Title:
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Sanford Commerce Center Small Scale Future Land Use Map Amendment and PD Major Amendment Rezone - Consider a Small Scale Future Land Use Map Amendment from Commercial to Industrial and a Rezone from PD (Planned Development) to PD (Planned Development) for a proposed 144,000 square foot commercial and industrial flex space warehouse development on approximately 17.23 acres, located on the south side of Orange Blvd, and approximately ½ mile east of Oregon St; (Z2026-06/02.26SS.01) (S. Brent Spain, Esquire, Applicant) District 5 - Herr (Annie Sillaway, Principal Planner)
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Agenda Category:
Public Hearing Items
Department/Division:
division
Development Services
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Authorized By:
Joy Giles - Planning Manager
Contact/Phone Number:
Annie Sillaway/407-665-7936
Background:
The Applicant is requesting a Small Scale Future Land Use Map Amendment from Commercial to Industrial, along with a Rezone from PD (Planned Development) to PD (Planned Development), to allow development of a 144,000 square feet of flex-space intended for a mix of commercial and industrial uses on 17.23 acres.
On November 15, 2005, the Board of County Commissioners approved a request for a Small Scale Future Land Use Amendment from Commercial to Industrial on approximately 9.9 acres, along with a Rezone from A-1 (Agriculture) to PD (Planned Development) on approximately 22.3 acres, known as the Orange Boulevard PD. The purpose of the request was to allow commercial uses permitted under the C-1 (Retail Commercial) and C-2 (General Commercial) zoning districts on Lots 1-4, and to allow industrial uses permitted under the C-3 (Heavy Commercial and Very Light Industrial) and M-1A (Very Light Industrial) zoning districts only on Lots 2 and 3 (as shown on the previously approved Orange Boulevard PD Master Development Plan). In 2024, Lot 1 was removed from the PD, reducing the acreage from 22.3 acres to 17.23 acres.
The purpose of this land use amendment and rezone is to allow those C-3 and M-1A uses throughout the entire PD instead of restricting those uses to a designated area. The Applicant is retaining the original entitlements previously approved by the Board, including but not limited to: a maximum Floor Area Ratio (F.A.R.) of 0.65; a maximum building height of thirty-five (35) feet; and building setback of a hundred (100) feet for a two-story building, and hundred and fifty (150) feet for a three-story building along the west perimeter adjacent to residential. The previously established prohibited uses also remain in effect, including mechanical garages, lumber yards, construction companies with outdoor storage, highway striping companies, paint and body shops, office showrooms without assembly or manufacturing, and service stations with gas pumps as an accessory use, and communication towers. The Applicant is also maintaining the existing twenty-five-foot (25') landscape buffer along the western portion of the site to preserve the established buffer.
In addition to retaining these entitlements, the Applicant is proposing two (2) modifications to the PD:
(1) Vacating the western seventy-foot (70') platted access, drainage, and utility easement to allow expansion of the proposed flex-space warehouse building, which would otherwise encroach into a portion of that easement; and
(2) Amending the Future Land Use designation on the portion of land previously known as Lot 4 of the Orange Boulevard PD, from Commercial to Industrial and adding permitted uses consistent with the C-3 and M-1A zoning districts.
(3) Increasing the west perimeter building setback from fifty (50) feet for a one-story building to sixty (60) feet.
The Applicant is requesting a parking reduction as follows:
Required by the Seminole County Land Development Code:
o Manufacturing Concerns and Warehouses: One (1) space per two (2) employees, plus one (1) space per company vehicle; and;
o General Business/Retail/Office: First 10,000 sq. ft. - Four (4) spaces per 1,000 sq. ft. and above 10,000 sq. ft.- three (3) spaces per 1,000 sq. ft.
Proposed by Applicant:
o Warehouse: 0.5 spaces per 1,000 square feet.
o General Business/Retail/Office: 3 spaces per 1,000 square feet.
Due to the allowable mix of uses onsite, Staff does not support the parking reduction as proposed by the Applicant and recommends the following:
Staff proposes: a minimum parking ratio of two (2) parking spaces per 1,000 square feet. This recommendation reflects the wide range of permitted uses proposed within the Sanford Commerce PD. Because these uses vary in intensity, staff determined that a consistent minimum parking ratio of two (2) spaces per 1,000 square feet is appropriate and can be reasonably met by all permitted uses within the district.
