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Item 7CCity of Southlake Planning Department MEMORANDUM February 28, 2003 TO: Honorable Mayor and City Council Members FROM: Bruce Payne, AICP, Planning Director SUBJECT: Resolution No. 03 -008, Amendment to the 1998 Land Use Plan, designating Town Square with the new "Town Center' ' land use designation REQUESTED ACTION: Conduct a public hearing and consider the proposed amendment to the 1998 Land Use Plan adding the "Town Center" land use designation and placing the new category in the general area bounded by SH 114, N. Carroll Avenue, FM 1709 (E. Southlake Boulevard) and the east boundary of Southlake Town Square. APPLICANT: City initiated. BACKGROUND: The 1995 Southlake Corridor Study recognized the community's need to establish a mixed use Village Center located east of Carroll Avenue between SH 114 and FM 1709. Accordingly, the City designated Village Center west (location of Town Square) with the Mixed -Use land use designation in the 1998 Land Use Plan update. As Town Square has developed and evolved, its quality and characteristics as a true small -town downtown have been established. The blanket Mixed -Use designation gives the city limited control over the quality of development it desires in its downtown. Hence City Staff is proposing the creation of a `Town Center' land use designation which will uniquely define the form of development that exists only in Town Square. The concept for the `Town Center' designation is derived from the 1995 Corridor Study recommendation for a Village Center to be the focus of the community. Page 1 Land Use Plan 1998 The Town Center land use designation is proposed to be geographically limited to the general area bounded by SH 114, N. Carroll Avenue, FM 1709 (E. Southlake Boulevard) and the east boundary of Southlake Town Square. This limitation, together with the standards in the Downtown Zoning District and the Downtown District Design Guidelines shall act in concert to enhance and protect Town Square's quality as the community's downtown. P &Z ACTION: January 9, 2003; Approved (6 -0) SUPPORTING DOCUMENTS: Resolution 03 -008 amending the 1998 Land Use Plan Exhibit A — Proposed text amendments Exhibit B — Proposed map amendments to the 1998 Land Use Plan Page 2 Land Use Plan 1998 RESOLUTION NO. 03 -008 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SOUTHLAKE, TEXAS, AMENDING THE CITY'S ADOPTED 1998 LAND USE PLAN AND MAP TO AMEND THE GOALS AND OBJECTIVES TO CREATE THE "TOWN CENTER" LAND USE DESIGNATION AND APPLY IT TO THE GENERAL AREA BOUNDED BY HWY 114, NORTH CARROLL AVENUE, F.M. 1709 ( SOUTHLAKE BLVD.), AND EASTERN EDGE OF SOUTHLAKE TOWN SQUARE PROPERTY LINE AND PROVIDING AN EFFECTIVE DATE. WHEREAS, the City of Southlake, Texas is a home rule city acting under its charter adopted by the electorate on April 4, 1987 pursuant to Article XI, Section 5 of the Texas Constitution and Chapter 9 of the Local Government Code; and WHEREAS, Section 11.06 of the Southlake City Charter provides for the adoption and updating of a Comprehensive Master Plan and its components, including the Land Use Plan; and WHEREAS, the Planning and Zoning Commission has forwarded a recommendation that the Land Use Plan be amended as set forth herein below and the City Council having conducted a public hearing on the proposed changes. NOW, THEREFORE, BE IT RESOLVED BY THE CITY COUNCIL OF THE CITY OF SOUTHLAKE, TEXAS: Section 1. All of the findings in the preamble are found to be true and correct and the City Council hereby incorporates said findings into the body of this resolution as if copied in its entirety Section 2. The proposed amendments to the text of the 1998 Land Use Plan include amendments to the Goals and Objectives and the Land Use Categories and are attached as "Exhibit A ". The proposed amendments to the 1998 Land Use Page 3 Land Use Plan 1998 Plan map designate the area generally bounded by Hwy 114, North Carroll avenue, F.M. 1709 ( Southlake Blvd.), and eastern edge of Southlake Town Square property line as shown in "Exhibit B ". Section 3. The different elements of the Comprehensive Master Plan, as adopted and amended by the City Council from time to time, shall be kept on file in the office of the City Secretary of the City of Southlake, along with a copy of the minute order of the Council so adopting or approving same. Any existing element of the Comprehensive Master Plan which has been heretofore adopted by the City Council shall remain in full force and effect until amended by the City Council as provided herein. Section 4. This resolution shall become effective on the date of approval by the City Council. PASSED AND APPROVED THIS THE DAY OF MARCH 2003. CITY OF SOUTHLAKE, TEXAS BY: Mayor Rick Stacy ATTEST: Lori Farwell City Secretary APPROVED AS TO FORM: City Attorney City of Southlake, Texas Page 4 Land Use Plan 1998 Exhibit A City of Southlale, Land Use Plan Page 1 Land Use Plan 1998 INTRODUCTION The City of Southlake's present Land Use Plan was adopted in January of 1998, revising the June of 1993 Land Use Plan. Between the 1993 and 1998, the population increased approximately forty -seven percent (47 %) and since 1998 it has increased an additional eighty -one percent (81 %). Due to several high - quality residential developments, increased interest in commercial and retail development has ensued. Demands for infrastructure and other City services have increased dramatically. This dynamic growth and demands for services emphasize the importance