Item 7 - Staff ReportCase No.
ZA26-0052
S T A F F R E P O R T
October 2, 2026
CASE NO: CP26-0008
PROJECT: Amendment to the City of Southlake Consolidated Future Land Use Plan,
an element of the Southlake Comprehensive Plan
EXECUTIVE
SUMMARY: Mike Harrall is requesting approval of an amendment to the City of Southlake
Consolidated Future Land Use Plan, an element of the Southlake Comprehensive
Plan for Touchmark Southlake, on property described as Tracts 1C, 1D01, 1D01A,
1D02A, 1D02B, 1D02, 1F, 1F01, 1E01, 1E02, 1G, Richard Eads Survey, Abstract
No. 481, Lot 2, Block 4, Gateway Church-114 Campus, and Lots 11A and 11B,
Oaks Addition, City of Southlake, Tarrant County, Texas and located at 1009 and
1101 N. Carroll Avenue, 1301 E. Highland Street, 1335-1361 and 1375-1379 E.
Highland Street, and 1301 E. Kirkwood Boulevard, Southlake, Texas. Current
Underlying Land Use Designation: Office Commercial, retail Commercial, Mixed
Use, and Public/Semi-Public. Requested Underlying Land Use Designation: Mixed
Use. SPIN Neighborhood #3 and #4.
DETAILS: The purpose of this request is to obtain Land Use Plan amendment approval
appropriate for developing a Senior Living Community on approximately 18-acres.
As the underlying future land use designation is Office Commercial, Retail
Commercial, Mixed Use, and Public/Semi-Public, a Comprehensive Plan
Amendment is needed to change the designation solely to Mixed Use.
A Zoning Change and Concept Plan application (ZA26-0052) has been submitted
for the property and will be considered concurrently. The zoning change would
allow for a Senior Living Community, including an Independent Living Residence, 9
Courtyard Villa units, 40 Flat Stack units, an Assisted Living and Memory Care
Building, and Community Amenities such as dining venues, lounges, activity
rooms, fitness and wellness centers, outdoor courtyards, walking paths, and
landscaped gardens. The zoning will be exclusively restricted to a Senior Living
Use.
PROPOSED
CHANGE: The proposed change is to amend the underlying land use designation of Office
Commercial, Retail Commercial, Mixed Use, and Public/Semi-Public to Mixed Use,
to allow for a Senior Living Community. The Mixed Use land use purpose and
definition are as follows:
Mixed Use Purpose: To provide an option for large‐scale, master‐planned, mixed
use developments that combine land uses such as office facilities, shopping,
dining, parks, and residential uses.
Department of Planning & Development Services
Item 7
Case No.
ZA26-0052
Definition: The range of activities permitted, the diverse natural features, and the
varying proximity to thoroughfares of areas in the Mixed Use category necessitates
comprehensively planned and coordinated development. New development must
be compatible with and not intrusive to existing development. Further, special
attention should be placed on the design and transition between different uses.
Typically, the Mixed Use designation is intended for medium‐ to higher‐intensity
office buildings, hotels, commercial activities, retail centers, and residential uses.
Nuisance‐free, wholly enclosed light manufacturing and assembly uses that have
no outdoor storage are permitted if designed to be compatible with adjacent uses.
Other suitable activities are those permitted in the Public Parks/Open Space,
Public/Semi‐Public, Low Density Residential, Medium Density Residential, Retail
Commercial, and Office Commercial categories previously discussed.
Land Use Mix*: The percentages below for the land use mix in Mixed Use
category are intended only to be guidelines, and greater flexibility may be
appropriate under site specific conditions.
Land Use Percentage of
Acreage
Flexibility Allowed
Retail
Office
Residential
30%
35%
15%
±20%
±30%
±15%
Open space 15% ±15%
Civic use 5% ±5%
Total 100%
*These percentages are not regulatory and should only be used as a guide.
ACTION: 1) Conduct a Public Hearing
2) Consider approval of a Land Use Plan Amendment
ATTACHMENTS: (A) Background Information
(B) Vicinity Map
PowerPoint Presentation
Narrative
Plans
SPIN Meeting Report
Corridor Meeting Report
STAFF CONTACT: Dennis Killough (817) 748-8072
Ryan Firestone (817) 748-8127
Case No.
