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Land Use Plan Staff Report - September 16, 20221 Future Land Use Plan Update STAFF REPORT – SH 114 CORRIDOR September 16, 2022 SUMMARY: This report outlines existing and proposed recommendations for the S.H. 114 Corridor, the first corridor (sector) to be reviewed during the 2022 update of the Future Land Use Plan. Changes to the recommendations from the existing Southlake 2035 Consolidated Future Land Use Plan are indicated with underline and strikethrough text. BACKGROUND: The Future Land Use Plan is a component of the city’s comprehensive plan. The comprehensive plan is a reflection of the community’s values and serves as a blueprint for Southlake’s future. Further, the comprehensive plan establishes a framework to coordinate the city’s activities and to guide the city’s decision-making for the next 20 years. As such, the comprehensive plan and its components are updated on a regular basis. The Land Use Plan is Southlake’s vision for future development that serves as a guide for land use decisions and as a foundation for Southlake’s 2 zoning and subdivision regulations. The plan is a policy document that allocates the general location, concentration, and intensity of future development within the City by land use categories. The current Land Use Plan, the Southlake 2035 Consolidated Future Land Use Plan, was adopted on June 19, 2018. The Planning & Zoning Commission began the 2022 review and update of the Future Land Use Plan at their work session on September 8, 2022. The City of Southlake approaches land use planning through sector planning, a method which divides the City into sectors to identify development issues and to develop recommendations for each individual area. This approach recognizes that planning issues are numerous and complex and may vary from area to area or even site to site. Sector planning allows for the identification of development constraints and issues, the identification of features, resources, and areas to be protected or improved, and the exploration of development opportunities. The first sector to be reviewed during the 2022 update is the S.H. 114 Corridor. S.H. 114 SITE SPECIFIC LAND USE RECOMMENDATIONS: LU1 – FIDELIS AND SHIVERS TRACTS LU1a 3 Underlying Land Use (Mixed Use) Optional Land Use (Campus Office Overlay) • Retain the existing underlying Mixed Use land use designation and apply the Campus Office Overlay district. • Expand the plan area to include the properties at the northwest corner of S.H. 114 and North White Chapel Blvd. • Future development on these properties should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. • Provide a corner enhancement feature at SH 114 and W. Dove Rd in conjunction with development on the west half of the Fidelis tract. • Development of the Shivers property should be integrated with the Carillon commercial to the east. Undeveloped properties should be developed in a cohesive manner with consideration for connectivity, design, and architectural style. • For areas immediately along and east of the planned Kirkwood Blvd. extension, low- impact development such as residential with a similar design and pattern to the existing neighborhoods across White Chapel may be considered as a transition to the neighboring single-family residential properties. Also a low-scale or garden office component may be considered if development is planned in a comprehensive manner which maximizes tree preservation. • Multi-story, class “A” office development is encouraged. • Buffer any residential uses from non-residential uses on this property. • Traffic signals at major street intersections should be anticipated and addressed with development. • As development is proposed traffic impacts on Dove St. and White Chapel Blvd (including the traffic circle roundabout) should be assessed. • Development should be sensitive to the existing tree cover and attempts should be made during the planning process to maximize tree cover along with natural features and topography. • Any development should be walkable and pedestrian friendly. • Family history of Shivers tract should be preserved or recognized possibly through use of open space. 4 • As development occurs drive access to Kirkwood Blvd. should be encouraged with limited drive access onto White Chapel Blvd. • Encourage cross-connectivity and access onto the S.H. 114 frontage road. • Assess completion of Kirkwood Blvd. to its full width with development of adjacent properties. • Property development along North White Chapel Blvd. should align driveways and intersections with anticipated or existing median breaks. LU1a (new addition) • Explore opportunities for regional detention. • Consider this property for residential development or open space. LU2 - CARRILON 5 Underlying Land Use (Mixed Use) Optional Land Use (Restaurant and Specialty Retail and Mixed Medical and Office Overlay) • Retain the existing underlying Mixed