of periodically updating the Land Use Plan as well as other planning policies. The format of this report follows the methodology in Appendix A. The Introduction section describes the purpose of this Land Use Plan and the general relationship of land use plans to zoning. The Goals and Objectives section describes the influential factors for the formulation of the Land Use Plan. The Land Use Categories and Airport Compatible Land Uses sections describe the allowable activities and constraints for future development in the individual land use categories. The Conclusion restates the rational approach used in creating this Land Use Plan. And lastly, Appendix B summarizes the differences between the January 1998 Land Use Plan and the 1993 Land Use Plan. Purpose The City Charter establishes the Comprehensive Master Plan as a policy instrument that guides "...the growth, development, and beautification of the City." Presently, the Comprehensive Master Plan consists of various related policy components. Collectively, they are the basis for short-term and long -term decisions on the physical development of Southlake. Components of the Comprehensive Master Plan include: 1. Land Use Plan; 2. Thoroughfare Plan; 3. Parks, Recreation, and Open Space Master Plan; 4. Water, Sewer, and Drainage Master Plans; and 5. Solid Waste Disposal Master Plan. Particularly, the Land Use Plan guides the physical development of Southlake by establishing a general pattern of land uses. It allocates the appropriate location, concentration, and intensity of future development within the City by land use categories. As such, this Land Page 2 Land Use Plan 1998 Use Plan consists of a map illustrating the pattern of land uses by category and text with descriptions of the individual land use categories. As part of the update of the Land Use Plan in 1997 -98, the description of all land use categories will be included on the face of each map prepared by the city to facilitate a greater level of understanding about the purpose and intent of each category. Relationship to Zoning It is important to clarify the relationship between comprehensive plans, land use plans, and zoning. As stated previously, a comprehensive plan and its land use plan component are policy instruments; therefore, they are advisory and general in nature. Zoning, in the form of a zoning ordinance, is the primary mechanism used by a municipality to implement its land use plan portion of a comprehensive plan. Texas Local Government Code, Section 211.004, Compliance with Comprehensive Plan, differentiates zoning ordinances from land use (or comprehensive) plans. The generally accepted interpretation of Section 211.004 is that an adopted land use plan (or comprehensive plan) forms a legal basis for zoning and, therefore, zoning should be in accordance with the land use plan. The zoning ordinance interprets the general pattern and categories of land uses in the land use plan into districts of permissible activities within specific district boundaries. Page 3 Land Use Plan 1998 GOALS AND OBJECTIVES The Land Use Plan translates the community goals and objectives for the physical development of Southlake into a general pattern of land uses. The goals and objectives of this Land Use Plan are essentially the same as those enumerated in the 1993 Land Use Plan. The pace and magnitude of growth since 1993 has reinforced and amplified those aspirations for the development of the City. Below are the principal goals and explicit objectives that are the foundation of this Land Use Plan: Goal: Preserve the rural environment and scenic character of the City. • Protect the feeling and ambiance of "openness ". • Conserve the natural beauty of trees, vegetation, rolling hills, creeks, and floodplains. Goal: Maintain and enhance the quality of life. • Protect existing residential neighborhoods from any negative impacts of fiiture development. • Allocate land -use activities to maximize convenience and minimize traffic congestion. Goal: Promote compatible and orderly development. • Encourage the continued development of safe, healthful, and viable neighborhoods. • Provide a rational balance between residential and non - residential uses. • Minimize potential conflicts between activities. • Incorporate the land use recommendations provided in the 1995 Southlake Corridor Study to the greatest degree possible. • Encourage the development of a mixed -use town center that will create a focal point for the community by way of its geographic location, standards for development and mix of uses and services. Page 4 Land Use Plan 1998 LAND USE CATEGORIES Land use categories describe the allowable activities or development that may occur in a particular category; activities that are not detailed in a particular category should be prohibited. Following are descriptions of the individual land use categories in the Land Use Plan. Floodplain Floodplain illustrates area designated by the August 1995 Federal Emergency Management Agency (FEMA) maps as being in the 100 -year floodplain. The "floodplain" is an expanse of natural vegetation and wildlife, and should be preserved as natural open area. Within the floodplain is "floodway" that must be kept free of encroachment in order that the 100 -year flood may be carried without harmful increases in the height of flood waters. Although it is not to be encouraged, the portion of the floodplain not in the floodway may be reclaimed for development under certain circumstances if in accordance with FEMA