those projects that address concerns for public safety and advance the Healthy Community Design Principles to (p)romote (s)ocial and (e)nvironmental (j)ustice and to (i)ncrease (h)ousing (o)pportunities (Parramore Comprehensive Neighborhood Plan; page 70). Response: Generally consistent with the plan, the proposed future land use amendment, rezoning, CUP request and LDC amendment will allow emergency and transitional housing for up to 150 men in need. Moreover, the new facility will promote social and environmental justice through providing essential workforce training and educational opportunities in a modern, and appropriately equipped, facility. Parramore Comprehensive Neighborhood Plan- South Street Development A portion of the OURM project is also within the South Street Development area as depicted on the exhibits on page 12. This catalyst area focuses on using existing City property between W. South Street and W. Anderson Street and S. Division Avenue and S. Terry Avenue, in order to incentivize the redevelopment of a mixed-use, mixed-income development, which can capitalize on its location proximate to the Amway Center and the Church Street entertainment corridor. In general, this catalyst site proposes small retail and commercial spaces, a plaza that activates the space across the street from the Wells Built Museum, as well as single family houses, duplexes and 4-plexes, an office building and hotel. It should be noted that the subject project area, as displayed in the plan, only shows a very general development concept with open space and residential structures. Response: Given the mixed-use, mixed income nature of the South Street development district, the proposed residential/vocational/educational OURM facility is compatible with the intent of this development area. Environmental Review Environmental Conservation Element Policy states that all projects requiring Municipal Planning Board (MPB) and City Council review shall provide an Environmental Assessment. Developments exempt from this requirement includes those located within the Urbanized Disturbed Lands and are shown in Figure C-1 of the Conservation Element. According to Figure C-1, the subject property lies inside the Urbanized Disturbed Land area and is therefore exempt from further review. Off-Site Parking to be Approved through a Temporary Use Permit W. Anderson Ave. OUC Chiller Plant Boundary of the CUP Site is outlined above in black and white, while the GMP/Rezoning site boundaries are outlined in red.

11 Page 11 G MP , ZO N , & C UP O rl a n do U n i on R esc u e Mi s si on Parramore Community Vision Plan Approximate Site Location

12 Page 12 GMP , ZON , & CUP Orlando Union Rescue Mission Views of the Subject Site and its Relationship to the Parramore Comprehensive Neighborhood Plan and the South Street Catalyst Site SITE Below is a view of City-owned property in blue and its relationship to the subject site. GMP/Rezoning area is highlighted in yellow dots. Geico Garage A Portion of the Parramore Comprehensive Neighborhood Plan Map Showing New Roadways. General location of the subject site is shown above.

13 Page 13 GMP , ZON , & CUP Orlando Union Rescue Mission 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 amendment to change the future land use designation to Public, Recreational and Institutional on ±0.76 acres would permit intensities on the subject property more than that permitted under the existing Residential Medium Intensity, which has an upper limit of 0.30 FAR. This evaluation assumes that the property will be developed at the maximum intensity of +/-0.96 FAR (See Projected Demand Section below). Each year, the City prepares the Capacity Availability Report (CAR) to identify any surpluses or deficiencies in the ability to provide public services. The CAR also accounts for future population and employment growth consistent with the City s adopted future land use categories. Because the growth associated with this GMP amendment was not included in the growth projections, this analysis is performed to ensure capacity is available to serve the development. Projected Demand Evaluation 1 This evaluation considered the impact of developing the site at the maximum density permitted by the existing Residential Medium Intensity future land use designation 30 du/acre) = 22.8 du or 23 multi-family du s and at the maximum intensity of ( FAR)= 9, or 9,932 sq. ft. of public benefit uses. Evaluation 2 This evaluation considered the impact of developing the site at the maximum intensity permitted by the Public, Recreational and Institutional future land use designation as defined through the Planned Development zoning. (The entire CUP site will have a FAR of 0.74.) The proposed building will be sited on the amendment area and so, for the purpose of this evaluation, the FAR was calculated based on a 32,101 sq. ft. of building on a 0.76 ac. site or a FAR of 0.96 (No multi or single family dwelling units are allowed). Net Decrease/Increase: There is an estimated net decrease of 23 du of MF residential development and net estimated increase of 22,169 sq. ft. of public benefit uses. The amount of development included in the evaluations above translates to a total project demand for public facilities shown in the table below. Details about how the above impacts were calculated are available in the City s Capacity Availability Report (CAR). Potable Water (GPD) Wastewater (GPD) Comm. Parks (Acres) Neigh. Parks (Acres) Transportation (Trips) Evaluation #1 6,090 5, Evaluation #2 4,815 2, * Net Increase (Decrease) (1,275) (2,596) (0.06) (0.03) 189 *It is anticipated that this use will create far fewer trips than the standard Public Benefit Use multiplier. Potable Water, Wastewater and Parks The next table, on the following page, summarizes available capacity, existing demand, projected increases in demand from City-wide growth, projected increases in supply (such as from construction of a new facility) and the maximum demand expected from this GMP amendment. The property also lies within the OUC water, City wastewater and OUC electric areas. The proposed amendment will not adversely impact the level of service for potable water and wastewater and there is sufficient capacity available within the Community Park and Neighborhood Park areas.