Use designation and add the Restaurant and Retail Specialty Overlay to on the west portion of the site. Change the Mixed Medical and Office Overlay on the southeastern portion of the site to Multi-Tenant Office Overlay to encourage multi-story, multi-tenant office uses. and the Mixed Medical and Office Overlay to southeastern portion of the area. • In the non-residential portion of Carillon immediately east of White Chapel between S.H. 114 and Kirkwood, develop a unique “customer experience” and “sense of place” that is pedestrian rather than automobile focused. Desired uses are chef-driven restaurant cluster, incubator, and possibly a culinary school component, along with specialty retail and health and wellness uses consistent with target industries as identified in the Economic Development Master Plan. • Boutique or unique hotels, health and medical services and support office may also be appropriate uses if properly integrated into the environment. • Design process for the non-residential portion of Carillon should focus on preserving natural tree stands and utilizing existing trees to create inviting open spaces. Restaurant cluster is envisioned with common use outdoor eating and gathering space utilizing natural and manmade features. In all overlays, a central park or greenspace may include public facilities not already discussed which offer a variety of cultural experiences. • As development is proposed traffic impacts on White Chapel Blvd. north of SH 114 should be assessed and the widening of White Chapel Blvd. to 4 lanes between Kirkwood and SH 114 should occur when warranted. • Provide a combination of structured and surface parking. Surface parking should be dispersed into lots of minimal size which are adequately screened from adjacent rights of way and residential areas. • Future development on these properties should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting, and views. 6 Existing Proposed Apply Multi-Tenant Office Overlay in place of Mixed Medical and Office Overlay LU3 – 3 ACRES NORTH OF COUNTRYSIDE BIBLE CHURCH (No changes proposed) 7 Underlying Land Use (Public Park/Open Space) Optional Land Use (None) • Encourage preservation of trees along S.H. 114 frontage to preserve continual tree-line along both sides of the corridor and provide a “city in a forest” aesthetic on the western side of the city. • Maintain this land as passive permanent open space and encourage development of adjacent properties in such a manner that a contiguous natural tree line is maintained between S.H. 114 and developed sites when practical. LU4 – SE CORNER OF S.H. 114 AND NORTH WHITE CHAPEL BLVD. (No changes proposed) • Retain the existing underlying Mixed Use designation and add the Mixed Medical and Office Overlay to on the southeastern portion of the area. • Medical, health and wellness uses encouraged in accordance with Economic Development Master Plan recommendations. Multi-story Corporate or office uses with signature corner feature, parking structure, and below grade parking are encouraged. 8 Underlying Land Use (Mixed Use) Underlying Land Use (Mixed Medical and Office Overlay) LU5 – HOSPITAL SITE 9 Underlying Land Use (Mixed Use) Optional Land Use (Medical and Wellness Overlay) • Retain the existing underlying Mixed Use designation and add Medical and Wellness Overlay. • The future development of the site should occur in a manner consistent with the initial hospital development. • Vehicular and pedestrian connectivity to the existing hospital and surrounding properties is encouraged. • Parking structures and below grade parking are encouraged. • Future development near Highland St and White Chapel Boulevard should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. Acceptable types of development may also include garden office for properties adjacent to White Chapel Boulevard and Highland Street. • Office development should be appropriately scaled. • Development should be sensitive to the existing tree cover and attempts should be made during the planning process to maximize tree cover along with natural features and topography. • Any development should be walkable and pedestrian friendly. 10 LU10 – PROPERTIES AT THE NORTHWEST CORNER OF HIGHLAND AND WHITE CHAPEL (New Site-Specific Recommendation - no underlying or optional land use change) Underlying Land Use (Medium Density Residential) • Retain the existing underlying Medium Density Residential land use designation. • Appropriately scaled low intensity office uses may be considered for this site. LU6 – MILNER PROPERTY 11 Suggested Optional Land Use Overlay Change: • Retain the existing Medium-Density Residential and Mixed Use designations. Change and add the Mixed Medical and Office Overlay to on the north portion of the site corresponding to the underlying Mixed Use designation to Campus Office Overlay. • Office development should be limited to building size and scale which is compatible with adjacent