Alachua County Development Review Committee Staff Report by grb15373

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									                             Alachua County
                       Development Review Committee
                                Staff Report
                       Project Number: 2009052601
       Preliminary Development Plan for Alachua County
           Fairgrounds and Resource Recovery Park
SUBJECT:                          Alachua County    Fairgrounds   and   Resource
                                  Recovery Park

DESCRIPTION:                      Public Fairgrounds and Resource Recovery Park,

AGENT/APPLICANT:                  Causseaux, Hewett & Walpole, Inc.

PROPERTY OWNER:                   Alachua County Board of County Commissioners

PROPERTY DESCRIPTION:

      Location: 6300 NE Waldo Road
      Parcel Numbers: 07872-003-002, 07872-003-003, 07872-003-005,
      07872-003-008, 07872-003-009
      Section/Township/Range: 13/09/20
      Land Use: Heavy Industrial
      Zoning: PD
      Acreage: 260

CHRONOLOGY:

      Application Submittal:                     05/26/2009
      Insufficiency Report Issued:               07/24/09, 11/04/09, 12/17/09
      Application Resubmittal:                   08/07/09, 11/09/09, 12/21/09
      Sufficiency Determination:                 01/06/2010
      Preliminary Development Plan Hearing:      01/26/2010

STAFF RECOMMENDATION:             Approval of the Preliminary Development Plan,
                                  Preliminary CLSC, and Section Line Setback
                                  Waiver

BOCC ACTION:                      TBD



Page 1 of 16                                      Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
DESCRIPTION OF PROPOSED PLAN:
The proposed Preliminary Development Plan implements the Planned Development
zoning for the Alachua County Fairgrounds and Resource Recovery Park. Located
along Northeast Waldo Road (see Exhibit 1 – Location Map), the project encompasses
both the development of the new Alachua County Fairgrounds and the Resource
Recovery Park, as well as the existing Leveda Brown Solid Waste Transfer Facility.
The Fairgrounds portion of the site is intended to include exhibition and performance
space, boardwalks, and parking areas consistent with its use as a public fairgrounds.
The Resource Recovery Park will include industrial buildings, infrastructure and parking
necessary to support development of industries that can take advantage of locating
near the existing solid waste transfer facility. The Resource Recovery Park will consist
of an additional 228,400 square feet of facilities over 41.76 acres at full build out.

The proposed Preliminary Development Plan for the entire Fairgrounds and Resource
Recovery Park delineates conservation and open space areas, general locations of
transportation infrastructure, locations for provision of utility infrastructure, and general
development areas. Development of the site will require application for a Final
Development Plan for a phase or portion of the development. Per the approved
phasing schedule, development of the site may occur over the next 10 years.

CONSISTENCY ANALYSIS:
Following is an analysis of the consistency of the proposed plan with the applicable
policies of the Comprehensive Plan and Land Development Regulations.

COMPREHENSIVE PLAN:
FUTURE LAND USE ELEMENT
The Future Land Use designation for the subject property is Heavy Industrial.
Objective 4.1 of the Future Land Use Element specifically provides for a fairground
facility on parcels included as part of this application. The Policy specifically states

       Industrial land use categories shall be established to allow for a range of
       industrial activities, subject to the policies and standards contained in this
       Chapter. Industrial developments are characterized by the fabrication,
       manufacturing, transporting, warehousing or distribution of goods. In
       addition a fairground shall be authorized on that portion of Tax Parcels


Page 2 of 16                                               Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
       07872-003-002 and 07872-003-008 described in the Declaration of
       Covenants, Conditions and Restrictions recorded in Book 3598, Page
       1133 of the Official Records of Alachua County; fairground uses include
       agricultural, community-based or government-oriented activities, and to
       the extent any of these activities are commercial in nature, said activities
       shall not exceed a period greater than six (6) consecutive months.