14 Page 14 GMP , ZON , & CUP Orlando Union Rescue Mission Potable Water (MGPD) Wastewater (MGPD) Comm. Parks (Acres) for CPS 1 Neigh. Parks (Acres) for NPSA 7 Capacity Reported Demand Projected increase in Demand Projected increase in Supply Demand from GMP (0.00) (0.06) (0.03) Net Available Capacity Stormwater and Solid Waste The City s adopted stormwater level of service standards require new development to provide on-site stormwater retention and/or detention consistent with the requirements of the St. John s River Water Management District. Therefore, each increment of new development, if properly permitted, will meet the stormwater level of service standard. Solid waste collection is funded by user fees. A new on-site stormwater vault system will be built to serve the new facility. The site s dumpster will also have to meet the City Solid Waste Division standards. Transportation The City has adopted a Transportation Concurrency Exception Area (TCEA) Citywide. The subject parcel has roadway access to W. Anderson Street. The proposed site is also adjacent to Lynx Route 36 along Anderson Street and within walking distances of the free Lymmo line and other Lynx bus routes. Capital Improvement Program The City has no Capital Improvement Program (CIP) projects in the immediate area of the subject site. However, the Ultimate I-4 project will necessitate the realignment of S. Terry Avenue. Anticipated to be completed by 2020, FDOT will be responsible for the construction of a new two lane S. Terry Avenue connecting to W. Anderson Street. The proposed alignment will shift the existing S. Terry Avenue west to Hicks Avenue, and after crossing W. South Street, regain its original alignment as it moves north. Pursuant to this alignment, the existing S. Terry Avenue, abutting the property to the west, may be vacated to allow additional facility parking. School Capacity Orange County Public Schools (OCPS) has two school review processes. The Capacity Enhancement Process (CEP) applies to land use approvals, including GMP amendments, that increase residential density. The concurrency process applies to all residential development that is not de minimus or previously vested through a DRI Development Order or another agreement. This application is exempt from the review since no single or multi-family residential units will be allowed.

