Staff Report to the Municipal Planning Board June 21, 2016 MPL2016-00024 Item #13 GRAND NATIONAL REDEVELOPMENT 5504 W. OAK RIDGE RD. Prime Outlets Mall ADRIANA AVE. Bass Pro Shoppes Outlet Marketplace Artegon Mall FUN SPOT WY. Location Map Subject Site S UMMARY Applicant Mark Turner, VP North American Props. SE Owner Douglas Hoeksema, Pres. Douglas Grand Intnl., LP Project Planner Jim Burnett, AICP Updated: June 14, 2016 Property Location: 5504 W. Oak Ridge Rd. (south side of W. Oak Ridge Rd., east of Adriana Ave., north of Altamira Dr. and west of International Dr.) (Parcel #s 19-23-29-2846-00-010 & - 020, 19-23-29-2843-00-010 & -022; ±16.55 acres, District 6). Applicant s Request: The applicant is requesting framework Master Plan approval for a mixed use development consisting of 130,000 sq. ft. of retail, 20,000 sq. ft. of medical facilities, 800 hotel rooms, and a 350-unit apartment complex on the property. The property is located in the N. International Drive neighborhood. Staff Recommendation: Approval of the framework Master Plan, per the conditions in the staff report. Public Comment: Courtesy notices were mailed to property owners within 300 ft. of the subject property the week of June 6, 2016. As of the distribution of the staff report, staff has received no comments from the public relative to the framework Master Plan request.
Page 2 FUTURE LAND USE MAP Prime Outlets Mall ADRIANA AVE. SUBJECT PROPERTY INTERNATIONAL DR. Bass Pro Shoppes Outlet Marketplace Artegon Mall Z ONING MAP AC-3/MA Prime Outlets Mall ADRIANA AVE. SUBJECT PROPERTY INTERNATIONAL DR. Bass Pro Shoppes Outlet Marketplace Artegon Mall
Page 3 P ROJECT ANALYSIS Project Description The applicant is requesting framework Master Plan approval for a mixed use development consisting of 130,000 sq. ft. of retail, 20,000 sq. ft. of medical facilities, 800 hotel rooms, and a 350-unit apartment complex on the 16.55-acre property located in the N. International Drive neighborhood. Previous Actions 1968: Bulk of Florida Realty (Florida Center) property annexed into the City and Developers Agreement approved. 1973: Subject property annexed into the City of Orlando (City Doc. #41361). 1980: Vested Rights Letter issued by State of Florida 1992: Property platted as part of Replat of Lot 2 Florida Center Oak Ridge Rd. International Dr. Dev. Area Plat No. 7. 10/1996: Vested Rights Settlement Agreement approved, allocating 5,290 average daily trips (ADT) to the total property. 1998: Portions of property replatted. 2006: Property acquired by current owner; Master Plan (MPL2006-00028, Douglas Grand) approved to allow mixed use development consisting of 100,000 sq. ft. of ground level commercial/retail, 800 hotel units and 1,750 multi -family or timeshare units, with a revised alternative Concurrency Management Resolution; MPL expired 2008 (no building permits applied for or issued). Project Context The property is on the south side of W. Oak Ridge Rd., east of Adriana Ave., north of Altamira Dr. and west of N. International Dr. Adjacent uses, zoning and future land use designations are shown in Table 1 below. Direction Future Land Use Zoning Adjacent Uses North (Across Oak Ridge Rd.) Metropolitan Activity Center (MET-AC) T ABLE 1 - PROJECT CONTEXT AC-3/SP (Metropolitan Activity Center, International Dr. Special Plan Overlay) Prime Outlets Mall East MET-AC AC-3/SP Retail Stores & Restaurants South (Across Altamira Dr.) MET-AC AC-3/SP Outlet Marketplace West (Across Adriana Ave.) MET-AC AC-3/SP Powerline Easement Master Plan Criteria (Land Development Code (LDC) Section 65.335) The Municipal Planning Board and City Council shall consider the following factors in their review of framework Master Plan applications: 1. Purpose and Intent. The purpose and intent of the use and all other requirements of the LDC. 2. Growth Management Plan (GMP). The consistency of the proposal with all applicable policies of the City's adopted GMP. 3. Use and District Requirements. The proposal must conform to the requirements of the zoning district(s) in which it is located and, where applicable, to the requirements of Chapter 58 for the particular use or activity under consideration. 