The proposed Preliminary Development Plan is for a combined resource recovery
park/fairground. The resource recovery park is an extension of the existing Leveda
Brown Transfer Station. The waste related services are also allowed as a permitted use
in the Industrial land use designation. Policy 4.2.1 states that

       Industrial uses shall not be located adjacent to residential or agricultural
       areas without adequate buffering or integrating design and business
       practices to eliminate or minimize adverse impacts. Land use decisions
       concerning location of industrial uses shall take into consideration
       environmental justice.

Properties to the south (located in the City of Gainesville) have a similar Future Land
Use designation. The Leveda Brown Station is an existing use. Adverse impacts from
this operation are minimal. The proposed Resource Recovery Park facilities are meant
to enhance solid waste recovery operations now undertaken by the County at the
Leveda Brown site. An example would be an expansion of recycling operation presently
done at Leveda Brown. While this property more than doubles the size of the Leveda
Brown site, it will not introduce new operations. Instead, it will allow similar operations
in expanded facilities. As such, the expansion is not anticipated to create additional
adverse impacts.

Policy 4.3.1 states that “Industrial facilities in urban clusters shall group together in
planned industrial districts on sites capable of being expanded and developed in stages.
Criteria for permitting industrial development shall include but are not limited to:

               a.    topography and soils--land having stable, well-drained soils, free
                     from flooding;

               b.    climate--prevailing wind direction that does not impact adjacent
                     residential areas;

               c.    accessibility--access to arterials and highways and, where possible,
                     rail facilities;


Page 3 of 16                                              Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
               d.     utilities--availability of water, sewer, electricity or natural gas in
                      adequate quantities;

               e.     size--large enough for proper site design.

The proposed application would group the proposed development in a non-residential
planned development (PD) district. The 260 acre site has soils suitable for the
proposed development. It is directly accessible to Waldo Road, a 4 lane arterial with
adequate capacity for the proposed development. Levels of Service are adequate to
handle the proposed development. The 260 acre site is large enough to handle the
proposed site design, including open space, conservation management areas and
public roadway/easements.

Policy 4.3.2 states that Industrial sites shall be designed to provide for:

               a.     adequate off-street parking to meet the needs of the operation;

               b.     adequate buffering along roadways and adjacent uses to minimize
                      the effects of lighting, noise and signing.

As previously stated, extensive buffering in the form of conservation management areas
are proposed along the southern and eastern parcel boundaries. These areas will act
to minimize impacts from lighting, noise and signs on surrounding properties. Roadway
buffers are also proposed along Northeast Waldo Road and Northeast 69th Avenue. In
addition, all development will be required to comply with the Alachua County ULDC,
which requires all new development plans to demonstrate that glare from development
spilling over onto adjoining properties will be limited.

Policy 4.4.1 of the Future Land Use Element states that Industrial development shall be
located only in areas where adequate facilities and services exist or will be provided
prior to occupancy. These facilities include, but are not limited to:

       a. roadways.

       b. fire service.

       c. water supply.

       d. street lighting.



Page 4 of 16                                              Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
       e. solid waste collection and disposal.

       f. sewage collection and disposal.

       g. storm water drainage and disposal.

       h. emergency medical service.

Policy 4.4.2 also states that New industrial development shall meet all of the
requirements for adequate facilities based on the level of service standards for those
facilities and concurrency provisions of the Plan.

As shown in the level of service section of the staff report, adequate public infrastructure
exists to serve the proposed development. There is adequate roadway capacity and
emergency services are adequate to serve the site. Solid waste as well as central
water and sewer all are adequate to serve the proposed development.

UNIFIED LAND DEVELOPMENT CODE:
ZONING DISTRICT
The subject property carries Planned Development (PD) zoning. The approved Zoning
Master Plan (Exhibit 4 – Zoning Master Plan) identifies areas for the Fairgrounds,
Resource Recovery Park, and Conservation Management Areas. The Preliminary
Development Plan is consistent with the approved Zoning Master Plan. The Preliminary
Development Plan identifies appropriate access, as well as locations for provision of
utilities to the two sites, and satisfies all conditions of the approved Zoning Master Plan.