15 Page 15 GMP , ZON , & CUP Orlando Union Rescue Mission Zoning (ZON ) Overview The applicant is requesting a rezoning from R-2B/T/PH to Public Use (P) zoning with the Traditional City (/T) and Parramore Heritage (/PH) overlays, which is consistent with the proposed future land use amendment from Residential Medium Intensity to Public, Recreational and Institutional to allow a 32,101 sq. ft. social services facility with on-site temporary housing. Pursuant to this change, the entire +/-0.99 ac. development area (CUP site) will have consistent Public, Recreational and Institutional future land use and P/T/PH zoning (Please see the CUP analysis section for a discussion of the proposed use). Purpose of the Public Use (P) Zoning District The -P- district is intended to provide for the use of lands owned by any public body for Public Benefit uses, and to eliminate confusion on the Official Zoning Map as to the use and status of these lands. As detailed in Chapter 58, FIG 1- STD3.LDC, other than the minimum building site frontage of 25 ft., generally all other development standards are addressed through the Conditional Use Permit (CUP) process (2D. Conditional Use Permit). LDC Figure 2B.LDC identifies the permitted uses in the P District, which includes conservation, passive park, as well as public elementary, middle and high schools. Specific conditional uses include public benefit uses, parking as a principal use, and communication towers. The Orlando Union Rescue Mission is a public benefit use. LDC Section also requires that all rezonings and/or initial zonings be in conformance with any applicable substantive requirements of Chapters 58 through 66 of the LDC. Traditional City (/T) Overlay (Sec ) and Related Urban Design Review Requirements The Traditional City (/T) Overlay District is intended to establish urban design standards to perpetuate the positive design elements and the residential and commercial development patterns found within the Traditional City. It is further intended that the Traditional City (/T) Overlay District will operate in conjunction with any other zoning district such as P zoning. The Traditional City Overlay also has certain design requirements. (Please see Conditional Use Permit (CUP) Section and Urban Design Conditions.) Parramore Heritage (/PH) Overlay (Sec ) Established in 2010, the Parramore Heritage (/PH) Overlay District implements Future Land Use Element Subarea Policy S.6.9, by limiting or prohibiting the establishment, expansion, and relocation of such certain social services uses within Subarea 6. The purpose of the Parramore Heritage Overlay District is to promote the stability and prosperity of the Parramore Heritage neighborhood by reducing the over-concentration of social service uses within the district. The proposed amendment to the PH Overlay District standards will create specific standards for the relocation of certain public benefit uses. (Please see staff report for full analysis; LDC ). In particular, the revision will allow social services facilities, in the PH Overlay area, to expand or relocate if they meets certain criteria. This criteria includes that the social services facility has existed consistently since May 24, 2010, the use includes on-site temporary or permanent housing, the use is expanded by no more than 20% of the client capacity existing at the time of the land development application and no previous applications have allowed for an expansion; and if applicable, the use participates in the Homeless Management Information System (HMIS) operated by the Homeless Services Network of Central Florida, or a functionally equivalent successor system. In addition, Planned Development (PD) zoning or a CUP will also be required. Consistent with the Conditional Use Permit process, the PD must specifically address the extent to which the use is compatible with surrounding uses, the extent to which activity takes place outdoors or on adjacent streets and sidewalks, hours of operation, proximity to transit and other aspects of facility operation as applicable.

16 Page 16 GMP , ZON , & CUP Orlando Union Rescue Mission Orlando Union Rescue Mission Relocation and Conformance with the Proposed Parramore Heritage (/PH) Overlay District LDC Amendment (LDC ) The present request will meet the amendment s relocation/expansion requirements. Currently situated at 410 W. Central Avenue, the OURM facility has been in operation since before May 24, 2010 and it is to be relocated to the +/-0.99 ac. site at the corner of W. Anderson St. and S. Terry Avenue. The W. Central Avenue site currently serves 130 men, while the proposed facility at the corner of S. Terry Avenue and W. Anderson Street, which has mostly transitional housing, will serve 150 men, or an increase of 20 guests (less than 20% increase). Upon the opening of the new site, the W. Central Ave. site will be closed. As part of this relocation, the OURM s new mens facility will participate in the HMIS system. The proposed +/-0.99 ac. site will also be reviewed through the Conditional Use Permit process, as detailed below. Conditional Use Permit (CUP ) The subject site is comprised of the proposed +/-0.76 ac. future land use map amendment/rezoning area and a +/-0.23 ac. parking and access area operated as part of the OUC Chiller Plant. Pursuant to the future land use amendment and associated rezoning, this combined project area will have contiguous Public, Recreational and Institutional future land use and P/T/PH zoning. As required by the Public Use (P) zoning designation, the applicant is requesting a Conditional Use Permit (CUP) to establish development standards for an up to 32,101 sq. ft. social services facility with on-site temporary housing. Per Section Standards of Review for Conditional Use Permit Applications, the Municipal Planning Board (MPB) and City Council shall consider the following factors in their review of Conditional Use Permit (CUP) applications: Analysis 1. Purpose and Intent. The purpose and intent of the use and all other requirements of the Land Development Code (LDC). 2. Growth Management Plan (GMP). The consistency of the proposal with all applicable policies of the City's adopted GMP. 3. Compatibility. The compatibility of the proposal with surrounding land uses and the general character of the area including such factors as height, bulk, scale, intensity, traffic, noise, drainage, dust, lighting, appearance, etc. 4. Public Facilities and Services. Whether necessary public facilities (both on- and off-site), such as transportation, sanitation, water, sewer, drainage, emergency services, education, recreation, etc. be adequate to serve the proposed use. 5. Residential Displacement. For public benefit uses, the Municipal Planning Board and the City Council must consider the extent to which the proposed use, location, and building site design would displace existing residential uses on the site or would encourage displacement of residential uses adjacent to the site. They must also consider alternative uses, location, and site designs that could minimize residential displacement. 6. Other Matters. Any other lawful matter which the Board/Council may deem appropriate and relevant to the specific proposal. The following provides an analysis of these requirements: 1. Purpose and Intent The purpose of the request is to allow a new 32,101 sq. ft. social services facility with temporary on-site housing for 150 men to be sited on a +/-0.99 ac. site, which includes a vehicular access and guest drop-off area on the OUC Chiller Plant