4. Performance and Design Regulations. The proposal must conform to all applicable performance and design regulations of LDC Chapters 58, 60, 61, and 62. 5. Public Facilities and Services. Will 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. Conformance with Growth Management Plan and Zoning The property is designated Metropolitan Activity Center on the City s Future Land Use Map and is zoned AC-3/SP (Metropolitan Activity Center, N. International Drive Special Plan Overlay). The uses proposed within the new devel-
Page 4 opment plan are all permitted uses in the AC-3/SP zoning district. The multiple uses and phased nature of the proposed development requires framework Master Plan approval, with subsequent Specific Parcel Master Plan (SPMP) approval as each phase is better defined. Property development standards are provided in Table 2 below. Proposed Use 130,000 sq. ft. of retail, 20,000 sq. ft. of medical facilities, 800 hotel rooms, and a 350-unit apartment complex Table 2 - Development Standards (AC-3/SP zoning) Lot Size (acres) Front (N) (W. Oak Ridge Rd.) Setbacks (Minimum) (ft.) Street Side (W) (Adriana Ave.) Max. FAR & Density ISR Building Height N. International Dr. Special Plan (SP) Overlay - The site is in the N. International Drive Special Plan Overlay (LDC Section 62.496), in which W. Oak Ridge Rd. is considered a Pedestrian Street and requires increased front and side setbacks (different than regular AC-3 zoning). Adriana Ave. and Altamira Dr. are Vehicular Streets. There is no maximum Floor Area Ratio (FAR) within the overlay district, but staff has previously determined that FAR is maxed at the upper 3.0 FAR limit under the Metropolitan Activity Center (MET-AC) Future Land Use designation. Additional SP overlay requirements include: Screening of outdoor service areas Landscaping of required pedestrian walkways Increased buffers and tree plantings Building orientation toward the street Enhanced sign standards (to promote fewer signs and shared driveway accesses) The proposed Grand National Framework Master Plan is consistent with the GMP and Land Development Code. Transportation The site will be primarily accessed from W. Oak Ridge Rd., which connects to Grand National Dr. to the west and to N. International Dr. to the east. The site will also have direct access to Adriana Ave. and to Altamira Ave., and will have several cross-access points to existing developed retail and restaurant sites to the east. Cross-access will be provided throughout the development, with many of the proposed uses fronting an internal north-south Main Street and an east-west drive. The overall site will be connected by sidewalks throughout and also connected to all peripheral streets. Parking. Per LDC Section 61.322, Figure 27, the proposed development will require a minimum 1,131 parking spaces, based on a total 514,000 sq. ft. of retail/restaurant space, medical office space and 800 hotel rooms, plus 350 apartment units. On-site parking will be provided in several parking garages with limited surface parking, including parking along the Main Street and on all sides of the retail buildings. The proposed mixed use development is adequately parked as proposed, with final details to be provided at time of individual Specific Parcel Master Plan (SPMP) reviews for each phase. Urban Design No vertical design schematics were provided for the proposed framework Master Plan. The proposed hotels and multi-family use and their attendant parking structures will be anchors for the new development, with several retail buildings located along the Main Street and W. Oak Ridge Rd. (across from the Prime Outlets Mall). As previously noted, the project will include interior sidewalks that will extend out to adjacent streets to tie into existing or new sidewalks. A wider multi-purpose extension of the Shingle Creek trail will be located adjacent to W. Oak Ridge Rd. The hotels and multi-family apartments will each have pools or other amenities. Staff is requesting that additional green space Side (E) Rear (S) (Altamira Dr.) Minimum Requirements none 10* 10* 0 or 3 10 Proposed Uses ±16.55 (to be determined at time of individual SPMPs) 3.0 FAR* 200 du/ac* 0.51 FAR 21.2 du/ac *Maximum intensity, density and building height are further regulated by the N. International Dr. SP Overlay. 90% 200 ft.* TBD TBD
