Zoning rules experienced a creative twist at the July 23 Commission meeting..
Smith Barney Building Will Convert to Condos
Developer Dan Bellows, representing Greenhouse Partnership Ltd., had a simple enough request. He sought to convert the Smith Barney office building at 338 W. Morse Blvd. into condominiums.
But Greenhouse didn’t want to rezone the property from office to medium-density residential to accomplish that. It wanted C-2 commercial zoning, even though no commercial use is contemplated at the site.
The owner got its wish, with a 4-1 Commission vote.
Why Commercial Zoning?
C-2 commercial zoning, it turns out, entitles the owner to much more than R-3 residential ever could. Building intensity can be almost twice what R-3 allows. The developer even could pave over the entire parcel — although Bellows assured commissioners that was not his intention. C-2 also would let the owner avoid the pesky city rule prohibiting short-term rentals such as VRBO or Airbnb.
Bellows said the office building will be converted to five residential condominiums, each with an attached garage that will have a second-floor guest suite. He also plans to build a new three-story building with three residential condominiums in the parking lot next to the existing building.
According to the City Planning Staff report, Greenhouse Partnership Ltd. wants the zoning change to make the property more economically viable, Even though the exclusively residential project could just as easily achieve economic viability if it were zoned medium-density residential R-3.
Staff’s Not Sure Why It’s Still Zoned Office – Except, It’s an Office
The existing two-story office building was built in 1998 and was leased to Smith Barney. In keeping with its intended use, the building was zoned O-2 for office. After Smith Barney merged with Morgan Stanley in late 2012, they moved their offices to a different location. Another tenant leased the first floor, but the second floor has remained vacant.
According to the staff report presented at the meeting: “For whatever reason, this property on Morse Blvd. was excluded from being eligible for CBD [Central Business District] future land use and C-2 zoning. The staff has no specific recollection of the rationale but assume that the authors felt the property was developed with the Smith Barney office building and did not envision another redevelopment scenario.”
The Guy across the Street Got Commercial
But right across the street, architect-developer Phil Kean is completing a townhome development that is designated CBD and C-2, although it is not clear if any of that development will include commercial use. In fact, all of the other properties on Morse, from New York to Capen, are eligible for C-2 zoning. Of course, all those properties include some commercial use, except for Park West condos, which are residential.
Staff’s Not Sure Why It Shouldn’t Be Residential
The staff report stated: “It is interesting that this project, while requesting commercial designations, is actually an R-3 multi-family project, with two variances. Unless the condo owners are planning to use their units for Air B&B’s (sic) or VRBOs, this could just as easily be done via R-3 zoning with no changes to the Comp Plan or Zoning text.”
But if Phil Kean could get CBD/C-2, Dan Bellows thought he should get it, too.
The Commission voted to change the zoning along with the Comprehensive Plan for Future Land Use, with Commissioner Carolyn Cooper casting the dissenting vote.
Discussion Resumes at the End of the Meeting
Even though they had reached a final decision, commissioners rehashed the project again in their discussion period at the end of the meeting.
Commissioner Carolyn Cooper was concerned that, by approving C-2 zoning for a residential project, the Commission had just created future entitlements that far exceed the scale and character appropriate for that section of Morse Blvd.
Commissioner Peter Weldon pointed out the need for the Commission to remain flexible to see where the market forces might take us. “The market drives to what, in the end, becomes the result,” said Weldon. ”And we, as a commission, have to be flexible to recognize where the market realistically addresses the character we’re all trying to create.”
Mayor Steve Leary also did not share Cooper’s concerns, and stated, “I believe we should have the flexibility to hear from our property owners on every one of their applications and not create any barriers to them asking the question.”
Orange Avenue may be in line for a major facelift. There is even a chance we will finally see some progress at Progress Point. What’s going on?
Commissioners met early on the morning of July 10 to discuss Mixed Use zoning on Orange Avenue. The discussion was led by Planning Director Dori Stone. The purpose of the meeting, said Stone, was to “discuss . . . the development of a Mixed Use Future Land Use category and companion zoning district.”
City Codes Already Permit Mixed Use Development.
Mixed Use districts are not new to Winter Park. Successful examples are Park Avenue, Hannibal Square and Winter Park Village. These districts are low intensity, a product of historic development patterns and are of walkable pedestrian scale. All have some form of shared parking. And what draws people to all three areas and persuades them to leave their cars for a while is open, visible, accessible green space with park amenities and plenty of trees.