17 Page 17 GMP , ZON , & CUP Orlando Union Rescue Mission driveway and parking area. As a public benefit use, the intent of the proposed facility will be to meet the needs of the guests and provide much needed quality residential, educational and training services in a healthy and attractive building and urban environment with easy access to public transportation, recreation and employment. 2. Conformance with the Growth Management Plan (GMP) and Residential Displacement i) GMP Review The +/-0.99 acre CUP site is comprised of two portions: a western portion and an eastern portion. The western +/-0.76 ac. portion is vacant and is undergoing a future land use amendment to Public, Recreational and Institutional and an associated rezoning to P/T/PH, thereby making the area s zoning consistent with the eastern +/-0.23 ac. portion of the site, which has Public, Recreational and Institutional future land use and P/T/PH zoning and is comprised of the OUC Chiller Plant s driveway access and parking area (no building). (See aerial on page 10). As addressed in the future land use amendment analysis section, the proposed use conforms with a number of GMP goals, objectives and policies including Future Land Use Policy 2.3.1, Subarea Policy S.6.14 as well as Housing Policy 1.3.1, Housing Goal 4, Housing Objective 4.3, and Housing Policy The proposal is also consistent with Future Land Use Subarea Policy S.6.9, addressing the over-concentration of social service uses in the Parramore Heritage Renovation Area, as implemented through the proposed Parramore Heritage (/PH) Land Development Code amendment. (Please see pages for additional information as well as staff report- LDC for a complete discussion. ii) Displacement The +/-0.99 acre property has no residential uses nor does it abut any residential uses, accordingly, it is concluded that no residential displacement will occur. 3. Compatibility i) General Also, as part of the future land use (FLU) map amendment analysis, a land-use compatibility study was conducted. The study found the proposed use to be compatible with the surrounding area and consistent with the FLU amendment criteria, which includes appropriate topography, discouragement of sprawl, compatibility with existing development and adequate public services and facilities (See the GMP amendment section). The proposed two-story, Spanish Colonial style building will be 54 ft. high including a 15 foot high cross. The 32,101 square foot facility will accommodate up to 150 individuals. The first floor will contain the main entrance, lobby, and staff offices, the kitchen and dining facilities, the chapel, and the guest waiting and housing areas for both the Work Extension Program and the up to 90 residential guests. The second floor will house the Resident Work Rehabilitation Ministry as well as the classrooms and other support spaces for training and education for up to 60 guests. (See exhibits on pages 26-29). The project s proposed FAR is 0.74 and the ISR is 0.61, which is consistent with development west of Division Avenue. The building s main public and employee entrance will front on S. Terry Avenue, while the on-site program guest entrance will be strictly controlled through a gated entry at the north-west corner of the building. Limited vehicular access will be via the existing OUC access driveway off of W. Anderson Street. No OURM staff or guest parking will be located on the OUC site. (See Section 4 for expanded discussion). ii) Operational Characteristics Consistent with its existing operations, the new facility will operate 7 days a week, 365 days per year and will be designed to accommodate 150 overnight guests, of which approximately guests will fall into the emergency shelter