Page 5 be provided, perhaps as an added amenity for the shoppers and tenant uses. Buffers & Landscaping. The proposed Grand National Development abuts existing retail and restaurant uses to the north, east and south. Required minimum buffers and landscaping are provided in Table 3 above. Required landscaping will be reviewed with each SPMP as phases are proposed, in accordance with LDC Chapter 60 and LDC Section 62.496. A master landscaping and hardscaping plan should be prepared to ensure continuity throughout the overall development. Solid Waste enclosures will be identified when each SPMP is reviewed. It is likely that solid waste areas will be included in the ground floors of the parking garages, which will serve to buffer those uses from view from adjacent uses and streets. Signage. Allowed sign area for the overall development will be based on building frontages facing W. Oak Ridge Rd., Adriana Ave. and Altamira Dr., and along the Main Street and east-west drive if shown on the required replat of the property. It is likely that the proposed hotels and multi-family use will want high-rise signs, for added visibility from adjacent streets including Grand National and International Drs. Per LDC Section 64.246, the use of high-rise signs will reduce the total sign area of each SPMP, especially if developed and owned as separate parcels. Staff recommends that a sign master plan be prepared and approved via Planning Official Determination prior to the initial phase of development within the overall Master Plan, to ensure a unified sign theme throughout the development. Specific sign criteria within the N. I Drive SP Overlay are located at the end of LDC Section 62.496. School Impacts - The proposed uses within the Master Plan that are commercial in nature won t have school concurrency or capacity issues. There is adequate capacity at area schools for the proposed 350- unit multi-family use, but that use is subject to School Concurrency and must have an executed Concurrency Mitigation Agreement prior to City Commission approval of the SPMP for the multi-family use. Multi-use Retail, Medical Office, Hotel & Multi-Family Development Table 3 Buffers & Landscaping (AC-3/SP) Front (W. Oak Ridge) Street Side (Adriana) Side (east) Rear (S) (Altamira) Abutting Uses Roadway Roadway Commercial Uses Roadway Minimum Reqd. 7.5 ft. depth 7.5 ft. depth 7.5 ft. depth 7.5 ft. depth Proposed TO BE DETERMINED AT TIME OF INDIVIDUAL SPMP Adriana Ave. W. Oak Ridge Rd. SUBJECT PROPERTY 2016 SURVEY International Dr.
Page 6 S ITE P HOTOS Existing entry onto proposed Grand National site on W. Oak Ridge Rd., looking southeast. Existing entry onto proposed Grand National site on W. Oak Ridge Rd., looking south. Existing rear entry onto proposed Grand National site off Altamira Dr., looking northeast. Looking west on W. Oak Ridge Rd. (subject property on the left).
Page 7 A ERIAL PHOTO Prime Outlets Mall Bass Pro Shoppes SUBJECT PROPERTY Artegon Mall W. OAK RIDGE RD. S ITE PLAN ADRIANA AVE. N. International Dr. As a framework Master Plan, each parcel will require Municipal Planning Board (MPB) review and approval of a Specific Parcel Master Plan (SPMP). The framework plan is conceptual and may be altered during the individual SPMP process(es).
Page 8 F RAMEWORK PAVING PLAN Extended Shingle Creek Trail Cross-access to International Dr. Cross-access to International Dr.
Page 9 M ASTER LANDSCAPE PLAN Extended Shingle Creek Trail In addition to a unified landscape plan, staff recommends that a unified streetscape/hardscaping element be incorporated into the overall framework Master Plan.