single-family residential and preserves the maximum amount of green space on the site. Buffer should be established between existing and future residential uses and planned office uses. Any commercial component should be developed holistically with neighboring commercial properties to the east, including the considerations shared parking and the alignment of access drives along S.H. 114 to improve parking and access to the existing commercial site at the corner of 114 and Carroll. • Future development should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. • Culinary or Specialty Retail may be appropriate on the eastern side of the property provided it is designed in a manner that is respectful to existing site features and the adjacent residential neighborhood. • Development of the Medium Density Residential portion of the property should evaluate connectivity to Lakewood Acres to allow this neighborhood direct access to the S.H. 114 frontage road. • Any development should be walkable and pedestrian friendly. • Embrace and leverage topography and natural features to create a signature development on this site. Avoid mass grading of site or alteration of existing stream. LU7 – GATEWAY CHURCH AND CHESAPEAKE PROPERTY Exis�ng Proposed 12 Suggested Optional Land Use Overlay Change: • Retain existing Mixed Use and Public/Semi-Public Land Use designations and add existing Multi-Tenant Office Overlay on the undeveloped portion along S.H. 114 as Exis�ng Proposed 13 indicated on the Overlay Map page 28. Add the Mixed Medical and Office Overlay to the northeastern portion of the site. • Office development should consist of moderately-scaled buildings with a high degree of design quality with amenities at major corners and features such as structured or underground parking. Buildings should lessen in height closer to Kirkwood Blvd. corridor. • Office development near Highland St. should be limited to building size and scale which is compatible with adjacent single-family residential and preserves the maximum amount of green space on the site. Buffer should be established between existing and future residential uses and any planned office uses. • Future development should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. • Area is also appropriate for medical development consistent with overlay description, and educational facilities as recommended in the Economic Development Master Plan. • Future development on the Chesapeake site should incorporate existing wetlands and creek. Evaluate the water intake from Town Square and reduce impact on downstream flood plain. • Any development should be walkable and pedestrian friendly and should explore opportunities to interconnect adjacent properties particularly to the north through a trail system. • Development is encouraged in a manner that views existing ponds as amenities. LU8 – CHERRY LANE (No changes proposed) 14 • Retain underlying Mixed Use and Office Commercial Future Land Use designations and add the Medical and Wellness Overlay along S.H. 114 as indicated on the Overlay Map page 28. • Encourage the Medical and Wellness uses as described in the Overlay along S.H. 114. However, Culinary or Specialty Retail may be considered along S.H. 114 if traffic impacts can be addressed. • Redevelopment of residential properties to the north as garden office may be considered if development is proposed in a comprehensive manner with emphasis on connectivity to adjacent commercial properties. • Future development should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. LU9 – COMMERCIAL AREAS NEAR SHADY LANE (No changes proposed) 15 Underlying Land Use (Mixed Use) Optional Land Use • Add the Medical and Wellness Overlay to all areas west of Shady Lane and Restaurant and Specialty Retail Overlay to the area at the northeast corner of Kimball and SH 114. • Amend Future Land Use Map and change the land use designation from Office Commercial and Retail Commercial land use categories to the Mixed Use Land Use Category. Retain the existing underlying Mixed Use land use designation and the optional Medical and Wellness Overlay and Restaurant and Specialty Retail Overlay. • Medical uses should consist of lower intensity destination uses such as health and wellness designed around specific user. • Retail establishments consistent with target industries identified in the Economic Development Master Plan may be considered if potential traffic impacts are adequately addressed. 16 LU11 – GATEWAY PLAZA (New Site-Specific Recommendation) Underlying Land Use (Regional Retail) Proposed Optional Land Use (Restaurant and Specialty Retail Overlay) • Add the Restaurant and Specialty Retail Overlay. • Any redevelopment of these properties requires special consideration as they are the eastern gateway into the city. • Evaluate redevelopment to include entertainment uses, a restaurant cluster, and open space amenities for people of all ages. • Any redevelopment is encouraged to incorporate the creek as an amenity. 