Prepared by: Samuel Dennis Date prepared: December 21, 2011

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1 Hillsborough County City-County Planning Commission EXECUTIVE SUMMARY Meeting Date: Agenda Item: January 9, Planning Commission Public Hearing Tampa: Text Amendment to Public/Semi-Public Land Use Category - TA/CPA SUMMARY The Planning Commission will be reviewing and making a recommendation to Tampa City Council on proposed-text amendments that will become part of the Tampa Comprehensive Building Our Legacy, A Livable City. The Planning Commission is required to make recommendations to The Tampa City Council on all proposed amendments to the Tampa Comprehensive Plan pursuant to Florida Statutes. BACKGROUND The plan amendment request is a text amendment initiated by the City of Tampa s Land Development Coordination Division to the Public/Semi-Public (P/SP) land use category in the City of Tampa Comprehensive Plan. The absence of Floor Area Ratio (FAR) guidelines in the P/SP land use category prompted the City s request. Tampa City Council at their August 4, 2011 City Council meeting directed review of P/SP land use category. The proposed text amendment will provide policy guidelines on density and intensity for future development on lands in the P/SP land use category and ensure compatible development with adjacent land uses. In addition, the proposed text amendments will complement the current goals, objectives and policies adopted under the P/SP land use category in the City of Tampa Comprehensive Plan. The P/SP land use category in the City s Comprehensive Plan addresses uses that include: government buildings, public and private schools, public colleges, community centers, public airports, public/parking structures, transportation and utility facilities. RECOMMENDATION Planning Commission staff finds TA/CPA 11-04, Public/Semi-Public Land Use Category text-amendment with staff revisions CONSISTENT with the Tampa Comprehensive Plan: Building Our Legacy a Livable City, and recommends the text amendment be sent to Tampa City Council for adoption. 601 E. Kennedy, 18th Floor P.O. Box 1110 Tampa, FL / FAX 813/ FAX 813/ planner@plancom.org Prepared by: Samuel Dennis Date prepared: December 21, 2011 A consolidated city-county agency serving the cities of Tampa, Plant City, Temple Terrace and the County of Hillsborough An Affirmative Action-Equal Opportunity Employer

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3 RESOLUTION PAGE 2 (Tampa: TA/CPA Public/Semi-Public Land Use Category January 9, 2012 Table 2 - Future Land Use Summary Table Future Land Use Primary Purpose Density / Intensity Public/Semi- Public (P/SP) Airports, universities, schools, hospitals, and major public infrastructure facilities (e.g. wastewater treatment plant). To designate major existing and programmed governmentowned (Federal, State, and Local, including public authorities) facilities. The category may also accommodate semi-public uses, for example private schools, private colleges, private hospitals, cemeteries, residential and/or community facilities owned by a not-forprofit community-serving organization, places of religious assembly, transportation and utility facilities. NA Intensities and density of future public/semi-public uses shall be guided by the Floor Area Ratios (FAR) and densities of surrounding Future Land Use categories on immediately adjacent parcels, existing zoning of the parcel, and surrounding zoning districts. The revised text shall be incorporated into policies which are already adopted under Public Land in Chapter 3 of the City of Tampa Comprehensive Plan: Building Our Legacy, A Livable City. Policy : Policy : Policy : Conforming Public/Semi-Public Uses: Such uses that have been legally established and in existence within the Public/Semi-Public land use category, prior to February 9, 2009, and shall be considered conforming to the City of Tampa s Comprehensive Plan. Development and redevelopment criteria in the City of Tampa s Land Development Regulations must ensure that public and semipublic uses are located, and designed in a manner compatible with neighboring uses. Maximum allowable intensity (FAR) and density shall be guided by the most intensive FLU category adjacent to the P/SP parcel. A higher intensity (FAR) and density may be considered by Tampa City Council provided it conforms to criteria for more intense development or redevelopment. Plan and locate Public/Semi-Public uses in a manner compatible with the community character in addition to minimizing visual and environmental impacts.