regulations. The designated land use for areas of reclaimed floodplain is that of the immediately adjacent land use category. Corps of Engineers The Corps of Engineers category includes all property adjacent to Grapevine Lake owned by the federal government and managed by the U.S. Army Corps of Engineers (COE). The primary purpose of this property is the temporary reservoir storage of flood waters. Within the COE ownership (and, in some instances, on adjacent private land) is a regulatory flowage easement at an elevation of 572 feet above sea level. Through lease agreements with the COE, property within the Corps of Engineers category may be utilized as parks, recreation, and open space. Ancillary commercial and retail activities associated with these uses are permitted, but no habitable structures may be developed within the flowage easement. Public Parks / Open Space Public Parks / Open Space are public areas designated for active and passive recreation, such as parks and athletic complexes, and public open space for the preservation of the scenic vistas and natural vegetation of the City. This Land Use Plan depicts only existing Public Parks / Open Space facilities; potential Public Parks / Open Space sites are illustrated in the Page 5 Land Use Plan 1998 Parks, Recreation, and Open Space Master Plan. Public / Semi - Public Public / Semi - Public areas are suitable for a wide range of public and private 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. Low Density Residential The Low Density Residential category is for detached single - family residential development at a net density of one or fewer dwelling units per acre. Other suitable activities are those permitted in the Public Parks / Open Space and Public / Semi - Public categories described previously. The Low Density Residential category encourages the openness and rural character of the City of Southlake. Medium Density Residential The Medium Density Residential category is suitable for any single - family detached residential development. Limited low intensity office and /or retail uses may be permitted provided that the nature of the commerce is to support the surrounding neighborhood and that the area is sufficiently buffered from adjacent residential property. Such non - residential uses must be compatible with and not intrusive to the adjacent residential uses. Other suitable activities are those permitted in the Public Parks / Open Space and Public / Semi - Public categories previously discussed. 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 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. Other suitable Page 6 Land Use Plan 1998 activities are those permitted in the Public Parks / Open Space and Public / Semi - Public categories previously discussed. 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. Mixed Use 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. 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. Page 7 Land Use Plan 1998 Town Center The Town Center land use designation is intended to enhance and promote the development of the community's downtown. The goal is to create an attractive, pedestrian - oriented environment that becomes the center of community life in Southlake. It may include compatibly designed retail, office, cultural, civic, recreational, hotel and residential uses. All uses shall be developed with a great attention to design detail and will be integrated into one cohesive district or into distinct sub - districts, each with its own unique characteristics. A mix of different uses is encouraged to create a vibrant, lively, and unique environment. Industrial Industrial and business service development that is relatively free of unwanted side effects, such as unsightliness, noise, odor, glare, vibrations, etc., is permitted in the Industrial category. If meeting the qualification of relatively free of unwanted side effects, suitable types of development in the Industrial category can be characterized by the manufacturing, processing, packaging, assembly, storage, warehousing and /or distribution of products. Ancillary commercial and retail activities associated with these uses are permitted. Public Parks / Open Space and Public / Semi - Public activities as described above may be permitted if surrounding industrial uses do not pose hazards and are sufficiently buffered. Page 8 Land Use Plan 1998 AIRPORT COMPATIBLE LAND USES Due to an agreement between the City of Southlake and the Dallas -Fort Worth International Airport, development is restricted in certain areas of the City. The agreement created two noise contour "zones" within Southlake; these noise contour "zones" are indicated on the land use map. No residential development is allowed within the 75+ LDN noise contour. Residential development is allowed in the 65 -75 LDN contour provided that a certain noise level reduction (NLR) is met. Non - residential uses are permitted in both contour zones, but have to meet specific noise level reduction requirements. Please refer to the Airport Compatible Land Use Zoning Ordinance No. 479 for details of these regulations. Page 9 Land Use Plan 1998 CONCLUSION Planning is an ongoing, continuous process, and this Land Use Plan is a reflection of that belief. Although the same community goals and objectives of the present Land Use Plan have been carried forward, the new perspective and experience of rapid growth have resulted in a slightly different interpretation. This Land Use Plan represents a rational approach that balances the