18 Page 18 GMP , ZON , & CUP Orlando Union Rescue Mission category, while the remainder will be in transitional housing. The services provided by OURM are not intended for the chronically homeless, who are referred to other shelters that are specialized to serve that population. The overnight Emergency Men's Shelter intake begins at 3:00 pm and ends at 6:30 pm, or at time of capacity. Qualified men who return to the facility are required to seek employment during their temporary stay or may enroll in the Work Extension Program or Resident Work Rehabilitation Ministry. The men in the Resident Work Rehabilitation Ministry live on-site for at least one year. The OURM offers several vocational and education options (including GED) through an on-site work training program in the areas of retail, hospitality, food service, administrative, maintenance, and child care certification. Certain agencies such as the Veteran's Administration, the Department of Children & Families, Lakeside Behavioral Healthcare, I- Dignity, and Goodwill Industries, assist guests to meet health needs and find employment. Through the Ministry's Work Extension Program, housing and other services are provided to men who have jobs, while they find more permanent housing options. As also required by this Conditional Use Permit, OURM will participate in the Homeless Management Information System (HMIS) operated by the Homeless Services Network (HSN) of Central Florida, or a functionally equivalent successor system. iii) Staffing The OURM presently has a staff of 5-10 people that manage the overall facility and the services provided. It is expected that the OURM would hire the equivalent of 3 additional full time employees to assist in managing the new facility. Table 2 Development Standards * Phase Acreage Use Sq. Ft./Dwell ing Units Public Benefit Use 32,101 sq. ft. Density (dwelling units per acre) Min. /Max. FAR (floor area ratio) Min. /Max. Proposed Min./Max Building and Cross Height ISR (impervious surface ratio) Max. Proposed Proposed Proposed N/A N/A N/A 0.74 FAR N/A 54 ft.** N/A 0.61 *Public Use development standards are established through this CUP. Lot Size: +/-0.99 ac.; Density/intensity bonus: No **Building height not to exceed 39 ft. with an up to 15 ft. high cross, in total; Overall height is not to exceed 54 ft. 4. Public Facilities, Services and Related Structures i) Roadway, Pedestrian Access, Back-of-House, Pick-up/Drop-off Area, Bike Parking, and Related Improvements The +/-0.99 acre subject site is situated north of W. Anderson Street which has a two-lane, 40 ROW, running one-way to the east, east of S. Terry Avenue, which is comprised of a two-lane, 25 foot ROW and runs north/south, and south of Chapman Court with a two lane 60 ft. ROW running north/south and which ends in a cul-de-sac. No vehicular or pedestrian access to the site will be allowed from Chapman Court. The primary street-level guest pedestrian entrance to the OURM building will be from S. Terry Ave., at the north-west corner of the site. Guests will be able to walk through and park their bikes (if applicable) before entering a gated and walled courtyard, which will then allow them access to the building, at appropriate times.

19 Page 19 GMP , ZON , & CUP Orlando Union Rescue Mission The van/bus drop-off/pick-up area will be on the east side of the building and accessed from the building through the courtyard area via a min. 6 ft. wide sidewalk. Other entrances include the main public entrance along S. Terry Ave., and a secondary entrance along S. Anderson St. The east-side sidewalk will also connect to the back-of-house area (loading/unloading and dumpster) to be sited on an expanded portion of the OUC Chiller Plant site (+/-0.23 ac.). Per a transportation analysis by the applicant, the dumpster location allows adequate turning radius for solid waste pick-up trucks. The dumpster enclosure will also have to meet design and location requirements of the City Solid Waste Division. Underground retention will primarily be sited in the northern (buffer/courtyard) area of the OURM site. Limited vehicular access to the property from the W. Anderson Street driveway will be shared with the OUC Chiller Plant. The current driveway security gate along Anderson Street will remain. Internal fencing shall be modified and be consistent with the site plan shown on page 26. The OUC parking area will not be used by OURM. A joint-use agreement will be provided no later than submission for final site plan review, detailing the nature and extent of the shared access and use of the western portion of the OUC Chiller Plant site. OURM operates two twelve-passenger vans and one fourteen-passenger bus. With these vehicles OURM provides limited transportation services to the men in the various programs. OURM does not provide transportation to places of employment. Outside of this service, all program guests must find their own transportation to and from the facility. In addition to public transportation, bicycles are a major transportation mode for OURM program guests. The site plan accommodates a minimum of 60 bikes in racks along the north face of the building. The project site is also close to several Lynx bus routes. ii) Parking The proposed public benefit use has no vehicular or bike parking requirements as detailed under Chapter 61 (Roadway Design and Access Management). Staff has discussed the site s parking needs with the applicant. A +/-0.13 ac. site, owned by the City of Orlando, due west of the site, will be used for temporary parking (603 W. Anderson St., 605 W. Anderson St. and 460 S. Terry Ave.) This parking will be processed separately from the Conditional Use Permit, through the temporary use permit process. The parking lot shall have an ingress only driveway onto Terry Ave. at the north end of the parcels. There shall be an egress only driveway onto Anderson St. at the south end of the subject parcels. Approximately, twelve (12) spaces will accommodate employee and van/bus parking. All other parking will be off-site. There is also a possibility that the future re-alignment of S. Terry Avenue to the west, as contemplated in the Parramore Comprehensive Neighborhood Plan, will facilitate the re-location of the proposed temporary parking to a permanent location on the west side of the building, through the vacation of a portion of S. Terry Avenue. This possibility will only become available once the final alignment of the I-4/SR408 interchange and ponds have been completed. iii) Streetscape and Buffering Area improvements will include perimeter streetscapes along W. Anderson Street and S. Terry Avenue consistent with the standards of downtown Orlando and responsive to the adjacent properties. This includes specified minimum sidewalk widths along W. Anderson Street and S. Terry Avenue, ADA intersection crossings, street trees and landscaping, acorn street lights and other furnishings typically associated with Orlando s streetscapes appropriate to this setting. Additional building setback and streetscape/ buffer information is described in the table on the next page. Please also see page 25 for the landscape plan and street cross-sections.