Page 10 F INDINGS Staff finds that the framework Master Plan for the Grand National Redevelopment is consistent with the requirements for approval of a framework Master Plan application as contained in Section 65.335 of the Land Development Code (LDC): 1. The proposed framework Master Plan is consistent with the City s Growth Management Plan. 2. The proposed framework Master Plan is consistent with the City s Land Development Code. 3. The proposed framework Master Plan meets the standards for development in the AC-3/SP zoning district. 4. Existing public facilities and services are adequate to serve the proposed redevelopment. Staff Recommendation Based on the information provided in the staff report and the findings noted above, staff recommends approval of the framework Master Plan for the Grand National Redevelopment, per the conditions in the staff report. C ONDITIONS OF APPROVAL - REQUIRED Land Development 1. Impervious Surface Ratio (ISR) - ISR is limited to 90% per LDC Figure FIG-1C.LDC. 2. Floor Area Ratio (FAR) - Maximum FAR must not exceed 3.0, per the corresponding MET-AC Future Land Use designation (there is no maximum FAR within the AC-3/SP zoning district). 3. Parking - Based on the proposed development program presented within this report, there must be a minimum 1,131 parking spaces for the proposed mixed use development. This figure may fluctuate during each SPMP review, depending on the end product for each phase. 4. Building Height - Building heights exceeding 200 ft. in height must receive FAA or GOAA approval. Building heights will be reviewed with each Specific Parcel Master Plan (SPMP). 5. Signs - Maximum sign area for the site must be based on building frontages on adjacent and interior streets, if platted as such. High-rise signs are allowed on buildings but are prohibited on parking garages. Roof, digital and electronic message centers are also prohibited. All new signs must receive permits prior to fabrication and installation. A sign master plan must be submitted and approved via Planning Official Determination prior to any signs being erected on the property. 6. Buffers - Minimum 7.5 ft. deep vehicular use buffers are required on the front, street side, rear and east side of the property. A master landscaping & hardscaping plan must be provided prior to any landscaping or hardscaping being placed within the development. 7. Specific Parcel Master Plan (SPMP) - Each parcel or use shall require Specific Parcel Master Plan (SPMP) review and approval by the Municipal Planning Board (MPB) prior to securing permits. If the project satisfies the requirements of LDC Section 65.331(c), Criteria for Administrative Master Plan, then those specific parcels or phases may be entitled to administrative review and approval of an Administrative Master Plan by the Planning Official. 8. Consistency - Unless amended by any conditions found herein or any modifications recommended by the MPB and approved by City Council, this project must be developed only as described and conditioned within this report and in accordance with the attached framework site plan and any other plans or commitments provided in the application package. Any changes in the use of the site or the site plan as provided herein may require an amendment to the project and review by the MPB and City Council (see "Minor Modifications" condition below.) This approval is not transferable to another property. All other applicable state or federal permits must be obtained before commencing development of any phase of this project. 9. Minor Modifications - Minor modifications to the project, including changes to the design and site plan reviewed by the Municipal Planning Board or City Council, may be approved by the Planning Official without further review by the Municipal Planning Board. Major changes will require additional review by the Municipal Planning Board. 10. Master Plan Expiration - Upon approval of the framework Master Plan by City Council, a building permit must be obtained for the initial phase of development within two (2) years of approval of the Master Plan, or the Master Plan will expire (the applicant would then need to apply for a new Master Plan). If a building permit for the work requiring the Master Plan expires before a certificate of occupancy (CO) or certificate of completion (CC) is issued for the work requiring said Master Plan, then the Master Plan is no longer valid and the applicant must ap-