4 RESOLUTION PAGE 3 (Tampa: TA/CPA Public/Semi-Public Land Use Category January 9, 2012 WHEREAS, the Hillsborough County City-County Planning Commission has reviewed the request to amend and add text to the Tampa Comprehensive Plan-Building Our Legacy, A Livable City and adopting the attached text changes and new policies to complement current policies and guidelines under Public/Semi-Public Land Use Category in the Tampa Comprehensive Plan-Building Our Legacy, A Livable City and find the proposed-text amendment consistent with the following objectives and policies: Objective 21.1: Policy : Policy : Policy : Policy : Provide governmental services, institutional, educational, cultural, and social, facilities that are located and designed to complement Tampa s neighborhoods, centers, and corridors. The City shall seek to ensure that schools, government administrative and operational facilities, fire stations and police facilities, schools, cultural facilities, museums, hospitals are located throughout the City to provide places that serve the varied needs of the community, provide for community meeting places, and provide community and neighborhood landmark buildings and places. The City shall lead by example, demonstrating design excellence in City projects, including buildings, parks, public rights-of-way and City- subsidized redevelopment projects. The City shall ensure that the City-owned public buildings, sites, and infrastructure are designed to be compatible in scale, mass, character, and architecture with the district or neighborhood in which they are located. The City shall promote the co-location of parks, schools, police and fire facilities, health services, and other community facilities to support community interaction, enhance neighborhood identity, and leverage limited resources. NOW, THEREFORE, BE IT RESOLVED, that the Hillsborough County City-County Planning Commission finds TA/CPA11-04, proposed amendments to add policies and related text to the Public/Semi-Public Land Use Category, CONSISTENT with the Tampa Comprehensive Plan-Building Our Legacy, A Livable City, and that the amendment be forwarded to Tampa City Council for adoption consideration.

5 Tampa Comprehensive Plan Building Our Legacy: A Livable City Comprehensive Plan Amendment Report TA/CPA Public/Semi-Public Land Use Category Plan Amendment Description This is a text amendment initiated by the City of Tampa s Land Development Coordination Division to the Public/Semi-Public land use category in the City of Tampa s Comprehensive Plan. The proposed text changes will address intensity and density guidelines in the Public/Semi-Public land use category. The text changes will also complement the current goals, objectives and policies already adopted under the Public/Semi-Public land use category in the City s Comprehensive Plan. See Attachment A for proposed text changes Table 2 - Future Land use Summary Table, See Attachment B for proposed policies See Attachment C for agency comments Planning Commission staff has reviewed the City s proposed-text amendment and has modified the proposed text. Reason for the Proposed Plan Amendment The City of Tampa s Land Development Coordination Division requested the text amendment due to existing policy guidelines related to intensity and density limitations in the Public/Semi-Public land use category in the City s Comprehensive Plan being inadequate. The proposed amendment will establish definitive development limits in the Public/Semi-Public Land Use category and ensure compatibility with adjacent uses. Between May and July 2011, the LDC division conducted a study on properties with the Public/Semi-Public land use designation in the City. The intent of the study was to determine what changes might be needed to the Public/Semi-Public land use category or related plan policies in the City s Comprehensive Plan to ensure that residential neighborhoods are protected against future development or redevelopment of lands with Public/Semi-Public land-use designations. City Council requested the study after a public hearing concerning TA/CPA 10-04, a Map Amendment for St. John s Parish Church and School at 902 & 918 S. Orleans Ave. The site was successfully changed from Residential-10 to Public/Semi-Public, but did raise some concerns as to how the administration of the category could be potentially applied. Public/Semi-Public Text Amendment TA CPA Page 1