So, why not stick with what we have?
Presently, Mixed Use zoning is allowed in certain areas — mostly downtown. The Commission’s discussion was about gateway corridors that are not part of the downtown Central Business District. The main gateway corridors — 17-92 from the north and south and Aloma / Fairbanks from the east and west – are crying out for Mixed Use. As they are now, these roads are better suited to fast cars than they are to foot traffic. To accommodate those cars that do occasionally stop, surface parking consumes a large, usually over-heated area – again, not friendly to folks on foot. Would the City be better served to create incentives in these areas for developers who would like to show some love to these unlovely corridors and create some attractive human-scale development that would draw some pedestrian and bicycle traffic?
Why Not Start with West Fairbanks?
After all the millions spent on sewers, lighting, repaving and undergrounding on West Fairbanks, wouldn’t this be the logical place for a Mixed Use pilot program? Instead, the City has chosen to tackle a more manageable corridor – Orange Avenue. According to Florida Department of Transportation (FDOT) figures, Orange Avenue carries about 15,600 cars each day. Compare that with Aloma, which carries as many as 46,000 cars a day. FDOT website notes these figures are 10 years old – so today’s counts are possibly higher.
Orange Ave. Property Owners Have Repeatedly Approached the City
When she was asked why the City chose Orange Avenue for what will probably become a Mixed Use pilot project, Planning Director Dori Stone wrote in an email, “Staff has done quite a bit of work on Orange Avenue already and it seems a natural choice with large property owners along the Orange Avenue corridor that are interested in working with the city.”
According to Stone, over the past 18 months or so, the City has been working with property owners like Mary Demetree, Roger Holler, Jewett Orthopaedic, Lumber Yard LLC and, not least, the City of Winter Park to determine what can be done to create a ‘sense of place’ along Orange Avenue that would make it compatible with the rest of Winter Park.
Developers Seek ‘Flexibility’ Beyond Current Limits
In a memorandum prepared for the July 10 Commission work session, Stone wrote, “Many of the larger property owners would like to see the flexibility to move beyond the commercial development limits of an FAR (floor-area ratio) of 45 to 60 percent.” She continued: “. . .several of them are interested in making improvements that would provide infrastructure and open space improvements along the corridor that may not be limited to their property, but would benefit the entire city.”
‘Trickle Down’ Development
The theory is that if the City grants these developers greater density and intensity, in return they would cooperate with one another to create a pedestrian-friendly environment with more open green space and park amenities, improved traffic circulation and shared parking within the zone of the pilot project. In this way, substantial benefit would accrue to all the citizens.
Mixed Use Overlay
Stone is suggesting a Mixed Use zoning category called an ‘Overlay.’ The Overlay zoning would “sit on top of the current zoning.” In essence, this would enable a developer who wants Mixed Use to build it, while a present or future landowner whose property does not conform to Mixed Use and who does not want to redevelop could continue to operate within the existing zoning guidelines.
“The City Needs to Take the Lead”
Stone pointed out that the main reason Hannibal Square is so successful is that at the outset, there was a professionally produced master plan. She urged the City to engage an urban designer to create such a master plan for Orange Avenue – before any code is written or any development is approved.
Stone noted that both Hannibal Square and Winter Park Village had a single developer, so there is a certain homogenous quality to them that would not be present on Orange Avenue, which has several large landowners. Nonetheless, this is an opportunity to create another district within the City that has a distinct identity. Rather than approving projects one-by-one on a piecemeal basis, here is a chance to create a neighborhood with continuity and its own sense of place.
Comfort Zone is 10,000-Sqare-Feet
As the City embarks on formulating standards for Mixed Use, we should not lose sight of the fact that currently, any building over 10,000 square feet requires Conditional Use approval. The City’s comfort level with the size of a building has a well-defined limit – and the body politic has felt strongly enough to articulate it in the Comprehensive Plan and to require a developer to participate in a public hearing process to obtain approval to build anything that exceeds that limit.
How Far are We Willing to Move Out of Our Comfort Zone?