Page 11 C ONDITIONS OF APPROVAL - REQUIRED (CONT D ) ply for a new Master Plan. However, the Planning Official may extend the time limit for the Master Plan for one period of up to 12 months for good cause shown, upon written application filed 30 days prior to the expiration date of said Master Plan. Urban Design 1. Oakridge Shingle Creek Connection - There is a need to connect the bike trail to the Shingle Creek Trail (in front of Artegon along Oakridge Rd) to the Grand National overpass. An enhanced sidewalk dimension of 10-ft is needed. 2. Infrastructure/Driveway Phasing - Provide a phasing plan, with a maximum of 2 phases, for the construction of the spine roads and adjacent walkways. 3. Appearance Review - An appearance review is required prior to permitting for all buildings; schematic review shall occur at Specific Parcel Master Plan for each phase of development. 4. Pedestrian Routes. Ensure that the project has pedestrian routes between each phase and the corners of the property(s) such that pedestrian routes can be the most direct to surrounding development; show these points of pedestrian access on the conceptual site plan. 5. Landscaping Buffers. Bufferyards that are required by the code between the multi-family uses and surrounding commercial uses should be dimensioned on the site plan, as well as any other required bufferyards for perimeter parking lot landscaping. Shade coverage for bufferyards must equate to 80% shade converage according to the City s landscaping code. 6. Cross-Walk Treatments. Provide a more defined cross-walk (where the materials of the sidewalk are brought through the vehicular drive aisles) for the main entrance of the site along Oakridge Road. Additionally, follow modern roundabout standards for the roundabout cross-walk place, with similar material treatments (ie. one vehicular space between the entrance of the roundabout and the crosswalk, deflected turns at the entrance to the roundabout, mountable curbs for the center of the roundabout to accommodate fire apparatus, etc. 7. Walkway connection. Interior walkways along the southern east-west drive must be extended to the eastern property line. Transportation Engineering 1. All two-way internal streets must be designed with 24-ft. of asphalt roadway between the curb and gutter. The gutter must not be included in the traveled way. 2. The minimum roadway width of the one-way traveled ways within Oak Ridge Rd, at the Oak Ridge Rd. intersection, must be 22-ft. (wide) to allow for a minimum of two lanes approaching Oak Ridge Rd. If this entrance is signalized, the approach must be straight, not curved. If this approach is access controlled with a directional median opening, the one-way roadway may be narrowed to 20-ft. width. 3. Auto-turn analysis must be performed to demonstrate the maneuverability of the designed freight, transit, and emergency vehicle, through the internal streets and the roundabout. The minimum corner radius of the project driveways must be 25 ft. and internal streets must be 20 ft. The designed emergency vehicle must be the largest fire truck apparatus used by the City. 4. The internal access points along the internal streets must be aligned as much as possible. The eastern end of the east-west street must be aligned with the existing street. 5. All project entrances must be aligned with existing driveways or offset by a minimum of 200 ft. 6. The Hotel drop-off must be sized to accommodate at least 4 passenger vehicles or the expected design drop-off volume, whichever is greater. 7. Oak Ridge Rd. (along the site frontage) must be widened to the east toward International Dr. as part of this project, to continue the cross section proposed by the I-4 Ultimate project. This roadway section includes a 4-ft.wide bike lane and two (2) 11-ft. travel lanes in each direction, separated by a 16-ft. wide raised median. City staff requires that the developer work with FDOT to provide an updated site plan that incorporates the most recent version of the FDOT improvements, including the shift in the curb line on the south side of Oak Ridge Road. 8. Cross access easements to the parcel to the east must be provided and shown on the face of the plat and on all construction drawings submitted to the City for permitting. 9. Curb cuts must meet Code-mandated minimum distance requirements.
Page 12 R EQUIRED CONDITIONS (CONTINUED) 10. Curb cuts that will no longer be utilized must be removed and the curb reconstructed to City Standards. 11. Pedestrian connections in the form of sidewalks must be provided along proposed framework streets. Transportation Impact Fees 1. Any new construction, change in use, addition, or redevelopment of a site or structure is subject to a review for Transportation Impact Fees. Estimated Transportation Impact Fees in the amount as shown on the following table will be due at the time of building permit issuance, subject to change upon final permit plan review. Credit for previously paid impact fees will be reviewed at time of final permit plan review. For a copy of the ordinance or impact fee rate chart, you may reference our website at: www.cityoforlando.net/planning/transportation/ifees.htm. Land Use Sq ft / Units Current Rate Fee Due Retail - Commercial 130,000 sf $5,591/1000 sf $654,147.00 Medical Office 20,000 sf $11,919/1000 sf $214,542.00 Hotel 800 rooms $2533/unit $2,026,400.00 Multi-family Residential 350 units $2527/unit $884,450.00 Impact Fee Estimate: $3,779,539.00 2. The applicant must comply with all applicable requirements of Chapter 59, the Concurrency Management Ordinance, to ensure that all public facilities and services are available concurrent with the proposed development, and that the potential impacts on public facilities and services are mitigated. All new construction, changes in use, additions or redevelopment are required to submit a Concurrency Management application as a part of the building