20 Page 20 GMP , ZON , & CUP Orlando Union Rescue Mission Use or Phase Public Benefit Use Yard Table 3 Setback and Landscaping Requirements Building Setbacks Min. Required* Front S. Terry Avenue 13 ft. No bufferyard required Side North property line 24 ft.** Bufferyard B Street-side- W. Anderson St. Rear East property line 16 ft. No Bufferyard Required 10 ft. No Bufferyard Required Landscaping/Buffers Proposed** 7.0 ft. parkway strip from back-of-curb with a 5 ft. sidewalk and 3 ft. of landscape 10 ft. wide landscape buffer with 6 ft. tall CPTED fence or wall with canopy trees and hedge. Fence or wall setback 7.5 ft. from property line. Building setback 14 ft. from south edge of buffer. 6 ft. sidewalk on back-of-curb with a 16.3 ft. planting strip with street trees between the building and sidewalk. 10 ft. wide landscape buffer with 3 ft. hedge and 3 to 4 canopy trees; sidewalk connection to dumpster enclosure. *Required: Dimensions refer to range of acceptable buffer depth; each requires plantings and/or screen wall. Setbacks and Buffers were specifically developed for this site. ** See Urban Design Conditions Other Matters: Urban Design, Signage, Special Events and Public Meetings Urban Design Oriented to S. Terry Avenue and W. Anderson Street, the two story building will incorporate residential and traditional architectural features consistent with the residential character of the area, as opposed to the modern aesthetic found in the surrounding public buildings such as the Amway Center and Geico Garage. The proposed Spanish Colonial architectural style will be compatible with a residential neighborhood. Architectural elevations show Traditional City design features such as architectural fenestration on the ground floor to provide a pedestrian scale at the ground level. The proposed courtyard, with a maximum 7 ft. high wall, also includes consistent architectural treatments. Blank wall space has been minimized through the use of windows, building articulations, and other elements at appropriate locations. (See Elevation Exhibits 4.2a-d) To address inconsistencies between the floor plans and elevations, a Planning Official Determination shall be required at time of final site plan review. Building Height, Proposed Cross and Signage The existing OURM has an historic/iconic architectural sign incorporating a cross, which functions similar to a church spire. This sign is designated as a local landmark, but the code allows landmarked signs to be removed through the Certificate of Appropriateness process (Sec ). Due to the age and condition of the sign it will not be moved to the proposed site but rather re-created using modern materials and lighting. It is anticipated that the new cross may be up to 15 feet tall, in addition to the height of the 2-story building, for a total approximate height of 54 ft. It is also anticipated that a wall sign will also be sited along S. Terry Avenue. A sign plan (package) will be submitted as Planning Official Determination and be evaluated consistent with requirements in Chapter 64. The proposed cross may be treated as an architectural feature and may include lighting. If it includes text, it will be treated as a recreation of a historic roof sign.