That Conditional Use provision has identified our comfort level. Will we be able to reconcile mixed use standards that allow buildings that large or larger as a matter of entitlement — without public hearing or input? Depending on how it is written, Winter Park’s Mixed Use overlay can end up looking like Winter Park Village – or it could look like Mills 50, both of which are successful Mixed Use developments.
From the Winter Park Comprehensive Plan:
Sec. 58-61, Establishment of Districts, article (a) (5)
“The city has developed over the years as a city with a unique character and environment. Since a primary goal of the city is to retain this environment as much as possible, this article must impose certain extraordinary restrictions on the use of land within the corporate limits of the city to insure that future development is in keeping with the existing development.“
Aloma Townhome Development Reverts to Single Family
Ansaka LLC Does a Graceful Pivot
Ansaka LLC, the developer who made bright yellow ‘No Density’ signs sprout like daffodils from lawns along Aloma last April, returned to P&Z July 10 with a request to subdivide 1.45 acres of the property into six single-family building lots.
Neighbors Balk at 18 Townhomes
In April, Ansaka appealed to the City for Comprehensive Plan future land use and zoning changes to build 18 residential townhouses on the north side of Aloma Avenue between Lakemont and Phelps. City staff and the Planning & Zoning Board gave the project a thumbs up. When the project came before the Commission on April 9, however, neighbors’ concerns had manifested in the form of bright yellow “No Density” signs, and 24 residents spoke in opposition to the project. The Commission voted to table the item, giving the developer, Andrew Ryan, time to regroup.
Application Tabled
Ryan subsequently met individually with each Commissioner and with the design team to come up with an alternate plan. Ryan also heeded neighbors’ concerns in coming up with what he called “the most conservative pivot plan available.”
Graceful Pivot to Plan B
Ansaka now proposes to replat the entire property, which includes 1.45 acres zoned R1A, single family, and approximately 17,700 square feet of land zoned O2, office. The R1A portion of the property, measuring 250’ x 250’, will be subdivided into six single-family building lots. The office zoned portion will be developed at a later date, but was included in the replat so that future users would have access to the common drive, which provides safe access to Aloma.
The six-lot single-family subdivision will have three lots to the south, toward Aloma, and three lots directly behind them to the north. The lots will have shared driveways and parking.
Approval Recommended
The City Planning staff recommended approval of the redesigned development, stating it will be “. . .good for Winter Park, its residents and the neighboring community.” The plan maintains current zoning, allows an access easement for the commercial property to improve future traffic patterns, preserves existing heritage live oak trees and incorporates street trees that will enhance the Aloma frontage.
In the next step, Ansaka will request approval from the Winter Park City Commission.
Local Developers Make Good Neighbors
This is the second developer this year – the other being Zane Williams of Z Properties — to run the gamut of public scrutiny and come to the City with an application that takes into account the needs and wishes of the entire community. Served well are the neighborhoods in which they seek to build, the neighbors, the City, the Comprehensive Plan – and the developers themselves. Both developers are Winter Park residents who exhibit an understanding for and sensitivity to what Winter Park is all about.
See the entire plan here. Graphic above is on page 32.
Editor's Note: Articles written by citizens reflect their own opinions and not the views of the Winter Park Voice.
The one thing of note in an uncharacteristically brief June 11 Commission meeting was a presentation by Planning Director Dori Stone about Mixed Use Development. Her presentation focused on a single question, the answer to which will determine the way Winter Park grows into the 21st century.
The Question
Are current land use and zoning categories sufficient to promote the best development in Winter Park, or does the City want a specific mixed use development option for properties located along gateway corridors within the city limits?
WP Already Has 3 Mixed Use Developments
Currently, Winter Park has three mixed use developments – Park Avenue, Hannibal Square and Winter Park Village. The single word that describes all three is walkable. Each development has a mixture of shops, offices and residences. Each is a popular destination with wide sidewalks and plenty of shade – resulting in plenty of foot traffic. Buildings are pedestrian in scale, allowing life to flow easily in and out of doors. Each location has a well-defined sense of place.
They All Have Trees
While they have different architectural designs, street layouts and building heights, they all have one essential attribute — deciduous trees. Trees with wide branches. Trees with lots of leaves. Trees that provide cool shade and a sense of place.