The Future Land Use and zoning designations of the surrounding area are as follows:
East: Future Land Use: Industrial
Zoning: C-3 (Heavy Commercial and Very Light Industrial)
West: Future Land Use: Medium Density Residential
Zoning: R-1 (Single Family Dwelling) and R-2 (One-and Two-Family Dwelling)
North: Orange Blvd
Future Land Use: Industrial
Zoning: M-1 (Industrial)
South: Interstate 4
Site Analysis
Floodplain Impacts:
Based on the Flood Insurance Rate Map (FIRM) with an effective date of 2007, the site appears to contain no floodplain.
Wetland Impacts:
Based on preliminary aerial photo and County wetland map analysis, there appears to be no wetlands on the subject property.
Endangered and Threatened Wildlife:
Based on a preliminary analysis, there may be endangered and threatened wildlife on the subject property. A listed species survey may be required prior to final engineering approval.
Utilities:
The site is located within the Seminole County utility service area and will be required to connect to public utilities. Water and sewer capacity are available to serve the proposed development. An eight-inch (8") potable water stub-out is located approximately fifty-feet (50') east of the existing driveway on Lot 1, and an eight-inch (8") gravity sewer main and manhole extend approximately 150 feet south of the existing partial driveway on Lot 1.
Transportation/Traffic:
Access to the subject site is proposed through Lot 1 to the north, which connects to Orange Blvd, an urban major collector road. Orange Blvd currently operates at level‑of‑service A or B, depending on direction and time of day, and has programmed improvements in the County’s five‑year Capital Improvements Program.
Sidewalks:
The developer will be required to construct a sidewalk extending to the north boundary line of the subject site, allowing the future developer of Lot 1 (adjacent to the north) to complete the remaining sidewalk segment and connect it to the existing sidewalk along Orange Blvd.
Drainage:
The proposed project is located within the Lake Monroe Drainage Basin, which has limited downstream capacity; therefore, the site’s design will be required to meet the requirements of the existing approved master drainage requirements.
Buffers and Open Space:
The proposed development provides twenty-five percent (25%) open space and a twenty-five-foot (25') wide landscape buffer adjacent to the west perimeter that includes a three (3) foot high berm with 2.70 plant units per 100 feet, with an opacity of 0.5.
Consistency with the Land Development Code
The proposed PD zoning designation and the associated Master Development Plan have been evaluated for compatibility with the Land Development Code of Seminole County in accordance with Chapter 30, Part 8; and more specifically with SCLDC Sec. 30.8.5.3 - Review Criteria.
SCLDC Sec. 30.8.5.3 - Review Criteria
(a) Comprehensive Plan Consistency. In approving a planned development, the Board of County Commissioners shall affirm that the proposed development is consistent with the Comprehensive Plan, and effectively implements any performance criteria that the Plan may provide.
Staff Finding
The requested Small Scale Future Land Use Map Amendment and PD Major Amendment to allow C-3 and M-1A uses throughout the PD, is consistent with the Seminole County Comprehensive Plan. While the properties adjacent to the west of the subject site are residential, the properties adjacent to the north and east are established with Industrial development, reflecting the predominant pattern of Heavy Commercial and Industrial uses in the surrounding area. The PD defines a maximum F.A.R, permitted and prohibited uses, building setbacks, buffers, and a maximum building height.
(b) Greater Benefits and Innovation Criteria. In addition, PD zoning may be approved only when the Board determines that the proposed development cannot be reasonably implemented through existing provisions of this Code, and that a PD would result in greater benefits to the County than development under conventional zoning district regulations. Such greater benefits must include two or more of the following:
(1) Natural resource preservation.
(2) Crime Prevention (CPTED).
(3) Neighborhood/community amenities.
(4) Provision of affordable or workforce housing.
(5) Reduction in vehicle miles traveled per household.
(6) Transit-oriented development.
(7) Provision of new multimodal connectivity.
(8) Innovation in water or energy conservation.
(9) Innovative development types not currently provided within the County but consistent with the goals of the Comprehensive Plan.
Crime Prevention Through Environmental Design (CPTED) - The building will be positioned to allow full access around its perimeter and will include security lighting to enhance visibility and safety.
Innovative Development Types - The Developer is providing an innovative flex space warehouse project that will support Economic Development in Seminole County.