USE REGULATIONS
The proposed Preliminary Development Plan implements the Alachua County
Fairground and Resource Recovery Park Planned Development. This unified
Preliminary Development Plan provides for all conditions place upon the PD zoning and
is consistent with the approved Zoning Master Plan.




Page 5 of 16                                             Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
SPECIAL DISTRICT OR ACTIVITY CENTER PLANS
The subject property is not located in an Activity Center. The facility will not be affected
by any airport regulation overlays. The site is not subject to the Preservation Buffer
Overlay and is not located on any scenic roads.

ROADWAY CONCURRENCY

The proposed Preliminary Development Plan contains several different land uses with
varying levels of potential trip generation. The expansion of the Leveda Brown Facility
and the proposed Resource Recovery Park have trip generations consistent with the
following table:




The proposed fairgrounds expansion qualifies for an exception to concurrency as a
“development which poses only part-time demands” per Florida Statute 163.3180(5)(c)
and Section 4071.124(e) of the ULDC.

The Level of Service analysis on the impacted roadway network is as follows:




There is sufficient roadway capacity to accommodate the proposed Preliminary
Development Plan.



Page 6 of 16                                              Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
A Preliminary Certificate of Level of Service Compliance for roads will be issued with
approval of this development plan. The Preliminary Certificate of Level of Service
Compliance will be valid for the timeframes established by the phasing schedule
included in the Planned Development Zoning.

NATURAL AND HISTORIC RESOURCES PROTECTION
CONSERVATION AREAS

Multiple types of conservation resources exist on site. Included are wetlands, surface
waters, listed animal species habitat, and 100-year floodplain. Except for the Leveda
Brown facility, almost the entire site is currently covered by planted pine. The proposed
Preliminary Development Plan correctly identifies each of these conservation resources
and they are shown on the Preliminary Open Space Plan. The plan identifies that all of
the existing 36.48 acres of wetland will be preserved, along with 16.22 acres of wetland
buffer. All of the 0.16 acres of surface water will be preserved as will 0.49 acres of
buffer. A small impact to the surface water buffer is permitted to allow access internal to
the fairgrounds site. No impact will occur to the surface water itself. All of the 100-year
floodplain on the site will be preserved as it is located within wetlands.

The applicant has identified 95.0 acres of listed animal species habitat. The habitat is
associated with the gopher tortoise population on the site and its commensal species.
The Environmental Resource Inventory provided for the project has identified 565
active/potentially active gopher tortoise burrows. The number of individuals is not
known. Of the 95 acres identified as listed animal species habitat, the Preliminary
Development Plan identifies retention of 55.22 acres, or 58%.

Section 406.29(a) of the ULDC indicates that “no more than 25% of the upland portion
of a parcel may be required to be protected because it is or includes listed species
habitat unless the landowner provides consent.” Section 406.29(a)1 further identifies
that geologic features and their buffers and wetland and surface water buffers shall be
identified first. If these areas do not total 25% of the site, then the applicant and County
Staff shall work together to determine the most appropriate set aside.

The total site size for this project is 258.52 acres. The total amount of upland set aside
(wetland and surface water buffers and listed species habitat) is 71.93 acres. The
proposed Preliminary Development Plan identifies 27.8% of the upland portion of the
site as conservation area. This exceeds the maximum 25% required by the ULDC.




Page 7 of 16                                             Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
When including wetlands and surface waters, 108.57 acres of the site is shown as
conservation management area, or 42% of the total site.

In addition to the areas delineated on the Preliminary Development Plan a note is
included that allows for these areas to grow. At this time, the Plan shows what is
anticipated to be necessary to accommodate all of the Fairgrounds uses, as well as
parking. However, when the Final Development Plan for the Fairgrounds is submitted
the site may not require the full area. In that case, the amount of upland set aside for
listed species habitat could be increased.