6 The following are text amendments that were proposed by City of Tampa LDC staff: City of Tampa Proposed Amendments to Table 2 Future land Use Summary Table Table 2 - Future Land Use Summary Table Future Land Use Primary Purpose Density / Intensity* Public/Semi- Public (P/SP) Airports, universities, schools, hospitals, and major public infrastructure facilities (e.g. wastewater treatment plant). To designate major existing and programmed government owned facilities (Federal, State, and Local, including public authorities). The category may also accommodate semi-public uses, including but not limited to private schools, private colleges, private hospitals, cemeteries, residential and/or community facilities owned by a not for profit community serving organization, places of religious assembly, transportation and utility facilities. The Future Land use Map only shows major existing public/semi- public facilities. NA Intensities and density of future public/semi-public uses shall be guided by the Floor Area Ratios (FAR) and density factor of surrounding Future Land Use categories on immediately adjacent parcels / lots / lands, existing zoning of the parcel, and surrounding zoning districts. Maximum allowable intensity (FAR) and density shall be the same as the most intensive FLU category adjacent to the P/SP parcel. A higher intensity (FAR) and density may be considered by Tampa City Council, through a site plan rezoning, provided it is shown that the proposed intensity/density is mitigation provided for any adverse effects to the surrounding neighborhood. * The FAR and/or density of a public use development that includes land designated P/SP land use category shall be calculated based on the entire land area of the development. City of Tampa Proposed Policies to the City s Comprehensive plan Policy : Non-Conforming Public/Semi-Public Uses: Such uses have been legally established and in existence within the Public/Semi-Public land use category, prior to February 9, 2009, and shall be considered non-conforming to the City of Tampa s Comprehensive Plan. The development and redevelopment of any non-conforming use within the Public/Semi- Public land use category may be considered for an increase of intensity or density of use, up to the maximum intensity/density of the FLU categories on immediately adjacent lands. A higher intensity (FAR) and density may be considered by Tampa City Council, through a site plan rezoning, provided it is shown that the proposed intensity/density is in the overall public interest and mitigation provides for any adverse effects to the surrounding neighborhood. Any Public/Semi-Public Text Amendment TA CPA Page 2

7 increase of intensity or density must follow requirements set forth in the City s land development regulations. Policy : Location of Public/Semi-Public Developments: Development and redevelopment criteria in the City of Tampa s Land Development Regulations must ensure that public and semipublic uses are located, and designed in a manner compatible with neighboring uses. A revised version of the City s text changes by Planning Commission staff for Table 2- Future land Use Summary Table, and proposed policies is presented in Attachment A and Attachment B of this report. Tampa Comprehensive Plan Context Tampa s Comprehensive Plan Building Our Legacy: A Livable City was adopted in February, The Plan articulates a vision for how Tampa will accommodate the growth of the city to include 92,000 additional residents and 132,000 new jobs over the next 20 years, while promoting the values of its citizens: LIVABILITY - Tampa is a place where diverse people find it easy, safe and enjoyable to live. PROSPERITY - A Tampa that is focused on the quality of life for all its people must be a Tampa that is economically healthy, with a broad mix of good jobs. RESPECT - The living systems which support us are taken care of and passed on to future generations in better shape. RESILIENCE - The systems that support our day to day living can deal with uncertainty and cope with the shifts and shocks we face in the future. The Plan s growth management strategy organizes the City into Planning Districts encouraging most new growth to locate in places designated as Business Centers, Urban Villages or Mixed Use Corridor Villages. Each Business Center and Urban Village has a secondary plan indicating the amount of growth the City is planning in the next 20 years. The Plan includes policies describing how the City intends to serve this growth with mobility options and other infrastructure facilities. Overall Context The Big Picture Tampa Vision Map: The proposed text amendment is consistent with the overall guiding strategies for creating a Livable City as defined in Chapter Two of Tampa s Comprehensive Plan. The Livable City Public/Semi-Public Text Amendment TA CPA Page 3

8 plan acknowledges that change must be accommodated within the existing urban structure that respects and preserves the fabric of existing residential neighborhoods. The strategies call for working towards shaping the city and future by steering growth and change to specific parts of the city, while strengthening and protecting residential neighborhoods from development pressures. Strategy 2: Strengthening our Diverse Neighborhoods Strategy 6: Building on our Assets Strategy 7: Growing Economic Prosperity Strategy 2: Objective 1.2: Policy 1.2.1: Policy 1.2.2: Strategy 6: Goal 11: Objective 11.1: Policy : Strengthening our Diverse Neighborhoods A City of diverse, distinct, and well-structured neighborhoods that meet the community s needs for complete, sustainable, and high quality living environments from the historic downtown core to well integrated new growth areas. Recognizing Tampa s neighborhoods are the basic living environments that make-up the City s urban fabric, the City shall through its planning preserve and enhance all neighborhoods distinctiveness, identity, and livability. The City shall preserve, protect, and enhance single family neighborhoods by providing sensitive transitions between these neighborhoods and adjoining areas, and requiring new development, both private and public, to respect and respond to those existing physical characteristics - buildings, streetscapes, open spaces, and city form that contribute to the overall character and livability of the neighborhood. Building on our Assets The development of a supportive environment for increased asset accumulation, asset leveraging, and asset preservation. A shared vision of broadening and sustaining wealth through stronger linkage and coordination among diverse assets across the city. Recognize that Tampa s assets are interconnected and range from our economic engines, our industrial lands, our historic areas, our neighborhoods, our children, the natural environment, and our infrastructure which includes parks. Public/Semi-Public Text Amendment TA CPA Page 4