plan review process. A Concurrency Management application is available on the City's website at: http://www.cityoforlando.net/permits/forms/concurrency.htm. Families, Parks & Recreation & Growth Management Recreation amenities must be provided for the proposed multi-family development. The site is located in Neighborhood Park Special Plan Area G, where citizen recreational needs must typically be met on site. Thus, a total of 0.53 acres of recreation area is required, if a multi-family development occurs. The applicant must demonstrate that adequate recreation space exists, identify location(s) and it must be developed at time of issuance of the initial apartment infrastructure permit. Police Distributed Antenna Systems (DAS): All buildings shall provide an adequate level of indoor coverage for publicsafety radio service for the City of Orlando radio communications system, including but not limited to police, firefighters, and other emergency responders. A DAS system will also improve commercial cellular service for building occupants. The system will enable all first responders to communicate with dispatch and other field units. Inadequate coverage not only puts first responders at risk but also the citizens they are protecting. Adequate indoor radio coverage shall include the following standards: 1) Inbound into the building: A minimum average in-building field strength of 10 dbm above the noise floor throughout ninety-five (95%) of the area on each floor of the building when transmitted from the city s police dispatch center and the appropriate emergency service dispatch centers which are providing fire and emergency medical protection service to the building. 2) Outbound from the building: A minimum average outbound field strength of 10 dbm above the noise floor throughout ninety-five percent (95%) of the area on each floor of the building when transmitted from the field units portable radio to the appropriate emergency service dispatch centers which are providing fire and emergency medical protection service to the building. 3) The City s Communications Unit with consideration of the appropriate police, fire and emergency medical department services shall determine the frequency range or ranges that must be supported. For the purpose of this section, adequate radio coverage shall constitute a successful communications test between the equipment in the building and the Communications Centers for all appropriate emergency service providers for the building.
Page 13 R EQUIRED CONDITIONS (CONTINUED) 4) If any part of the installed system or systems contains an electrically powered component, the system shall be capable of an independent battery or generator system for a period of at least twelve hours without external power input or maintenance. The battery system shall automatically charge in the presence of external power. 5) FCC authorization: All amplification equipment must be FCC Type Accepted. 6) Developments must comply with NFPA 72-2010 National Fire alarm and Signaling Code, Public Safety In- Building Requirements, as it pertains to emergency communications systems (ECS), and their components. If you have any questions regarding the requirements as listed above, it is suggested that you contact the OPD Radio Systems Administrator, Rebecca Gregory at 321.235.5314 or Rebecca.gregory@cityoforlando.net. The OPD Technical Review Committee representative, Audra Nordaby 407.246.2454, can also assist the applicant in contacting the Emergency Communication representatives. INFORMATIONAL COMMENTS Police CPTED Review - The Orlando Police Department reviewed the plan for the proposed Carvana Auto Sales use, to be off Rio Vista Ave., utilizing CPTED (Crime Prevention Through Environmental Design) principles, which emphasizes the proper design and effective use of the built environment to reduce crime and enhance the quality of life. The four (4) overlapping strategies in CPTED that apply to any development are Natural Surveillance, Natural Access Control, Territorial Reinforcement and Target Hardening. The case project planner will forward the CPTED comments to the applicant. CONTACT INFORMATION Land Development Contact Jim Burnett, Planner III, at 407-246-3609 or at james.burnett@cityoforlando.net. Transportation Engineering Contact Lauren Torres at 407-246-3220 or at lauren.torres@cityoforlando.net. Transportation Impact Fees Contact Nancy Jurus-Ottini at 407-246-3529 or at nancy.ottini@cityoforlando.net. Urban Design Contact Terrence Miller at 407-246-3292 or at terrence.miller@cityoforlando.net. Police Contact Audra Nordaby at 407-246-2454 or at audra.nordaby@cityoforlando.net. Families Parks & Recreation Contact Denise Riccio at 407-246-4249 or at denise.riccio@cityoforlando.net. Growth Management Contact Mary-Stewart Droege at 407-246-3276 or at mary-stewart.droege@cityoforlando.net. R EVIEW/APPROVAL PROCESS-NEXT STEPS 1. Minutes from the June 21, 2016 MPB meeting are scheduled for review and approval by City Council on Mon. July 25, 2016. 2. Building permits for infrastructure may be submitted following the MPB meeting but cannot be approved until the City Council approves the June 2016 MPB meeting minutes.