17 ADDITIONAL EXISTING LAND USE RECOMMENDATIONS: (Recommendations marked “COMPLETE” will not be carried forward into the updated Land Use Plan) LU10 The north side of 114 corridor between W. Kirkwood Blvd. and N. White Chapel Blvd. is a growing area for potential office/corporate campus type development • Create an overlay or optional Future Land Use to allow for the development of large-scale office developments on the north side of 114. • Future development should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. Tier 1 - Amend the Consolidated Land Use Map in to add the Campus Office Overlay as indicated on the Overlay Map on page 10. (COMPLETE) LU11 The area containing Children’s Medical Center, Methodist Southlake Hospital, and Harborchase has the potential to aid in attracting health care uses and facilities to Southlake • Create an overlay or optional Future Land Use to foster development of health services facilities in the area along S.H. 114 between N. White Chapel and N. Carroll while also allowing market flexibility for these sites to develop as offices. Tier 1 - Amend the Consolidated Land Use Map to add the Medical and Wellness or Mixed Medical Wellness and Office Overlays as indicated on the Overlay Map on page 10. (COMPLETE) LU12 The city desires a variety of office typologies, scale and bulk along the 114 corridor, with future development consisting primarily of a mixture of campus and multi-story offices. • New office development should conform to areas and formats addressed in overlay districts. Tier 1 - Amend the Consolidated Land Use Map to add the Mixed Medical Wellness and Office, Multi-Tenant Office or High-Rise Office Overlay as indicated on the Overlay Map on page 10. (COMPLETE) LU13 Based on the findings of the MXD Retail Saturation study, Southlake is over-retailed and future retail should be highly targeted and specialized. • New retail is encouraged to be limited to areas identified in the 114 Corridor Overlay districts and consistent with the recommendations of the Economic Development Master Plan. Tier 1 - Amend the Consolidated Land Use Map to add the Restaurant and Retail Specialty Overlay as indicated on the Overlay Map on page 10. (COMPLETE) LU14 The existing newly created optional land use categories serve as a guide for development if a property owner or developer wishes to pursue this option. The existing underlying land use categories remain as in the current Land Use Plan except for LU area #9. • All existing underlying land use categories remain in place except as recommended in LU9 (Mixed Use Category added). Tier 1 - Amend the Consolidated Land Use Map to reflect the Overlay Map on page 10. (COMPLETE) LU15 Parking along SH 114 Corridor presents a high visual impact if not properly designed and screened. • Surface parking along S.H. 114 is discouraged unless adequately screened and buffered. Underground parking or structured parking is preferred when development scale permits. Tier 1 – Amend the zoning ordinance to create specific requirements for surface parking along the SH 114 corridor. Ongoing – inform potential applicants of this recommendation during the initial design process. LU16 Projects with large footprints exacerbate the urban heat island effect. • Modify the Zoning Ordinance to allow for incentives on projects that reduce their development footprint such as but not limited to allowing for a greater height or number of stories permitted in conjunction with a massing study, if a greater degree of landscaping or open space is provided or with features such as underground/structured parking. Tier 1 –Amend the Zoning Ordinance to provide incentives to reduce their development footprint. 18 LU17 There are a number of established residential neighborhoods that exists near the SH 114 corridor and new development should occur in a manner that reduces the impact of non-residential development on these existing neighborhoods. • Encourage creative design and development to address potential impact on adjacent residential subdivisions. Future development should be approved in a manner that is sensitive to potential impacts on adjacent residential areas, particularly as related to noise, traffic, building heights, lighting and views. Ongoing (Tier 1) – inform potential applicants of this recommendation during the initial design process. LU18 Based on the Retail Demand Analysis and Economic Cluster Studies conducted by MXD, the Southlake 2035 Economic Development Plan identifies a number of very specific office, retail and restaurant types as target industries that the City should strive to attract. It is believed that given Southlake’s location and current retail/restaurant/office market saturation, these identified target industries are the types of uses most likely to be successful and prosper in the City. It is critical to identify these sectors because these are the