9 Strategy 7: Growing Economic Prosperity Objective 12.1: A positive business climate supported by adequate public infrastructure, including transportation and schools. Policy : Recognize the contribution of cultural resources, such as public art and historic resources to the strength of Tampa s economy. Public/Semi-Public Land Use Category Map Public/Semi-Public Text Amendment TA CPA Page 5

10 Copies of agency responses are included in Attachment C of this report. Agencies that responded to the proposed amendment are: Metropolitan Planning Organization (MPO): Environmental Protection Commission (EPC): Hillsborough County Public Schools (HCPS): Relationship to the Comprehensive Plan Public/Semi-Public - City Form Guidelines Building forms vary due to the variety of activities, though most buildings tend to be fairly large floor-plate, multi-story structures containing meeting rooms, classrooms, offices, and research space. Generally, automobile access and parking are limited to the periphery of an activity in order to create a park-like pedestrian zone. Similarly, recreation facilities such as parks, greenways, stadiums, track, ball fields, and tennis courts are located on the perimeter of the public use. Public Land Objective 21.1: Policy : Policy : Policy : Policy : Provide governmental services, institutional, educational, cultural, and social, facilities that are located and designed to complement Tampa s neighborhoods, centers, and corridors. The City shall seek to ensure that schools, government administrative and operational facilities, fire stations and police facilities, schools, cultural facilities, museums, hospitals are located throughout the City to provide places that serve the varied needs of the community, provide for community meeting places, and provide community and neighborhood landmark buildings and places. The City shall lead by example, demonstrating design excellence in City projects, including buildings, parks, public rights-of-way, and City- subsidized redevelopment projects. The City shall ensure that the City-owned public buildings, sites, and infrastructure are designed to be compatible in scale, mass, character, and architecture with the district or neighborhood in which they are located. The City shall promote the co-location of parks, schools, police and fire facilities, health services, and other community facilities to support community interaction, enhance neighborhood identity, and leverage limited resources. Public/Semi-Public Text Amendment TA CPA Page 6

11 Analysis and Conclusion Presently, the Public/Semi-Public land use category in the City s Comprehensive Plan does not have density and intensity (Floor Area Ratio) limitation-guidelines. Even though the City s plan has policies to guide and protect residential-neighborhoods against development in adjacent public lands, the policies are inadequate in protecting neighborhoods from unwarranted bulk, mass, scale and negative-visual impacts that may rise from future development/redevelopment in the Public/Semi-Public land use designation. After careful review of the City s proposed text amendments to Table 2- Future Land Summary Table and the addition of new policies to the City s Comprehensive Plan, Planning Commission staff concluded that the City proposed amendments were too regulatory in nature for incorporation into the City s Comprehensive Plan. The primary function of the Comprehensive Plan is to serve as a long-term-planning guide and visionary document to decision-makers, and not to be used a regulatory tool. Based on this assertion, Planning Commission staff revised the proposed text amendments made by City LDC staff, giving City staff the ability to then place regulatory text relating to the Public/Semi-Public Land Use category into the City s Land Development Code. The Planning Commission s staff recommendations will still meet the original intent of the City s proposed text changes to guide and ensure that residential neighborhoods adjacent to Public/Semi-Public land use designations are fully protected against future development and redevelopment. The following policies support the Planning Commission staff s recommended revisions. Urban Design Goals, Objectives and Policies Policy : Policy : Relate new buildings and development to the context of the neighborhood and community. Design Review - In the Central Business District, Channel District, Zoning Districts, Historic Districts, Overlay and form based districts, the City shall require design review that focuses on achieving appropriate form and function for all new and redevelopment projects to ensure creativity, innovation, and design quality. Public/Semi-Public Text Amendment TA CPA Page 7