Regardless of architectural design, without the shelter of these leafy branches all three areas would be hot, blinding, forbidding environments of reflective and refractive masonry, asphalt and glass. People would avoid them whenever possible, except possibly at night. Who among us doesn’t choose the shady parking spot over the one baking in the harsh Florida sun?
We All Need Trees
Our affinity for trees is in our DNA. Our ancestors relied on trees for security from predators, for foraging, for shelter from the elements, and for gathering places for social contact. Our love of trees is innate. No man-made structure ever has the same elemental and calming effect.
Builders who ignore the need for a stately tree canopy in their developments are doing a disservice to their clients, their tenants, the customers of those tenants and to their own legacies. Trees are good for our peace of mind, the environment – and they’re good for business.
What Kind of Canopy Will Be Left at the ‘Canopy’?
In this vein, many are concerned that at the new Winter Park Library – Event Center at “The Canopy,” the majestic trees that currently form the canopy on the Rachel Murrah Civic Center site will meet with the chain saw — despite the branding term. When that happens, the glare and reflected heat from all that glass, metal and masonry will change the character of the MLK Park dramatically. Although new, smaller trees can be brought in, it will take decades to achieve the current sense of place afforded by the existing site trees.
Don’t Cut Them Down; Dig Them Up!
This does not have to happen. A reasonable solution would be to dig up the specimen trees, roots and all, and store them in MLK Park in wooden crates until the construction is completed and they can be safely replanted.
Sound Impossible?
While this may seem incredible, it is actually standard technology. The land that the retired El Toro Marine Air Station occupied was deeded to the City of Irvine, CA in the early 2000s. Before redevelopment began, 543 large shade trees, which included 10 species, were saved in this manner. The average weight per tree was 40 tons. The city crated them and cared for them for about five years until, one by one, they were strategically replanted as redevelopment progressed. The sense of place was preserved by this brilliant and caring move, and the homes in those developments sold as quickly as they were built.
Trees Are Our Brand
Canopy trees are part of our unique Winter Park brand. They shelter nearly every street and enhance every neighborhood. The promulgation of mixed use standards presents a fleeting window of opportunity. We must act now to ensure that mixed-use will enhance our gateway corridors for generations. Let’s make a big green splash!
Trees Should Be Part of the Mix
Let’s make room for our big green friends in our Mixed Use code. Let’s promote reasonable street setbacks and adequate pervious areas for these natural wonders. After all, our big trees enhance and promote our businesses, our neighborhoods and our sense of place in Winter Park. And, for Winter Park, a sense of place is a sense of home.
Todd Weaver is a semi-retired aerospace engineer and UCF graduate. He holds a Florida general contractors license. He currently runs a Winter Park-based business, TruGrit Traction, Inc, which designs and manufactures specialty wheels for pipe inspection robots for the public works industries. Weaver has served on Lakes Management advisory boards for Orange County and Winter Park.
The June Planning & Zoning Board meeting looked like it might be a contentious one. Several items on the agenda were repeats that had met with rigorous public opposition when they’d been to City Hall before. Among them were the old bowling alley property at 1111 W. Fairbanks and the Villa Tuscany Holdings property at 1298 Howell Branch Road. Also scheduled were requests by Z Properties to build an office building and parking lot, and by Sydgan for a zoning change — both in the Hannibal Square neighborhood. To round things out, there was a request for a lakefront lot split, something specifically forbidden in the Comprehensive Plan.
But, this time, the system worked for everyone. Staff and applicants were well-prepared with requests that fell squarely within the spirit of what the Comprehensive Plan spells out as good for the city – and everyone gave as good as they got.
Officers Chosen, Elevations Approved
The first order of business was the selection of Ross Johnston to Chair and Shelia DeCiccio to Vice Chair the P&Z Board for the coming year. This was followed by approval of final building elevations for the west end of the Winter Park Corners shopping center on Aloma and Lakemont and for the office building on the former bowling alley property at 1111 W. Fairbanks. Both sailed through with little or no discussion.
Villa Tuscany Forgets Memory Care
Villa Tuscany Holdings LLC was up next, but instead of another version of the memory care center at 1298 Howell Branch Rd., they presented a request to subdivide the property into four large residential lake-front lots. Former opponents of the memory care project, Barry Render and Nancy Freeman, spoke in support of the proposed residential subdivision, and P&Z voted to approve.
Z’s Dilemma . . .