types of businesses that will most likely create a return on investment (ROI) as a result of a City-related incentive and are most likely to bring value to the city in the form of sustainable tax value, investment, jobs, payroll and local purchasing. The identification of target industries in the Economic Development Plan served as the basis for the development of the optional land use categories. • Create clear economic development incentive guidelines that are aligned to meet the objectives of the City in attraction and/or expansion of identified target industries and development consistent with the optional overlay land use categories. The policy should be structured to allow quantifiable measures to determine City investment as well as impact on preferred quality of life benefits. Tier 1 – Develop an economic incentive policy guideline that indicates that new developments which include identified target industries and are consistent with the recommendations of the SH 114 optional land use categories may be considered for possible City investment. (COMPLETE) EXISTING MOBILITY RECOMMENDATIONS: (These recommendations were included in the Mobility Master Plan update and therefore will not be carried forward into the updated Land Use Plan.) M1 The S.H. 114 bridge at Dove Street and the associated concrete embankments serve as a less than aesthetically pleasing portal into the City’s major corporate campus district. • Design and implement a portal plan at S.H. 114 and Dove Street which enhances the bridge structure and redesigns the bridge embankments. • Fund improvements through the CIP. • Explore public private partnerships to improve the entry portal as development occurs. Tier 1 – Explore options during the entitlement process to partner with developers/TXDOT to provide aesthetic improvements the bridge embankment and explore the possibility of incorporating a portal feature into a future development. Tier 2 – As part of the Urban Design Plan/Landscape plan for the SH 114 corridor include designs for improvements to the bridge structure and embankments. 19 Tier 3 – Fund recommended improvements through the CIP. Explore cost participation options with TXDOT. M2 Significant portions of S.H. 114 lack landscaping or beautification, most visibly on the eastern side of the city. • Coordinate with TXDoT and the City of Grapevine to make landscape improvements along this section of the corridor using recent regional projects such as the Chisolm Trail Parkway as a design example. • As part of the development of a S.H. 114 Urban Design Plan address the eastern entry portal area along SH 114. Tier 2 –Develop an Urban Design Plan/Landscape plan for the SH 114 corridor. Create an unique and prominent eastern gateway portal into the City. Tier 3 – Fund recommended improvements through the CIP. Explore cost participation options with TXDOT. M3 Existing and future high-value corporate Campus Office developments along W. Kirkwood present an opportunity for branding the corridor with public space improvements such as open space, landscaping, lighting and wayfinding signage. • Design and implement a plan to create a cohesive and unique urban design environment along the Kirkwood Blvd. Campus Office corridor development and also buffers the impact to adjacent residential properties. • Design should include the landscaping of medians, installation of sidewalks, street lighting and wayfinding signage. Tier 1 – Implement landscaping and design improvements to Kirkwood Boulevard north of Dove St. as currently funded in the CIP. Tier 2 – As part of the Urban Design Plan work with the corporate property owners on the Kirkwood Campus to develop a branding theme that addresses the streetscape, wayfinding, landscaping and other aesthetic improvements. Tier 3 – Fund recommended improvements of the Urban Design Plan through the CIP. Explore cost participation options with TXDOT/Corporate partners. M4 Traffic demands at the intersection of 114 and Kirkwood Blvd. and 114 and Dove Street will necessitate mobility improvements to the area in order to ensure easy access to the City’s Corporate Campus district. • Construct the SH 114 frontage road from Dove Street to Kirkwood Blvd. • Explore the possibility of a Texas turnaround in one or both directions at the Kirkwood intersection. • Evaluate intersection improvements particularly at SH 114 and Kirkwood to accommodate traffic. • Assist with the funding of the project through the CIP. • Ensure future development in this area includes primary access to and from S.H. 114 frontage road. Tier 1 – As part of the 2035 Mobility Plan update the recommendations for the SH 114 frontage road and intersection improvements to address constructing timing, road functionality and funding. Tier 1 – Fund recommended improvements through the CIP. Explore cost participation options with TXDOT/Corporate partners. Ongoing – Evaluate new development proposals along the SH 114 north