ZA26-0052 Page 3
BACKGROUND INFORMATION
OWNER: C.I.S.D, D. Cameron Bryan, Board President, Gateway Church, Kenneth
Faunbro
APPLICANT: Mike Harrall, Touchmark Development and Construction
PROPERTY SITUATION: 1009 and 1101 N. Carroll Avenue, 1301 E. Highland Street, 1335-1361 and
1375-1379 E. Highland Street, and 1301 E. Kirkwood Boulevard,
Southlake, Texas
LEGAL DESCRIPTION: Tracts 1C, 1D01, 1D01A, 1D02A, 1D02B, 1D02, 1F, 1F01, 1E01, 1E02,
1G, Richard Eads Survey, Abstract No. 481, Lot 2, Block 4, Gateway
Church-114 Campus, and Lots 11A and 11B, Oaks Addition, City of
Southlake, Tarrant County, Texas
LAND USE CATEGORY: Office Commercial, Mixed Use, Retail Commercial, Public/ Semi-Public
PROPOSED LAND USE: Mixed Use
CURRENT ZONING: “CS” Community Service District, “AG” Agricultural District, “NR-PUD” Non-
Residential Planned Unit Development District
HISTORY: The properties were annexed into the City in 1956 and 1957.
The properties are currently unplatted.
The first school building in present-day Southlake, located at 1101 N.
Carroll Ave., was built in 1919. (1919 Carroll School)
September 25, 1956 – The vote to incorporate Southlake was held at the
1919 Carroll School.
COMPREHENSIVE PLAN: Consolidated Future Land Use Plan
The future land use designation for the site are Mixed Use, Office
Commercial, and Retail Commercial.
Mixed Use:
To provide an option for large‐scale, master‐planned, mixed use
developments that combine land uses such as office facilities, shopping,
dining, parks, and residential uses. The range of activities permitted, the
diverse natural features, and the varying proximity to thoroughfares of
areas in the Mixed Use category necessitates comprehensively planned
and coordinated development. New development must be compatible with
and not intrusive to existing development. Further, special attention should
be placed on the design and transition between different uses. Typically,
the Mixed Use designation is intended for medium to higher‐intensity office
buildings, hotels, commercial activities, retail centers, and residential uses.
Nuisance‐free, wholly enclosed light manufacturing and assembly uses
that have no outdoor storage are permitted if designed to be compatible
Case No.
ZA26-0052 Page 4
with adjacent uses. Other suitable activities are those permitted in the
Public Parks/Open Space, Public/Semi‐Public, Low Density Residential,
Medium Density Residential, Retail Commercial, and Office Commercial
categories.
Scale and Context Criteria for the Mixed Use Future Land Use
Category:
General
• Buildings and their pedestrian entrances are to be oriented towards
internal streets.
• Larger-format retail uses (with footprints larger than 40,000 square
feet) shall be located adjacent to the arterial or highway with
pedestrian entrances from internal streets.
Retail and Office Uses
• Pedestrian-oriented or automobile-oriented.
Hotel Uses
• Hotel uses should be full-service hotels at market-driven locations,
primarily in the S.H. 114 Corridor. Full-service, for the purposes of
this plan, shall be hotels that include a table-service restaurant
within or directly attached to the hotel. Other services or amenities
typically included would be bell service and room service, as well
as available meeting space.
• The desire is to approve hotels adequate to support market-driven
commerce in the City, paying attention to the product mix such that
the hospitality services in the area are complementary to one
another.
Single-family Residential Uses
• Residential uses are to be located between the proposed office or
retail uses and existing residential neighborhoods. These uses are
intended to provide a lower intensity transition between existing
neighborhoods and commercial uses.
• Residential uses should be well integrated with proposed open
space and other civic uses to create a sense of place. S.H. 114
Corridor Plan June 20, 2017 Page 17
• They should also be integrated with proposed commercial uses in a
manner that provides internal automobile and pedestrian access to
convenience commercial uses.
• Single-family residential uses are recommended to be to the
density and scale that is appropriate based on the context and
character of the proposed overall development.
Open Space
• Consider environmental elements as “features,” rather than
Case No.
ZA26-0052 Page 5
constraints.
• Emphasis shall be placed on preservation of existing wooded areas
and stream corridors.
• Avoid channeling or piping of streams.
• Streams or creeks should become a focal point rather than the rear
of the development.
• Provide natural walking paths along stream and creek corridors.
• Well designed and integrated open spaces are critical to the
creation of successful mixed-use neighborhoods.
• Open spaces should be designed to add value to proposed
development and not as an “after-thought”. To that end, open
spaces should maximize frontage along residential and office uses.