following competing and conflicting goals: • Growth versus no growth, • Economic development versus "rural" environment, and • Number of residences versus the ability to provide public and private services. Page 10 Land Use Plan 1998 APENDICES APPENDIX A Methodology for the 1998 Revision With the assistance of the Planning and Zoning Commission, SPIN representation, and interested citizens, the City staff outlined a general strategy for the formulation of the Land Use Plan at a "kick -off' meeting held August 28, 1997. The strategy consisted of three phases. The first phase was the "problem identification" stage and consisted of an inventory of existing developed conditions and subsequent analysis of the conditions, while incorporating the principles of the 1995 Corridor Study, where applicable. The second phase was the acceptance of the community goals and objectives of the present (1993) Land Use Plan as a basis for beginning all study of proposed uses. The third phase was the definition and allocation of the land use categories from the information discovered in the previous two phases by the Planning and Zoning Commission during a series of work sessions held during the latter part of 1997. This process was envisioned to proceed sequentially; however, due to the area involved, the desire for comprehensiveness, and the intent to involve the public, the City was divided into eight study areas. For each of the study areas, City staff prepared an information package for the Planning and Zoning Commissioners and interested public. The text consisted of an inventory of legal nonconforming uses, properly zoned uses that are not in compliance with the Land Use Plan, and a description of proposed land use changes. The graphics information included the existing zoning, 1993 Land Use Plan, Thoroughfare Plan, and proposed alternatives for this Land Use Plan. Public work sessions for the discussion of the individual study areas were held on the off - Thursdays when no regularly scheduled meeting was held. The public meetings were duly posted on all official bulletin boards, included in the various publications produced by the City, and announced via the SPIN organization to interested neighborhood groups. The public hearing held by the Planning and Zoning Commission on December 18, 1997, was duly noticed in Southlake's official publication, the Fort Worth Star Telegram and also in the Southlake Newsletter a monthly publication of the City that is mailed to all residential and non - residential water - billing accounts. From the discussions, a preliminary Land Use Plan was developed for each of the study areas. The individual study area plans were then combined into a "city- wide" Land Use Plan and presented to the Planning and Zoning Commission. This "city- wide" plan was reviewed for boundary conflicts between study areas and overall comprehensiveness. On January 15, 1998, the Planning and Zoning Commission and the City Council held a Joint Work Session to share information and conclusions gathered during the update process. The final adoption of the Land Use Plan and Text was approved by City Council on January 20, 1998. APPENDIX B Comparison to the 1993 Land Use Plan This Land Use Plan is an evolution of the 1993 plan. However, some revisions were made. One fundamental change is the addition of two land use categories - Office Commercial and Retail Commercial. The Office Commercial category was designated in the 1995 Corridor Study as a means of more closely defining areas intended for the primarily office- related functions in the city, which are generally along the major corridors between the nodes of Retail Commercial (a category also recommended in the Corridor Study) located at major intersections. Two other fundamental changes were the removal of any type of commercial activity from the Low Density Residential category description, and the restriction of residential activity in the Medium Density Residential category description to single - family dwellings only. The remaining changes were minor and entailed rearranging certain land use category descriptions. The chart on the following page indicates the total acreage and percentage of each land use category for the 1993 and the 1998 plans. Land Use Plan Comparisons CATEGORY 1993 Land Use Plan 1998 Land Use Plan 2003 Land Use Plan Acreage Percent Acreage Percent Acreage Percent Floodplain 95183 077 88735 616 88775 6.06 Corps of Engineers 756.51 5.33 756.52 5.16 756.52 5.16 Public Parks /Open Space 24.50 0.17 266.10 1.82 266.10 1.82 Public /Semi - Public 253.22 1.79 474.20 3.24 474.20 3.24 Low Density Residential 468356 33.03 5023.65 34.29 5023.65 34.29 Med. Density Residential 4268.45 3410 379471 25.90 3794.71 25.90 Mixed Use 2419.37 17.06 1770.21 12.08 1643.21 11.22 Industrial 491.80 3.47 488.13 3.33 488.13 3.33 Office Commercial N/A N/A 392.02 2.67 392.02 2.67 Retail Commercial N/A N/A 462.72 3.16 462.72 3.16 Town Center N/A N/A N/A N/A 127 0.87 (+ R.O.W., etc.) 324.46 2.28 334.22 2.29 334.22r 2.29 TOTALS 14181.7 100.00 14650.23 100.00 14650.23 100.00 Exhibit B Land Use Map Town Center -t N °r Land Use Designation: •r� A R>r crrr Y G LEGEND HALL r� $ A Land Use designation 0100 YEAR FLOOD PLAIN 0 CORPS OF ENGINEERS BOUNDARY =PUBLIC PARK SIOPEN SPACE 0 PUB LIC)SEMI- PUBLIC k 0 LOW DENSITY RESIDENTIAL NoRTHVV s PK E 0 MEDIUM DENSITY RESIDENTIAL r =OFFICE COMMERCIAL = RETAIL COMMERCIAL tl�o x1` k ❑e =MIXED USE - INDUSTRIAL =TOWN CENTER r � ❑ ❑ V : ,71B LOCATION MAP a 1000 0 1000 2000 3000 Feet