12 Urban Village Goals, Objectives and Policies Policy : Urban villages contain most of the following uses which typically make up what is considered a traditional and livable community: single and multi-family residential, neighborhood serving commercial, schools, parks, a central gathering place, mass transit and safe, walkable pathways that connect people to all areas of the village. Work towards creating a mix and placement of these uses that works for the character of the village and creates a vibrant community setting. Recommendation Planning Commission staff recommends that the Planning Commission approve the attached resolution, finding the proposed text amendment with revision from the Planning Commission staff - TA/CPA11-04, CONSISTENT with the Tampa Comprehensive Plan: Building Our Legacy a Livable City and forward this recommendation to Tampa City Council. Attachments: Attachment A: Planning Commission staff-revised text changes to Table 2 - Future Land use Summary Table, Attachment B: Planning Commission staff-revised policies. Attachment C: Agency Comments Public/Semi-Public Text Amendment TA CPA Page 8

13 Attachment A Planning Commission Staff-Revised Text Changes to Table 2 - Future Land Use Summary Table Public/Semi-Public Land Use Category 1. The revised text shall be inserted in Table 2 Future Land use Summary Table, in Chapter 3, as it relates to parcels/lots in the Public/Semi- Public/Semi-Public land use category in the Tampa Comprehensive Plan: Building Our Legacy, A Livable City. Table 2 - Future Land Use Summary Table Future Land Use Primary Purpose Density / Intensity* Public/Semi- Public (P/SP) Airports, universities, schools, hospitals, and major public infrastructure facilities (e.g. wastewater treatment plant). To designate major existing and programmed government-owned (Federal, State, and Local, including public authorities) facilities. The category may also accommodate semi-public uses, for example private schools, private colleges, private hospitals, cemeteries, residential and/or community facilities owned by a not-for-profit community-serving organization, places of religious assembly, transportation and utility facilities. NA Intensities and density of future public/semi-public uses shall be guided by the Floor Area Ratios (FAR) and densities of surrounding Future Land Use categories on immediately adjacent parcels, existing zoning of the parcel, and surrounding zoning districts. The Future Land Use Map only shows major existing public/semi- public facilities. Public/Semi-Public Text Amendment TA CPA Page 9

14 Attachment B Planning Commission Staff-Revised Policies Public/Semi-Public Land Use Category The revised text shall be incorporated into policies which are already adopted under Public Land in Chapter 3 of the City of Tampa Comprehensive Plan: Building Our Legacy, A Livable City. Policy : Policy : Policy : Conforming Public/Semi-Public Uses: Such uses that have been legally established and in existence within the Public/Semi-Public land use category, prior to February 9, 2009, and shall be considered conforming to the City of Tampa s Comprehensive Plan. Development and redevelopment criteria in the City of Tampa s Land Development Regulations must ensure that public and semipublic uses are located, and designed in a manner compatible with neighboring uses. Maximum allowable intensity (FAR) and density shall be guided by the most intensive FLU category adjacent to the P/SP parcel. A higher intensity (FAR) and density may be considered by Tampa City Council provided it conforms to criteria for more intense development or redevelopment. Plan and locate Public/Semi-Public uses in a manner compatible with the community character in addition to minimizing visual and environmental impacts. Public/Semi-Public Text Amendment TA CPA Page 10

15 Attachment C Agency Comments 1. Hillsborough County Metropolitan Planning Organization (MPO) - MPO responded and stated that the proposed amendment, in and of itself, will not change transportation impacts. If approved and applied to specific parcels of land in the future, the specific transportation impacts of this proposal and the surrounding transportation system will be evaluated. 2. Environmental Protection Commission (EPC) The EPC has no objections. 3. Hillsborough County Public Schools (HCPS) The HCPS had no objections. Public/Semi-Public Text Amendment TA CPA Page 11