(c) In addition, any proposed development under the PD ordinance must address the following goals:
(1) Meet or exceed the arbor, tree preservation, and tree planting requirements of this Code on a project-wide basis.
Staff Findings
The subject property does not have any existing trees on site; however, the Developer proposes to plant a substantial buffer along the west perimeter of the development adjacent to the existing residential neighborhood. The Developer is required to meet the Arbor Code requirements at the time of Final Engineering review.
(2) Minimize transportation impacts through design elements, which may include but are not limited to: multimodal connectivity; electric vehicle charging; infrastructure of pedestrian or bicycle infrastructure exceeding the minimum standards; shared transportation parking or devices; pedestrian-oriented architectural design; accommodation or neighborhood electric vehicles; transportation demand management; or permitting complementary uses.
Staff Findings
The Developer will provide an internal sidewalk for pedestrian and bicycle access, connecting the proposed development to the existing sidewalk along Orange Blvd. This improvement will be detailed at the time of Final Engineering.
(d) The PD application shall include a narrative addressing the following:
(1) How the proposed development addresses the goals of the Comprehensive Plan.
Staff Findings
The proposed development supports Comprehensive Plan Policy FLU 5.4.6 - Location of Employment Uses, which encourages employment and industrial uses adjacent to residential areas, provided the site is large enough to accommodate the buffers necessary to protect nearby residences from adverse impacts such as light, glare, odors, and noise. The proposed development has increased the western building setback from fifty (50) feet to sixty (60) feet and enhancing the required landscape buffer. The western twenty-five (25) foot buffer will include a three (3) foot high berm; and the landscape components shall provide an opacity rating of 0.5 opacity with 2.7 plant units per 100 linear feet using Plant Group B. In addition, the building height will not exceed thirty-five (35) feet. These measures collectively reduce potential adverse impacts, such as light, noise, and glare, on nearby residential properties while supporting job creation within the area.
(2) Why the proposed development cannot be achieved under and existing conventional or special zoning district.
Staff Findings
Policy TRA 2.4.3 promotes infill development to maximize the efficient use of the existing transportation network within established urban areas and to discourage urban sprawl by supporting the redevelopment of neighborhood‑scale nonresidential uses. The proposed industrial flex warehouse development supports new employment-oriented space within an existing urbanized area, maximizing the efficiency of the current transportation network and reducing the need for outward expansion. The project further enhances multimodal mobility by providing safe pedestrian connections to the public right of way, incorporating bicycle parking and end of trip facilities, and ensuring internal circulation that accommodates walking and cycling between building entrances, loading areas, and parking.
(3) How the proposed development provides an innovative approach to land development.
Staff Findings
A flex space warehouse provides adaptable, multi-tenant spaces that can adjust to changing market needs. The development as proposed can accommodate a wider range of permitted uses than a standard zoning district, increasing land efficiency and long term economic resilience compared to traditional single use industrial development.
(4) A description of benefits to the County that cannot be achieved under the existing provisions of this Code.
Staff Findings
The proposed development provides enhanced design flexibility, and higher quality site planning that cannot be achieved under the existing zoning provisions of straight zoning. These benefits allow the project to better support County goals for economic development and infill redevelopment and allows the County to place specific conditions for the development that cannot be achieved under conventional zoning districts. Staff finds the requested PD zoning classification to be consistent with the Land Development Code and compatible with the trend of development in the area.
Consistency with the Comprehensive Plan
Under Policy FLU 2.9 Determination of Compatibility in the Planned Development Zoning Classification, the County shall consider uses or structures proposed within the Planned Development zoning classification on a case-by-case basis evaluating the compatibility of the proposed use or structure with surrounding neighborhoods and uses. Compatibility may be achieved by application of performance standards such as, but not limited to, lot size, setbacks, buffering, landscaping, hours of operation, lighting, and building heights.
Comprehensive Plan - Standards of Review
A. Whether the character of the surrounding area has changed enough to warrant a different land use designation being assigned to the property.
Staff Findings
The subject property currently has Commercial and Industrial Future Land Use designations. The proposed Land Use Amendment would allow Industrial uses that are compatible with the surrounding area. Properties to the east and north also have an Industrial Future Land Use designation. The site borders Interstate 4 to the south, and industrial uses are generally preferred along interstate corridors because they are more compatible with higher noise conditions.
B. Whether public facilities and services will be available concurrent with the impacts of development at adopted levels of service.