of Dove Street and ensure primary access is provided to the SH 114 frontage road. M5 Improve pedestrian connectivity between Southlake Town Square, Shops of Southlake, and Park Village across FM 1709/Carroll Avenue. • Work with TXDOT to make pedestrian crossings at the F.M. 1709 and Carroll Ave. intersections more inviting/user friendly for pedestrians. Tier 1 – Develop specific recommendations for crosswalk improvements in 2035 Mobility Plan that create a more pedestrian friendly environment. Tier 1 - Fund recommended improvements through the CIP. Explore cost participation options with TXDOT/Corporate retail partners. M6 There are portions of Kirkwood Blvd. (Fidelis/Shivers tracts – Highland/Carroll area) which have not been completed or fully improved. Kirkwood Blvd. is a critical east/west arterial that allows citizens vehicular access to • Work with developers to have roughly proportional sections of Kirkwood constructed in conjunction with development. • Fund construction of critical sections such as the bridge crossing at Carillon and the Tier 1- Include project details in the Southlake 2035 Plan as a recommendation. Tier 2 – Fund project improvements through the CIP. 20 work, shopping, dining, schools and places of worship without the need to travel on S.H. 114. intersection improvements at Carroll Ave./Highland through the CIP. M7 The City desires to create an alternative transportation system such as a trolley that will create a unique experience for visitors to the community, promote and attract business, alleviate traffic along 114 created by short vehicle trips from one local destination to another, and connect key destinations such as shopping areas to corporate offices, Gateway Church, and hotels. • Conduct an Alternative Transportation Feasibility Study which will allow the City to examine the feasibility of a variety of alternative transportation methods including the trolley that will assist in promoting economic development and tourism consistent with the goals of the Economic Development and Tourism Master Plans. • Fund program through the CIP/HOT fund. Tier 1 – Prepare an alternative transportation study. Tier 1 - Implement study recommendations through the CIP and annual work plans. Tier 1 - If needed, include recommendations of the study into the 2035 Mobility Plan. M8 Traffic volumes along N White Chapel between S.H. 114 and Kirkwood are anticipated to increase as Carillon, Shivers and Fidelis builds out. • Coordinate through a Developer’s Agreement and the CIP the widening of N. White Chapel to a 4 lanes divided facility between Kirkwood and SH 114 as development occurs in this area. • Evaluate the capacity of the White Chapel/Dove intersection to adequately handle anticipated development in the area. Tier 1 - Complete the widening of the N. White Chapel improvements from S.H. 114 to Kirkwood in conjunction with development. Tier 1 – Incorporate timing of the widening of White Chapel Boulevard through a Developer’s Agreement with adjacent property owners. Tier 1 – Evaluate the ultimate intersection design for the Dove St/White Chapel intersection as part of the Southlake 2035 Mobility Plan. Tier 1 – Fund project improvements through the CIP. M9 The level of service of North Carroll is expected to decrease as Carillon and other properties adjacent to N. Carroll Avenue develop. • Evaluate the need for the widening of N. Carroll Ave. from SH 114 to Highland St as traffic counts and level of service warrant. • Evaluate the ultimate intersection design of the future Kirkwood Boulevard/Carroll intersection. Tier 1 – Evaluate and determine the ultimate roadway design width for Carroll Avenue from SH 114 to Highland (Future Kirkwood) as part of the Southlake 2035 Mobility Plan. Tier 1 – Evaluate and determine the ultimate intersection design of the future Kirkwood Boulevard/Carroll intersection. Tier 1 – Fund project improvements through the CIP. EXISTING ENVIRONMENTAL RECOMMENDATIONS: E1 Development of properties have the potential to result in a significant loss of open space adjacent to S.H. 114 and developed residential property • Consider purchasing right of first refusal on identified properties along the SH 114 corridor in the event that these properties become available for purchase. Tier 1 - Further discuss the program with City Council and make a recommendation. (COMPLETE) 21 E2 Significant trees areas and along SH 114 are threatened for removal when properties are developed • Address tree protection requirements or incentives for protecting trees at key intersections or view corridors along SH 114. Ongoing - Ongoing – Continually evaluate new development proposals along the SH 114 north of Dove Street and ensure primary access is provided to the SH 114 frontage road. Tier 1 – Evaluate tree preservation ordinance and determine if incentives can be provided to save significant trees that are visible along the SH 114 corridor viewshed. (COMPLETE)