CONSERVATION MANAGEMENT AREAS AND MANAGEMENT PLAN

Each of the listed conservation areas is protected in a Conservation Management Area
as required in Chapter 406 Article 17. A draft Conservation Management Plan has
been included consistent with Chapter 406 Article 20. The plan separately identifies
each of the conservation resources and provides for appropriate management
techniques. At Final Development Plan review, changes may be made to the
management plan to reflect site specific changes while retaining the techniques
developed in the draft.

AVOIDANCE, MINIMIZATION, AND MITIGATION

The proposed Preliminary Development Plan has avoided impact to upland
conservation resources as designated in Chapter 406 Articles 3, 4, and 5. All wetland
and surface water impacts have been avoided. Buffers have been provided around
wetlands and surface waters except where minimum width necessary to accommodate
efficient pedestrian, vehicular, and utility circulation on the site where no other route is
possible.

WILDFIRE MITIGATION

The Wildfire Mitigation and Preliminary Management plans contain options such as
defensible space and separation of structures. The use of firelines in specific areas,
thinning of existing planted pines, prescribed burning of habitat areas and other
techniques specific to this situation have been included in the revised version of the
Wildfire Management Plan. Any mitigation or pretreatment of Conservation
Management Areas should be coordinated with the Alachua County Department of
Environmental Protection. The Department of Public Safety recommends that some
language related to the use of fire resistant vegetation in landscaped areas be included
in the section on wildfire management techniques.


Page 8 of 16                                              Release Date: January 13, 2010
                      Alachua County
               Development Review Committee
                        Staff Report
GENERAL DEVELOPMENT STANDARDS
SETBACKS AND HEIGHT RESTRICTIONS

Section 407.03 of the ULDC requires a 75 ft. minimum setback for buildings from any
section or half section lines. The subject property is bounded on the north and east by
section lines and contains portions of two half section lines (Exhibit 3 – Location of
Section and Half Section Lines). Conservation areas encompass the entire eastern
edge of the property. Therefore, the project will be able to meet the setback along this
section line. Because of the generality of the Preliminary Development Plan it is not
clear if buildings may be located within 75 ft. of the other section and half section lines.
The granting of a waiver to these lines will provide additional flexibility in site design.
Additionally, sufficient circulation is provided to accommodate the intent of requiring the
setback, which is for future roadways. Roadways exist parallel to the section and half
section lines that will satisfy the intent. A waiver from the building setback from the
north section and all half section lines is appropriate in this instance.

PARKING STANDARDS

The Fairgrounds will be required to provide a parking study to demonstrate that an
appropriate amount of parking is being provided. The study will be required as part of a
Final Development Plan. The Resource Recovery Park will provide parking consistent
with the parking standards outlined as specific conditions on the approved Zoning
Master Plan.

LANDSCAPING

Any Final Development Plan will require a landscape or planting plan consistent with
Section 407.41. The type of plan will be determined by the thresholds in Section
407.42.

Section 407.43(a) would normally require a 40-ft. wide high density Project Boundary
Buffer along the eastern edge of the site, the site is providing conservation areas along
this boundary. Therefore, no project boundary is shown. A similar situation is found on
the southern boundary of the site, where conservation management areas exceed the
width and planting density of the required Project Boundary Buffer.

The western and northern boundaries of the site will require a 10 ft. wide
Collector/Arterial Road Buffer. This is consistent with both the approved Zoning Master



Page 9 of 16                                              Release Date: January 13, 2010
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              Development Review Committee
                       Staff Report
Plan and the requirements of Section 407.43(b). Appropriate landscaping for these
areas will be shown at Final Development Plan.