Staff Findings
The subject property is located within the Seminole County Utility service area and is required to connect to public utilities; capacity is available.
At the time of Final Engineering review, the Developer will be required to provide a traffic study if the proposed development exceeds fifty (50) weekday peak hour trips based on the ITE Trip Generation Manual.
C. Whether the site is suitable for the proposed use and will be able to comply with floodprone regulations, wetland regulations and all other adopted development regulations.
Staff Findings
The subject site is vacant and does not contain wetlands or flood plain on site. The site has some existing infrastructure in place and is required to meet all requirements of development per the SCLDC and Comprehensive Plan.
D. Whether the proposal adheres to other special provisions of law (e.g., the Wekiva River Protection Act).
Staff Findings
Not Applicable
E. Whether the proposed future land use is compatible with existing surrounding development and future land uses in accordance with FLU Exhibit: Compatible Transitional Land Uses.
Staff Findings
The proposed Future Land Use designation of Industrial is consistent with the existing Industrial classifications in the area. The Land Use Amendment to Industrial is compatible with surrounding development patterns. Properties to the east and north have a Future Land Use designation of Industrial, and the site directly abuts Interstate 4 to the south. To the west is an existing residential neighborhood designated as Medium Density Residential.
To address compatibility concerns along the western boundary, the developer is proposing to increase the building setback from fifty (50) to sixty (60) feet, provide adequate buffering within the twenty-five (25) foot buffer area and ensure that no bay doors are oriented toward the west.
F. Whether the proposed use furthers the public interest by providing or enabling the provision of:
1. Sites for public facilities or facility improvements in excess of requirements likely to arise from development of the site (applicable to Planned Development Future Land Use).
Staff Findings:
Not applicable.
2. Dedications or contributions in excess of Land Development Code requirements (applicable to PD Future Land Use).
Staff Findings:
Not applicable
3. A range of attainable housing opportunities and choices, including affordable or workforce housing
Staff Findings:
Not applicable.
4. Economic development (enabling higher paying jobs).
Staff Findings:
The Applicant is proposing to provide flex spaces that will permit a wide range of commercial and industrial uses that will create more diverse jobs in the area.
5. Reduction in transportation impacts on area-wide roads.
Staff Findings:
The proposed development may generate more than fifty (50) weekday peak‑hour trips. Based on the final proposed uses, the developer may be required to provide a traffic study at the time of Final Engineering.
6. Mass transit and a variety of transportation choices; or
Staff Findings:
The are no longer local bus stops, but the Scout does run in this area to provide a transportation.
7. Whether the proposed land use designation is consistent with other applicable Plan policies and supports and is consistent with the Central Florida Regional Growth Vision, the Strategic Regional Policy Plan, and the State Comprehensive Plan.
Staff Findings:
Based on the Central Florida Regional Growth Vision, the proposed project as an infill development is providing compatibility between adjacent land uses to ensure there are no impacts to the adjacent historical Bookertown neighborhood.
The Applicant is providing adequate landscape buffering between the proposed development and the residential neighborhood and a minimum sixty (60) foot western building setback.
Staff finds the proposed Industrial future land use designation and Planned Development zoning classification to be consistent with the Comprehensive Plan.
Community Meeting
In compliance with Seminole County Land Development Code Sec. 30.49 - Community Meeting Procedure, the Applicant conducted a community meeting on May 14, 2026; details of the community meeting have been provided in the agenda package.
Requested Action:
Staff requests the Planning and Zoning Commission recommend to the Board of County Commissioners adoption of the Ordinance enacting a Small Scale Future Land Use Map Amendment and concurrent Rezoning Ordinance per the following two motions:
1.) Based on Staff’s findings and the testimony and evidence received at the hearing, the Planning and Zoning Commission finds the request meets the identified portions of the Comprehensive Plan and recommends the Board of County Commissioners adopt the Ordinance enacting a Small Scale Future Land Use Map Amendment from Commercial to Industrial.
2.) Based on Staff’s findings and the testimony and evidence received at the hearing, the Planning and Zoning Commission finds the request meets the identified portions of the Seminole County Land Development Code and recommends the Board of County Commissioners adopt the Ordinance enacting a rezone from PD (Planned Development) to PD (Planned Development), and approve the associated Development Order and Master Development Plan on approximately 17.23 acres, located on the south side of Orange Blvd, approximately ½ mile east of Oregon St.