The next issue was a complicated request by Z Properties for zoning and future land use changes at 301 N. Pennsylvania Ave. in the heart of the Hannibal Square neighborhood. The lot is 100 feet wide by 200 feet deep and has a split Future Land Use designation. The half fronting Pennsylvania Ave. is zoned commercial and the rear half is zoned residential. The applicant wanted to erect an office building on the commercial half, but to do that, he needed part of the residential half as a parking lot to satisfy the City parking requirements for the proposed office building. That would necessitate rezoning part of the land from R2, residential, to PL, parking lot.
Finds an Elegant Solution
The developer, Zane Williams, explained that he had approached this development “in a different way.” At the outset, he requested meetings with city planner Jeff Briggs and with Mary Daniels and several other neighbors from the west side community. In the course of these meetings, Williams learned that people living on the west side were deeply concerned about the rate at which the area is losing residential. So, Williams said, “What would happen if I give you a part of my land and build you a house there?”
Williams: “And I Learned Something in the Process”
Z Properties entered into a contract with the Hannibal Square Community Land Trust to build a new single-family home on 33 feet of the residential portion of the property and to deed over the home and the property to the Land Trust. The new home will be an affordable home in perpetuity. The new owner who eventually moves into the house will own only the building. Ownership of the land on which the home sits will remain with the Land Trust. Any profit the owner of the house might realize from a future sale is capped, ensuring the property will remain perpetual ‘affordable housing’ overseen by the Land Trust.
Lake Front Lot Split
Following Sydgan’s request for rezoning, which turned out to be an administrative ‘clean-up’ with no controversy attached, Amy Black came with her request to subdivide a large 3-acre parcel on Lake Killarney into three single-family one-acre lots. The amendment to the Comprehensive Plan allowing the lake-front split would apply only to Lake Killarney and would not affect any of the Chain of Lakes. The result of this lot split would be three so-called estate lots – one acre or larger – where now there is only one.
This lot split would also enable Ms. Black’s mother to remain in her home of many years with security in her retirement. “I know your job is to protect and do what’s best for the City and for the beautiful lake,” said Ms. Black, “while my main concern is for the health and well-being of my mother. We are confident that this action will honor and serve both interests.”
After being assured by the City attorney that the policy change applied only to Lake Killarney, and that nothing would change the ‘estate lot’ status of the property, P&Z voted to approve the request.
And everyone went home at a good hour, all the better for having participated in the process.
“Wish You Were Here: Hotels & Motels of Winter Park”
Mark your calendar – Thursday, June 7, 5:00 to 8:00 pm – The Winter Park History Museum will open its new exhibit, “Wish You Were Here: The Hotels and Motels of Winter Park.” This is a family friendly event that will feature food, friends and the music of Frank Sinatra.
Hotels and Rollins Built Winter Park
The vision Loring Chase and Oliver Chapman had for Winter Park consisted of two key elements. One was Rollins, established 1885, and the other was luxury hotels that would appeal to the wealthy ‘carriage trade’ from the northeast. To that end, they set aside three elevated five-acre lakefront lots for the large luxury hotels that became the Virginia Inn, the Seminole Hotel and the Alabama.
Every Hotel Lobby Had a Land Sales Office
The purpose of the hotels was to appeal to the type of guest who was wealthy enough to invest in the town and intellectually liberal enough to create a community that would be attractive to the academics who would create Rollins.
The lobby of every luxury hotel featured a land sales office offering land for homesteads, commercial development and citrus production. Tours of citrus groves were a central feature of the sales presentations.
Hotels at Center of Community Life
As time passed, Winter Park became more established and the large hotels became centers of local community activity. Residents could buy memberships to use the hotels’ recreational facilities. The hotels provided a place for larger business and social events. It is fitting that Rollins has come full circle with the Alfond Inn, which serves as a watering hole for locals and as the repository for the Alfond family’s extensive collection of contemporary art – in addition to accommodating visitors from around the world.
Motels and Boarding Houses
The show will include a study of smaller boarding houses and hotels that accommodated the working class tourists and staff who traveled with the wealthy luxury hotel patrons. There will also be a section devoted to the classic Florida motels that grew up around Lake Kilarney and 17-92, which became popular tourist destinations in the 1940s.
The event is free and open to the public. For more information, visit www.wphistory.org
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