Landscaping within paved surface areas and along streets shall be demonstrated at
Final Development Plan, consistent with Chapter 407 Article 4. However, the Zoning
Master Plan includes a specific condition that allows development of areas designated
for recreational vehicle, truck, and trailer parking that do not have landscaping within
them. These areas shall be designated on the Final Development Plan.

OPEN SPACE

Section 407.52 of the ULDC requires that a minimum of 20% of any site be set aside as
Open Space. Section 407.53 identifies Conservation Areas and Buffers that should be
designated before any natural areas. The site includes 42% Open Space as
Conservation Areas and Buffers and is consistent with the Open Space requirement.

Consistent with Section 407.55(b), Open Space on the site is contiguous and useable to
the extent consistent with protection of the resources on the site. The wetlands on the
southern end of the property are linked to the listed species habitat on the eastern edge.
Additionally, wetlands and surface waters across the central portion of the Fairgrounds
site are linked. The wetlands and surface waters are then linked to the upland areas by
a traversable wildlife corridor. The corridor will be designed to allow wildlife and water
to flow throughout the Open Space areas.

Allowances have also been made to provide for use opportunities in the upland portions
of the site, especially in the listed species habitat conservation area. Included uses for
this area include passive recreation, education, and research, as well as habitat
management. These uses are all consistent with protection of the resource area.

STORMWATER MANAGEMENT

The proposed Preliminary Development Plan identifies general areas where stormwater
management facilities will be located. These facilities are generally located proximate
to lower areas of the site next to wetland areas. Any Final Development Plan will
include specific details to ensure appropriately designed stormwater management
facilities, including engineering and landscaping.




Page 10 of 16                                           Release Date: January 13, 2010
                    Alachua County
             Development Review Committee
                      Staff Report
WATER AND WASTEWATER SERVICES

The subject property is located within the Urban Cluster. The existing Leveda Brown
facility is served by central water and sanitary sewer service. The proposed
Fairgrounds and Resource Recovery Park is required to connect to the available central
water and sanitary sewer service as required by Section 407.108(d). Appropriate
locations for provision of service to the site are shown on the Preliminary Development
Plan’s Transportation Network and Utility Plan Sheets..

DEVELOPMENT PLAN EXPIRATION:
This approved preliminary development plan shall be valid consistent with the phasing
schedule approved with the Planned Development Zoning and Zoning Master Plan.

STAFF RECOMMENDATION:
Staff recommends approval of the Preliminary Development Plan, Preliminary
Certificate of Level of Service Compliance, and Section Line Setback Waiver for the
Alachua County Fairgrounds and Resource Recovery Park, project number
2009052601.

Comment to be addressed with the Final application:

   1. Fire hydrants are required to be located within 500 feet of the most distant point
      of any structure as the truck travels. Please show fire hydrants on the final
      development plan. Please be aware that even the midway area will need to meet
      requirement for fire hydrant spacing.
   2. The site will need to be designed so there is good circulation through the site for
      emergency vehicles. If this is not possible, truck turnarounds may be required.
      The site will need to be designed so an emergency vehicle can get within 150
      feet of an entrance to the building.

Attachments:

Exhibit 1 – Location Map

Exhibit 2 – Aerial Map

Exhibit 3 – Location of Section and Half-Section Lines



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            Development Review Committee
                     Staff Report
Exhibit 4 – Zoning Master Plan




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            Development Review Committee
                     Staff Report
                        Exhibit 1

                      Location Map




Page 13 of 16                        Release Date: January 13, 2010
                   Alachua County
            Development Review Committee
                     Staff Report
                        Exhibit

                       Aerial Map




Page 14 of 16                       Release Date: January 13, 2010
                   Alachua County
            Development Review Committee
                     Staff Report
                                Exhibit 3

                Location of Section and Half Section Lines




                                             Section Lines




                                        Half Section
                                           Lines




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                Alachua County Development Review Committee Staff Report
                                          Exhibit 4

                                      Zoning Master Plan




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