21 Page 21 GMP , ZON , & CUP Orlando Union Rescue Mission OURM Building Perspective-Exhibit 4.3 Special Events OURM hosts 3-4 outreach banquets a year for the homeless and others in need that do not reside within the OURM facilities. Though many of the guests at these special events will be on foot and utilizing public transportation, there will still be a need for parking beyond which OURM can accommodate on site. During these special events OURM will partner with nearby churches, the City, and the Amway Center to provide adequate parking and minimize impacts to the neighborhood. Public Meetings This case was first deferred, by the applicant, from the September 21, 2015 Municipal Planning Board (MPB) meeting, since more time was needed to design the project and better understand the public s concerns. Since that time comprehensive plans have been developed, which provide more detailed information as to how the project will look and function. A public meeting was held on December 7, At this meeting presentations were made and feedback and comment from the public were received. Notices were mailed to property owners within 300 ft. of the property during the week of December 1, A notice was also placed in the Orlando Sentinel newspaper and a MPB meeting notification board was posted on the site to announce the project moving forward to the December 15th MPB meeting. As of the mail-out of the staff report, staff has received both written and oral comments, both in support and against, this project.

22 Page 22 GMP , ZON , & CUP Orlando Union Rescue Mission P H O T O S OF SITE AND SUBJECT A R E A View looking east along W. Anderson Street, building site in mid-distance. Another view looking east along W. Anderson Street,. Site is to the left and the E-W Expressway Off-Ramp is to the right. View looking south along Chapman Ct. cul-de-sac at subject site in far distance. View looking south-east along Chapman Ct. cul-de-sac at Chiller Plant. View of undeveloped portion of the site to the left and the existing OUC Chiller Plant entrance.

23 Page 23 GMP , ZON , & CUP Orlando Union Rescue P H O T O S OF SITE AND SUBJECT A R E A Google View of Chiller Plant from W. Anderson Street Google View of the Corner of W. Anderson Street and S. Terry Avenue, which will be the future temporary parking area.

24 ft. W. Anderson Street Page 24 GMP , ZON , & CUP Orlando Union Rescue Mission Portion of Site Survey Temporary Parking Area S. Terry Avenue Vehicular Entrance to Chiller Plant Site And the Proposed OURM site Future Land Use Map (FLU) Amendment Area is outlined in RED Conditional Use Permit (CUP) Boundary is Outlined in Blue ft. Access Only -no parking by the Orlando Union Rescue Mission. Chapman Ct. OUC Parking OUC Chiller Plant

25 Page 25 GMP , ZON , & CUP Orlando Union Rescue Mission Landscape Plan Street Section Of West Anderson St. Exhibit 3.9 ROW Line Street Section of South Terry Ave. Exhibit 3.10 ROW Line

26 Program Guest Pedestrian/Bike Gated Entrance Main Public/ Employee Entrance General Location of Temporary Parking Area- (12 spaces) E General Underground Retention Area B General Location of Lynx Bus Stop E E P No Access from Chapman Ct. Back of House Bus Drop off/pick Up Area Dumpster Page 26 GMP , ZON , & CUP Orlando Union Rescue Mission Site Plan P

27 DRAFT P a g e 2 7 G MP , ZO N , & C UP O rl a n do U n i on R esc u e Mi s si on Elevations Western Elevation Showing Public Entry Along S. Terry Avenue 54 ft ft. 39 ft. 16 ft. Southern Elevation Along W. Anderson Street 54 ft ft. 39 ft. Courtyard Wall Note: No double door entry from this area. Entrance from the eastern side. Eastern Elevation Facing the OUC Site Note: Ironwork is representative only. NOTES: Courtyard wall will not exceed 7 ft. in height nor have openings to the north. There will be only one, single door emergency egress from the bunk area on the north-side of building. Northern Elevation

28 50 beds 40 Beds Lobby Bathoom Luggage/Laundry Rooms Bathoom Offices/Conference Room NOTE: Up to 90 guests on the lower floor. Guest Waiting Multi-purpose Room Dining Night Manager Room Kitchen Lobby Office Living Utility/Service Page 28 GMP , ZON , & CUP Orlando Union Rescue Mission Floor Plan-Level 1

29 Suite Lobby Offices Bathroom Suites TV Room TV Room TV Room TV Room Lounge Classrooms NOTE: Up to 60 guests on the upper floor. Bathroom Lobby Office Living Page 29 GMP , ZON , & CUP Orlando Union Rescue Mission Floor Plan-Level 2 TV Rooms Suites