Open spaces shall occupy a prominent place in the development of
a neighborhood and form the center pieces of a community.
• Open spaces are intended to be the “front-yards” and invite passive
recreational activities. Open spaces may be in the form of pocket
parks, children’s play areas, squares, linear greens, and
conservation areas. Use the topography as an advantage, do not
flatten the site.
• Preserve views.
Civic Uses
• Civic uses such as day-cares, post office, police substation, local
government offices, churches, etc. are encouraged. Ideally, civic
uses should be located centrally in the development and provide
convenient access to all other uses and activities in the
development.
• Civic uses are to be designed to the scale and context of the
neighborhood. Uses are encouraged to be appropriately scaled to
the proposed development and generally limited to a maximum of
10,000 square feet of built area.
Overall Character and Design for the Mixed Use Future Land Use
Category:
• Buildings are to be designed to be pedestrian friendly.
• Buildings shall have shallow setbacks and sidewalks that are a
minimum of 10’.
• Buildings are to be oriented towards other buildings (across the
street) or towards open spaces.
• Minimize the impact of surface parking.
• Mix up land uses to maximize shared parking.
Office Commercial:
The Office Commercial category is a commercial category designed and
intended for the exclusive use of office and limited office‐related activities.
It is established for and will be allocated to those districts best suited for
supporting commercial activity of an office character. It has been
established to encourage and permit general professional and business
Case No.
ZA26-0052 Page 6
offices of high quality and appearance, in attractive landscaped
surroundings with the types of uses and design exterior appearance so
controlled as to be generally compatible with existing and future adjacent
and surrounding residential development. Properties with this designation
may serve as a transition between established residential neighborhoods,
major roadways, and retail development. Other suitable activities are
those permitted in the Public Parks/Open Space and Public/Semi‐Public
categories previously discussed.
Land Use Mix*: The percentages below for the land use mix in the Office
Commercial category are intended only to be guidelines, and greater
flexibility may be appropriate under site specific conditions.
Land Use Percentage of Acreage Flexibility Allowed
Office 85% ±15%
Open Space 10% ±10%
Civic Use 5% ±5%
Total 100%
Retail Commercial:
The Retail Commercial category is a lower‐ to medium‐intensity
commercial category providing for neighborhood‐type retail shopping
facilities and general commercial support activities. It is intended to
provide limited local retail and/or office uses which serve neighborhoods in
close proximity. It is intended that all uses in this category will be
compatible with adjacent single family uses, thereby maintaining the
character and integrity of existing neighborhoods. This category is
intended to encourage comprehensively planned developments. In areas
where the Retail Commercial designation is adjacent to residentially zoned
properties or areas with a residential designation on the Land Use Plan,
lower intensity activities such as office or office‐related uses should be
planned adjacent to the residential uses. Other suitable activities are those
permitted in the Public Parks/Open Space, Public/Semi‐Public, and Office
Commercial categories previously discussed.
Land Use Mix*: The percentages below for the land use mix in the Retail
Commercial category are intended only to be guidelines, and greater
flexibility may be appropriate under site specific conditions.
Land Use Percentage of
Acreage
Flexibility Allowed
Retail 65% ±35%
Office 20% ±25%
Open Space 10% ±10%
Civic Use 5% ±5%
Total 100%
Case No.
ZA26-0052 Page 7
Public/Semi-Public:
Public/Semi‐Public areas are suitable for a wide range of public, civic, and
religious uses, such as government offices and facilities, public and private
schools, churches and related facilities (including parsonage and parochial
schools), cemeteries, and Public Parks/Open Space uses in conjunction
with these developments.
Optional Land Use Recommendations:
The subject property has the Mixed Medical and Wellness and Office
District Overlay
MIXED MEDICAL AND WELLNESS AND OFFICE DISTRICT OVERLAY
This overlay category is designed to allow a mixture of medical/wellness
and office uses.
Mobility & Master Thoroughfare Plan
The Master Thoroughfare Plan designates N. Carroll Avenue an 88’ (A2U)
undivided two-lane arterial road, E. Highland Street an 88’ (A4D) divided
four-lane arterial road, and Grace Lane a 100’ (A4D) divided four-lane
arterial road.
The Master Pathways Plan calls for a minimum 5-foot minimum sidewalk
along E. Highland St. and a minimum 8-foot multi-use trail along the
eastern portion of N. Carroll Ave.
Case No.
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